Puget Sound Region War & Post War Development

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PUGET SOUND REGION, WAR AND POST-WAR DEVELOPMENT

MAY 1943

PURCHASEDFROM MULTNOM4H COUNTY UBRARV TITLE WME BOOKSTQR

PUGET SOUND REGIONAL PLANNING COMMISSION "2 AND WASHINGTON STATE PLANNING COUNCIL in cooperation with NATIONAL RESOURCES PLANNING BOARD

UNITED STATES GOVERNMENT PRINTING OFFICE - - WAShINGTON : 1943 NATIONAL RESOURCES PLANNING BOARD FR]ERIc A. DELANO, Chainman CHARLES E. MERRIAM GEORGE F. YANTIS

ADVISORS HENRY S. DENNISON BEARDSLEY RUML

DIRECTOR CHARLES W. ELIOT

FIELD OFFICEPACIFIC NORTHWEST B. H. KIZER, Chairman RoF. BESSEY, Counselor JAMES E. MAXWELL Orro W. CROY ARTHUR D. McVo T. H. ELLIOTT JOSHUA H. VOGEL, Consultant

Report prepared in cooperation with Washington State Planning Council and Puget Sound Regional Planning Commission 417 Social Science Hall, University of Washington, Seattle

Representing 12 Counties of the State of Washington Clallam San Juan Whatcom Jefferson Island Skagit Mason Kitsap Snohomish Thurston Pierce King

II FOREWORD

The Puget Sound Region has faced great problems in adjusting to the wartime demands upon the human and natural resources, the facilities, and institutions of the area.In the post- war adjustment equally great problems seemcertain to arise. The forward-looking citizens of the region want to understand what they face and to make plans and programs to assure the continued progress and development of the group of counties around Puget Sound. This report on the War and Post-War Development of the Puget Sound Region was prepared by the people of the area. The Board has assisted in the work through its field office and by providing consulting services of competent advisers. In the belief that the plans and methods of attack on these problems developed by the Puget Sound Regional Planning Com- mission may be suggestive and helpful to other congested war areas and regions in making their own post-warplans, the Board authorized the publication of this report. CHARLES W. ELIOT, Director.

SEPTEMBER :15, 1943.

III

y43 PUGET SOUND REGIONAL PLANNING COMMISSION Chairman HARRY P. CAIN, Mayor, City of Tacoma

Executive Board HARRY P. CAIN (Chairman). LESLIE A. STONE (Secretary), Chairman, Orting City Planning Commission. JOSHUA H. VOGEL (Executive Secretary), Consulting Engineer, Seattle. R. V. WELTS (Vice Chairman, Dist. No. 1), Attorney, Mount Vernon. OTWAY PARDEE (Vice Chairman, Dist. No. 2), Secretary, King County Planning Commission. HENRY A. BROWN (Vice Chairman, Dist. No. 3), Chairman, Kitsap County Board of Commissioners. Standing Gommittee.9 Basic Data: Chairman, ALFRED L. MILLER, Professor of Mechanics and Structures, University of Washington. Public Health: Chairman, RICHARD G. TYLER, Professor of Hydraulics and Sanitary Engineering, University of Washington. Resources: Chairman, H. H. MARTIN, Professor of Geography, University of Wash- ington. Transportation: Chairman, L. J. WRIGHT, Assistant County Engineer, Skagit County. Government Organization: Chairman, DONALD H. WEBSTER, Associate Professor of Political Science, University of Washington. Finance: Chairman, H. 0. WALBERG, Civil Engineer, Skagit County.

Executive Secretary JOSHUA H. VOGEL, Planning Consultant, Seattle Iv PUGET SOUND REGIONAL PLANNING COMMISSION 417 SOCIAL SCIENCE HALL, UNIVERSITY 01" WASHINGTON SEATTLE, WASH. May 1, 1943. WASHINGTON STATE PLANNING COUNCIL, Olympia, Wash. NATIONAL RESOURCES PLANNING BOARD, Washington, D. C. GENTLEMEN: We are happy to submit herewith a report of the Puget Sound Regional Planning Commission entitled Puget Sound RegionWar and Post-War Development. This report summarizes the thinking of a number of representative people of the 12 northwestern Washington counties comprising the Puget Sound region, and reviews their experience with regional problems, together with a summation of their plans and hopes. We consider this report to be a substantial contribution looking toward the solution of some of the more pressing problems of the region, and hope that it may serve as well as a model and inspiration for other similar regions in their consideration of current and post-war problems. Therefore, it is our considered opinion that Puget Sound RegionWar and Post- War Development is worthy of preservation in a more permanent form and for this reason we respectfully request that it be printed under the auspices of the National Resources Planning Board. Most respectfully yours, HARRY P. CAIN, Chairman. WASHINGTON STATE PLANNING COUNCIL 404 TRANSPORTATION BUILDING OLYMPIA, WASH. May 9, 1943. MR. CHARLES W. ELIOT, Director, National Resources Planning Board, Washington, D. C. DEAR MR. ELIOT:In transmitting this report dealing with war and post-war development in the Puget Sound region it is rather difficult to choose the points to be emphasized.Of possible greatest importance is the demonstration of cooperation of Federal, State, county, city, and other public and private organizations, together with the people of the region.It is not a report that has been written in the "ivory towers;" rather it is the result of down-to-earth joint discussion and study of the various interests involved.Too much emphasis cannot be placed on this type of approval. With the great upsurge of post-war thinking the report's publication is most opportune.It not only reviews the basis of the Puget Sound region's economy but points to new opportunities for expansion within its natural resource base.Long recognized as an area offering the maximum of enjoyable living, the report points out means for the expansion of services and facilities for the further well-being of the region's people. The assistance, financial and advisory, of your board is most appreciated and here acknowledged.Your regional office in Portland, under the able leadership of Roy F. Bessey, produced the majority of the maps and was of constant assistance.Without the services of Joshua H. Vogel, whom your board assigned as consultant on this task, it is doubtful if the report could have been completed in the limited time and with the excellent results as above mentioned. We commend the report, its procedures, findings and recommendations through you to national, State, county and city authorities and to the people of the region. Very sincerely yours, B. H. KIZER, Chairman.

V ACKNOWLEDGMENTS

This report could not have been written without Un- port.Thanks are due to James E. Maxwell for eco- stinting assistance and cooperation from a large number nomic research, to Otto W. Croy for public works finan- of individuals and agencies in the Puget Sound region. cial analysis, to T. H. Elliott, J. H. Post, and Arthur D. For assistance in addition to that for which recog- McVoy for preparing maps, to George Sundborg and nition is given in the various chapters and section head- Florence E. Wolfe for editing the manuscript and, most ings, the Puget Sound Regional Planning Commission particularly, to Joshua H. Vogel for shouldering the gratefully acknowledges the contributions in work, main task of organizing and directing the work from counsel, and advice of the following: which this report has resulted. State of Wa.$hington Agencies.Washington State Planning Council, Department of Public Health, De- partment of Education, Department of Conservation Drs. Fossum and Schafer have requested that the fol- and Development, Department of Highways, Depart- lowing acknowledgments be made pertaining to their ment of Fisheries, and State Parks Committee. sections of this report and also to the Tacoma progres- Universitq of Washington.Prof. H. H. Martin of sive urban plan, which was developed with the coopera- the Geography Department, Prof. N. H. Engle of the tion of the National Resources Planning Board: Bureau of Business Research, Prof. Gordon Marck- College of Puget Süund.Dr. Charles Battin and worth of the College of Forestry, Prof s. Jesse F. Steiner Ellery Capen of the Department of Economics, Dr. and Calvin F. Schmid of the Department of Sociology, Frank Williston and Dr. L. S. Shelmidine (now lieu- and Prof. Richard G. Tyler of the College of Engineer- tenant, United States Navy) of the Department of ing. Political Science, Prof. F. A. McMillin of the Depart- College of Puget Sound.Dr. Paul R. Fossum, De- ment of Geology, Prof. James It. Slater of the Depart- partment of Economics, and Dr. Marvin R. Schafer, ment of Biology, Prof. Arthur Frederick of the De- Department of Sociology. partment of Religious Education, Librarian Warren Wa.9hington State Gollege.Prof. Ben H. Pubols, L. Perry (now lieutenant, United States Army; Miss College of Agriculture, Department of Farm Manage- Helen Lewis, Acting Librarian, is functioning in his ment and Agricultural Economics. place on the Tacoma project), Dr. It. L. Powell (lieu- Federal Agencies.United States Geological Survey, tenant, United States Army) and Mr. Gibbs of the De- National Park Service, Bonneville Power Administra- partment of Education, Prof. It. D. Sprenger of the tion, United States Engineers, United States Forest Department of Chemistry, President Emeritus Dr. Ed- Service,Civil Aeronautics Administration, United ward H. Todd and President Dr.R.Franklin States Employment Service, National Housing Agency, Thompson. Soil Conservation Service, and National Resources Other Tacornans.Chairman S. J. Maxwell and Lee Planning Board. Merrill (lieutenant junior grade, United States Navy) And The Association of Washington Cities, the City of the City Planning Commission, J. M. Grey of the Light Departments of Seattle and Tacoma, the Puget Weyerhaeuser Sales Corporation, Frank Walsh, of the Sound Power and Light Co., and Jesse Epstein and Chamber of Commerce, V. B. Jones of Tacoma City Allen R. Potter of the Housing Authority of Seattle. Light, George Osgood of the Port Commission, W. W. The National Resources Planning Board provided Durham of the City Schools, Carl D. Forsbeck, City technical assistance in the final preparation of there- Engineer, and the entire Metropolitan Park Board. VI PUGET SOUND REGION, WAR AND POST-WAR DEVELOPMENT

CONTENTS Page Page I. Introduction: Purpose and General Problems III. Current and Anticipated Problems and General Plans to Meet ThemContinued II. The Region and Its Present Status 7 4. Water Resources 58 The Puget Sound Region 9 Water Supplies 58 Geographical Description 9 Flood Control 59 Climate 11 Navigation 61 Y Geographical Relationships 14/ Power Resources 64 Resource Base and Human Activities 14 Sewage and Stream Pollution 69 2.Population 16 Fisheries 75 A. Growth and Distribution 16 Irrigation 78 Influence of World Position 16 Recreation 80 Location of Early Settlements 16 Consolidated Plan for Water Resources 80 Pioneer Pattern of Settlement 16 83 Distribution Map of 1900 17 5.Industry Map of 1910 17 Manufacturing 83 Maps of 1920 and 1930 17 Lumbering 85 1940 Pattern 17 Paper and Wood Pulp 85 The Pattern Today 17 Agriculture 88 Forecast of Future Pattern 23 Mining 88 B. Composition and Trends 23 Fishing 89 Distribution and Trends 23 6. Commerce 90 Composition 25 A. Pattern of Commercial Activity 90 3. The Regional Economy in General 31 Retail Trade 90 The Region's Major Economic Functions 31 Service Establishments 90 Regional Maturity 31 Wholesale Trade 90 General Economic Relationships 31 B. The Trade Position of the Region 93 Inshipments and Outshipments 93 III. Current and Anticipated Problems and General Composition of the Trade 93 Plans to Meet Them 33 Trade with Alaska 95 1.Agriculture and Agricultural Land Use 34 Transportation and Communication 96 Extent and Nature of Agriculture 34 7. Agricultural Land Use 34 Highways 96 Agricultural Enterprises and Types of Description of Proposed Projects 98 Farming 39 City Traffic Projects 99 Agricultural Income 39 Financing and Coordination 101 Agricultural Capital 39 Railroads 101 101 Land Ownership 39 Ports and Termina1 Relationship of Agriculture toOther Air Transportation 101 Economies 40 Communications 107 Land Use and Conservation 40 Conclusions 107 Potential Cropland Expansion and 8. Urban Problems 108 Development 41 A. Communities and Facilities 108 New Farm Possibilities 44 Puget Sound Pattern of Communities 108 Probable Types and Sizes of Farms 44 Effect of War 108 Classification and Cost of Proposals 44 Program and Activities 109 War and Post-War Problems 45 B. A Progressive Plan: The Tacoma Project 110 2.Mineral Resources 46 Problem and Objective 110 The Mining Industry 46 Elements of the Plan 110 Potential Resources 46 Results ill Coal 46 9. Housing 113 Location of Deposits 47 Status of Housing 113 52 3.Forests and Forest Land Use Post-War Implications 113 Present Status of Forest Resources 52 Forest Protection 52 10.Recreational Facilities 116 Rehabilitation 55 Recreation in National Forests 116 Industrial Plans 55 State-owned Recreational Areas 119 Program 55 County-owned Recreational Areas 119 VII VIII Contents

Page Page III. Current and Anticipated Problems and General IV. Directionof Post-War Readjustments, Recon- Plans to Meet ThemContinued struction and Development 137 10. Recreational FacilitiesContinued 1. Review of Major Economic Functions 139 Metropolitan and Municipal Nonurban Light Metals 139 Parks 119 Heavy Industry 139 Semipublic,Private and Commercial Forest Resources 139 Areas 119 Markets 139 Wildlife Resources 120 Transportation i140 Winter Sports Facilities 120 2. Summary of Post-War Problems of the Puget 141 Water Recreational Opportunities 120 Sound Region Other Sports 121 Statement of the Problem 141 Potential Areas 121 Suggested Solutions 143 Parkways and Scenic Highways 121 Public Works 146 Urban Facilities 122 Conclusion 147 Library Facilities 122 3.Public and Private Construction and Improve- Conclusions 122 ment Programs 151 11.Medical and Public Health Services 125 Planning 151 Distribution 125 Projects 152 Physicians 125 Recommendations 153 Nurses 127 Conclusions 153 Hospitals 127 V. Conclusions 155 Dentists 127 A. Summary of Recommendations 157 Public Health Personnel 127 The Puget Sound Region 157 Medical Insurance 128 The Current Situation 157 12. Education 129 General Plans 157 The Reorganization of School Districts 129 Land and Agriculture 157 Summary of Planning Council's Findings 129 Minerals 158 Progress 130 Forests 158 Results of School District Reorganiza- Water Resources \ 158 tion 130 Industry and Commerce 159 Building Construction 130 Transportation 159 13. Analysis of War and Post-War Population Needs 132 Communities and Facilities 159 Complementary Regions 132 Housing 159 Power Resources 132 Recreation 159 Food 133 Medical and Public Health Services 159 Industrial Opportunities 135 Education 159 Conclusions 135 B. What Is To Be Done? 159 PART I INTRODUCTION: PURPOSE AND GENERAL PROBLEMS By P. Hetherton PART I INTRODUCTION: PURPOSE AND GENERAL PROBLEMS By P. Iletherton'

The Puget Sound region, composed of the 12 counties effect on the economy, the State Planning Council, aided bordering the indented shores of the island-filled salt materially by the Pacific Northwest Regional Planning waters of that name (see fig. 1) has experienced the im- Commission through the National Resources Planning pact of war to about as great an extent as has any other Board, rendered every assistance and encouragement. similar area in the United States.Not only is it pro- The general problem facing the area is conversion ducing ships, planes, light metals, chemicals, alloys, of its war-expanded facilities to peace uses and, through food, forest products, and clothing, but also it con- private enterprise, aided by State, county, and muni- tains many military establishments and ports of em- cipal governments, the maintenance of employment op- barkation for men and supplies to Alaska and the Paci- portunities for all seeking employment. From a re- fic war arenas.Within the area is the Puget Sound gion depending too much upon semimanufactured for- Navy Yard equipped to build and repair the largest est products it has been converted to one now produc- of naval vessels. ing, in addition, intricate machines of war.While its As the country's might becomes concentrated against forests as sources of saw logs are greatly depleted, a Japan this region, with other Pacific coast points, stronger and more diversified economic base may be will increase greatly in relative importance, magni- built on the products of its forest lands through the fying further the difficulties of war and post-war application of war-accelerated uses of veneer, cellulose, readj ustments. lignin, and synthetic resins.Pig aluminum and mag- Early recognizing the growing problem of this area nesium plants whose output now goes largely to planes where more than 60 percent of the State's population may supply the raw material for countless peacetime is now found, the National Resources Planning Board uses in all modes of transportation, farm, road, and suggested to the Washington State Planning Council the miscellaneous machinery, structures, and appliances. formation of a regional planning commission and later The skills and equipment created to build ships may proposed the use of that organization to examine war well be continued to be applied to the construction of and post-war problems and to produce a preliminary vessels better adapted to meet a revived international statement. trade through the region's own ports.But the region The following report is the result.It will be noted must, before war's end, possess pig iron producing f a- that it is composed of the viewpoints of various special- cilities to meet its needs for plates, shapes, and alloy ists and it should not be considered as a final word on steels.The advances made in the growing and pre- the various problems.The body responsible for its serving of farm products for lend-lease and for war issuance will revise it periodically, presenting the revi- should open new peacetime markets.Washington's sions to the various legislative bodies of cities, counties, ability to reach distant markets in the States and in port authorities, public utility districts, etc., represent- foreign lands has been based largely on the production atives of which are members of the Puget Sound Re- of quality productsapples, eggs, lumber, pulp, and gional Planning Commission. The Commission, itself, canned goods.Still greater emphasis should be placed has no administrative or executive functions. on this practice.The area's recreational facilities, The experience gained, the methods adopted, the pub- neglected during the war, will again provide enjoyment lie relations formed, and the use of existing organi- and relaxation to its people and attract a growing share zations to assist in the investigations all may serve of the nation's tourist dollar. other communities facing similar situations and form In the solution of the problem of maintaining em- a base for further refinement of plans in this area. ployment, the conservation and upbuilding of our na- Perceiving the value of this study as an important tural resources should play an important part so that contribution to its State-wide consideration of war's the region's outstanding values may continue to be the

1Executive Officer, Washington State Planning council. base for its economic development and for the enjoy- 3 Ø,I REGIONAL PLANNING COMMISSION PIE RCE Pu get iSound Region, War and Post-War Development 5 ment of its people.While its settlement is of rela- The advantages of abundant low-cost firm electric tively recent origin, much has to be done in the phy- energy, of a strategic position in the world's air and sical reconstruction of its cities and public facilities sea routes, of proximity to resources of farm and forest, if the region is fully to adapt itself to its new estate, mines and water, of location in the center of a vast re- to its new position in national and world affairs fol- gion awaiting developmentthe Pacific Northwest, lowing the war.With proper forethought the region British Columbia, Yukon Territory, and Alaskacan- may continue to offer greater opportunities for its peo- not be taken from the area.Its future rests on the ple to work and to enjoy life to the fullest. energy, forethought, and united efforts of its people. PART II THE REGION AND ITS PRESENT STATUS

Page 1. The Puget Sound RegionBy William H. Pierson 9 2. Population 16 Growth and DistributionBy Carl H. Mapes 16 Composition and TrendsBy Max Moss 23 3. The Regional Economy in GeneralBy N. H. Engle 31 7 PART II. 1. THE PUGET SOUND REGION

By William H. Pierson1

Geographical Description is the Olympic mountain range which occupies the The 12 counties that comprise the Puget Sound region larger part of the Olympic Peninsula.This high and (see fig. 1) all front upon the inland salt waters of scenic mountain mass has as its main axis a series of northwesternWashington. The16,500-square-mile northwest-southeast trending folds.It is largely con- area dealt with in this report is functionally, though structed of sedimentary rocks of Tertiary age and of not all topographically, a part of the Puget Sound low- volcanics, thrust upward by folding and faulting, upon lands.Lowlands are characteristically seats of com- which glaciation and subaerial erosion have acted to pact populations and centers of commerce and industry produce a spectacularly rugged range of Alpine char- toward which focus the human activities of adjacent acteristics.So difficult is the terrain that the inner- mountainous areas.This holds true in the Puget most parts are seldom penetrated. Sdund region.Despite varied relief, the region has a The easternmost topographic unit of the region is common environment, economic and cultural unity, the Cascade Range, the crest of which delimits the re- and common problems and prospects for progressive gion on the east.In the Cascades, mountain tops aver- development. age about 6,000 feet in altitude and have a uniformity The region extends westward from the crest of the of height which, together with the other indications Cascade Mountains to encompass all the counties border- of their origins, suggests that the range is essentially ing on Puget Sound, as well as the greater part of the a high plateau that has undergone mature dissection. Olympic Peninsula.The international boundary, on The upland has been sculptured into a rugged and pre- land and through the Gulf of Georgia and Strait of cipitous range having relative relief of about 4000 Juan de Fuca, separates the region from friendly for- feet. eign soil.The drainage divide of the Cascade Moun- Westward-flowing streams, carrying the heavy run- tains from Canada to the south line of Pierce County off from a copious rainfall and aided by glaciers, have forms a natural regional boundary on the east. On the cut deeply into the west flank of the range to make south and southwest the boundary is drawn along numerous valleys which penetrate at low levels far back county lines, descending westward from the Cascades into the mountains.These valleys provide routes of to cross the Puget Sound trough, and thence jogging ingress and in some instances elongated strips of allu- northward and westward to the Pacific Ocean.This vialagricultural lands.Valleys are separated by south and southwest boundary separates with approxi- steep-sided mountain spurs, the west ends of which rise mate accuracy, from the areas that face the Columbia abruptly out of the Puget Sound lowland. River and Grays Harbor urban centers, the territory Upon the Cascade Range is superimposed a string that focuses its local trade and civic interest upon Puget of volcanic peaks that rise spectacularly above the gen- Sound cities.The region is, therefore, a human activity eral crest level.Mount Baker, elevation 10,750 feet, subregion of western Washington, blocked out roughly is near the Canadian boundary; Glacier Peak, eleva- along political boundaries which conform approxi- tion 10,436 feet, rises far back in the range in eastern mately to natural topographic and drainage features. Snohomish County; and Mount Rainier, elevation (See fig. 2.)It is the near hinterland of Puget Sound, 14,408 feet, stands in the southeast corner of the re- a small part of the still greater hinterland of the entire gion. Mount Baker is quiescent rather than extinct, Northwest, for which Puget Sound cities functionas but has been inactive for a period longer than Indian seaports, market and distribution centers, and cultural legends penetrate the past.Both Mount Baker and focuses. Mount Rainier are visible in clear weather from most Within the region are three major topographic units, of the Puget Sound lowland.The difficult and con- each trending north to south.The westernmost unit tinuous barrier which the Cascade Mountains im- pose between Puget Sound and its interior hinterland 1Department of Geography, University of washington. has been surmounted at great cost by three highways 9 10 National Resources Planning Board GEOECONOMIC REGIONS OF WASHINGTON jj

-"GrOOM L SAN JUAN NORTHI S000rr 0000000AI 'I' 1. 1% EASTERN .5 0. A0 PUGET SouNb NN000MSH CENT,RAL 7 WASHNGT0N REGION( IBrPBNSQN DOUGLAS

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Fmu1E2. and three railroads.It has major significance also added their work to that of the main Cordilleran ice as a climatic barrier and because of its effects upon mass. The last glacial period producedminor modifi- water supply in both western and eastern Washington. cations in the already heavily glaciated topography The central unit of the region is the Puget Sound of the region. trough or lowland.Its north-to-south extent of about The Puget Sound lowlands are a decidedly uneven 350 miles reaches beyond the limits of the region plain blanketed with glacial materials, most of which proper.The trough is approximately 50 miles wide. are gravelly and have weathered under heavy rainfall- The altitude of the floor is nearly everywhere below 500 and forest cover into soils of poor fertility.Some of. feet and the lowest portions are flooded to form the the larger morainic accumulations constitute large huh Puget Sound arm of the sea. which give the lowland floor marked -relative relief. During the last two glacial periods a tongue of the The glaciated surface is at frequent intervals inter great Cordilleran ice sheet pushed southward out of rupted- by the alluvium floOred valleys of rivers which Canada to excavate Puget Sound and spread glacial de- cross the lowlands laterally in their descent fromthe tritus over the lowland as far south as the drainage mountains to the sea.These highly- fertile alluvial divide between the Sound and the Chehalis River, thus valleys contain most of the good agricultural lands of glaciating most of the lowland.Simultaneously val- the region.Where level enough for cultivation, the ley glaciers from the Olympics and Cascades deepened morainic intervalley sections are of inferior fertility, the lateral valleys descending to the lowlands and being both stony and excessively leached. The larger Puget AS°ound Region, War and Post-War Development 11 stream valleys are found on the east side of Puget Sound contrast, Yakima and Spokane on the other side of the where the expanse of lowland is in general some miles Cascades, have experienced temperatures of 24° and 30 in width.Each east shore county contains one or more below zero respectively, due chiefly to continental loca- of these rich agricultural valleys within which itspopu- tion and secondarily to higher altitudes. lation centers, while county boundaries often follow The region's summer season is long and cool, puhc the intervening mountain spurs that form natural tuated by occasional sultry days when temperatures divides between population groups. climb into the high eighties or nineties.The highest The topography of the region focuses communica- temperature ever recorded at Seattle was 102° F.The tion and transportation lines upon Puget Sound. The frost-free season (see fig. 3) varies from 9or 10 months lateral stream valleys which penetrate far into both along the ocean shore to just under 6 months at Belling- mountain masses tie their life to that of the main low- ham, near the Fraser Valleygap.Seattle has an aver- land where north-south land travel is easy along the age of 251 days continuously frost-free.This is a shores of the sound. A narrow but easily traversed longer growing season than that of Atlanta, Ga. coastal fringe encircles the Olympic Mountains to link Amount of precipitation varies markedly with alti- the activities of the peninsula to the heart of the region. tude and exposure.(See fig. 4.)At low altitudes the Puget Sound itself is a magnificent water highway Pacific coast receives between 90 and 130 inchesannu- blessed with secure deep-water harbors at frequent in- ally, while the higher windward slopes of the Olympics tervals, rendering it ideal for use by the largest ocean receive an estimated 250 inches or more.This south- vessels. west slope of the Olympics is the wettestarea within Climate continental United States.The Puget Sound lowland, The temperate marine or west coast middle latitude being farther removed from theocean and to leeward of climate of the region is essentially the counterpart of the coastal mountains, receives between 30 and52 inches. the climate of the British Isles and results from similar Tacoma receives 40, Seattle 33, and Bellingham31 causative factors.Basic controls of the Puget Sound inches.Sequim, on the Olympic Peninsula, lying climate are: upper middle latitude position facing an northeast of the highest Olympics, receivesas little as ocean to the west from which prevailingly westerly 14 inches, and the adjacentarea, including much of winds almost continuously bring in damp air and mild 'Whidby Island, less than 25 inches because ofthe rain temperatures; and the Cascade mountain barrier which shadow cast by the high Olympics.nbc west slope of blocks out the dry air and temperature extremes of the the Cascades receives, like the Olympics,extremely continental interior.As with the British Isles, a warm heavy precipitation, the generalaverage being about ocean drift raises the temperature of the waters along 100 inches on the higher elevations. the coast by a few degrees, making the Puget Sound cli- Everywhere in the lowlands snowfall is moderate,av- mate somewhat more humid and mild than it would be eraging only 5 inches on the Pacific shoreand about from other causes. 11 inches near Puget Sound.Here temperatures are The most striking climatic characteristic is mild tem- rarely low enough to permit precipitation inthe form of snow. perature despite high latitude position.Yearly mean At higher altitudes conditionsare reversed temperatures vary but little over the region, being and the Olympics and Cascadesare among the snowiest everywhere between 48° and 52° F.Winter tempera- parts of the continent.Annual snowfall at Snoqual- tures at low altitudes everywhere average well above mie Pass (altitude 3,000 feet) is 398 inches,at Mount freezing.They are mildest on the Pacific littoral, Baker Lodge (4,200 feet), 477 inches,and at Paradise where the moderating effect of ocean winds is greatest, Inn (5,550 feet), 591 inches. averaging 42° in the coldest month (January).The All the Puget Sound region,as is true of all western Puget Sound lowland has slightly colder winters because Washington and Oregon, has a marked seasonaldistri- it is farther removed from the ocean, but here all places bution of precipitation.(See fig. 4.)Autumn, winter have January means between 35° and 40°.During an and early spring are decidedly rainy with persistent average winter, cold air from the continental interior cloudiness and high relative humidity, while fromMay spills over the Cascade mountain wall five to seven times through August rainfall is scant.About 66 percent to bring the region its only severely cold weather.The of all precipitation is received between October1 and lowest temperature ever recorded at Seattle was 3° above March 31, with the maximum occurring in late Novem- zero, and only the north end of the region has expe- ber or December.The driest month is July.Tacoma, rienced sub-zero weather near tidewater.Here the with 6.54 inches in December and only 0.58 inch in Fraser River valley admits cold air from the interior July, is typical.The carry-over of winter moisture in more freely so that cold snaps are more frequent.Bell- the soils, and the low evaporation rate resulting from ingham has had weather as cold as 4° belowzero.In mild temperatures during the summer prevent the PUGET SOUND REGION WAR AND POST WAR DEVELOPMENT GROWING SEASON;NGSEASONPRECI

NUMBERCROWING OF DAYS SCASON GROWINGPRECIPITATION SEASON OUR ND REG ONAL PLANNING COMM 5$ ON PUGET SOUNDSCALE N N LEN SOURCE: U S Weather Bureau SEATTLE, 945 WASHINGTON Fiou 3. 3 ALC l esi 14 National Resources Planning Board region from being aria during the growing season. Resource Base and Human Activities2 (See fig. 3.)Crop failures from drought are unknown In the fertile alluvial valleys of the region an inten- and yields are quite consistent from year to year, but it sive and highly diversified agriculture has developed is believed that the adoption of supplemental irrigation in which dairying, poultry, cash grains, small fruits and would measurably enhance crop yields. vegetables are important farm industries.(See Part Geographical Relationships III, Section 1, Agriculture and Agricultural Land Use The location of the region is highly significant both and figs. 17-21.)While dairying and poultry are gen- as an asset and a liability. eral throughout the region, there is a marked tendency Within both the State of Washington and the Pacific for each locality to specialize in some one crop or com- Northwest as a.whole the Puget Sound cities share with bination of farm activities.In addition to local special- Portland and Spokane the functions of metropolises. izations featuring th'e farm industries mentioned above, Puget Sound cities function as seaports, financial there are notable concentrations of bulb" growing and centers, market outlets and commodity distribution field and garden seed production. centers.In addition, a major portion of the Pacific 'Intensification is surprisingly, great for a region in Northwest's manufacturing is done on the shores of which agriculture is so new.This results from a com- Puget Sound. bination Of environmental factors.The high cost and The location of the region in the far northwest corner much labor entailed in brush clearing and stump re- of the United States results in high railroad transpor- moval, which exceeds the value of good raw logged-off tation costs upon commodities brought from or sold to land, has kept cultivation by individuals confined to the populous eastern part of the countryDistance small acreages.Soil and climate combine to favor from the eastern markets and the sparseness Of popula- crops which require the application of much labor to tion within the interior western States are handicaps small acreages and are best utilized by dairying and to be overcome as the Puget Sound region and the Pa- poultry keeping.Furthermore; the specialty crops of cific Northwest expand their industrial activities along the regionberries and small fruits, potatoes, vege- the lines of products intendedor distributioii in the tables, seeds and bulbsall require intensified use of markets of the Nation.The long rail haul is, however, land. partially offset by favorable water rates, and in this The acreage of land in farms has become nearly iespect the region enjoys a distinct advantage over static, as virtualIyall the alluvial lands and much of competing inland cities. the better moraine lands have passed into farm holdings. Because of its strategic northwest position, Puget (See figs. 17 and 18.)There is an unusual amount of parttime farming within the region, especially upon Sound is the natural gateway to Alaska. As the pres-- ent small population of Alaska increases and its huge moraine lands.It often consists. merely of a bit of mineral, timber and agricultural resources are devel- pasture and meadow kept for a cow or two, a garden oped, the value of this position will be even more en- and' a small poultry flock maintained principally for hanced. At present the bulk of the Alaskan fish catch home use by persons employed in logging or urban is marketed through Puget Sound ports and a sub- industries. stantial amount of general trade flows between Alaska Except for the highest peaks and a very 'few minor and Puget Sound. prairies, the region was covered by a magnificent forest Seattle, Tacoma, and Everett are some hundreds of of Douglas fir, cedar, spruce,' and hemlock.(See Part miles nearer the ports of Japan, Manchuria, and China III, Section 3, Forests and FOrest Land TJse and figs. than the competing Pacific coast ports, vessels from 25 and 26.)Logging is the region's oldest industry which must pass near the northwest coast of Washing- and, together with sawmilling and the manufacturing of wood products, constitutes its most -important ac- ton in followingthe Great Circle route.The port cities of Puget Sound should share fully in the expected tivity.Until very recently timber was exploited without thought for the permanency of the industry.For- increase of trade between the Pacific coast ports of the ests have been stripped from virtually all the more United States and the Far East. accessible lowlands and many mountain slopes.The Much seaborne emmrce in lumber, fruit and fish attainment of sustained-yieldforest utilizationis moves between the Puget Sound region and western Europe by way of the Panama Canal.Although dis- 2Because the resources, Industry and commerce of the region are discussed in detail in various other sections of this report, the over-all ances are much greater than between the Atlantic. sea- summary given here is somewhat more brief than would be expected in a geographical article intended to stand alone.References are given to board and Europe, the cheapness of water haulage text and figures where a more complete treatment of the various subjects makes this trade feasible and profitable. may be found. Puget Sound Region, War and Post-War Development 15 essential if the region is to avoid serious economic for the present modest development of manufacturing dislocations. in the Pacific Northwest.The bulk of the Northwest's Coal, sand, and gravel are at present the most im- industry, how-ever, is located west of the Cascades where portant minerals forming the basis of industries in the it centers on Puget Sound (see Part III, Section 5, region.(See Part III, Section 2, Mineral Resources Industry, and figs. 39-42) and the lower Columbia and figs. 22 and 23.)Owing to glaciation, all parts of River. the region are amply endowed with sand and gravel. The wood-using industries account for the major part Coal deposits flank the west base of the Cascades and of all manufacturing done in the region.(See fig. 40.) are mined in Pierce, King, and Whatcom Counties. Other industries of importance are milk processing, Coal reserves in or accessible to western Washington, flour-milling, tlie canning of fish and farm products while small in comparison with Appalachian fields, are (see fig. 39), shipbuilding and aircraft fabrication. All estimated to be ample for several centuries at the these industries, except aircraft fabrication, are causally present rate of exploitation.Local coals vary widely related to the regional environment and the recent de- in quality, the bulk being medium grade bituminous, of velopment of a major aluminum industry utilizing which large quantities are suitable for coking. Northwest hydroelectric power has also given the air-

A number of mineralized areas containing a wide craft industry an environmental basis. - variety of metallic oresiron, copper, manganese, That the region is in an early stage of industrial chrome, lead, gold, silverare known in the Cascades development is indicated by the nature of its manufac- and Olympics, and scveril mines are operating within tures, most of which fall into one of two classes: (1) the region;(See fig. 23.)Development of the min- the making of simple products for local consumption, or eral wealth has been retarded by several environmental (2) the simple processing of raw materials before mar- factors.The mountain topography is extremely rug- keting them.Higher or more complex types of manu- ged, making the construction of transport facilities facture are represented by shipbuilding and aircraft costly.Prospecting is difficult because of dense for- fabrication. ests which blanket all but the highest crags.(See fig. The region possesses most of the elements necessary 24.)Forests are wet from the persistent rainfall or for industrial expansion.It has abundant and cheap deep in snow during more than half of the year.Fur- hydroelectric power.Easily available to its factories thermore, the forests hold in place a veneer of soil and are ample and varied supplies of raw materials, in- forest litter which conceals surface -mineral indications. cluding wood, fish, a diversity of agricultural products, Rugged mountains in combination with copious pre- wool, hides, and minerals.It has access to the sea.In cipitation make the region rich in water resources. its healthful, invigorating climate it has an intangible (See Part III, Section 4, Water Resources and figs. but fundamental asset.The availability of a suitable 26-38.)The total run-off from the mountains is huge labor supply seems assured as needed.The chief draw- and admirably uniform at all seasons as the result of back is the limited home market, both in the region it- severalenvironmentalfactors.Theprecipitation self and in the larger western interior of the Nation. comes as slow cyclonic rainfall which is well absorbed The Puget Sound cities can more accurately be de- and favors regularity of stream flow.Deep snow and scribed as commercial than industrial.(See Part III, glaciers in the mountains help to maintain sunimer Section 6, Commerce.)They compete with Columbia stream flow.The heavy forests exert, of course, a ma- River ports as sea outlets for the whole interior west jor regulatory effect at all seasons. - Thus endowed, the region has enormously valuable of the crest of the Rockies and, in competition with water power resources, of which only a small part has other centers of the Pacific Northwest, distribute man- been utilized (see figs. 29-33), and abundant water for ufactured goods from the eastern States over the same all industrial and human consumption needs (see fig. vast territory.Over their whatves passes a sizable commerce with Alaska, the Far East and Europe, and 2). - - - Newness of settlement,preoccupation with forest ex- an even larger flow of intercoastal trade with the cities ploitation and remoteness from large markets account of the eastern part of the United States. PART II 2. POPULATION

A. GROWTH AND DISTRIBUTION By Carl H. Mapesl

Influence of World Position white settlement in 1845 when a small group of Ameri- Situated as it is on the western fringe of North Amer- can pioneers moved northward from the Willamette ica, in the latitude of greatest continental width, the Valley and established homes near the southernmost in- Puget Sound area was one of the last temperate regions let of Puget Sound. Water power from the falls of of the world to be reached by the global expansion of the Deschutes River, prairie soils, and nonforested land European peoples.Its oceanic position in the north- on the nearby glacial plains, nearness to settled com- east corner of the Pacific made it a far distant part of munities on the Cowlitz and Columbia Rivers, and ac- the world from the maritime nations of western Europe cess to the navigable waterways of Puget Sound were during the age of transportation by sail.Neither of significant factors in determining the location of this the oceanic routes around the southern continents to earliest settlement at Tumwater. the spice lands of the Far East brought ships anywhere In 1846 and during the years immediately following, near the northwest coast of North America.Conse- other settlers came to Puget Sound. The town of quently, it is not strange that the inland sea of Puget Olympia also was founded on Budd Inlet, not far from Sound remained undiscovered throughout the three Tumwater, where better facilities existed for deep- hundred years of oceanic exploration and trade that fol- water navigation. Throughout the pioneer period from lowed the opening of the water route to the Indies and 1850 to 1870, it remained the largest town in the region. the discovery of the New World. From the southern shores, settlement spread rapidly Nor was the land position of the region anymore but thinly eastward and northward along the shore- favorable to its early exploration.Three thousand line. By 1855 sawmill settlements had been established miles of continental expanse lay between it and the at Seattle, Port Orchard, Port Ludlow, Port Town- earliest European colonies upon the Atlantic and Carib- send, Bellingham Bay, and other scattered localities. bean shores. No easy route of overland travel led from Agricultural settlement at this timewas centered on the the interior of the continenj to the northern shores of prairies of Thurston and Pierce Counties, in the Puyal- the Pacific.Instead, the way was blocked by broad lup and White River Valleys, and on the prairies of plains, high mountains, deep canyons, and tortuous riv- Whidby Island and the Dungeness district. ers.Not until a new, lusty nation had become firmly Pioneer Pattern of Settlement established upon the Atlantic seaboard of North Amer- A special territorial census in 1853 showed the region ica, and had developed western outpostson the frontier to have 2,063 inhabitants, about half of whom were of the Mississippi basin, did exploration by land reach located in Thurston County. By 1860 population had the Pacific Northwest. More than two centuries passed increased to almost 5,000, giving definite form to the after the landing of the Pilgrims at Plymouth in New pioneer pattern of scattered, shoreline mill towns and England, before the first land-based party of whiteex- prairie or valley farms.Growth from this dtte until plorers launched their canoes upon the waters of Puget 1940 is shown in table 1 by counties and principal cities. Sound. Pioneer settlement ended with the decade of thesev- Location of Early Settlements enties.In the eighties came the railroads and the ad- The 12 Washington counties which borderupon Pu- vance wave of the timber-rush migration.Population get Sound form a subregion of the Pacific Northwest increased from about 25,000 in 1880 to slightlyover possessing a high degree of historical, geographic, and 180,000 in 1890.During the same decade, Seattle economic unity.Although discovered from thesea as jumped from 3,500 to 40,000, and Tacoma from 1,100 early as 1792, the region acquired its first permanent to 36,000.Wheieas earlier settlement had been rather evenly divided between the eastern and western shores I Geography Department, University of washington. of the Sound, this new population concentratedmore 1 Puget Sound Region, War and Post-War Development 17

TABLE 1.-Growth of population in the Puget sound region 1nj size, and Everett tripling to become third largest city counties and major cities, 18dO-19O on the Sound.Bremerton, as a navy yard center, and Anacortes, as the rail head and lumber port of Skagit 186018701880 1890 1900 1910 1920 1930 1940 County, had risen to importance since the last census. COUNTY Agricultural settlement in the larger valleys of the Claflam 149 408 638 2,771 5,603 6, 755 11,368 20, 449 21, 848 eastern lowlands showed increasing density as addi- Jefferson 5311,2681, 712 8,368 5,7128, 337 6, 517 8, 346 8, 918 Mason 162 289 639 2,826 3,810 5,1564,919 10,060 11,603 tional farm land was needed to feed the growing indus- Thurston 1, 507 2,246 3,270 9, 675 9,92717, 58122, 366 31, 311 37, 285 Kitsap 544 8661, 738 4, 624 6, 76717, 64733, 162 30,776 44, 387 trial and commercial population. Logging camps and Island 294 626 1,087 1, 787 1,870 4, 7041,489 5,369 6,098 San Juan (1) 554 948 2,072 2,928 3,6033, 605 3,097 3, 157 inland mill towns had sprung up in the shoestring Whatcom 352 5343, 13718, 59124, 116 49, 511 10,600 59, 128 60,355 Skagit (1) (1) (1) 8, 74714, 272 29,24133, 37335, 142 37, 650 valleys which provide access to surrounding forests. Snohomish (2) 599 1,387 8, 51423, 950 59, 209 67, 690 78, 861 88, 754 King 3022, 120 6,910 63, 989 110, 053 284, 638 389, 273 463, 117 504, 980 And the coal fields of central King and Pierce Counties Pierce 1,115 1,409 3,319 50, 940 15,115 120, 812 144, 127 163, 842182,081 showed clustered centers of population along the Cas- Total 4, 956 10, 919 24, 785 182, 904 264, 523 607, 194 772, 529 909, 938 1, 007, 116 cade foothills. Percent increase 120 127 638 45 130 27 18 11

MAJOR CITIES Maps of 1920 and 1930 Seattle 1, 1073, 533 42,837 80,671 237, 194 315, 312 365, 583 368, 302 The population maps of 1920 and 1930 (see figs. 7 Tacoma 1,098 36, 00637, 714 83, 743 96, 965 106,817 109, 408 Bellingham 8,13511,062 24,298 25,585 30,823 29,314 and 8) show continued urban growth and steadily in- Everett 7,83824, 81427, 64430, 557 30, 224 Olympia 1, 2031, 232 4,698 3,863 6,9967,795 11,733 13, 254 creasing densities in the agricultural valleys.The Bremerton 2,993 8, 91810, 170 15, 114 most marked development revealed by these maps, how- Included in Whatcom County. ever, is suburban growth arouncf the larger cities. 2 Included in Island County. Source: U. S. Census. Seattle's expansion, restricted by water bodies west and east, had moved northward and southward. Tacoma around the larger harbors of the eastern shoreline and had extended its suburban areas to the southAmong their tributary valleys.River, rail, and road transpor- the secondary ports, Port Angeles made the greatest tation provided access to the eastern lowlands, while gain in population during the decade from 1920 to the forested uplands and alluvial valley soils supplied 1930.Shelton, in Mason County, also experienced a the basic resources for lumbering and farming. rapid increase.In both places, the development of Distribution Map of 1900 wood pulp industries was largely responsible for growth.Most of the other cities made normal gains The census of 1900 furnishes a complete tabulation between 1910 and 1930, but the map for the latter dale of population by local precincts and thus makes pos- shows decreases or static conditions in certain inland sible the first of the series of distribution maps which areas.This is especially true of the coal mining com- comprise the major contribution of this study.Com- munities in King and Pierce Counties, whose industries parison of the 1900 distribution (see fig. 5) with that of were beginning to suffer from the competition of Cali- an earlier period, such as 1870, would show the extent to fornia fuel oil, and of the logging centers in the upper which population increased along the eastern shores river valleys, whose timber resources were showing and valleys.It would also show the widespread designs of severe depletion. velopment and growth of towns and cities which accompanied the 30 years' increase of more than 250,000 1940 Pattern inhabitants. By 1900 Seattle was clearly the major The 1940 map (see fig. 9) shows the population pat- commercial city, with more than twice the population tern resulting from almost a century of exploitation of of its rival, Tacoma.Bellingham, Everett, Ballard, forest and soil resources and utilization of waterways Port Townsend, Port Angeles, and Olympia were the and harbors.The trend toward urban and suburban chief secondary ports and lumber centers, while Puyal- concentration is even more striking than in earlier dis- lup, Snohomish, and Mount Vernon were the most im- tributions. A great metropolis of Puget Sound appears portant valley towns. to be developing within a radius of about 30 miles from the center of Seattle.Approximately three-fourths of Map of 1910 the region's 1 million people are located within this The population map of 1910 (see fig. 6) portrays the area, which extends from Everett to Tacoma and from basic pattern of settlement resulting from the timber Bremerton to Snoqualmie.Manufacturing, shipping, rush.With a population of more than 230,000, Seat- trade, and service industries support this concentrated tle was the commercial and financial metropolis of the nucleus of population. region. As the major seaport and railroad center, it Shad tripled its population during the decade since 1900. The Pattern Today The other port cities also showed increases for this Estimates of growth since the census of 1940 indicate period, Tacoma and Bellingham more than doubling in that even greater concentration has resulted from the 34268-43-----2 00I aanoi s0d0 a03 £q P0I!dWQO 0400 ¼4'( NOLSJI4H1 - JflO&Ij03 4001 000'I aAoqo oe, .0l OOO4 oocOO 000'0I 000'c000á I 000'00 tp 40 0- Op

IONflOQ 1VNOIO3 0; $flND Sfl 33flOS OS 0061 .LS3MHLON0 0 05 0 0 iv H M - 00I S. 02I N N01938ONflOSNOiLVlfldOd .L39fld 10 NOIiflOILLSI0P3I PUGET SOUND REGION 124 I 'NjT . 122 7 WHATCOM2 2...... - NORTHWEST REGIONAL COUNCIL 0 0 '( ' 4, " V SKAGIT A A LLAM / 7/ LEGENDJEEIER5ON - MAS ITSAP p :. / 4 2o:oo: 0 1 + IIO Are above 1,000 e d 124 123 FTGur 6. 122 by Carl I51 H. Mopes PUGET SOUND DISTRIBUTIONREGION OF POPULATION 1920 NORTHWEST REGIONAL COUNCIL 10 5 0 10 tO 123' - 22' WHATCOM 121. PUGET SOUNDDISTRIBUTION REGION OF POPULATION SOURCE U.S. CENSUS 1930 N NORTHWEST REGIONAL COUNCIL 0 5 0 0 tO

4° 48 o c c' C - LEGENDEFFERSON 300,000 400,000 50,000200,000 50,000 00,000 41 2,0005,00010,000 25,000 .0.1,0000.500 00 Area above 1,000 foot contour. URST0N Data Con1pIed by Carl 1H. Mopes 124 23' FIGuRE 8. 22' 121' NOI93 NOIlVlfldOd1I3NflO3 1YNOI93I .O NOIifleujgicj iS3MHjION ONflOS .L3OfldOt'61 o c Puget Sound Region, War and Post-War Development 23 forced development of war industries.The Puget can come and go by water.The same transportation Sound Regional Planning Commission foresees a popu- factors which contributed to the decentralization of lation of 1,315,000 in the region by the end of 1943, lumber manufacturing may also aid in spreading cer- largely concentrated in the Seattle-Tacoma-Brernerton tain types of industries around the smaller harbors of industrial area.(See fig. 10.)If some of the new the region. war industries can be made permanent, orothers de- With an increased industrial population to be sup- veloped to utilize their physical plants and reservoir of plied with food, the valleys and deltas of the northern skilled labor, the region may indeed be entering upon a section may be used to a still greater extent for dairying second century of growth and development which could and truck farming.Even the narrow flood plains of easily result in another million people within the area. the shoestring valleys could be utilized for garden crops under lnore favorable market conditions.Through Forecast of Future Pattern more intensive agriculture of thegardening type, with Although the Puget Sound population pattern of the some supplemental irrigation duringthe dry summer future will unquestionably continue to reflect the influ- season, the lowlands of the regioncould support a larger ence of topography and shorelineconfiguration, a diver- population. sified manufacturing economy should develop forms of It therefore seems reasonable to assume that the popu- settlement differing somewhat from those of a logging lation maps of the future, say the one for 1970, may and lumbering economy. Heavy industries and ship- not differ so very much in pattern fromthat for 1940. ping services will necessarily center around the im- It is altogether likely that there willbe a major proved, deep-water harbors of the eastern shoreline agglomeration around the ports of present-day Seattle, where rail and water meet.Thus the great industrial Tacoma, and Bremerton, with minorconcentrations city of Puget Sound, which appears to be taking form, around the other deep-water harbors.Agricultural can have twin harbors, Elliott Bay andCommence- clusters will occupy the large deltas and broadvalleys, ment Bay.Linking the two by land is the level with shoestrings of population extending into the up- Puyallup-White River Valley which might easily be per valleys.The glacial uplands will probably carry transformed from a farming area into a belt-line dis- settlement where they adjoin indus- trict of small manufacturing plants of the light-indus- a dense residential trial centers, and be much more sparsely settled where try or service type.Neighboring uplands could pro- they support a rural population.On the whole, water- vide home-sites for the voikers in these industries. strategic location will Some of the secondary ports of Puget Sound may be ways, topography, soils, and selected as locations for plants by specialized heavy unquestionably continue to be dominant factors in deter- industries whose raw materials and finished products mining the general pattern of population.

B. COMPOSITION AND TRENDS By Max Moss2

Distribution and Trends 12 counties (see fig. 12), while for the entire State an The 1920 and Some 58.2 percent of the people of Washington live increase of 11.1 percent was recorded. in the Puget Sound region in 24.6 percent of the State's 1930 populations represented 57.1 itnd 58.2 percent area.Population in 1940 was 1,007,116, equivalent to respectively of the State's total population. about two-thirds that of the city of Los Angeles.Pop- More than half the people live in urban areas, a condition which has existed since 1900.(See fig. 13.) ulation density was 63.6 persons per square mile as listed as (See fig. 11.) Within In 1940 there were 621,137, or 61.7 percent, compared with 25.9 for the State. The urban the region density varies widely.King County has the urban, and 385,979, or 38.3 percent, rural. heaviest (236.4 per square mile in 1940) and Jefferson population gained but 2.9 percent between 1930 and The region in County the least (4.9). 1940, while the rural gained 26.0 percent. Population, which in 1920 was 772,529, had by 1930 1940 contained 66.0 percent of the entire urban popula- increased to 909,938, a gain of 17.8 percent, while the tion of the State, while it had 44.6 percent of the State population for the State increased only 15.2 percent. rural population. A striking feature is the large pro- Between 1930 and 1940 the relative rate of growth was portion of the population living in cities of 10,000 or reversed; there was an increase of 10.8 percent for the more.(See fig. 14.)In 1940 six such cities contained a total of 565,636 persons, or 56.2percent of the popula- Prepared under the direction of Calvin F. Schmid, Professor of Although the actual numbers living Sociology, University of Washington. tion of the region. PI;AN ; . : t- &r4 NIS H ---- 3 I /... -L.i44j!: ' ° o: L E G N .5 yc 0000 * 5 000 * 000000 0O I24 A so obo e I 000 toot co '0 F 23 Dolo Com)I,d b ml oonqIw,a PIorfton Carl op.s FiauR U). . -'22 121 Puget Sound Region, War and Post-War Development 25 within the cities remained practically the same from The 1940 census showed that 838 percent of the peo- 1930 to 1940, the percentage declined.The continued ple in the Puget Sound region were native-born white, trends toward suburbanization, which began several comprising 844,509 or 56.5 percent of the total for the decades ago, would account for the relative decline in State.The 1930 proportion was 56.4 percent.For- population within larger corporate cities. eign-born whites in 1940 comprised 14.1percent Composition (142,255) of the region's population, but 70.0 percent of This is consistent with In composition, the population shows a fairly normal the State foreign-born whites. predominance of males, 520,594, or 51.7 percent, as the 1930 figure (69.0 percent).Of the 12 counties of against 486,522, or 48.3 percent females.( See fig. 15.) the region, Thurston has the largest proportion of The region contains 57.5 percent of the State's total native-born white (90.9 percent), while King has the number of males and 58.6 percent of the females. A smallest (80.9).Island County has the largest propor- striking fact as to age composition is the increase be- tion of foreign-born whites(16.9 percent), Mason tween 1930 and 1940 in the number of old people (65 or County the smallest (7.4).(See fig. 16.)Of the for- over) from 60,257 to 87,668 or from 6.1 percent to 8.3 eign-born whites, 27,083, or 18.1 percent, were born in percent of the total population.The number of chil- Canada, 21,968, or 14.7 percent, in Norway, and 20,222, dren under 5 remained practically constant at 6.3 per- or 13.6 percent, in Sweden. A total of 41countries of cent of the total population.(See fig. 15.) birth was reported.

POPULATiON DENSITY BY COUNTiES- WASHINGTON) 1940

- ii...up

COlLAR

GRAYS

TRAM THURGrOG IUURUhh

OAR FILL K FRANKLIN ii...... uuuuiuuuu______iuuuuauuuiuuu UNDER 5,eoo 5,000 ,40 UNDER 101000 0,000 " " ZO,000 20,000" " 50,000 50,000 N 75,000 '75,00o 100,000 100,000 O0,O0O 00,0ooIN0 OVER SOURCES: Bureau of Business Research, LEGEND University of Washington From U.S. Census 1940 SMALl 0 0 0 MI.lS

Fioui11. 534268-48--3 WAR AJD POST PUGETWAR DEVELOPMENT SOUND REGION DC.'D.aIo TRENDS iN POPULA11ON 93O 1940 L-s I WHATCOM CAPt7.4'OOS" I nu..t VzP, UPEVILI. ft. nr n',ClLES ttO4 V 'PORT API CIy.pt SNOHOMISH I;. PEflCU JEFFERSON INOOVALS o aao Ov TO 19 0 KITSAP KING 0 State 0 IN MILLS IC IC, MASON TOCOMO PI,,.LUM 4 - PUGET SOUND VV.,..ttIb r REG ONAL PLANNING COMM SS ON SEATTLE '943 WASHINGTON fHIJNSTON °0óAf.C ,,,N0 -... '-;. / 0tMTQVt \\,. SOuRCE U Puget Sound Region, War and Post-War Development 27

King County has the most Negroes, this race account- anee of the population is composed of the following ing for approximately 1 percent of the county popula- minority racial groups: Japanese, 12,578; Chinese, tion, while San Juan, Island, and Mason Counties have 1,972; Indians, 4,801; all others, 2,064.Some 69.3 per- none at all.The Negro population of the State is con- cent (as against 72.5 percent in 1930) of the State's to- centrated largely within the region, which has 72.5 tal of these racial groups was concentrated in the re- percent of the total, but the 5,387 Negroes in the region gion, but these 21,415 persons comprised only 2.5 per- represent only 0.5 percent of its population.The hal- cent of its population.

URBAN-RURAL POPULATION IN PUGET SOUND REGION AND IN REMAINDER OF WASHINGTON, 1900 -1940

PERCENTAGE 1900 0 10 20 30 40 50 £0 70 80 90 00 PUGET SOUND REGION REMAINDER OF STATE WI- 1910 PUGET SOUND REGION . REMAINDER OF STATE -4-4-A-4-4-4 1920 PUGET SOUND REGION . REMAINDER OF STATE #r4'rz'4'rzf4#7#j4#,Jfd4ø,AI4 1930 PUGET SOUND REGION REMAINDER OF STATE -4--A--A- 1940 PUGET SOUND REGION REMAINDER OF STATE fMJM%44WMA

URBAN RURAL

SOURCE: U.S. Census,

FIGuKE13. 28 National Resources Planning hoard

POPULATiON GROWTH PUGET SOUND REGION, 1870 TO 1940. INCLUDING ENTiRE REGION AND CITIES WITH POPULATION OF IO%000 OR MORE 0p00

5000

STATE OF WASINGT0N ______000

500 IIdPUGETSOUND REGION

z 100

50 ___/ TACOMA

A/ /'VERETT WI.V / W OLY 5 Pr PIA __; 4lL_ BREMERTON

1870 1880 1890 1900 1910 1920 1930 940 SOURCE: U.S.CenSUS

FIGtRE14. AGE PEJIOD U,U) o o 0() o if) - ci-0 if) ) tO0 C'1u') 0 u) U,0w4C 0z 0 0U)() x0WA 0-J o U)zU) orWzj:: "i 11111111 <0 LU o Fw 0 -J <0 Coii3d 30Y 00000ii r - - WAR A;JD POSTOREIGNPUGET WAR DEVELOPMENT SOUND BORN.WHITE REGIONOPULATION. 194e arrfftyC4PE,roe/_ 2 LL PORT SOGELES

PRCr,OORN W ia . 45. I? E a CaLl 0 IN MILrS tO 20 MASON REGIONAL PLANNING COMM3SION PUGET SOUND N NO SOURCE U.S Rufau ol C*an SEATT(, WASHN1O1 FIatru.E ill. PIERCE PART II 3. THE REGIONAL ECONOMY IN GENERAL

By N. H. Engle'

The Region's Major Economic Functions production.Not only woodworking industries, but The basic economic functions of the region just prior textile and heavy industries were included.Thus the to the war are revealed by the following census tabula- stage was set for diversification.The war has but tion showing employed workers by industry in1939: added impetus to a development already initiated. The future depends upon the willingness and ability Economic group Number Percent of the entrepreneurs of the region to capitalize fully upon the opportunities now before them.These in- Manufacturing 86, 100 23. 8 Services 83,720 23.2 clude a labor force trained in both ferrous and non- Trade 73,795 20.6 Extractive industry 32,961 9.3 ferrous metalworking, an expanded iron and steel proc- Transportation 32,099 8.9 Government 24,996 7.0 essing capacity, an aluminum metal plant, expanded Construction 20,412 5.7 Not reported 4,818 1.5 smelting facilities, and numerous lesser advantages. Total 358,901 100.0 General Economic Relationships This brief introduction should not leave the impres- Manufaturing, although the dominant occupation, sion that the region is or can be self-sufficient.Despite was only slightly more important than the service in- its homogeneity, both geographically and economically, dustries.Trade and transportation, if taken together, it is an integral part of the State, of the Pacific North- would overshadow manufacturing, reflecting the fact west, and of the United States.Problems which affect that a major function of the population centers of the the larger regions, whether of war or of peace, must region is to provide marketing and shipping services also affect Puget Sound. for Alaska and the Orient, as well as for other regions Regional relationships are shown by the following of the State.Extractive industries, largely agricul- 1940population and income comparison with the State tural activity (since mining represents but a small part and with other geo-economic regions.(See fig. 2) of the region's economic life), provided less than 10 percent, government about 7 percent, and construction Area Population Income Per capita less than 0 percent of the job opportunities in the payments income region. Th State 1,738,000$1, 040, 799, 000 $600 Puget Sound region 1, 007, 000 647,446,000 643 Southwestern region 209, 000 107, 123, 000 513 Regional Maturity Central region 225,000 117,866, 000 524 Northeastern region 207, 000 119, 897, 000 579 Even before the war began to have its widespread Southeastern region 87, 000 48,467,000 557 effect upon the region, there was evidence that the pioneer economy was giving way to one more mature. War in-migration is estimated to have accounted for Dependence on the basic natural resources, while still a Puget Sound gain of some225,000or230,000over1940 dominant, was showing signs of relaxation.Forest population, increasing slightly the percentage of the reserves had been depleted to such a stage that Oregon State total residing in the region.The war has in- took the lead from Washington in reserves of virgin creased the Puget Sound income payment figures greatly timber, and there was beginning to be recognized the until the present annual total of salaries, wages, inter- need for conservation and, indeed, cultivation of forests est, rent, profits, and other income is estimated at$1,250 as a long-term crop. million, and the per capita at more than $1,000.This Evidence of industrial diversification was revealed phenomenal increase has resulted from the virtual elim- in the allocation of war orders to the region.The spec- ination of unemployment and from longer working tacular aircraft industry and the renaissance of shipbuilding should not obscure the fact that many small hours, higher rates of pay, and increased incomes from profits and property.The region has shared with the industries were found able and willing to convert to war State and with the Nation in these increases, probably Director, Bureau of Business Research, University of Washington. exceeding both in the rate of expansion. 31 PART III CURRENT AND ANTICIPATED PROBLEMS AND GENERAL PLANS TO MEET THEM

Page 1. Agriculture and Agricultural Land Use.By Ben H. Pubols and 35 William A. Rockie 2. Mineral Resources. By State Department of Conservation and 46 Development 3. Forests and Forest Land UseBy Puget Sound Regional Planning 52 Commission 4. Water Resources.By Richard G. Tyler 58 5. Industry.By Grant I. Butterbaugh 83 6. Commerce Pattern of Commercial Activity.By Grant. I. Butter- 90 baugh The Trade Position of the Region.By James C. Rettie 93 and James E. Maxwell 7. Transportation and Communication.By Transportation Commit- 96 tee, Puget Sound Regional Planning Commission 8. Urban Problems. Communities and Facilities.By Joshua H. Vogel 108 A Prgressive Plan: The Tacoma ProjectBy Marvin R. 110 Schafer 9. Housing.By Ellis Ash 113 10. Recreational Facilities.By Resources Committee, Puget Sound 116 Regional Planning Commission 11. Medical and Public Health Services.By Public Health Committee, 125 Puget Sound Regional Planning Commission 12. Education.By State Committee for Reorganization of School 129 Districts 13. Analysis of War and Post-War Population Needs.By Paul R. 132 Fossum 33 PART III 1, AGRICULTURE AND AGRICULTURAL LAND USE By Ben H. Pubols1 and William A. Rockie2

Extent and Nature of Agriculture number, the region contained 34,590 farms, or 42 percent Agriculture constitutes one of the major uses of the of the State's total.This means that the average size land of the region.It is conducted chiefly on the low- of farm, 36.3 acres, was considerably smaller than the lands, river valleys, and lower uplands, extending from State average, 185.9 acres. the Sound to the foothills of the Cascade Mountains to TABLIO 2.-Total land area, land in farms, number of farms, and the east and the Olympic Mountains to the west.(See average size of farms, Pu get Sound region, 1940 fig. 17.)Most of the agriculture is confined to eleva- Propor- tions of less than 500 feet. Total land Land in tion of No. of A verage The soils are of glacial origin, and hence vary greatly c oun' area farms land in farms IS in composition and quality, even within relatively short Acres Acres Percent Acres distances.The most fertile soils are to be found along Clallam 1, 121,920 70, 844 6. 3 1,226 57.8 Island 131, 840 54, 969 41. 7 1,044 52. 7 the coastal plain and in the river valleys.The uplands Jefferson 1, 159,680 42,884 3. 7 518 82.8 King 1, 367, 040 152, 770 Ii. 2 5, 760 26.5 have poorer quality soils, and hence are more limited in Kitsap 257, 280 46, 196 18. 0 2, 102 22.0 Mason 618,880 43, 995 7. 1 769 57. 2 their adaptability tocrops.The climateis mild Pierce 1,075,200 162, 747 15. 1 5,622 28.9 San Juan 110,080 68, 017 61. 8 497 136. 9 throughout the year, but dry in summer.(See figs. 3 Skagit 1, 110,400 152, 758 13.8 3, 242 47. 1 Snohomish 1, 344, 000 188, 304 14. 0 6, 231 80. 2 and 4.)Most of the agriculture is conducted under nat- Thurston 460, 160 177, 885 38. 7 2,876 61. 9 ural conditions of moisture.Soils and moisture are the Whatcom 1, 376, 640 196, 750 14. 3 4, 703 41. 8 two principal natural factors limiting crop production Total 10, 133, 120 1, 358, 119 13.4 34, 590 36. 3 within the farming areas. Source: Census of Agriculture, 1940. Wide variation in soils and topography has led to a jumbled pattern of prosperous, well-kept bottomland The principal uses of the land in farms are indicated farms and impoverished, unkempt hillside "stump in table 3.Of the total, 347,187 acres, or 26 percent, ranches."Frequently these extremes are found in close were used for crops, 200,000 acres as plowable pasture, juxtaposition, as on opposite sides of a road running at and more than 400,000 acres as woodland, some of which the edge of a valley. A shoestring pattern of set- provided pasture.The 12 Puget Sound counties con- tlement (evident in figs. 17, 18, and 19) has made for a tain more than one-fourth of the land area of the State, high cost of roads and schools in relation to value of but only 10 percent of the land used for crops. the land in some communities.The impecunious settlers who came to the region in large numbers as a re- TABLE 3.-Principal uses of land in farms, Pu get Sound region sult of depression and Great Plains droughts have 1939 sought refuge on the poorer lands, aggravating a situ- County used for Pe \I5oog.Alilaerland in ation which was already bad. The troublesome pattern cropland of settlement which these various factors have created Acres Acres Acres Acres Acres Acres and the labor and expense wasted in attempting to clear Clallam 17, 512 709 12, 856 26, 077 13, 690 70, 844 Island 15, 590 682 5,694 20,043 13, 000 54, 969 unproductive acres are matters of grave concern to the Jefferson 6,042 574 4, 103 23, 969 8, 196 42,884 King 41,877 3,718 31, 890 35, 074 40, 211 152, 770 region. Kitsap 9,620 1, 539 5, 906 18, 678 10,453 46, 196 Mason 5,614 620 2, 842 24, 760 10, 159 43, 995 Pierce 34, 310 4,634 20,483 48, 299 55. 021 162,747 Agricultural Land Use San Juan 10, 377 901 8, 319 27, 703 20, 717 68,017 Skagit 59, 916 1, 286 26, 953 38, 893 25, 710 152, 758 Approximately 1,358,000 acres, representing 13.4 per- Snohomish 48,063 2, 576 32, 176 55, 777 49, 212 188, 304 Thurston 30, 183 0, 509 21, 287 39, 983 80, 924 177, 885 cent of the land area of the region, were in farms in Whatcom 67, 583 2, 657 29, 402 41, 925 55, 183 196, 750 1940.(See table 2.)These farms comprised approxi- Total 347, 187 25, 405 201, 871 401, 181 382, 475 1, 358, 119 In mately 9 percent of the State's total farm acreage. Source: Census of Agriculture, 1940. 1 Head, Department of Farm Management and Agricultural Eco- nomics, State College of Washington. Figure 18 shows a generalized agricultural land 2 Chief, Project Plans Division, Soil Conservation Service. classification for the entire region.Comparison with 35 WAR AND POST PUGETWAR DEVELOPMENT SOUND REGION EIO4DM.0 DISTRIBUTION PATTEr. NO H A M Do,,' SHATCOM OF FARM LANDS. 1940 AEAi RTES OR0 fLATTEN C4F(r4roos , M0UI? VLREOE S K AG I PORT ANGELES JTOWN%\i PORT \ CL L S4 SNOHOMISH IRE tt0n K ITS Al' KING I0 SCALE 0 N N LEA MASON 4.- fl,LflLLUP !flQ*fl C Dii REG ONAL PLANNING COMM SS ON PUGET SOUND IENINO C*T0NVLL! 'eou o AOJE SEATTLE WASHINGTON IJR TON FIGUTSE 17. \ PIERCE WAR AND POSTPUGET WAR DEVELOPMENT SOUND REGION eLAN, GRICULTURAL LAND m;o001,7 E CLASSIEICATIO EN ERA U Z E ID U050 S4rglt WHATCOM CAP(7TOO 5-' .0057 0157005 IO04.Lt5 0 0 $MIIGIOS SKAGIT 'A 0050200.L1 GIar,er POb CL Mt OI'npo' JEFF E FSO (NCR SAcj DOMNANISUflCD TO CLAASE*GIGI1LTU$At. $04MAl.LAND !A'( SW LANDS U O WNCHCA54ONAL CQPTlD(NAS ULVAT,ON AS .UAmI LAAS(A IV A vi N MASON TACOMA evtawi, ONIONS \ KING REG ONAL PLANNING COMM SS ON PUGET SOUNDSCALC S MLfl IAN SIC )L MPI i_ SEATTLE, 943 WASHINGTON '1URSTON f IC NINO WAR AND POST PUGETWAR DEVELOPMENT SOUND REGION 8LAiN( at,' -vbrc r'c o \z LtJPG0A Oiobh'Do,,, WHATCOM TTOO r flI,WT SIDRO vrN,,o. P. 8( ClP( e SKAGT 'PORT cMJPt jiLt a to a C/oc,., J. PoA CVRE1T M C/pp, 000.,DD.io - p.r -'a-.--' - "of SNOHOMISH StTOOM a '0$ tc,.aRo .O.T I, RD "OULT R KITSAP 0 ONE TVP REDOMINANT SMISU,,' KING SCALE N MFS MASON T4COU.a OJItIMO REG ONAL PLANNING COMM SS OW PUGET SOUND 0 (AGONY CL t.9'futIti'oISCAJRCES- E*PeVIIr, Stots of *alfitngtt Sto SEATTLE, 1N45 WASHINGTON T-4URSTOM' FIGURE 19. '_'____\ _J; Puget AS'ound Region, War and Post-War Development 39 figures 17 and 19 demonstrates to how large an extent TABLE 5.-Value of $pecified items of farm capital, Puget Sound present development has blanketed the good land and region, 1940 reached out into marginal and submarginal areas little Value of Value of farms (land implements Value of suited to agricultural use. County and build-and machin- livestock Total ings) ery Agricultural Enterprises and Types of Farming Clallam $5, 652, 448 $440, 361 $698,677 $6, 791, 486 The Puget Sound agricultural land is adapted to the Island 4,513, 110 365, 641 452, 639 5, 331, 390 Jefferson 2, 423, 945 211,624 242, 496 8, 209, 455 production of a large number of kinds of crops and King 30,654,050 2,051, 684 2,440, 109 35, 145, 843 Kitsap 7,698,910 458,843 479,947 8,637,700 livestock.Small fruits and berries are grown exten- Mason 2,880,845 266, 023 230, 772 3, 377, 640 Pierce 25, 981, 561 1,619,690 1, 720, 745 29, 521, 996 sively in the Puyallup Valley, truck crops on the rich San Juan 2, 987, 889 237, 220 264, 367 3,489,476 Skagit 20, 160, 915 1, 450, 761 2,007, 342 23, 619,018 bottomland soils, vegetable seed as specialty crops, Snohomish 28, 520, 393 1,985, 532 2, 362, 400 32, 868, 325 Thnrston 11, 415, 527 916, 040 1,039,431 13,370,998 strawberries on both upland and lowland soils.Dairy Whatcom 23, 35), 635 1,807,002 3,050,407 28,209,044 cattle and poultry, including turkeys, are the principal Total 166, 241, 228 11,810,421 14,989,332 198,372,371 livestock kept.Dairy and poultry farms predominate. Source: Census of Agriculture, 1940. (See fig. 19.)Many part-time farms are found in the vicinities of the larger cities, particularly Seattle and Land Ownership Tacoma. The cities provide ready markets for large Less than half of the total land area of the region is quantities of truck crops and dairy and poultry prod- in private ownership (see tables 6 and 7), though it ucts.Strong cooperatives exist for their marketing. should be remembered that much of the region con- Agricultural Income sists of land of no value for farming or settlement. The value of farm products is shown in table 4.The This, chiefly in national forests, national parks, and total value, more than $35,000,000 in 1939, comprised Indian reservations (see fig. 52 and tables 8 and 9), is 27 percent of the value of all farm products of the State. federally owned.State land comprises approximately In the region, livestock and livestock products ac- 9 percent, county land 8 percent, and railroad land 3 counted for 62 percent and crops for 22 percent.King percent of the total, leaving 41 percent in. private own- County led all others in value of farm products, while ership.Some 85.2 percent of farms are operated by Jefferson, Mason, and San Juan were the least im- owners. portant agriculturally. TABLE 6-Land ownership, Pu get Sound region

TABLE 4 -Value of farm products sold, traded, or used by farm County Federal State CountyRailroadPrivate Total household, Puget Sound region, 1539 Acres Acres Acres Acres Acres Acres Clallam 384, 305 154, 882 191, 529 64, 421 326, 783 1, 121, 920 Livestock Farm prod- Island 85 6, 245 15, 519 0 109, 991 131, 840 and live- Forest nets used All farm Jefferson 630, 305 192, 326 127, 316 32, 706 177, 027 1, 159, 680 OUfl y stock prod- rops products by farm products King 340, 784 77,949 32, 855 135, 528 779, 924 1, 367, 040 nets households Kitsap 7, 753 15, 685 49,857 0 183, 985 257, 280 Mason 170, 823 61, 869 62, 406 2,870 520, 912 618, 880 Pierce 1359, 108 44, 281 104, 788 46, 226 520, 797 1, 075, 200 Clallam $699, 604 $170, 715 $27, 998 $223, 809 $122, 126 San Juan 3,060 7, 227 1,490 0 98, 303 110, 080 Island 915, 656 196, 144 5, 232 163, 066 1, 280, 098 Skagit 512, 575 100, 037 49, 087 0 448, 701 1, 110, 400 Jefferson 288, 705 40,889 31, 610 104, 309 465, 513 Snohomish 663, 027 118,356 68, 891 6, 358 487, 368 1, 344, 000 King 4,497,436 2, 262, 838 32, 182 818, 771 7,611,227 Thurston 6, 352 72, 640 17, 995 4, 299 358, 868 460, 160 Kitsap 995, 055 220, 191 7,836 384, 515 1,607, 597 Whatcom 886, 567 45, 184 84, 975 0 359, 914 1, 376, 640 Mason 223, 165 35, 644 8,946 143, 318 411, 073 Pierce 3, 135, 973 1,815, 603 12,458 819, 247 5,783,281 Total 1, 964, 744 896, 687 806, 708 292, 4084, 172, 57310, 133, 120 San Juan 259, 789 134, 780 7,377 96, 128 498, 074 Skagit 2,432, 068 1, 178, 508 21,686 507, 408 4, 139, 670 Snohomish 3,254,065 707, 446 32, 727 856, 382 4, 850, 620 1 Military reservations not included. Thurston 1, 183, 211 220, 045 19, 104 468, 729 1,891,089 Source: National Resources Planning Board, Region IX. Whatcom 4, 143, 681 821, 979 20, 656 726, 916 5, 713, 232 Total 22,082,408 7,804, 782 227, 812 5, 312, 598 35, 373, 600 TABLE 7.-Land ownership, Pu get Sound region

Source: Census of Agriculture, 1940. County Federal State CountyRailroadPrivate Total

Percent Percent Percent Percent Percent Percent Agricultural Capital Clallam 34. 3 13. 8 17. 1 5. 7 29. 1 100.0 Island .1 4.7 11.8 0 83.4 100.0 Total value of farm real estate in 1940 was reported Jefferson 54. 3 16. 6 11. 0 2. 8 15. 3 100.0 King 24. 9 5. 7 2. 4 9.9 57. 1 199.0 tobe more than $166,000,000, implements and ma- Kitsap - 3. 0 6. 1 19.4 0 71. 5 100.0 Mason.. 27. 6 10. 0 10. 1 0. 5 51.8 100.0 chinery, approximately $12,000,000, and livestock $15,- Pierce 53. 4 4. 1 9.8 4. 3 48.4 100.0 San Juan 2. 8 6.6 1. 3 0 89.3 100. 0 000,000.(See table 5.)These three items of farm Skagit 46. 2 9. 0 4. 4 .0 40.4 100. 0 Snohomish 49. 3 8. 8 5. 1 . 5 36.3 100. 0 capital comprised approximately $200,000,000 or 28 per- Thurston 1.4 15.8 3. 9 . 9 78.0 100.0 cent of the State total.The largest total value was re- 1,Vhatcom 64.4 3. 3 6. 2 0 26. 1 100.0 corded for King County, and the smallest for Mason Total 39. 1 8. 8 8. 0 2. 9 41. 2 100.0 County. Source: National Resources Planning Board, Region IX. 40 National Resources Planning Board TABLE 8.-Distribution of federally owned land by administering Improper use of land hs been attempted in innu- agencies merable instances. Widespread exploitative removal and considerable accidental destruction of the virgin forests County Forest Indian PublicNational Service Service domain Parks Other Total (succeeded by much too diligent, promotional sales of the cut-over land), proximity to urban developments, Acres Acre8 Acres Acre8 Acres Acres Clallam 98, 735 0 2, 108 283, 022 460 384,305 and erroneous impressions of the land's capabilities Island ''0 0 20 0 65 85 Jefferson 118, 126 4,489 1,472 506, 168 50 630, 305 were important contributing factors. King 333, 734 3, 751 3,294 5 340. 784 Kitsap 0 7, 486 249 18 7,753 In spite of an indiscriminate lack of planned thought Mason 130, 046 4,471 751 35, 55 0 170,823 Pierce 131, 051 21,565 0 206,11 1381 1359, 108 or care for the land, relatively little noticeable land San Juan 0 0 1,119 1,741 3,060 Skagit 496, 993 10,073 ' 3, 901 1,608 512, 575 injury has occurred.There are several reasons for this Snohomish 639, 928 21,391 1, 708 0 663, 027 Thurston ' 323 5, 789 240 0 6. 352 result.Much of the land that was sold for agriculture Whatcom 865, 490 16,276 4,375 426 886, 567 was so gravelly and droughty that the buyer quickly Total 2,814, 406 95,291 19,437 1,030,85 4, 754 3, 964, 744 became aware of its unsuitability as farmland, and in IMilitary reservations not included. most instances cleared relatively little acreage. Where Source: National Resources Planning Board, Region IX. soil was good the stumps were so large and so numerous TABLE 9.-Distribution of federally owned land by administering and clearing was so expensive that cultivation was agencies accomplished rather slowly.Therefore, much of the best land still remains uncleared. County Forest Indian PublicNational Other Total Still other factors existed which tended to minimize Service Service domain Parks land damage. This was nature's immediate reclamation PercentPercent Percent Percent Percent Percent of practically all unused land by one of the many sorts Clallam 25.7 0 0. 5 73. 0. 1 .100.0 Island 0 0 23. 5 76. 5 100.0 of plant cover that are common to the region; fireweed, Jefferson 18.8 0. 7 .2 80. (1) 100.0 King 97.9 1. 1 1.0 (1) 100.0 bracken and other ferns, thistles, grasses, mosses, lichens, Kitsap 0 98.6 3. 2 .2 100.0 Mason 76. 1 2.6 .5 20. 0 100.0 alders, maples, firs, and numerous other vegetative types Pierce 36. 5 6.0 0 57. .1 100.0 San Juan 0 0 43. 1 56.9 100.0 took early possession of the land following denudation. Skagit 96. 9 2.0 . 8 .3 100.0 Snohomish 96. 5 3. 2 .3 0 100.0 Most of the actual land clearing has been on lands which Thurston 5. 1 91. 1 3. 8 0 100.0 Whatcom 97. 6 5.8 . 5 . 1 100.0 are either fiat or gently sloping. These are quite safe Total 71. 0 2.4 .5 26. . 1 100.0 from most types of land damage. A large proportion of the better farm lands has resulted from diking of 1Less than 0.05 percent Source: National Resources Planning Board, Region IX. marshlands, followed by drainage and cultivation. Stream-bank erosion is the only important respect in Relationship of Agriculture to Other Economies which land has suffered recognized heavy losses.This Agriculture is intimately connected with the region's is believed to be on the increase, presumably from de- urban and industrial economies.The rural areas sup- nudation of ever-increasing acreage within the various ply food and other materials, and provide labor and watersheds. homes, for the cities and industries. Many of the In table 10, the latest available total acreages of manufactured products of the cities and industries find properly cultivable lands are summarized. Some of the a market in the rural areas.Hence, agricultural pros- best lands (class I) are now in woodland or grazing perity is closely associated with that of the cities and use, while considerable acreages suited only to wood- industries. land or pasture are cultivated today.These malad- justments should be righted. A very minor portion of Land Use and Conservation privately held lands is deemed capable of successful Farms are actually checkerboarded and shoestringed agricultural use.The remaining acreages have been throughout the entire portion of the region which is not classified from their physical characteristics as non- in Federal ownership (see fig. 17), although conserv- agricultural.This table does not include figures on the ati.ve authorities now recognize only a very small pro- noncultivable lands (classes V to VIII), nor does it portion of this area as being at all suited to agriculture. include the large block of forested Federal lands that (Fig. 18). adjoins the Puget Sound lowlands. Puget Sound Region, War and Post-War Development 41

TABLE 10.-Present land use and land use capability classesof ductive capacity of present cropland through drainage agricultural areas in Puget Sound region or supplemental irrigation. Subtotal Total for TABLE 11.-County classification of agricultural land develop- Counties for classes classes I, Class I Class IIClass IIII, II, andClass IV II, III, ment proposals by acreafie, type, and purpose of development, III and IV Pu get Sound region

Acrcs Acres Acres Acres Acres Acres county cation1 involved Irrigation Drainage Clearing CROPLAND Acres Acres Acres Acres Clallam A 13, 000 1,200 0 13, 000 Whatcom 15, 501 25, 835 11, 521 52, 857 11,521 64, 378 B 25, 380 5, 500 0 25, 380 Skagit 20,035 23, 211 9, 773 53, 019 7, 085 60, 104 C 37, 400 2, 600 0 34, 800 Snohomish 9, 002 13, 345 14, 300 38, 447 11,991 48, 438 King 6, 624 13. 247 8, 833 28, 704 11,039 39, 743 Total 75, 780 Pierce 7, 964 10, 859 8, 688 27, 511 6, 878 34, 389 San Juan 564 1, 692 4,511 6, 767 3, 383 10, 150 Island A 0 0 0 0 Island 3, 246 6, 493 9, 739 5,681 15, 420 B 9, 250 1. 000 0 8, 250 Thurston 6, 599 11, 251 10, 954 28, 804 1, 337 34, 141 C 0 0 0 0 Kitsap 332 2, 436 3, 321 6, 089 3, 321 9, 450 MaCon 617 1, 299 1,851 3, 767 1, 542 1, 309 Total 9, 250 Clallam 1, 694 6, 399 6, 357 14, 450 2, 526 16, 976 Jefferson 1, 388 2, 614 4, 002 2, 287 0, 289 lefferson A 7, 500 0 (3) 7, 500 B 10. 750 3, 000 0 7, 750 Total 68, 932 114, 208 89, 016 272, 150 72, 551 344, 747 C 13, 700 12, 000 (2) 1,700 Total 31, 950 GRAZING OR PASTURE LAND King A 1,200 0 0 1,200 B 9,000 9,000 0 0 Whatcom 3, 438 9,435 7, 753 20, 626 6, 437 27. 063 C 0 0 0 0 Skagit 12, 846 3, 810 3, 721 20, 377 3, 721 24, 098 Snohomish 6, 482 15, 448 6, 482 28, 412 4, 001 32, 413 Total 10, 200 King 9, 328 6, 501 8,480 24, 309 6, 445 30, 714 Pierce 4, 694 7, 041 2, 934 14, 669 2, 582 17, 251 Kitsap A 620 0 320 620 San Juan 1, 208 2, 417 2, 417 6,042 1,937 7, 979 B 0 0 0 0 Island 1, 464 3, 221 4,685 2, 343 7, 028 C 0 0 0 0 Thurston 2, 732 5, 146 3, 751 11, 629 7, 738 19. 367 Kitsap 367 980 1, 225 2, 572 1, 102 3, 674 Total 620 Mason 301 130 451 225 676 Clalism 3, 046 2, 714 5, 760 2, 207 7, 967 Ilason A 0 0 0 0 Jefferson 1, 043 2, 033 3,076 1, 017 4, 093 B 12. 000 12,000 0 0 C 21, 700 0 (3) 25, 700 Total 41, 095 56, 632 44, 881 142, 608 39, 755 182, 363 TotaL 37,700

'ieree A 15,000 0 0 15,000 WOODLAND B 6,000 26,000 0 0 C 600 0 600 0 Whatcom 293 587 587 1, 467 587 2, 054 Total 21, 600 Skagit 933 933 933 2, 799 2, 178 4, 977 Snohomish 558 1, 543 814 2, 955 1, 143 4, 498 an Juan - - - A 3, 000 0 200 3, 000 King 246 351 700 1, 297 350 1, 647 B 3900 0 0 3,900 Pierce 773 773 386 1, 932 773 2, 705 C 700 0 0 700 Thurston 539 539 Total 7, 600 - - Total 2, 803 4, 187 3, 460 10, 450 5, 970 16, 420 kagit A 11,700 0 0 11,700 Grand totaL 112, 830 175, 027 137, 357 425, 214 118, 316 543, 530 91,000 60, 000 0 31,000 O 6,000 0 0 6,000 1 Lands are classified according to their capabilities: Suitable for cultivation: Total 108, 700 Class I, suitable for cultivation without special practices. nohomish A 30, 000 0 (1) 30, 000 Class II, suitable for cultivation with simple practices. B 25, 000 2 20, 000 3, 800 1, 200 Class III, suitable for cultivation with intensive practices. (1) Class IV, suitable for cultivation with occasional cultivation. C 50, 000 2 20, 000 10, 000 Not suitable for cultivation: 105,000 Class V, pasture or range and/or woodland slightly susceptible to deteriora- TotaL.. tion. hurston Class VI, pasture or range and/or woodland moderately susceptible to A 24, 000 0 4, 600 24, 000 deterioration. B 2,300 2,300 0 0 Class VII, pasture or range and/or woodland highly suceptible to deteriora- C 0 0 0 0 tion. Total 26,300 Not suitable for productive vegetation: Class VIII, not suitable for cultivation, for grazing or for woodland use. Vhatcom A 58, 700 0 (2) 58. 700 B 9,900 0 0 9,900 C 37,000 30,000 0 7,000 Potential Cropland Expansion and Development Total 105, 600 Total----- A 164, 720 Proposals for agricultural land development by B 204, 480 means of irrigation, drainage, and clearing in the Pu- C 171, 100 get Sound region comprise 540,300 acres.(See table Grand total 540, 300 11 and figs. 20 and 21.)About two-thirds of this 1 A. Those proposals with no apparent disqualifying limtations to feasibility. Those proposals for which there are apparent minor limitations to feasibility, amount represents new land to be brought into crop or for which ths limited information available does not give convincing evidence of feasibility or lack of it. Those proposals for which there are apparent major limitations to feasibility, production, but less than a quarter is proposed prima- or those which have been superseded by other projects or proposals, or abandoned. rily to provide additional farms. A major objective of 2 Largely individual irrigation systems to supplement summer rainfall. many proposals is to relieve an existing, acute small- Some. Source: National Resources Planning Board, Development of Resources and of farm problem either by expanding cultivated acres per Economic Opportunity in the Pacific Northwest.Appendix: Project Tabulations and Part II: Agricultural Land Development, Northwest. (Joint study by Bureau farm through land clearing, or by increasing the pro- of Agricultural Economics and Pacific Northwest Regional Planning Commission, 1941). 534268-43----4 WAR AND POSTPUGET WAR DEVELOPMENT SOUND REGION E N '-'S -'Ej .:W4 BelIng .m SUGGESTED POTENTIAL CLEARING RELATIVELYSCATTERED COMPACT AREAS AREAS IRRIGATION & CLEARING 0 FROM:INDEVELOPMENTPocfic THE Joint Northwest PACIFIC Inventory OF NORTHWEST,Regional ofRESOURCES Bureau Plans of Agricultural ingAND Commission, ECONOMIC Economics OPPORTUNITY and N.R.P. B. 1942 '7 a Ey (J ______COMPACT IRRIGATION PPROXI MATE PRESENT IRRIGATED AREAS SKAGIT'\\ I d ck R. - Everett '74k F-10000 NEW SCATTERED DEVELOPMENT IRRIGATION AREASSUGGESTEDT1 SUPPLEMENTAL POTENTIAL DEVELOPMENT IRRIGATION *.!J CL. AL L AM '7 NOK2MS ,n ( '7 JEFFERSON Bremerton ATILE LOWERSUBREGIONALUPPERDETAILEDINDICATION FIGUREFIGURE INVESTIGATION OF AREAS TABULATION KEYSAREAREFERS ONMAP NOR TO ASSURES NEITHER TO "CLASSIFICATION DEVELOPMENT. IMPLIES KITSAP '7 ,.1J SETTLED,INVOLVEDCONSIDEREDALLOF PROPOSAL",POTENTIAL ANDARE SUPPLEMENTAL ALREADYFARMED.IRRIGATION SEE TEXT WELL IN THIS DEVELOPED,SINCE SUNREGION AREAS - ) AS' ACCORDINGDEVELOPMENTNOTE: WHERE TO. PROPOSED OVERLAP THE PRIMARY THE IRRISATION AREA TYPE. IS ANDMAPPED CLEARING '7 2 ACOMA BUNEAG OF .A0NICGCTURAL EEONWAICS IN COMPILED BY SCALE Is IN MILES 20 50 KIN,,I SOURCES:COOPERATTON MAPS WITS AND NATIONAL REPOATA RESOURCSS OP PLANNING MOANS U.S.COASTSWASHINGTONWATERBUREAU GEOLOGICAL FACILITIES ENGINEERSOF AGRIcULTURAl. STATE SURVEYPROGRAM PLANNING ECONOMICS OGUNCIL REGIONAL PLANNING COMMISSIOF PUGET SOUND 0 '-V US.WASHINGTON ARMY,WASHINGTONCONSERVATION CORPSOF STATE ENGINEERS DEPT.AND DEVELOPMENT OF STATE COLLEGE PIERCE SEATTLE, 9 4 SWASHINGTON FIGUnE 20. THUR STON / COUNTYIRRIGATION LAND DISTRICTS USE COMMITTEES PU GET SOUND REGION WAR AND POST WAR DEVELOPMENT DRAINAGE N Qelling am L FROM: Joint Inventory by Bureau of Agricultural EconomIcs andPacific Northwest Regional Planning Commission,DEVELOPMENT OF RESOURCES AND ECONOMIC OPPORTUNITY IN THE PACIFIC NORTHWEST, N. P. B. 942. SKAGIT c Port Angeles CL ALLjj Sky/tom /s SNOHOMISH) APPROXIMATE PRESENT DRAINED AtEAS JEFFtRSON Bremer 1 ATTLE 4 SUGGESTEDINDICATIONSUPPLEMENTALNEWDRAINED POTENTIAL DEVELOPMENT OF AREA AREAS DRAINAGE* ON MAP NEITHER IMPLIES DETAILED DEVELOPMENT KITSAP *3 8 OFLOWERTABULATION.UPPERINVESTIGATION FIGURE NOR XEYS ASSURES AREA DEVELOPMENT. TO SUBREGIONAL PROPOSAL FIGURE REFERS TO 'CLASSIFICATION SEE TEXT. TACO A Puya I Iui White , 7 MASON J8 _-KING SCALE IN MILES BUREAU OF AGRICULTURAL ECONOMICS IN COMPILED BY L1 OIympi SOURCES:COOPERATIONWASSINATON MAPS WITH STATEMD NATIONAL REPORTS COLLEGE RESOURCES OF PLANNING 00USD REGIONAL PUGET SOUNDPLANNING COMMISSION COUNTYWASHINGTON ENGINEERS LAND STATE USE COMMITTEESPLGNNINU COUNCIL - SEATTLE WASHINGTON FIGUICE 21. THURSTON / CSNDERVATIONWASHINGTONBUREAU SF AGRICULTURAL STATE AND - DEVElOPMENT ECONOMICS DEPT. OF 44 National Resources Planning Board Land-clearing proposals (fig. 20) are concerned pre- likewise requires oniy 10 to 15 acres of such land for a dominantly with cut-over upland areas and represent full-time farm. On the upland soils it has been sug- essentially the exten.t of new lands considered to have gested that a family-sized dairy farm on cut-over lands favorable possibilities for cultivation. probably should contain at least 80 acres, of which 30 With the exception of 21,300 acres on the Olympic should be cleared for hay and grain production and 30 Peninsula and 2,300 acres in Thurston County, all irri- used for seeded stump pasture.Fruit and poultry gation proposals (fig 20) have in view an emphasis on farms in upland areas can be considerably smaller. sprinkler systems.Nearly all lands proposed for such In marked contrast to the recommended sizes of farms, irrigation are now in crop production and, in the main, especially in the cut-over areas, stands the average sizes represent the best agricultural lands not only in the re- of present farms.Several surveys in recent years have gion but in the entire Pacific Northwest. New land to revealed not only that the average total size of farms is come into crop production as a result of irrigation de- small, but also that the proportion of cleared and velopment probably would not exceed 7,000 acres. cropped acres per farm is extremely small. On the up- Drainage development proposals (see fig. 21) are lim- land cut-over areas of western Washington in 1939, ited in the main to bottom-land areas. A considerable about one-third of all occupied farms were less than 20 amount of the land proposed for clearing and some acres, and an additional 43 percent were only 20 to 45 proposed for irrigation will require drainage as well. acres.More significant, the cleared area per farm was New lands to be brought into production through drain- less than 10 acres for about 75 percent of all farms and age development under the present proposals are quite less than 2 acres for nearly one-third of all farms. The limited, since the more economic diking and drainage wide difference between the total acres in farms and the developments on bottom-land soils were carried out cropped acres indicates an opportunity, in many cases, years ago. to expand crop acres without combining farms or dis- placing farmers. New Farm Possibilities The proposals summarized in table 11 would pro- Classification and Cost of Proposals vide for about 1,628 new farms, increasing by 4.7 per- Clearing proposals, especially where clearing is the cent the number of farms in the region.Of these, sole or the primary development involved, are located about 650 are included in proposals that are rated in almost entirely on the upland soils, accounting for the class A. An addition of 650 farms would increase the high percentage carrying B and C classifications. total number in the region by 1.85 percent.The re- Probably the two most important factors hindering an maining thousand are about evenly divided between accelerated clearing program are excessive cost for Class B and Class . The feasibility of improving clearing and lack of adequate long-term credit. A such land will be conditioned by the probable long- study of costs under the bulldozer method reveals a range returns in comparison with the costs.The pro- range from $18 to $80 per acre, with two-thirds falling posed land improvements would benefit about 12,000 in a $39 to $57 range. The costs of preparing a ifeld of existing farms, or one-third of the region's 1940 total. its first seeding after the bulldozer work often exceed Because of the small-farm problem it is not recom- the initial clearing cost by 50 percent.However, much mended that new farms be created by subdivision of of the latter is for labor, which may be done largely by present units.It follows, therefore, that the new farms the farmer. would be on lands not now farmed. The preponderance of class B irrigation proposals and the few class A proposals are largely accounted for Probable Types and Sizes of Farms by a past lack of interest and a consequent lack of tech- Dairying is definitely the predominant type of farm- nical investigation both as to the extent of ground- ing recommended for the proposed development areas. water availability and the value of supplemental water Other recommendations include poultry, small fruit to agriculture. An analysis of climatic and agronomic production, and truck gardening. Farm woodlands conditions reveals that rainfall drops off decidedly dur- are of special importance in this area and provide a de- ing the growing season (see figs. 3 and 4) and that crop sirable source of farm income.It is usually recom- growth is greatly retarded during midsummer drought mended that dairy farms on bottom-land soils, if favor- periods.The value of irrigation will be to provide ably located with respect to markets and transporta- supplementary moisture to present farms during the tion facilities, should include 60 acresat least one- midsummer growing season, thereby increasing yields, half of which are improved cropland.Fruit or berry stabilizing production, and, if development is econom- farming on such lands can be practiced on much smaller ical, increasing and stabilizing farm income. The cost tracts, 10 acres being considered ample on the Puyallup of installing sprinkler equipment on farms in western River bottoms.Truck farming of an intensive type Washington will average from $35 to $50 per acre. A Puget iSound Region, War and Post-War Development 45 recent study found that the average investment cost on Uncertainty concerning future availability of such 32 such farms was $36.50 per acre. items makes farming operations difficult. The recommended drainage, clearing, and irrigation Although farmers are experiencing all these difficul- enterprises can be accomplished by individual action ties and high costs because of the war, they also are ob- through the formation of drainage districts. A finan- taining higher prices for their products. The enor- cial problem exists, however, as much of the land to be mous growth of industries and population has created, drained or reclaimed is tax-title land. A Federal pro- among other things, sharply increased demands for gram is recommended, to be set up under the Bureau of fresh fruits, vegetables, milk, meat, and other food Reclamation or by the Soil Conservation Service under items. the Water Facilities Act. Most of the diking and drain- The prospective decline in war activities will cre- age projects cannot be carried out until flood-control ate new problems, one of which is likely to be a back-to- levels, the location of stream beds, etc.,are determined the-land movement. This suggests that the settlement by the Army Engineers, a task which has not beencom- and development of the land be carefully controlled, pleted owing tolack of funds and congressional particularly at the close of the war, so that only authorization. the best potential agricultural land will be settled. War and Post-War Problems While State of Washington laws permit county zoning Farmers in the Puget Sound area, like many farm- regulations, they are not specific as to the control of ers elsewhere, are experiencing acute problems arising agricultural lands and would not prevent a man from from the war.Particularly serious is the problem of trying to grow crops on any piece of land he owns. sufficient labor.Even such labor as is available can It is recommended that a suitable amendment be be had generally only at wages competitive with those adopted.Attempts along this line at the last three paid by war industries, resulting in higher produc- legislative sessions have been unsuccessful.The best tion costs.Unless correspondingly higher prices can method at present to prevent settlement on inferior be obtained for farm products, net farm incomes are lands is through an educational program. Where soil- reduced, or actual losses are incurred.In many cases conservation districts have been formed by farmers, operators of small farms have discontinued farming in they can restrict the use of lands. favor of employment in war industry, utilizing their Authorities of the respective counties and agricul- farms merely as residences.Shortages of equipment tural agencies can do much to direct future settlement and materials, as of labor, are impeding production. and development of land along sound lines. PART III 2. MINERAL RESOURCES By State Department of Conservation and Development

The Mining Industry TAnr.ic 12.Minero2 resources, Puget Sowsui region, outl4neet by The mineral resources of the region are varied and counties abundant and have supported an important mining in- Percentage County Potential resources of regional dustry since the earliest days.Productionhas varied output through the years, changing with market demands and Clallam Clay, coal, gold, limestone, magnanese, mineralLess than 1.' with the economics of individual operations, but in water8, sand, gravel, stone. Island Sand, gravel, stone Do. normal years the value of the regional output is approx- Jefferson Clay, limestone, manganese, 8and, gravel, stone Do. Ring Clay, clay products, coal, diatomite, glass sand, Iron,45 to 55. imately 40 to 50 percent of the total production for the limestone, metallic, minerals, mineral waters, peat, portland cement, structural 8and and gravel, molding State.The value of State production during the period sand, stone. Kitsap Clay, peat, sand, gravel, stone 1 to 2. 1921-40, has averaged $20,312,428 annually and has Mason Clay, limestone, manganese, sand, gravel, stone Less than 1. Pierce Abrasives, clay, clay products, coal, diatomite, lime- 15 to 20. ranged from $9,387,645 in 1933 to $31,590,023 in 1939. stone, metallic minerals, mineral pigments, mineral waters, sand, gravel, stone. The exact amounts produced by the 12 counties are not San Juan Feldspar, lime, limestone, sand, gravel, stone 2 to 4. Skagit Abrasives, asbestos, chromite, clay, clay products,10 to 20. available for each year, but the average for the region coal, diatomite, graphite, iron, limestone, metallic minerals, nickel, olivine, portland cement, pumicite, is approximately $9,000,000 annually, a very substantial sand, gravel, silica, stone, strontium, soapstone, talc. Snohomlsh -Clay, clay products, coal, graphite, iron, limestone, Less than 1. sum and one subject to marked increase with the im- metallic minerals, mineral waters, sand, gravel, stone, sulfur. provement of the various factors affecting mining, par- Thurston Abrasives, clay, coal, mineral pigments, sand, gravel, 1 to 2. stone. ticularly in the metallic field. Whatcom Chromite, clay, coal, diatomite, graphite, Iron, lime-15 to 20. stone, metallic minerals, mineral waters, olivine, The metallic resources of the region comprise ores natural gas, peat, portland cement, sand, gravel, of antimony, arsenic, chromium, copper, gold, iron, silica, stone. lead, manganese, molybdenum, nickel, silver, titanium, 1Manganese production is not included in this calculation, owing to wartime and zinc.The nonmetallic resources include alunite, restrictions. ceramic clays, cement materials, coal (anthracite, bitu- proximately 64 billion tons.On this basis, some 63 minousboth coking and free-burningand subbitu- billion tons remain, all in the Puget Sound region and minous), diatomite, graphite, mineral pigments, mineral in the adjacent Kittitas, Lewis, and Cowlitz County water, natural gas, olivine, pumicite, limestone, sand fields.Although such an estimate is virtually uncheck- (glass and molding), silica rock, stone (granite, sand- able, it is certain that, of all the Pacific Coast States, stone, and other varieties), strontium ores, structural Washington has by far the largest coal resources and sand and gravel, talc, and soapstone. virtually the only coking coals of commercial impor- Potential Resources tance. The significance of these reserves has been over- In table 12 the principal potential mineral resources shadowed by the development of local water power and of the individual Puget Sound counties are given. The iompetition from California fuel oil.Some of the minerals, metallic ores, and aggregates recently pro- coals have a high ash content, particularly those other- duced are shown initalics, and the approximate wise suitable for manufacture of coke. On the other percentage of the annual output for each county is given hand, their sulfur content is generally low, and phos- in relation to the value of the total production for the phorus is present in only moderate amounts. region.For brevity, the term "metallic minerals" is The extent of the coal resources of the State is fairly used to include one or more of the mineral sources of well known. Much detailed information on specific the common metals not otherwise specifically men- localities can be found in reports of the United States tioned, such as gold, silver, copper, lead, and zinc. Geological Survey and Bureau of Mines, as well as in bulletins of the Washington Geological Survey and Coal State Division of Geology. The State reports deal in The United States Geological Survey has estimated greater detail with the more important producing areas that the original coal reserves of Washington were ap- and give data on methods of mining, preparation of 46 Puget iSound Region, War and Post-War Development 47 coal, and economics of production, in addition to discus- found away from the foothills of the Cascade Range in sions of geologic factors.The more important facts regions of low relief and little geologic disturbance. regarding the distribution of coal resources are sum- Known coking coals of the region are chiefly in the marized in the following pages. eastern part of the King County coal fields and in the The coal fields or districts extend in a discontinuous Wilkeson-Carbonado-Fairfax area of Pierce County. belt along the west-slope margins of the Cascade Range Isolated deposits exist also in Skagit County near Coke- in Whatcom, Skagit, King, Pierce, and Thurston Coun- dale, where coke was made as early as 1895, in the south- ties.Coals of all ranks from lignite to anthracite oc- ern part of Pierce County, near Ashford, and probably cur, but the major production is in bituminous and sub- in sections of l2SThatcom County.However, these de- bituminous varieties. posits have no significance at present in connection with Anthracitic coal has been found near Glacier in What- projected opertions.The eastern King County areas corn County, but the commercial possibilities of this tentatively must be classed as of secondary interest be- field have not been demonstrated, although considerable cause of the limited extent of known coking coals and prospecting has been done.Bituminous coal occurs in lack of actual coking tests.The Pierce County area the Whatcom, Skagit, King, and Pierce County areas around Wilkeson, Carbonado, and Fairfax remains the near the main Cascade Range. The beds of bitumi- principal source of coal suitable in quantity and quality nous coal are sharply tilted; some are intensely folded for coking, though the possibility of utilizing coking and faulted and in some instances are intruded locally coals from the adjacent Kittitas County field for blend- by igneous rocks.The bituminous coals include both ing must not be overlooked. free-burning and coking varieties.Percentages of fixed Table 13 indicates the present readily available ton- carbon and volatile matter in many seams differ de- nage from developed mines in the principal coal coun- cidedly within a few miles, consequently coking prop- ties of the region. Many billions of tons of coal exist erties vary.The subbituminous ranks generally are in undeveloped beds.

TABLE 13.Readily available coal tonnage

Ash Estimated cost of mine plant and Estimated Number Available washery selling price from mthss' lIming cost washing cost of coal at the County principal Rank of coal Run-of- Washed (million (per ton) (per ton) mines mine coal c&l tons) Daily produc- mine (per (percent) (percent) Coot tion (tons) ten)

(Subbituminoue 213018100,000 200 King 38 Bituminous 1020 4 to 18 l$350,000 to $400,000 500 to 800 }ss.45 to $3.25 $0.25 to $0.35 $2.95 to $3.75. rBjtumjnous I$50,tOO 200 16 8 to 14 164 }82.so to $3.90__ $0.25 to $0.4Q_ $3.40 to $4.40. rierce Semibituminous 4 }is to 20 tssoo,000 1,000 Thurston 6 Subbituminous 8 to 14 71010 41 ttnknown $1.50 to $1.90...$0.20 to $0.25. $2.35 to $2.70. Whatcom fSubbituminous 18 to 30 15 to 19 11 $150,000 to $350,000_300 to 1,000.. $2.25 to $2.50_ $0.25 $3.05 to $3.25. lAnthraeite Unknown $3.50 to $4.

I Much coal in addition to these amounts is available but undeveloped. I Includes 200,000 tons of stripping and 9,000,000 tons of water-level coal. Includes 7,000,000 tons of water-level coal. 4 Coking grade. Source: From data supplied by Gso. w. Evans. Location of Deposits some additional nonmetallic minerals are also largely Certain broad generalizations can be made regarding associated with these metamorphic rocks and confined the areas and geologic formations in which various min- to this area.It forms the eastern part of the region eral resources occur. The value of these more or less and extends westward to include the San Juan Islands theoretical considerations may be materially increased and an adjacent portion of the mainland.(See fig. 22.) by the addition of information on the location and na- Chromium, as chromite, occurs principally in certain ture of existing mines and quarries.These data have basic intrusive rocks (chiefly olivine) of Mesozoic age been assembled on figures 22 and 23.It must be real- that compose the Twin Sisters Mountains of Whatcom ized, of course, that some overlapping of resource areas and Skagit Counties and most of Cypress Island in is always present and that occasional isolated occur- Skagit County.(See fig. 22.) rences may be outside the areas designated. Manganese, as bementite, and as the valuable but Mineral sources of gold, silver, copper, lead, zinc, scarce hausmannite, occurs in a thick series of more or nickel, iron, and a few other metallic elements are found less altered basic volcanic rocks and interbedded argil- chiefly in an area of Paleozoic metamorphic rocks that lites and siliceous limestones of Eocene age that forms have been intruded by acidic, granitoid rocks of Meso- an irregular belt around the north, east, and south sides zoic or younger age.Limestone, talc, soapstone, and of the Olympic Peninsula (see fig. 22.) PUGET SOUND REGION WAR AJO POSI(FAVORABLE WAR DEVELOPMENTetML AREAS)U\LU r C4FETATOOSM 1- 1 PORT ANOELES M# -----, - -'- IHEAREAS CCURENC AVO.S I. National Rescurce8PlanningBoard TACOMA 00341.150 0NMCW c1__ S. KING 3 SCALD 0 IN 0.1(8 TO MASOr TUNT( REGIONAL PLANNING COMMISSION PUGET SOUND IDWINO 0 11080111.1 'VP; 5;Mt. ' 90,4/., SOURCE. Slots IllS o0dMnI,U. Ii.Ion SEATTLE. I WASHINGTON43 T'1URSTON PIER WAR AND POST PUGETWAR DEVELOPMENT SOUND REGION MINERAL RESOURCES: WHATCOM OPERATING MINES RTES ASCOlD 001. C C V C4P ! / NCIU VIIN0N 0051 VII L 0*11.010105 5K AG IT 0, vIRT *NGELS 5140, ITO'PORT C/ac,., P.oA S 25 NAS050ILLE EVE 30 000JJONSR RE' MCII'S '0 . Ce 43 000LSIC 0 NOHOMISH .SAC0ONIDE Ce Aa JE FFEN 'S 20 OPRATNc RopERES (Sn £CCOMP*NVIMG pErEflwct OSIJIN tV) p: IC TVCOMA PUVAILIIP SUMNER tEKUNC WISP KING 0 5 SCALE 0 IN MILES 10 CO M ASO r / REG ONAL PLANNING COMM SS ON PUGET SOUND OLAOORSICLC SEATTIE, I43 WASHINGTON T11uRSTOJ U'IGUBE 23. "'\ PIERCE 50 Nationa Resources Planning Board

Coal is one of the most important resources of the Skagit Mineral Products Co., Inc. region and occurs in King, Pierce, Skagit, Thurston, Skagit Mineral Products Co., Inc. and Whatcom Counties.Lesser amounts, of unproved Skagit Talc, Inc. The Olympic Portland Cement Co., Ltd. value, are in Clallam and Snohomish Counties,in Superior Portland Cement, Inc. the principal fields the coal is in either the Chucka- Benz Affiliated Realty Co. nut or Puget formations, each of Eocene age.(See Manganese Mining & Mfg., Inc. fig. 22.)These same formations contain high-grade Knapp Brick & Tile Co. clays, usable for refractory ceramic wares. Northwest Talc & Magnesium Corporation. Manufacturers Mineral Co. Clay suitable for common brick, tile, and ordinary Jack, J. A. red-fired structural materials is plentiful in the I'leis- Pacific Nickel Co. tocene and Recent sedimentary beds that occur through- 28,. Hanna, M. A., Co. out most of the region; structural sand and gravel de- Howe Sound Co. posits are also abundant in these beds.The area in Sunshine Mining Co. Everett Lime Co. which these important resources occur is not specifically Ore Recoveries Corporation. indicated, as it is too irregular in outline, but it in- Royal Development Co. cludes most of the land of relatively low elevation ad- Scholze, Joe. jacent to Puget Sound and also the lower, valleys of Sol Due Hot Springs. the principal rivers draining into the sound. Olympic Hot Springs. Everett Brick Yard. Places where the metallic and nonmetallic resources Florence Rae Mine. of the region are being mined or otherwise developed Utility Mining Co. are shown on figure 23 by circles.Numbers adjacent Garland Mineral Springs. to the circles correspond to those given in numerical Consumers Lime Co. order on the reference list of mining operations (table Manufacturers Mineral Co. Kromona Mines, Inc. 14).All concerns operating at present or as recently Apex Gold Mines, Inc. as 1941 are given, together with a few that expect to Northwestern Portland Cement Co. commence operation in the near future.The only Skagit Mineral Products Co., Inc. known exceptions are the sand, gravel, and stone opera- Cleopatra Mine. tors; many of these are fairly permanent and could be Coney Basin Gold Mines, Inc. Abrahamson Brick Co. shown, but others are working in temporary pits, and Northwest Pottery Co. locations are subject to change.Additional informa- Builders Brick Co. tion on these operators, giving addresses and products, Seattle Brick & Pile Co. is included in State Division of Mines and Mining In- Washington Pottery Co. formation Circular No. 8, Directory of Washington Gladding, McBean & Co. Strain Coal Co. Mining Operations, by Ward Carithers, 1943. B. & R. Coal Co. For further and detailed information on geology, Biarico Coal Mines Co. mineral resources, and mining operations reference may B. & B. Coal Co. be made to the long list of reports given in Bulletin Harris Coal Co. No. 35 of the State Division of Geology, Bibliography Gladding, McBean & Co. B. & R. Coal Co. and Indecs of Geology and Mineral Resources of Wash- Gladding, McBean & Co. ington, by W. A. G. Bennett, 1939. Manganese Mining & Mfg., Inc. Spring Brook Mining Co. T.&ar.B 14.-Mining Operationâ (See fig. 23) Spring Glenn Coal Co. Gladdlng, MeBean & Co. Renton Mining Co., Inc. The Olympic Portland Cement Co., Ltd. New Lake Young Coal Co. Maple Falls Lime Quarry. Consolidated Coal Mines, Inc. Boundary Red Mountain Mine. Goldmeyer Hot Springs Silver Tip Mine. Skipper Chrome Mining Co. Bellingham Coal Mines. Pole Fick No. 1 Mine. West Coast Coal Mines, Inc. Blewett Mine (Black Jack). Washington Peat Moss Co. Cook Creek Manganese Mines. Slate Creek Mining Co. Olympic Mines, Inc. 10 Indiana Mine. Palmer Coking Coal Co. Azurite Gold Co. Gladding, McBean & Co. Roche Harbor Lime & Cement Co. Big Four Coal Co. Manufacturers Mineral Co. Smith Bros. Silica Sand Co. Skagit Mineral Products Co., Inc. Anderson Coal Mines, Inc. Skagit Mineral Products Co., Inc. Continental Coal Mines, Inc. Puget Sound Region, War and Post-War Development 51

O'Kay Coal Co. Wilkeson Wingate Coal Co. Green River Coal Co. Apex Coal Co. 80. Pacific Coast Coal Co. Dependable Wingate Coal Co. Franklin Gem Coal Co. Walker Cut Stone Co. Hi-Heat Coal Co. 100. Gale Creek Coal Co. National Coal Co. Far West Brick, Tile & Clay Co. Carbon Fuel Co. Silver Creek Gold & Lead Corporation. Palmer Coking Coal Co. Western Quarry Co. Jonesville Coal Co. Stoker Coal Mining Co. Lake Coal Co. Boxer Coal Co. Roslyn-Cascade Coal Co. Bucoda Coal Mining Co. Northwestern Improvement Co. Black Prince Coal Co. 90. Northwestern Improvement Co. Northwestern Improvement Co. Majestic Coal & Mining Co. Cle Elum Coal Co. Longmire Springs. East Miller Coal Co. 110. Ohanapecosh Hot Springs. Queen Coal Co. Golden Glow Coal Co. Wilkeson Miller Coal Co. Monarch Coal Mining Co. PART III 3. FORESTS AND FOREST LAND USE By Puget Sound Regional Planning Commission

Present Status of Forest Resources ever, inaccessibility and wasteful logging methods, The vast forests which the early settlers found were which leave this material scattered through cut-over looked upon chiefly as impediments because the trees areas, together with high logging and transportation first had to be cleared from the land before it could costs, largely preclude its use in the centers of popula- be cultivated.These same forests have in a large tion.The practice of broadcast-burning to remove the measure been responsible for the phenomenal growth in tremendous fire hazard left after a clear-cut logging populatkm and development of the region.However, operation, unfortunately, destroys much material which the end of the Douglas fir industry on anything like the would be suitable for fuel. past scale is in sight, as evidenced by the migration of The region is better suited to conifers than to the loggers to the virgin forests of other regions.The hardwoods.(See fig. 24.)However, along some of scarcity of accessible timber is forcing the independent the river bottoms, alder and maple have flourished, logger from Puget Sound.In order for the mills to furnishing the raw material for furniture and wood- assure themselves of a supply of raw material, they have working plants.This is a minor but nevertheless very been forced to buy stumpage and do their own logging important part of the economy, because it involves as well as contract for logging.Though smaller than local remanufacturing. formerly, owing to migration and mortality, milling Over the years there has been a gradual betterment capacity is far in excess of the sustained supply. in methods for protection of cut-over lands from fire. As logging has progressed into the mountains, the This has resulted in large areas of young trees, but percentage of Douglas fir, which has been the mainstay these trees will not be of merchantable size for several of the industry, has decreased, with a consequent in- decades.The drain on trees of merchantable size has crease in the percentage of pulp species.The building been about treble the amount of growth of usable ma- of pulp mills several years ago helped to compensate terial.The war has called for an increase in the cut for the decrease in the cut of lumberThere are suffi- and forced many of the more accessible remaining cient quantities of pulp material to maintain the exist- stands of timber on the market. While thisover- ing plants and several additional ones in perpetuity if cutting during the war is a necessity, its inevitable our forest land is managed properly.The plywood effect is to hasten the day when othermeans must be mills have found great difficulty in obtaining quality found to employ the labor which will be displaced with logs, and in their efforts to obtain this material, stump- the closing down of wood-using plants. The remain- age prices have advanced to unprecedented heights. ing private timber is owned by a comparatively few The establishment of many new plywood plants in other companies who will probably wish to use it to extend areas during the past 4 or 5 years indicates the trend. the life of their own operations.This will result in With logging operations retreating toward the forcing many of the smaller concerns to withdrawor rougher topography of the higher mountains, the sal- seek timber in other areas.The annual cut can be vaging of poles and piling become increasinglymore expected to decrease materially with closing of these difficult and expensive.Past inadequate protection of operations. the cut-over lands in this area has limited the growth, which by now should have produced trees ofa size Forest Protection suitable for piling, and consequently the poles and The State has been progressive in getting forest piling stands that are available are in great demand protection laws on its statute books.There have been, and command a high stumpage price.Piling is par- however, far too many fires, particularly in the early ticularly in demand during the war, and standsare spring and fall when fires do much damage in killing being cut which are at the period of greatest growth trees too small to be noticed.The public has yet to and which normally should not be cut. become educated to the necessity of protecting these There is plenty of wood available for fuel in this small trees and has been for too complacent in its area if it could be delivered to the consumer. How- acceptance of disastrous firesas inevitable.With 52 WAR AND POSTPUGET WAR DEVELOPMENT SOUND REGION - - - COMMERCIAL WHATCOM ORES YPES AC F' AfTER V C4FErroo , SKAGIT r ANGELES / I0NtI\OeoIEr outs,o SNOHOMISH EM t.t MASOI T4CQMA PUGET SOUND 0 ro 4LMF4A REG ONAL PLANNING COMM SS ON PDc',creparou.OURCE: - ....'i -.i ,c"ypIMG E*oI,,e SEATTLE, 1945 WASHI NSTON TIIURSTOW FIGURE 24 Th P ERCE PUGET SOUND REG!ON S 54 vAR ACID POST WARNTO CFVFLOPMFUT SUSTAINEDARE/- YIELD DEVELOPING ' ,5Q5j -----b;;------. NOOK - CK FORESTtt tJN!T R;Oa 7t' WI-IATCOM A'AC RTES FL 9T1(RY CF(L*WOSW I /, 5>it_.--I )4 S K AGT ILLAUO PORT APJGrLtS I 04PtV11.L I N AY SWILL C CLLLAM p PoIS LASO SNOHOMISH 40505550 LF II National ResourcesPlanningBoard JN 1' KITSAP - / ' S S L I -- _ uS,I *0.0*5 S CNUMCA,A* (t SQ MA SC 4 TACOMA PSJTALLUP PUGET SOUNDSWAtS IFS ILCS OLYMPIA M(- REGIONAL PLANNING COMMISSOU SEATtLE, WASHINCTON T'kJRTON 5PIERCE Puget Sound Region, War and Post-War Development 55 strong public support the protection laws could be undoubtedly utilize the younger stands of timber, but made more effective, so as to assure necessary forest until the accessible virgin timber on the West Coast products for future generations. is exhausted, competition from better stocked areas will be extremely difficult to meet and great ingenuitywill Rehabilitation be needed to utilize and manage the remaining timber In this area there are many thousands of acres which resource to the end that the greatest use canbe made have been burned repeatedly and on which there is no of local labor. chance of establishing a commercial forest in a reason- In 1935 labor received about $9 for every thousand able time without planting.The State does not have board feet of lumber produced.This has increased to an adequate forest policy covering the managementof about $12 under war prices.It has been estimated that its lands.Unfortunately, an attempt in the last legis- there are at least 10,000 more employees in the forest lature to establish such a policy of management failed. products industry in this area than there were ten years Through the CCC, the State several years ago estab- ago, principally because of theimprovement in general lished a tree nursery near Olympia capable of growing economic conditions, but due also to local remanufac- four or five million trees per year.With the discon- ture of additional forest products of which plywoodis tinuance of the CCC and the advent of war, it has been the most important.Recent estimates of the labor impractical to consider extensive planting.However, force (January 1943) show 42,000 in direct employ- as a part of the after-the-war work program, theplant- ment in forestry and the manufacture of woodprod- ing of denuded areas should be given high priority. ucts.There are, in addition, many other employees Existing nurseries should get into full production and indirectly dependent upon the forest industry, serving additional nurseries be established. it with transportation, supplies, etc. Some of the larger timber operators have adopted forest practices which, if carried through, should re- Program sult in a continuous forest crop on large areas of land. Any program for making the forests of the region One handicap is the lack of any law allowing public continuously productive and thereby assuring to in- regulation of cutting practices.As a result many of dustrial communities a reasonably stable supply of raw the smaller operators are not giving the growth of a material, conflicts with urgent present demands, largely second crop any consideration.Private timber inter- war demands that are difficult to deny.The immedi- ests have established a tree nursery at Nisqually.rfhis, ate post-war need is to shift fromliquidation to sus- however, is not a complete answer to the problem since tained-yield forest management or at least to practices only five or six thousand acres could be planted each which will insiire considerable continued productivity year with the trees produced, and these will berequired on areas where forest conditions arefavorable, with- to supply only a few of the major operators.The land out dislocation of labor and commerce.Although the cut over each year in western Washington is several immediate effect of curtailing forest exploitation will times this amount.Strictly speaking there are no pri- be reduced employment, the desirability of such cur- vate sustained-yield units in operation in the region tailment from a long-time point of view is beyond dis- although as indicated above several operators are taking pute.Management to insure continued productivity steps in this direction. The cut on national forest lands must be instituted on all commercial forest land regard- is limited to the sustained yield. The State also has a less of ownership.It is highly desirable that sustained- sustained-yield unit in the Sultan and Pilchuck drain- yield plans for all forest areas be formulated and initi- ages.Private areas where sustained yield should be ated at once, because of the possible effect of such a given consideration have been indicated on figure 25. policy on cutting of public timber, merging of private properties, establishment of new industrial plants, State Industrial Plans legislativeaction,construction of public improve- The future of the forest industry in the Puget Sound ments, etc. region is somewhat uncertain, but changes are inevita- Obviously, stabilization of ownership and other eco- ble.It is predicted that sawlog production will de- nomic readjustments are necessary before sustained- cline greatly during the next two or three decades.As yield management can be generally adopted in the competition from the virgin forests to the south be- region.All Federal forest land chiefly valuable for comes keener, plants will either move south, or some commercial timber production should be managed un- means will have to be found for cheaptransportation der a uniform policy.All cutting on public land of raw materials to Puget Sound plants.Consider- should be on a sustained-yield basis.Considerable for- able advance has already been made in the remanu- est land now privately owned will pass into public facture of low-grade material into high-value material ownersiip through tax delinquencies.These should be through lamination.Some industries of this type will classified promptly as to most suitable use and own- 56 National Resouree8 Planning Board

ership.Forest lands judged suitable for publicuse settlement, since such uneconomic use of submarginal land is and ownership should be transferred to the State forest sure in this region to increase the fire hazard to adjoining forests. agency, and those within national forest boundaries In anticipation that the private timberland owners' con- and national forest exchange limits should then be tribution toward protection will diminish as the area of virgin forests diminishes, the State should assume a greater share in transf erred to the Forest Service in exchange for Fed- the protection of County and private lands and ultimately have eral lands inside State forest units.Federal, State, entire jurisdiction over all forest protection outside Federal and private holdings should be exchanged andcon- holdings.State appropriations should therefore be materially solidated to improve the extremely patchy pattern of increased, to intensify the present protection and law enforce- forest land ownership now common ment. Private timber- Through educational effort and otherwise, better compliance land owners, both operating and nonoperating, should with the forest-protection laws must be brought about and these be urged to merge their holdings soas to form proper- laws must be more strictly enforced in the lower courts. ties of a size and compactness that will promote sound Forest research as now carried on by the Forest Serv- financing and efficient management for continuous ice, the forest schools, and industrial organizations is production. giving beneficial results and should be continued and As a basis for intelligent land-use planning, classi- expanded. The industry itself should make more in- fication of rural lands should be undertaken immedi- tensive studies of its industrial problems, either through ately by Federal and State agencies, acting jointly. ii s trade associations or otherwise. Following this classification, adequate zoning laws Expansion of the present forest-researchprogram is should be enacted, and should be effectively admin- needed particularly along the following lines: istered. Silvicultural and economic aspects of selective cutting. All timber on public forest lands, Federal, State, Improved methods of slash disposal and of protecting logged- or county, now reserved or to be reserved exclusively off land, particularly areas selectively cut. for intensive recreationaluse should be omitted from Further intensification of the forest survey to develop basic sustained-yield calculations and reserved from cutting policies and principles for forest-land use and to determine how except for salvage. An urgent phase of the State forest forestry fits in with other major types of land use. Basis for distinguishing areas chiefly valuable for forest land program is the acquisition of timber strips along purposes from areas chiefly valuable for agricultural use or main highways.This should be carried out immedi- pasturage. ately.Whatever the ultimate plan for handling tax- Relation of forest-land management to floods, erosion, and forfeited lands may be, the State should at least insist quantity and regularity of stream flow. that such county-owned landsas border highways, are 0. Economics of multiple land use, particularly of stock grazing, game management and recreation, in relation to timber traversed by good fishing streams, orpossess other re- production. creational features be transferred from t1e counties Economics of private sustained-yield management of forest to the State. lands, especially in relation to public finance and taxation. Integration of any measures taken for (1) stabiliza- Improvement of logging equipment and methods to meet tion of forest-land ownership, (2) public acquisition requirements of good silviculture and protection. Search for new uses for forest products, new markets, and of forest land, or (3) enactment of regulatory legisla- better methods of conversion, with a view to making highest tion 'could assist in the consummation of the sustained- use of each tree. yield plans. Principles and plans to meet problems of declining com- With an enlarging acreage of cut-over land anda munities that result from over-cutting of tributary timber and slacking off of forest and mill activities during the post-war growing use of the forests by the public for recreation, transition period. the region is facing an increasingly difficult problem All public forest land chiefly valuable for watershed of forest protection. Particularly outside the national protection should be reserved for that use, though selec- forests, efforts must be redoubled to keep losses within tive and regulated cutting of ripe trees which would reasonable bounds. otherwise go to waste should be permitted. Some of the specific steps necessary to advance forest Full use of forest land under the principle of multiple protection are as follows: use advocated by the Forest Service should be the policy The wild lands outside public forests should be classified wherever practicable. to determine the major areas chiefly valuable for forestpurposes The present policy of using sales of national forest and requiring protection. Forest-protective agencies should timber to encourage the practice of sustained-yieldman- then confine their efforts to these lands, and otheragencies such as rural fire departments should be held responsible for agement on private land and refusing to make sales that the protection of the intervening agricultural and farm-woodland might add to the established millcapacityor precipitate territory. liquidation of private timber should be continued.All Following land classification, there should be 1anj-pse leg- public agencies conducting timber sales should adopt islation to prevent attempts to use forest land foragricultural similar policies. Pu get Sound Region, War and Post-War Development 57 The remarkable expansion of truck logging in the Further improvement is needed in milling, seasoning, past few years has greatly complicated transportation grading and preparation for shipment.The develop- planning in this region.The requirements of the for- ment of marketable products from sawmill waste should est industries should be considered in planning the lo- be given greater attention.Such waste is now used cation and construction of new highways, with special chiefly as fuel, although some of it has potentialities for reference to sustained-yield plans.The bulk of the higher uses which would give greater returns and more freight traffic on rivers and harbors consists of forest local employment. Many smaller mills do not market products.Public development of waterways should sawmill waste even for fuel.Cooperative action is be integrated with sustained-yield plans. needed to make available to the small mills facilities It would be very advantageous both to the public and for converting their waste to salable commoditiees. to industry if over-production of forest products in this The industry should make every effort to reduce the region were controlled by voluntary cooperative action volume of logs and rough lumber shipped out of the re- of owners, through such devices as mergers, support of gion and to increase local remanufacture.Industrial trade associations, and better financing. and financial agencies should encourage and support Great improvement in manufacturing practice. has the establishment of local remanufacturing plants for been made by the lumber industry in the past few years. which definite needs and opportunities exist.

i34268- 43-----r PART III 4. WATER RESOURCES By Richard G. Tyler1

Water resources of any area are of primary import- of some of the supplies now in use.The need for plan- ance to its development and prosperity. Water is the ning is becoming increasingly apparent if the local one resource without which the area cannot develop. streams are to have their purity safeguarded and if It is only necessary to compare some of the projects of setting aside certain favorable streams or tributaries the Bureau of Reclamation, where desert areas have and reserving them for future domestic needs is to be been changed into prosperous agricultural communi- accomplished before they are preempted for less linpor- ties, with the dust-bowl area of the mid-west, where tant uses. the reverse process is in progress, to realize the impor- Some 60.6 percent of the water used in the Puget tant relationship between the water supply and pros- Sound basin is from surface sources, while 10.1 per- perous community life.The fact, therefore, that the cent is from underground supplies (see fig. 26), leav- Puget Sound region holds a unique position in the ing 29.3 percent unknown (mostly rural).The water- United States in having a great abundance of water works systems of 29 out of 36 cities of more than 1,000 of exceptionally excellent quality (exceeding, in fact, population are municipally owned while the remaining all other comparable areas of the country) is the foun- 7 are in private control. dation upon which a sound developmental program The larger supplies include those of Bellingham, can and must be based.Its numerous and excellent Everett, Seattle, Tacoma, Olympia, and Bremerton. Of harbors are gateways through which increasing quanti- these, Tacoma has a surface supply supplemented by a ties of materials of all sorts will pass to and from all well supply from the deep gravel and sand formations parts of the world, and particularly the Pacific rim. of the South Tacoma Prairie; the Olympia supply comes The abundant precipitation, aided by a topography from ground-water sources, while the other cities men- yielding an unusually high percentage of run-off, pro- tioned have surface supplies.Everett has an excep- vides the numerous streams with ample, clear, pure wa- tionally high water consumption of 1,760 gallons per ter, chilled even in summer by the melting snow and capita daily, of which 1,490 gallons per capita daily is glaciers in the higher mountain areas.Suitable dam industrial water used by pulp and paper industries. sites, magnificent differences in elevation, and well sus- Detailed data on the water supplies of all cities and tained flows provide large blocks of cheap firm power towns having populations greater than 1,000 are given for the expanding population and developing indus- in table 15. tries clustered around the Sound.Its streams also sup- The demand that has been placed on supplies of port an important fisheries industry and make the some of the smaller communities by the influx of war area's scenic and recreational resources unexcelled in workers, or the construction or expansion of army and extent, variety and beauty.With a climate that is navy camps and of war industries, has necessitated aug- fairly equable throughout the year, though somewhat menting the supplies of Kirkland, Bremerton, Poulsbo, moist during part of that period, and a long growing Fort Lewis, and Oak Harbor.Seattle has filed on the and construction season, the region's possibilities for Tolt River for 1,250 cubic feet per second for future development of a stable, economic prosperity are un- needs, should these arise. usually bright, if plans for development are well laid. For the more distant future, certain streams should be reserved for domestic use.The South Fork of the Water Supplies Nooksack River should be reserved for additions to The municipal water supplies of the area are, in the the Bellingham supply and to those of other communi- main, excellent in quality and ample in quantity. ties in its immediate vicinity.Before being discharged Growth of population and industry, however, is begin- into the Skagit sewage should be given complete treat- ning to pollute the streams and approach the capacity ment and chlorinated.The lower reaches of this river are now badly polluted, though used after treatment for IProfessor of Sanitary Engineering, University of Washington, and Chairman, Committee on Sanitation and Public Health, Puget Sound public water supplies by Anacortes, LaConner, Burl- Regional Planning Commission. ington, and Mount Vernon.Arlington uses filtered 58 Puget AS'ound Region, War and Post-War Development 59

TABLE 15.Puget Sound basin water supply data, cities and towns with population of 1,000 or more

Populationi o r allons Treat- Name County . Source Delivery er day melt es?,ad capacity

(1) (2) (3) (4) (5) (6) (7) (8) (9)

American Lake. Pierce 3,429 N Government supply 0. 5 Anacortes Skagit 5, 875 Y M Skagit River, Lake Whistle P 3. 5 F-Ci Arlington Snohomish 1, ito Y p Stillaguamish River P .5 F-C Auburn King 4,211 Y M Springs G 2.5 Bellevue King 1,114 M Lake Washington P Bellingham Whatcom 29, 314 Y M Lake Whatcom and Lake Padden P-G 20 A-C Black Diamond King 1,054 N P Springs 0 .3 Blame Whatcom 1,524 Y M Wells 0 .3 Bremerton Kitsap 15, 334 Y M Anderson Creek, Gorst Creek P-G 6.5 C Buckley Pierce 1,170 Y M Springs, South Prairie Creek U Burien King 1, 057 P Wells P . 432 Burlington Skagit 1, 632 Y P Skagit River, wells P . 31 C Clear Lake Skagit 1,010 N P Silligan Creek U Edmonds Snohomish 1, 288 Y M Wells . 5 Enumclaw King 2,627 Y M Springs G .65 Everett Snohomish 30,224 Y M Sultan River 0 62 S-C Kent King 2,586 Y M Springs U Kirkland King 2,084 Y M Springs P-U . 7 Lynden Whatcom 1,696 Y M Neokssck River P 1 C-F Marysville Snohomish 1,748 Y M Springs U .5 C Monroe Snohomish 1,590 Y M Springs, wells U 2 C Mount Vernon Skagit 4,278 Y P Skagit P 1.8 F-C Mukilteo Snohomish 1,041 N M Sultan River via Everett U C Olympia Thurston 13,254 Y M Wells 'P 8 A-C Orting Pierce 1, 211 Y M Springs U .257 Psrkland Pierce 2,368 N M Green River via Tacoma U C Pinehurst Snohomish 1,668 N M Springs P Port Angeles Clallam 9,400 Y M Morse Creek, Ennis Creek P 11 C Port Orchard Kitsap 1, 566 Y M Wells P .26 Port Townsend Jefferson 4, 683 Y M Quilcene River U 17 C Puyallup Pierce 7,889 Y M Springs U 6 Renton King 4, 488 Y M Springs G 1 Seattle King 368, 302 Y M Cedar River - U 115 A-CS Sedro Woolley Skagit 2,954 Y P Nookachamp River G .50 C Shelton Mason 3,707 Y M Springs 20 Snohomish Snohomish 2,794 Y M Pilehuek River U 1.26 C Sumner Pierce 2, 140 Y M Springs G 2. 5 Tacoma Pierce 109,408 Y M Green River, wells U 83.8 C

NOTES Column 4: Y=Yes; N=No. Column 5: P=Private; MMunicipal. Column 7: P=Pumped; G=Gravity. Column 9: F=Filtered; C =Chlorinated; A-C =Amznonia-chlorine sterilization; S=Sedimentation. Source: National Resources Planning Board. water from the Stillaguamish River, while Lynden of land protected by dikes.This does not apply to the filters its suppiy from the Nooksack. delta lands, many of these areas having been success- The Tolt, Cedar, and Green Rivers likewise should fully diked.Most rivers run through the great mantle be reserved and their drainage areas protected from of glacial material laid down during the ice age, making pollution.All towns along these streams not already it difficult to find suitable foundations for storage dams. provided with modern sewage disposal plants should Dams located on the upper reaches where the rivers be so supplied.In locating new industrial plants that have cut through this glacial mantle control such a may be established after the war, special precautions small proportion of the watershed that their cost is not should be taken to prevent undue contamination of justified by the resulting benefits in flood control, al- streams or of existing surface and ground-water sup- though in some cases it is possible to combine such plies.Thus should their present purity be safeguarded storage with the development of hydroelectric energy. for posterity. Diversion is seldom feasible, as it would only reduce the damage in one basin at the expense of another into Flood Control which the diversion is made. Rivers tributary to Puget Sound are, in general, A feasible method of reducing flood damages that short, with steep profiles in the upper reaches and flatter should be given 'serious consideration in any compre- profiles as they approach tidewater. The valleys, ex- hensive plan of improvement is the removal from the cept in the delta areas, are narrow, with but little flood plain of all buildings and structures not essential agricultural bottom lands.The discharges are flashy to the operations of farms or industry.This method and of short duration, the flood-flow being many times is practiced to a greater or less extent at the present greater than the average flow. Many of these rivers time, a good example being the Pilc'huck River in Sno- have their sources in glaciers or are fed by melting homish County, where farm buildings and roads have snows from the higher altitudes. been located along the sides of the valley above the Several conditions make it difficult to control floods. flood plain, and the only structures subject to damage The narrow bottom areas make for high cost per acre are the fences. rUBLICWAR WATERPUGET SUPPLIES SOUND REGION UD POST WAR DEVELOPMENT FOR TREATMENTAND FACILITIES CaNON',, Pt4TTE F? I CAPt ?L'OC I L' SX AG IT PORT AIISELES 0JPFVILL( ' - OARUNICRR EIJERTT oSooQS$ *011*01 00 LS SO 5* 1 SOld I S TAEt.TMkMT . ND TEA?VET 51JPPV 115(51* IC (ITS4P QS1 S S0004L S If D A 0 . L PAPT#t StNF TION ONLYREAIMENT U Ja S [ coLEr 1RE8ruE SHE.. 101. to S 0 to M ASO SCALE IN MILLS PLJ8LIC WAER SUPPLY _- CIISUHIL S LI IA PlO 0 RESIONAL PLANNING COMMISSION PUGET SOUND 0E DEEPA 'acE WELt. 9HALLOW WELL I / YONINO .9 M,.ç Porn.,, cIU,$CE - Wotlo yIV, t$nivIrlI' RMIoIe?CIL1CY S'OTILE, *ASHUGTON SPRiNG ER LLILI T'HtJRSTONy0ioA FICUEF 2fl JIQS, Puget .Sound Region, War and Post-War Development 61

No comprehensive plan for flood control of the region ceiving consideration by the Army Engineers include can be set up.Detailed study of each stream is neces- the Avon cut-off and the possibilities for a power dam sary.What can or should be done on one river has no on the Sauk which would aid in minimizing floods from relation to what can or should be done on any other that fork of the Skagit. The existing Skagit dams stream tributary to Puget Sound. offer no protection from floods originating on the Sauk, The more important rivers that are tributary to Puget which are about equal in size but timed differently from Sound are the Skokomish, Nisqually, Puyallup, Pu- those of the Skagit proper. wamish-Green, Cedar, Sammamish, Snohomish, Stilla- Navigation guamish, Skagit, and Nooksack.Areas along all of these, as well as along other lessor streams, are sub- Puget Sound has good navigable depths throughout. ject to inundation by flood waters.(See fig. 27.) The only shoals are at the mouths of the tributary The flood damage on the Skokomish is limited to the rivers.Federalimprovementshaveconsistedof lower nine miles of the valley.In this case, there is dredging channels so that small boats and log-tows some possibility of reducing damage by storage of flood could avoid rough seas or swift currents, and dredging waters in the power reservoir contemplated by the City in the tide flats adjacent to cities to provide berthing of Tacoma on the South Fork.It is for determination spaces for oceangoing vessels.(See fig. 28.)Cut-off whether power or flood control will give the greater channels have been provided by the waterway connect- returns. ing Port Townsend Bay with Oak Bay (project 2 on Except for a few isolated places, damages on the Nis- fig. 28) to avoid the rough weather at Marrowstone qually are in the area downstream from the Northern Point, and by Swinomish Slough, to avoid the swift Pacific Railway crossing.Diking appears to offer the currents of Deception Pass and the rough water of Bo- best method of reducing damages. sario Strait.Dredging to provide for deep-water ter- Two projects for controlling floods on the Puyallup minals has been done at Olympia, Tacoma, Seattle, Ev- have been adopted and when completed will give ade- erett, and Bellingham (projects 4, 5, 6, 8, and 9, on quate, if not complete, protection to that valley.One fig. 28).To provide additional harbor area and space is the dam at Mud Mountain on White River, a tribu- for terminal facilities at Seattle, a canal with locks was tary to the Puyallup, which is completed except for the constructed connecting Puget Sound with Lakes Union control works, and the other project is channel im- and Washington (project 7, fig. 28). Working under provement in the lower 3 miles of the Puyallup at a general appropriation, the Army Engineers operate Tacoma. a snag boat to clear the navigable channels of Puget Flood control on the Duwamish-Green River is under Sound and tributary waters of snags and other study by the War Department. A reportn flood obstructions. control has been submitted to the Board of Engineers During the early days of settlement, the rivers tribu- for Rivers and Harbors, but has been returned to the tary to Puget Sound served as a means of transporta- District for further study and coordination with pos- tion to the back country. Head of navigation on the sible irrigation in the valley. various rivers is shown on figure 28.With the advent A report on the Snohomish River has been completed of the railways and highways, these rivers have, in gen- but not submitted to Congress. eral, been abandoned as a means of transportation. The work accomplished by the WPA and Army Engi- The only rivers now navigated are the Snohomish and neers on the Stillaguarnish gives reasonable protection Skagit.The Snohomish is navigated to a few miles so long as it is properly maintained.One of the re- above the city of Snohomish. The traffic consists of quirements when the work was done by the United limerock to the paper mill at Lowell, logs from the up- States was that local interests would maintain and per river and from outside sources to the lumber mills, operate the works. and lightering of lumber from the mills to vessels in The War Department has investigated flood condi- Everett harbor.Navigation on the Skagit River con- tions on the Nooksack and submitted a report thereon. sists of freight boats operating between Seattle and rhe report has not been published, but may be in- Mount Vernon and the towing of log rafts from up- spected at the office of the district engineer at Seattle. river points, the head of navigation being at Marble- The flood problems on the Skagit are still under in- mount, 78 miles above the mouth. vestigation by the War Department. The Ross Dam The cities adjacent to Puget Sound handle a large is now being constructed to a higher level by the City amount of both coastwise and overseas traffic.This of Seattle Light Department.After its completion traffic has greatly increased by reason of the war.The the upper 15-foot depth will be reserved for flood stor- difficulty experienced in handling it lies in a lack of age when needed to prevent channel overflow down- terminal facilities, and not in the navigable conditions stream.Projects for Skagit River flood control re- of the entrance channels or waterways. WAR AND POSTWARPUGET DEVELOPMENT SOUND REGION WASHINGTON BEILIN L'iML. DAM FLOOD CONTROL Marb ountDIAMLO MV VICTOREk\ MOUNT VERNON / PORT MGELES N

Areas subject lo inundation by flood waters. SHELTON TACOMA 10 20 PUGET SOUND SCALE IN MILES LYMPIA I Seattle, WashIngton RE$IONAL PLANNING COMMISSION SEATTLE, WASHINGTON 942 j_ --\ FIGu 27. PUGET SOUND REGION + WAR AND POST WAR DEVELOPMENT NAVIGATION BEI.LINGHAM Mt. Sfl.r Shks.. VICTOIJj MOUNT VERNON POUT ANGELES EV}UTT Snohoxnish SEATTLE APPROVED VR AND HARBOR PROJECTS aREMEInTh 5432 .ConnectingEntrancelrtipremeriIEn+rn6f lmnrovemecihtote-nhB #Iatqrwayof Wa+erwys nmaintenance of rectified Channel CPunie h'atmml and Turning Basin 9 Improvement .Note: ® indicatesSnagginQitflSrbOrsBreakwa+C' headakeW of hr navigation. hin1on on,Puget. andShip rivers Canal tributary )nd Locks to Wa oerways meet and maintenance of Channel SC ELTON TACOM. SCALE IN MILES OLYMPIA SOURCE: U.S Engineer Office REGIONAL PLANNING COMMISSION SEATTLE,PUGET WASHINGTON SOUND 942 FIausa 28. ' ) Seattle, Washington 64 National Resources Planning Board

Olympia, Tacoma, Seattle, Everett, and Bellingham purpose uses.The relative cost of development and have adequate rail and highway connections.Airports transmission of power, and the load growth of the area are located near each of these cities. will regulate futtire development of these streams. No general plan has been developed for improving The Puget Sound region which includes the western navigation on Puget Sound, as none is required.The slope of the Cascades is joined on the east by the Colum- Sound can, without improvement, accommodate the bia Basin in which are three major developments, Grand largest vessel now built or contemplated. Coulee, Bonneville, and Rock Island, located on the Power Resources Columbia River.(See fig. 30.)Rock Island has an Maps presented in this report (see figs. 29 to 31 in- installed capacity of 80,000 kilowatts and by the end clusive) show the present developed sources of supply of this year installations at Grand Coulee and Bonne- of electric energy.Another (fig. 32) indicates the ville will amount to 690,000 kilowatts and 518,400 kilo- major transmission line networks covering not only the watts, respectively.The plants at Grand Coulee and Puget Sound area but the State of Washington and the at Bonneville are Federal developments and are tied Pacific Northwest as a whole. into the 115 and 230 kilovolt major network of the Numerous surveys have been made by the War De- Bonneville Power Administration.(See fig. 32.)This partment as to the resources capable of development on network lies almost entirely within the State of Wash- individual streams for the combined purposes of power, ington and makes Columbia River power available in flood control and navigation.Potential sources of en- the Puget Sound region as well as in the eastern and ergy and water supply in the State of Washington as central Washington and northern Oregon areas.It a whole have been well catalogued by the Geological also makes possible the interconnected operation of all Survey of the Department of the Interior in cooperation the electric utilities in Washington and northern Ore- with the State Department of Conservation and Devel- gon, together with those in Idaho, Utah, and Montana on a scale not heretofore possible. opment and other agencies.Private interests and municipal agencies have carried on extensive surveys The Rock Island plant is a part of the system of the looking toward programs of power development. Puget Sound Power & Light Co. and a portion of this Nineteen existing hydroelectric developments (see fig. plant's capacity is used to serve the region through that 29) have a generating capacity totaling 590,900 kilo- system, which is the major distribution agency outside watts, including four developments of less than 5,000 of the cities of Seattle, Tacoma, and Centralia.The kilowatts, five ranging in size from 9,000 to 24,000 kilo- city of Tacoma supplies its own area and many small communities in its vicinity. watts, three of about 30,000 kilowatts each, five of about The city of Seattle and the Puget Sound Co. both serve in the Seattle area, and 60,000 kilowatts each, and one of 120,000 kilowatts.In addition, one site has been developed by a dam creating the city of Centralia serves within its own municipal limits a storage reservoir, utilizing generators installed at a In some counties, public utility districts have reservoir downstream.Installation of generators ul- been organized to distribute power. timately will be made at the upper site. Prior to the development of the Columbia River at Power from the three plants above named, there existed numerous these developments is made available in the region by the transmission systems of the Puget Sound Power industries which were large users of electric power aside from the lumber and pulp mills which, in general, & Light Co., city of Seattle, city of Tacoma, city of generate their own power. Centralia, and the Bonneville Power Administration. These industries included several cement plants, a copper smelter and refinery, a These developments are located on 11 streams, the po- sodium silicate works' and several electrochemical coin- tential development of which totals an additional esti- panies making caustic soda and chlorine.Since the mated 1,131,000 kilowatt generating capacity.Steam generation available on the systems of the cities of advent of additional large blocks of low-cost electric power, more plants for the electrothermal manufacture Seattle and Tacoma and the Puget Sound. Power & of calcium carbide and ferrochrome, large electrolytic Light Company totals 170,000 kilowatts, and there is units for the manufacture of aluminum ingots from available in mills which can be connected to the systems purified alumina, and a small electrolytic manganese an additional 120,450 ki1owttts. :Se1g industry have come into the area. Streams in the Pugtt' Sthfd fea aradataJJ.e to The development of the Columbia River has resulted important mulpiirpodevelopment for thee in the establishment of similar industries elsewhere tion of electri,cai, p,ower, domestic aidmmercial watei throughout the Pacific Northwest, and it is to be ex- supply and,4.ome instances, irrigaic;n, fibba control, /pected that additional industries dependent on power and navigaflon.The development of the region isde will be established in the Puget Sound area as a result more feasible throuthe coordination oth.rulti- of future development of the Columbia and the streams PUGET SOUND REGION Lynden OOKSdCjr® p!Vt WHATCOM WAR AND POST WAR DEVELOPMENT Glacier BAKER .td. © HYDROELECTRICPOWER SITES-I FridcyHarbor ANACORTES Lyman Lok. . Burlington VernonMount WoolleySedro r,- Concrete PORT ISLANDCoupeuille , sr,uuuu°°° NO IIOM H ANGELESPORT Sequim TOWNSEND\ 5LuCIEPEeK ,JEFEER$ON CLAL LAM Shine Pur' 1 t Rixhound Guld Bar Index 50n,bIe .:\/(Poi:hPrO.idM Hi0hiofld Bothelt DuvallMonroe Grotto Trouytoy SEATTLERedmond Tolt C CUSNM4M REL enton SOURCES Bonneville Power UNDERPROJECTS CONSTRUCTION CONSTRUCTED OR LEGEND Allyn \R4\ 4'YE4 ® Engineers,Administration. U.S.Army Corps of Ii Shelton TACOMA P UVA L I. U P Stampede a 'I;? SCALE IN MILES L Dupont Corbonodo PIERCE REGIONAL PUGET SOUNDPLANNING COMMISSION M1 MMNI(C l , DevelopmentsSee Sheet 2 for ond Toble Capacities. of SEATTLE, WASHINGTON 1943 FIGuRE Tenino 2D. THURSTÔN WHATCOM NAME OF PROJECT GAME P LATE RATING tv 6W HYDROELECTRIC ISLAN K AG IT OKANOGAN FERRY 3/ STEVENS I jIDAHO PIJGETEXISTING SOUND ORHYDROELECTRIC POWER UNDER B UGRT CONSTRUCTION COMPANYBaker DEVELOPMENTS Rioer POWER SITES-2 CL Al. FOSTER CRIER 2. NaOksoekElentron 23,0003)200 JEFFERSON SNOHOMISH CCC LAN CMILAN DOUGLAS GRAND A4., SeoqAaln,ie Olympia7.S SnRgivoIeeWOte Riven No.2 No.1 62,00011.3009,0001,500.750 là Seattle OCK' REACH LINCOLN SPOKANE I ElSpokane yEATTLE MUNICIPAL0 Gong.Sft DIabIRCedar 9YSTEJf Falls (20,00030.00076,600 HARBORGRAYS ROCH ISLAND GRANT RvbyNeehoAfll 2.000 ADAMS WHITMAN I TACOMAIS.IA CoshmrRn Nisqually MUNICIPAL ILaRnondel No.2 SYSTEM Cusharon No.1. 36,00064,00054,000 LEWIS TA KIM A FR ASK U N -i CROWNI?. ZELLERSACIRRho..It AId.t canyon CORPORATION 12,00050,000 LUTSO AS 01 IN cITY I.Itop YELMElaN. CENTRALIA 4,400 TOTAL Potential d.eelopment of these projects 1,131,000 1mw O9a,SOU CorpsBonnevilleSOURCES: of Engineers, Power Administration U. S. Army YAMHILL GILLIA UNION _/ln Sotrte c.e.o generating EOpOCityraliogs. will eocend nom, PIG!. 0 FOOt. eLipSUU COLUMBIADEVELOPMENT: RIVER ® ® OAaSPe OM.n.AA vat 0 H LEN PROM ROUTE OP COUJMSIA StREw PROFILE LEGEND MAP NO NAME OF PROJECT ISSTULLEDPRESENT CAPACITy OW ULTIMATE OW UNDEVELOPEDPROJECTS CONSTRUCTED SITES OR UNDER CONSTRUCTION CA JohnTheRcnne,,Iln Dallas Say COLUMRIA RIVER 302,400 650,0005(6400 o OFS RAci,PniastUnalilloAnlinglcn Inland Rapids - 540,000630,000400,000480,000 J7 U I RROkt Roach 60,000 - 270,000200,000 toInslal ogre. led aith 00000ities Inn joint RI U.S Umatilla, ArmyEPA Priest report Rapid, at and FeL Foster (942 Creek ore revised FAstenCholAn Creek - 408,000 REGIONAL PLANNING COMMISSION PUGET SOUND MACS FROM MOATS OF SNARE RIVEN beII Nez incraased Pyre. sl000ge Inoni 90P00 is oreat.d Ic. totIle 2(0.00011. inslolled 80000ity at Five Nile Rapids can NK NezFiveGrand PercoMile Coivlee Rapids blend SNAUE RIVER 324,000 1,944,000 - 600,000 00.000 SEATTLE, WASHINGTON '943 Fiou 30. Install d cOpocity is RI4AOI tO TUI* p)RIe rating. - (.000,000 PUGET SOUND REGION Lynden oOSAC,t WAR AND POST WAR DEVELOPMENTSTEAM - ELECTRIC I BAKER 6 POWER PLANTS L®(ANACORTES\ Sedro Lyman Shu,rnoo Coucrele LAN )I® j ISLAND \Vernon Mount Woo Hey Coupeulile GLUCIEM PUSET SOUND POWER B LIGHT COMPANY NAME OF PLANT LOCATION NAME PLATE RATINSI, ®zA S eq u rn 1 PEAK SEATTLE MUNICIPAL2.ShuttltronI.Georgeronr SYSTEM RemanSeattle 20,000TO,000 -rAELS ! '1 EVERETT OnohrprlSh TACOMA MUNICIPAL3.Laye SYSTEMUnion Seattle no,00o (l) Shlne4 Gold Bor 5.Taoamv4.T000mo No.1No.2 TaComaT000mo 25,000 9000 I OLYMPUS 00+9. C.LLAJ e tilgitlofly. Monroe Indeo MILLS THAT ARE OR CON EE CONNECTED TO UTILITIES ,ca (('v t_0 -- Duvall 7.Blaedel-0000uanKOloedel-Donovan Lumber CompanyCUmpony UelllnghamBellimghom 3,300I .000 DuCFA6UH KRy.tUflM4/ \JL 4BotheII O9.8.Bollingflam WaltonAnacartes yrothens PIy.00dPIy.009 Timber Corporotioo Corporation Company An000rtes00000rtesBellingham 25001,250 250 \Redmond ' SkykorniNh 2. WayerheousenI.t,IorniSon Mill Timbet Company Company EAnocottes vetett 1600 500 N ryto R,Seottle4.Woitan7.Searrle5.Stimsan3.Rob,nNon CedarLumber Eaport MIII ManutantutinaLumber Company Company Lumber Company Company SeattleEvetereEverett 3,5001,750 .300600250 HAR8OFr BREMERTON SEATTLE 22.21.20. WoshingtanRoyoniet,PortWhite River 9.SnoaualmieM,PopePulp Lumber Angeleb wod a CompanyPap,c Talbat Division Falls Company Lumber Lumber Company Company PUttParrEnumolawSnoqualmiePont ArgeleNAngelesGamble FaIls 9,5007,0002,500 .000BOO Orchard SOURCES Bonneville Power 27.Woshingron2K.NortttweNt25.24.23.Fibrebaend NotionalDr. Paol-T500ma Paper PeadvytsSoon Uenter Pnoduors CompanyLvmb,r Company Carparonior Carponarion Company Port OlympiaTacomaTaComaAngelestaensend I 6,0006.2503,000 ,SOO500 Allyn iI COON Administrotion 29.Rynd-MoCleany28.Olympio Veneer Timber Company Company one oases generot 09 CapaCity ill eyuend nomo plot SheltanOlympa ratings.I .000000 Shelton P UYA L LU P Stampede SCALE IN MILES - Corbonodo PIERCE PUGET SOUND L_ 'N -m yll MT RAINIER REGIONAL PLANNING COMMISSION Oo COALOIL AND COAL tenino SEATTLE. WASHINGTON 943 e HOGGED FUEL FIOuWE 31. 8 I 68 National Resources Planning Board

D 0 U N 0 p c A N A 0 A -..---.-- I

.-'AOELLINGHAM

PORT ANGELj

EVERETT -- _\ -. GRAND COULEE DAM To Tho,IIp000 Foils SEATTLE

LIND ( ELLENSBUR' - COLFAX

YA K IN A

MIDWAY IL WA Co r CATH LEWISTON

A S TOR I KELSO PA S CO

RAINIER ST. HELENS I UMATILLA ±ALCOA r ST. JOHNS .HOOO RIVER FOREST GROVE I i PENDLETON OPORTLAND '1 ..L-1 ,jpNNEVILLE THE DALLESj 1, TILLAlo. J Mc MINN- I I I LA GRANDE 7 OREGON CITY jL_ 8OYE I /4VTON L., L_1 SHERIDAN / I, MONMOUTH 4SALEN\_..L

NEWPORT CORVALUSBANY WALDPORT

L REDMND L._.r -

EUGENE I BEND I r o G[O N MARL ;l / :LHiI:TL

C A F 0 N N A BONNEVILLE POWER ADMINISTRATION U.S. DEPT. OP THE IMTEIOR PAUL 4. 555CR. ADMINISTRATOR LEG E D GENERAL PATTERN OF TRANSMISSION LINE PROPOSED TRANSMISSION SYSTEM UPON COMPLETION OF A SUBSTATION GRAND COULEE AND BONNEVILLE HYDROELECTRIC PLANTS

PREP L L.A. CHKD I-I. EM.

FIGtIIEE 32. Puget /Sound Region, War and Post-War Development 69 adjacent to the load area.Full development of the Co- The constructionofadditionalhydroelectricprojects lumbia (see fig. 32), can make available in the Pacific should be kept well ahead of any increase in loads on the systems serving the area.The late J. D. Ross, who was head of Northwest 6,068,000 kilowatts.Here also, as stated the Seattle Light Department and the Bonneville Administra- with regard to Puget Sound streams, the relative cost tion, often expressed it by stating that "you can't sell power of generation and transmission will govern. until you have it." The extent to which these needs for power might de- Determination of sources of power from which will be met velop cannot be estimated as regards industries since the needs arising from normal load growth on the one hand, and new-type, large, industrial demands on the other, should electrometallurgy with its two branches of electrother- be guided by advantageous, multipurpose use of these power mal and electrolytic reduction is still in its infancy and sources and the relative cost of generation and transmission. may be applied not only to minerals from surrounding Availability of such supplies of power as are anticipated territory which can be economically treated in the Pu- from development of the Columbia River and Puget Sound get Sound area but also to the undeveloped mineral re- streams will stimulate tremendous advances in the extent and sources of the Northwest and North Pacific, including nature of the region's industries. Alaska. As the science of electrometallurgy develops, Sewage and Stream Pollution many of the older methods of treating ores will be The war has greatly increased stream pollution in modified.In some instances, the application of elec- the Puget Sound basin.The influx of large numbers tricity will completely revolutionize the method of of war workers with their families has overtaxed the recovery. sanitary facilities of many communities and necessi- The lumber industry, also a large user of power as in- tated the construction of additional sewers and disposal dicated by the steam generating plants listed(see plants.Where adequate plants have been built, stream fig. 31), is, with its associated pulp industries, facing a pollution has not increased, but in some cases this has program of complete utilization of its raw materials not been done or the construction of the plant was de- and by-products.These developments also involve layed so long that sewage flowed into rivers, lakes, and chemical and mechanical processes which are dependent tidal waters, increasing the pollution which already on cheap and abundant power. existed. Manufacturing as such, resulting from the present in- In the main, however, the construction of sewers crease in available manpower in this area, the presence and sewage disposal plants has progressed, both dur- of large supplies of basic materials, the availability of ing .the depression and the defense, and, later, the war power, and the opening of new local and world markets, period, till at present there are very many situations presents another field of development which cannot be that have been greatly improved.Table 16 and figure closely estimated. 34 give detailed information concerning these sanitary There is also a very considerable possibility of in- facilities and indicate the large number of communi- crease in the use of power for domestic and commercial ties now served by sewers and the increasing number purposes.Figure 33 shows the residential sales of elec- being served by disposal plants. tric energy in various communities in the area, the max- In the main, the many Army and Navy camps, train- imum being 2,435 kilowatt-hours per customer per year ing fields, hospitals, etc., which have been constructed, in Tacoma and 2,190 kilowatt-hours in Seattle.The have been furnished with adequate sewerage facilities. effect of increasing levels of domestic consumption from Sudden enlargement of many of these has necessitated a 2,000 to a possible 5,000 kilowatt-hours average per the expansion of facilities, and delays have caused un- customer per year would be an increase of about 215,- sanitary conditions of varying degrees of seriousness. 000 kilowatts in peak loads. A still further possibility Similarly, the construction or expansion of war plants of increase in consumption exists in the development has necessitated the construction of sewerage and dis- of irrigation for agricultural lands (see irrigation proposal facilities, most of which have been completed. posals in Part III, Section 1, Agriculture and Agri- cultural Land Use and fig. 20), the effect of which Further expansion of plants, population, and military would approximate in the rural areas an increase in establishments will undoubtedly occur as the war con- load similar to that resulting in the urban areas of Seat- tinues, though a slowing down of the rate of expansion tle and Tacoma from increased domestic use. is indicated at present. As a whole, the Puget Sound region may be said to be Figure 35 shows what additional facilities are still entering a period of scientific and material expansion needed.Pollutional conditions of streams and tidal based on the increased industrial, domestic, and com- waters are also shown. The most serious pollutional mercial use of hydroelectric power. problems now existing are in the lower Skagit and Sno- The conclusions reached as a result of studies of the homish Rivers.The former is the more serious since power situation are three, namely: several towns and cities take their water supplies from .ousrs WAR AND POSTPUGET WAR DEVELOPMENT SOUND REGION 4 FRAGE ANNL)ELECTRSIDENT Wi-LENERGY SALES PER3ALES OF HAU W HATCO M rId TIERY rr;C4E 1 SOUNI NERPION I S K AGI T PORT 1dGCL(S --J-:-r--' - CUPtOILL qoC S - - - / P.Oh SGU S GI,,., FV(QETT 0C0n0N$.. I 10M0P$0I tONSIl SNOHOMISH JE 0000M0 KITSAP oftIVOtO O' 050100!e I94 not OvolloOt. data os, LI ON , tnu.q,*.w SCALE N M LEG I0 ?0 MASON PUGET SOUND Il-U - Syitsln StOtaIflS'ttI REG ONAL PLANNING COMM SS ON SEATTLE. WASHINGTON ?RIJRSTON ,*Iuoo 0 £Ut0'IVILLI o!A,-rnnoP Pubà,c Rspa.t* SevIc,, 10 Wu'Nn' -' S11. lOSS? Gnnomiss*on anØ eaL 1105 943 I IULTRE 33. PIERCE ond M WAR AND POSTPUGET WAR DEVELOPMENT SOUND REGION : AND WASTEEXISTING DISPOSA SEWERAGE -o:,; 7iLL M4.M W HATCOM FACILITI ES Ni ES Suwt F/47t(R/ C.2P( -- / NOU!lt 0(010, SK AG IT "N", OP1 AGCELCS PORT UPI/iLLt N ARLIN010N ft MAST 50 I ICR Clot,,, ..)_ P.00 "I'A M/ O/jrn'p' EVERETT ' PG (I SI SO SNOHOMISH Jy JEFFE setERIO' G0 AGE OISPOSAL,PARTIAL TfltATWUE OISPOSaL,cQlptET(5TSTM. NO TREATMENT KITSAP LCD -> NOJS+ SEV NOUSIP CA IAL WASr.t. llEWASTE,COMPT( 5/IWN ON M*R IREAIMEPI KING C CO MASON tt,CsCuS. TACOMA P07*110 OCIt)I 'S. Pft* *fl'tO SCALE Pd P1 LES T UNNAIL) o CflR)050*( REG ONAL PLANNING COMM SS ON PUGET SOUND N t070NVlkLt 0 Minir SOURCE: *OIh,R'Ofl StcU - - SEATTLE, 943WASHINGTON TIIURSTON Fio UEE 34. 11N0 PiERCE - yp "eportmtht cf ,'tr WAR AND POST PUGETWAR DEVELOPMENT SOUND REGION \. OS POINT 'C'NO_UPS0 0 00005 L. 'HoAR, 0/01'00,0 /0 SAN AND rARYRECOMM PROJECTSING POLLUTIC ENDED IM W 1-IATCO M TA flIES $0000 fLAtTERY C4PE MOUNT YL000TT 9 SKAGIT 9' PORT UGELS WRUNG TON GIoc,er '1 M/ Olpmpaaf S NO HO M ISH RN8 LAND '*ERAGE SySTEMS NEEDEL JEFFER N ear Ut! To C NC TAR POUT 0000.1W,! EWERAGEDt)STRIALTREATMENT TREATMENT WASTE NEEDED I

TABLE 16.Sewerage data, Pu get Sound

Population Sewage-treatment plant

Design for Type Owner- Community of ship of Populat2on. Diseharee to(wstercourse 1940 SserY sewer system Average Treatment or other location)

GOflS Population per day)

(1) (2) (3) (4) (5) (6) (7) (8) (9) (10) (11)

Anacortes 5, 875 (2, 950) c M Puget Sound. Arlington 1, 460 150 S M Stillaguamish River. Auburn 4,211 (3, 320) sc M 1924 (3, 320) CsE Green River. Bsllingham 2 (29, 314) 25, 000 sc M Puget Sound. Black Diamond 1, 418 200 5 P 200 cs Green River. Blame 1,524 (1, 110) 5 M Puget Sound. Bremerton 2(27,000) (29, 200) CS 55 Do. Bremerton Housing Projects------7,560 S So gj C. @. 80 7,560 7,560Se Washington Narrows and Sin clair Inlet. See footnotes at end of table. 53421S-43 6 74 National Re8ource8 Planning Board

TABLE 16.-Sewerage daks, Pu get sound-Continued

Population Sewage-treatment plant

Design for- Type Owner- Discharge to-(watercourse Community of ship of or other location) Served bysewer system Date Average Population Treatment 1940 sewers built flow served (millionPopulation gallons per day) (1) (2) (3) (4) (5) (6) (7) (8) (9) (10) (11)

Buckley 1, 170 1, 100 S St White River. Burlington 1,632 110 C M Skagit River. Carbonado (600) 000 p Carbonado River. Cedar Falls (200) 200 C M Cowlitz River. Coupevillo 325 (165) C M Puget Sound. Creosote 625 625 S P Do. Du Pont 526 500 S P Do. East Park (Bremerton) 3 1,960 S M 1941 .2 1,900 1,960Sc Washington Narrows and Sin clair Inlet-30 feet m. I. I. w Eatonville 996 (109) 5 P 109 Cs Mushell River. Edmonds 1,288 (276) C M Puget Sound. Enumclaw 2,627 (2,520) S M 4 2,000Cs - Newaukum Creek and Whit River. Everett 2(31,735) (28,300) C M Puget Sound and Snohomisi River. Everson 292 75 S M Nooksaek River. Ferndale 717 600 S M 225 CsEgc Do. Bo. Fircrest 486 700 C M LeachCreek,tributary0 Chambers Creek. Friday Harbor 658 400 C M Puget Sound. Granite Falls 683 678 S M Pilchuck River. Index 217 (172) S M Skykomish River. Issaquab 812 725 S M 1940 .25 1,500 725 ShCm Issaquah Creek. +1. W. +1- W. +1. W.FtrhCm. .025 1,500 EDpctBo. Kent 2, 586 (2, 340) C M (2, 340)Cs Green River. Kirkland (4,000) U.C. S M U. C. .4 4,000 U.C.ScCm Lake Washington AaCm. EDch. Bco. Kitsap County, S.D. No. 1,232 l,200 CS M 1941 1.3 13,000 22,632Sc Sinclair Inlet. LaConner 624 (228) S M Swinomish Slough. Lynden 1,696 (5,280) S M 1937 .3 2,000 (1, 28ü) ShCm Nooksack River. FtrEc. gDchsBo. Maryeville 1,748 1,660 5 M Snohomish River. Monroe 1,590 1,200 C SI Snohomish River and Wood Creek. Mount Vernon 4,278 (3, 220) C M - Skagit. North Beach (S. D.) (3,000) 3,000 C M 1942 3,000 3,000SeCi Puget Sound. EBo. Olympia 2 (14,580) (14,900) C M Do. Orting 1,211 (1,095) C M 1944) .20 1,600 1,000 Ci Carbon River and Puyallup 15 River. Port Angeles 9,409 (8,050) C M - Strait of Juan do Fuca. Port Gamble 575 500 C p Puget Sound. Port Ludlow (300) 200 S P Do. Port Townsend 4,683 (2,810) SC SI Do. Port Orchard 1. 566 (1,500) S p Sinclair Inlet-Puget Sound. 30 feet below m. 1. 1. w. Poulsbo . 639 (328) 5 M 1935 (328)CsE Liberty Bay-Puget Sound. Puyallup 7,889 (6,670) C M 700 Cs Puyallup River andClarj Creek. Renton 4,488 (4,320) S M 1923 (4,320)CsE... Black River and Lake Wasi ington. U.C. 2.0 20,000 U.C.ScCmFtrh Lake Washington. CmEgcDeshBo. Richmond Beach (2,500) 2,250 C M 1942 .25 2,250 2,250 SeE Puget Sound at 30 feet belo m. 1.1. w. Seattle .. 7(441,650) (310, 200) C M Puget Sound. 32,000 C M 1939 8.0 32,000 23,000 GmDmED Do. ImhstBc. Sedro Woolley 2,954 (2,390) C M - - 2,200Cs Skagit River. Sequim 676 (506) C M Strait of Juan de Fuca. Shelton 3,707 (3,360) S M .. PugetSound. Skykomish 479 200 5 P --South Fork Skykomish Rivei Snohomish 2, 794 (2, 180) C M Snohomish and Pilchuek Riven Snoqualmie 775 (619) C M (619'Cs - Snoqualmie River. South Prairie 226 (20o) S M South Prairie Creek. Steilacoom 832 (800, C M - Puget Sound. Sultan . 961 (445) C M Skykomish and Sultan Riven Sumas 650 500 C M . Sumas. Sumner 2,140 (1,740) C SI PuyallupTliver. Tacoma 2(125,819) (75,500) C M . Puget Sound. Taylor (319) (100) 5 M 80 Cs Issaquah Creek. Tulalip 1.046 500 S (B) Puget Sound. Vail 175 175 S P CsIs. Land. West Park (Bremerton) 1,950 S SI Sinclair Inlet through Bremei ton outfall. White Center housing project 2,890 S M 1942 1.5 15,000 2,800 Sc Puget Sound 30 feet below m. I. w.

See footnotes at end of table. Puget Sound Region, War and Post-War Development 75

TABLE 16Sewerage data, Puget SoundContinued INSTITUTIONAL, MILITARY, AND OTHER SEMIPUBLIC SYSTEMS

Populatisn Sewage-trestment plant

Design for Type Owner- of ship of Discharge ts--(watercourse Community Served by sewer system flste Average Population Treatment or other location) 1040 sewers built flow served (millionPopulation gallons per day)

(1) (2 13) (4) (5) (6) (7 (81 (9) (10) (II)

Buckley State Custodial School. S M 1940 0. 216 3, 000 (100) ShCiFs White River. Lewis County T. B. Hospital - S M U. C. .03 100 SeCm(AmCm) - Ditch. EcDpfBo. Renton Boeing Co (l,000EP)(I, 000EP) S P 1942 .28 7, 000EP 1, 000EP ScCmF2trh Lake Washington. CmEcgDmpftBs. Sand Point Housing (1, 000) (1, 000) S M 1941 .10 1,000 1.000 ScCm(AmCm). -Lake Washington. EcDpfBc. Whatcom County Hospital 300 300 S M 1941 .03 300 300 SmCiFtrCp Unnamed. E Bo.

1 Explanatory notes and keys to symbols: Treatment or device Symbol Column 1 : S. D.== Sanitary or sewer district. Grit chambers (4 Column 2: Census figures where available; estimated figures with continuous removal mechanism - Gm enclosed in parentheses. Grease removal or skimming tanks 0 Settling tanks C Column 3: Engineer's or superintendent's figures where available; plain, hopper bottom Cp estimated figures enclosed in parentheses. septic tank Cs Column 4: S=Separate; C=Combined. two-story tank Ci Column 5 : M=Puhlic; P=Private. mechanically equipped ------Can Column 6: Date when plant placed in service; U. C. ==Under Intermittent sand filters Ps Trickling filters Ft construction. with fixed nozzles. Ftn Column 8: Rated capacity of plant in terms of population. with rotary distributors Ftr Where the design included specific allowance for industrial high rate Fth twostage F2 waste (denoted by I. W.), the human population allowance is Other sewage filters F given first, followed by the industrial waste population equiva- Sewage application to land I lent.EP denotes design population of industrial plants on with cropping------Ic basis of equivalent municipal population. sub-surface application_ Is Column 9: Human population contributing sewage to the plant. Activated sludge aeration Where industrial waste constitutes an important part of the dulfused air aeration Chlorination E plant load, and the approximate loading from this source is chlorine gas Eg available, the industrial waste population equivalent is given, with contact tank Re as in column 8. Separate sludge digesters D Column 10. Treatment units are denoted by letter symbols. with stirring or concentrating mechanism Dm unheated Dp Capitalized letters denote major treatment units ;lower case gas used in engines, heat as byproduct Dy letters denote characteristics of the major units which they gas storage, in digester or separate holder - Ds follow.In general, sewage treatment units are noted in the Sludge beds B order of sewage flow with sludge treatment unit symbols follow- open Bo ing thereafter.Combination units, performing more than one glass covered Be function in a single structure, are denoted by enclosing the Column 11 : m. I. I. xv., mean low low water. appropriate symbols in parentheses.Where chlorination forms 2 Population adjusted to July 1, 1942, by Division of Vital Statistics, Washington Stats Department of Health. a part of the treatment, this has been noted only one time at 3 Sewerage system constructed 1941War Housing project. each such plant whether or not dosage may be or is practiced 4 2 plants. at more than one point in the treatment process. Sewer system constructed in 1941. 8 Includes south unit of West Park housing project. Treatment sr device Symbet 7 Population adjusted to Dec. 11, 1942, by Division of Vital Statistics, Washington State Department of lleslth. Screens S 8 U. S. I. S. bar, or other coarse type, hand cleaned . Sh comminutor Sc Source: State Department of Health.

Fisheries 2 of improvement projects, the value of the fisheries may The size of the fisheries is shown by figure 36, which be increased by some $3,000,000 annually, by the in- indicates the weight and value of fish landed ex- creased production of 12,000,000 pounds of salmon alone. clusively in the Puget Sound region. The value of the cod and bottom fisheries has good The fishing fleet and processing plants, wholesale possibility of being increased through the improvement dealers, and others engaged in the fisheries are scat- of marketing conditions, heightening the economic im- tered along the shores of Puget Sound; consequently portance of these species.These two fisheries now are each community sees only a relatively small part of the approximately equal in poundage to the valuable hali- total fisheries of the region.Figure 36 shows the fish- but fishery but in value are much less.(See fig. 36.) eries at their present production level.It is expected, Figure 37 indicates various projects which might be however, that by the proper planning and construction undertaken in the post-war period to increase the production of salmon.In addition to these projects it is 2 This section prepared by Washington State Department of Fisheries. expected that proper planning will go forward on other 76 National Resources Planning Board

T(YrAL COMMERCIAL PRODUCTION 72,928,000 ibe.

OThER' INCLUDES LBS. SHELLFISH 752,000 CRAB 854,000 OYSTER 780,000 asc. 305,000

FISH LOADINGS

VALUE BASED ON TJHOLESALE $17,265,000 IN PUGET SOUND

1942

'OThER' INCLUDES

SHELLFISH $ 73,000 CRAB 136,000 OYSTERS 410,000 iasc. 49,000

SOURCE: Washington State Department of Fisheries.

FIGURE 36. WAR AND POSTPUGET WAR DEVELOPMENT SOUND REGION 'DM I -- >ROJECT PLANS FOP FSHEh. 'C )[LLt'4GHAM WHATCOM 3(0*0 so,,0, t Jr TtRr C4P(,roos0 , RILS you'll *1*1*00 *0011(0 F AN C S PQRT o *01501011 FOCRETI 030000'30 000*01 M OIj,op POULIBO 1, 3003 -0 SNOHOMISH 101*11 II) KITSAP 30000*1*1 C9 STAbILIZEMPREI.NT FLOW TO &ptATC,-It FALLS D HATCHERYNATURAL. HWA' I flOe- U*dIi*. b SoImo 00 Allot 0r Solmo- rC.0 INCREASE NATURAL FALLS WATER OORRECTIO SUPPLI 'JCREASEFALLSISHWAYS'SH*AY WATER S HATCHERF AT AT NATURAL 5UPPLNATURAL '0 0 10 MASON TOCOMA PUV*1L KING '1* L *4ATCH(R fOR EXiST DANFALLS S HATCHERY ERY FOR SCALE N N LES 1*110 'ISH SCREENS-. ..WLIZE0PR0VEMENTS FLOW TO CNTc TINS DAMINCS ON REG ONAL PLANNING COMM SS ON PUGET SOUND 0( 010llVI100 N. FI5HWAO.HAT - AT NATURAL FORHATCHE SEATTLE, INNS WASHINGTON T1IURSTON FIoui 37. PIERCE 78 National Resources Planning Board multiple-use projects in order not to decrease the pres- Commercial fishery licenses issued in 1942 8, 687 ent supply of salmon. Salmon taken for personal use in salt water, aver- The increases will be accomplished by the construc- age annual take: tion of new rearing stations, the building up of streams Number of chinooks 122, 000 that have been depleted by unplanned water uses, and Number of silvers 200, 000 the opening up of new areas not now utilized by sal- Total 322,000 mon.This last project, insofar as is known, has not been undertaken in other regions, but it is proved by Present value of commercial fisheries $17, 265, 000 Washington State Department of Fisheries biological Sport-fishing value of salmon in salt water 2, 139,000 work in connection with hatcheries that silver salmon Total present value 19, 404, 000 can be transplanted into new areas and such runs will Expected added value (by management and habitat become self-sustaining through natural propagation. correction) As the production of salmon is based upon spawning Salmon 3,000,000 space and stream flow,, increased production can be Other 200,000 attained by utilizing more area.The careful planning 3, 200,000 of projects designed with this object will, of course, Total projected value 22, 604, 000 become a part of the present fisheries program. The expanded use of hatcheries by the introduction of rear- Irrigation ing will now make it possible to sustain, in all streams Until a few years ago it was generally believed that adjacent to such plants, natural runs of maximum pro- there was such an abundance of rainfall in the region portions.The introduction of migrant fish into such that irrigation was unnecessary.During recent years, streams has made possible increased runs amounting to as much as 500 percent of the original stocks.In however, farmers on the fertile valley lands have found this manner depleted streams and streams of lessened that irrigation through the dry summer months adds production can be brought back into full utilization materiallytotheirproductivity.Ever-increasing numbers of farms are being irrigated, therefore. from the fishery standpoint. The improvements now pending in the Fraser River sys- present location and size of irrigated areas is indicated tem, the completion of which is but a matter of time, by figure 38, while the extent of use of such supplemental will materially increase the productive fisheries wealth irrigation in relation to the region's agriculture as a of Puget Sound, as the sockeye salmon catch of this whole is shown in figures 17 and 20.Figure 20 also system, in accordance with a treaty provision which shows irrigation development proposals, which are will go into effect in 1946, is to be divided equally be- listed by counties in table 11. tween fishermen of the United States and Canada. The Oregon west of the Cascades has had a longer experi- expansion of this fishery makes possible a very bright ence with summer irrigation than has the Puget Sound outlook for the northern district of the region and area.There, supplemental irrigation jumped the po- alone should insure a great increase in the commercial tato yield from 122 to 222 bushels per acre.Beans in- fleets and number of persons employed in the fishery. creased from 12 to 19 bushels; corn, kale,and beets in- The fishing industry as a whole is in a unique posi- creased their yield 50 percent.Washington State Col- tion in that it produces a high-quality protein food, rich lege has increased pasture-grass production from 203 in vitamins, and has always found a ready market for pounds, dry weight, to 839 pounds, by irrigating dur- all fish that can be produced. War food iieeds at pres- ing the single month of August.Crops such as peas ent require expansion in the fisheries.Projects that are inferior if they have insufficient water while matur- may be inaugurated at this time to make possible pro- ing.It is apparent, therefore, that production can be duction increases will have a lasting effect on increased increased from 50 to 100 percent in the Puget Sound basin by supplemental irrigation. productionIncreased demands for certain of the spe- Figures 3 and 4 show the very low precipitation dur- Such cies are bringing better prices to the fishermen. ilig the growing season. A study of precipitation data benefits probably will carry forward into the post-war for Seattle over a 60-year period shows an average of period, building up the economic but not the food im- 2.81 inches of rainfall per month. The 7 months of portance of these species.Owing to th stable charac- April through October have a precipitation of less than ter 'of the fisheries, persons now engaged, or who may 2.00 inches per month, while the 2 months of July and become engaged, in the industry will be assured of em- August average 0.63 and 0.70 inches, respectively. Hay ployment in the post-war period. crops and garden produce require from 12 to, 36 inches The following statistics demonstrate the present and depth of water during the growing season.Obviously, potential importance of the Puget Sound fisheries: therefore, irrigation would be very helpful during the WAR AND POST PUGETWAR DEVELOPMENT SOUND REGION 401 '7 DELLI1GIIAM Cs,,'OIOA1O WHATCOM R R G AT )'u /c St OSO 0LItI rooc-i 1 31(5 NOU'II 1RVI0P. app - 4 SK AGI I PORT ANOTISS OU*LDILLC LOLINC TOM GFOCI,, Pes,h -.: It" EVEASYSDILLE, SE TI M OyItpt' -I 0 0_OTto.. / MOO Sot L7 0(0 SNOHOMISH 014011105 JEFFERN r.IO l!00r3,Iapcu O00100 Acri 4c'fl Irr,,old 030 I POYALI , tSOUI TACOMA WR.le KING ID SCALE N M LES to MASON 01310 . 'S 0511110 REG ONAL PLANNING COMM SS ON PUGET SOUND TEIIINO ¼,-'ct, OttT000ILLI 7' Wuroc C.soiuo of rtIq.fo. 940 SEATTLE, 943WASF4INGTON STQN/' FIGuRE 38. P ERCE 80 National Resources Planning Board dry summer months, and the increasing number of local as well as for the health, recreation, and welfare of our farms being irrigated bears this out. local people. Studies have recently been started as to the best source Water recreational resources are discussed in Part of water for irrigation.Snohomish and Skagit Coun- III, section 10, under "Recreational Facilities." ties have been trying to arrange a study by the United In order to conserve and develop further the water States Geological Survey of their ground-water re- recreational facilities of this area, it is necessary to sources, but funds are not yet available.Present irri- control stream pollution.It is not enough to prevent gation is for individual farms.For these the use of additional pollution of streams and beaches, but exist- wells is usually most feasible.The need to use the ing pollution must be eliminated or reduced' to safe present minimum stream flow during summer months limitsIt should be kept in mind, also, that the bring- for conserving fish runs would favor the use of ground ing in of new or additional industries presents numerous water rather than stream flow for irrigation purposes. waste-disposal problems that must be carefully con- During 1942 the Bureau of Reclamation had a recon- sidered so that the pollution of stream and tidal waters naissance field examination made of many areas in the will not be increased. basin which offered prospects for irrigation develop- Bathing, fishing, and the gathering of shellfish may ment.All available data were assembled and studied. be seriously curtailed unless both municipal and in- Projects were ranked in order of priority as being dustrial wastes are adequately treated before their dis- worthy of further study.In an office memorandum it charge into the waters of the region.State and local was recommended that the following two areas be health departments should receive the necessary finan- given early consideration:(1) A 15,000-acre boot- cial, legislative, and popular support to guarantee shaped area extending south from Reriton along both proper and adequate supervision of the people's interest sides of the highway, railroad, and rivers to Sumner, in conserving water recreational values. thence west to Tacoma; and (2) a smaller area extend- The problems of flood control and power developing southeasterly for a distance of some 12 miles from ment in many industries also affect recreational facili- Sumner and Puyaflup along, and on both sides of, the ties.At times the snagging of channels in legitimate Puyallup River. flood-control work has damaged sand and gravel bars Land classification surveys completed for both areas that were important spawning areas for salmon. Dams indicate that the physical characteristics and quality which are not provided with fish ladders or other equip- of the land are such that irrigation appears feasible. meat for passing migrating fish upstream may cut off Field and questionnaire surveys have been made to lar'e areas of productive streams and tributaries and shed light on the desires of the local people regarding materially reduce the annual catch of fish.These mat- irrigation development. The results of these studies ters are discussed in more detail elsewhere in this re- indicate that farmers in Area 1 are much more inter- port and are mentioned here only to stress the necessity ested in such development than are those in Area 2. of establishing controls and effective inspections for A preliminary economic study of Area 1 to determine safeguarding water recreational facilities. These mat- the feasibility of the project recommended that a de- ters are now being given consideration by the agencies tailed study be made. The completion date of this involved, and present indications promise their effective study is set for June 30, 1943, and it should be completed control. before other similar studies are started. It is reported that the Army Engineers and Bureau Consolidated Plan for Water Resources of Reclamation are at present studying a dam site on This basin is so large and its problems so complex the Green River, for multiple-use flood control and irri- that no attempt is made to summarize those problems gation.It is probable that the completion of this study on a single map.Detailed data and recommendations will be delayed until after the war. are given in the various subsections and illustrated in figures already presented.Only a summary is given Recreation here. Income from tourists has grown rapidly during recent Water problem&In an area that has grown in the years, until just before the war it had become the third short span of a single lifetime from a few scattered most important source of income for the city of Seattle. pioneer settlements to one of the most important war This is indicative of the economic importance of recrea- production centers of the country, it is to be expected tional facilities to the region.Recreational uses of the that many problems of varying degrees of acuteness water resources of the area should obviously be con- have developed with respect to a resource of such pri- served and developed as an important part of a general mary importance as water.Some of the more im- program for attracting tourists again after the war, portant of these problems have to do with public water Puget sound Region, War and Post-War Development 81 supplies, pollution abatement, flood control, fisheries, Engineers.It will be necessary for the Federal Gov- water power, navigation, recreation, erosion control, ernment to bear a still larger share of the total expense and irrigation. if this project is to be built.It will require the con- Public water supplies.The water supplies of the struction of this project along with the completion of basin are, in the main, excellent in quality and ample the Ross Darn and the construction in the future of a in quantity.Growing pollution from sewage and in- proposed dam on the Sauk, to give adequate flood pro- dustrial wastes should be checked in order to retain tection to the rich delta region of the Skagit River. these supplies in their natural purity.Increasing Reports by the Army Engineers on many of the other population and industrial development, which will streams have not yet been published.Definite recom- probably continue after the war, will require the ex- mendations will be included in these reports and should pansion of some existing supplies that are at present be included in the plan for flood control for these adequate.Steps should be taken now to reserve certain streams. streams for domestic water use where that use is of such Fisheries.The unproductive sections of the streams importance as to require priority over other possible of the basin, as shown on figure 37, are caused by nat- uses.The South Fork of the Nooksack River, the Tolt, ural or artificial obstructions such as dams, rapids, Cedar, and Green Rivers, arid a few minor streams, waterfalls, etc.No general plan for passing fish at should be so reserved.The Skagit River is also an these obstructions can be given, as each obstruction will important source of domestic water supplies, and its require individual treatment.Appropriate projects purity should be restored by eliminating existing would add materially to the production of sport and pollution. commercial fish.Expansion of the use of hatcheries for Polltion,The lower Skagit River is being badly rearing will reestablish fish runs now depleted. polluted with sewage from the cities located along its Water power.The war has hastened the rate of de- course.While its water is filtered before being used velopment of Grand Coulee, Bonneville, and Skagit for domestic purposes, this is not an adequate safe- power ahead of that originally planned. While only guard for the health and safety of the valley's popula- the last-named project is located in this basin, all are in- tion.Sewage now being discharged into the Skagit terconnected, and power from these, the cities of Ta- should be treated in suitable disposal plants before coma and Centralia, and the Puget Sound Power & being permitted to enter the river.Communities at Light Co. is being utilized in various parts of the region. present unsewered should be served with sewers and While possible power developments exist on almost disposal plants to prevent their polluted underdrainage every stream in the area, further expansion should be from contaminating the stream.Similarly, existing dictated by economic considerations and the realization pollution in the Snohomish and Lake Washington that the availability of large blocks of excess, cheap drainage areas should be eliminated by the construction power encourages its broader use, to the advantage of of necessary disposal plants.Methods for treating cer- the people of the area.This availability of cheap tain industrial wastes being produced in the area, such power should play a major role in the industrial de- as those from canneries and pulp and paper plants, velopment of the region after the war, while public own- should be worked out so that the oxygen demand from ership of the major projects should guarantee a maxi- these wastes will be reduced to reasonable values. mum of public benefit accruing therefrom. Figure 35 shows the areas most seriously polluted and Navigation.Expanded water-borne commerce will the disposal plants most badly needed. be primarily coastwise and foreign rather than local in Flood comtroi.Practically all of the rivers in the character.Terminal facilities constitute the greatest Puget Sound Basin are subject to floods.With the ex- need, and plans for a better coordination of all transport ception of the Mud Moufttain Darn and the permanent facilities at the various ports of the area should be bank revetment work that has been done on the Puyal- worked out.Maximum efficiency demands rapid load- lup River, no permanent solutions of local flood-control ing of entire cargoes at a single port, which dictates the problems have been achieved. ecessary channel im- character of. transportation, handling, storage, and provements on the Puyallup River through Tacoma will housing facilities required.The plans to develop more be carried out at the end of the w-ar along the lines of adequate harbor and terminal facilities at Everett plans already completed by the Army Engineers.The should be given full consideration and all possible aid. next problem of major importance should be the con- Reereation.An increased benefit from the water re- struction of the Avon cut-off.Methods for financing sources' recreational advantages would result from im- this project have not been satisfactorily completed be- provement in fish runs; the construction of additional cause of the inability of the local interests to meet the safe salt-water moorings for small boats, as at Shilshoal amounts allocated to them by the report of the Army Bay; the provision of easier access to many of the lakes 82 National Resonrees Planning Board and streams of this area; and the protection of bathing lands of the area and an increasing number of farms are from sewage pollution.The future of water recreation being irrigated each year.(See fig. 38.)The need of is thus seen to be intimately associated with other parts maintaining minimum summer stream flows indicates of the program of water resource utilization. ground water as the most logical source of supply. This Erosion control.The mountains are moving down would be favored by a general availability of power for the many streams of the area to the sound. Bank ero- pumping and may also be required by the spotty char- sion, the undercutting of overhanging bluffs, and the acter of the arable land. A study of ground-water re- cutting away of farms, or the covering of them with sources is urgently needed.Possibilities of irrigation sand, gravel, and glacial till, are examples of the dam- use of flood-control dams should be further investigated age done by erosion. The silting up of harbors and also. river mouths is a serious aspect of this problem, while Basic data needed.More comprehensive informa- the building up of the fertile delta areas of the Skagit tion is needed about the flow of streams in the State. and Snohomish Rivers represents a contribution to the agricultural resources.The ravages of erosion have Stream-flow records are vital to the proper allocation, hitherto been given patchwork treatment, but scientific development, and use of the region's waters, but there study by the United States Soil Conservation Service is a deficiency of this basic data, particularly for the should result in a plan for a more constructive and per- smaller streams. An expansion of the present stream- manent solution of the problem. gaging facilities and programs is recommended as an Irrigation.A beginning has been made toward study- essential part of the program of Puget Sound water ing the possibilities for irrigation of the fertile valley resource development. PART III 5. INDUSTRY By Grant I. Butterbatigh'

Manufacturing Baking, macaroni, biscuits $19, 791,000 Dairy products, canned milk 19, 386, 000 Industrial activity in the Puget Sound region can Malt liquors and wines 10, 281, 000 rightly be said to be chiefly manufacturing based upon Food preparations, preserved, pickled, and frozen 8, 890, 000 the extractive industries.Basically, the region derives Ice cream 3,491, 000 its wealth from its natural resources and a large portion Candy 2, 650, 000 of the population is dependent upon lumbering, agri- 1, 198, 000 culture, mining, and fishing for its livelihood.'l'he Total value of manufactured products as reported in the last These summaries of the value of production from census, and in every census since that of 1880, far ex- forest and agricultural industries are not comparable ceeds the value of production by all Of the major ex- for the reason that the item "Lumber and timber" in- tractive industries.The reason for this preeminence cludes logging as well as the manufacture of lumber, of manufacturing in an important raw material pro- whereas the value of agricultural production, which ducing region is that the manufacturing plants are able amounted to approximately $131,000,000 in 1939, is not to draw most of their raw material from the nearby included in the total representing the contribution of surrounding territory.Also, the location of plants agriculture to the economy of the State. close to salt water permits easy access to the ports of As shown in table 17, manufacturing (including lum- the world as well as to the markets of southern and ber products and agricultural products) is about 11/2 eastern United States by low-cost transportation. times the value of production of the four major extrac- Although the value added to production by manufac- tive industries of the State. turing or the value of production at any time cannot be TABLE 17.-Value of production by major industries, state of stated with great accuracy because the products of one Washington, 1860 to 1940 establishment are often the raw materials of another, 1000 omitted] census statistics give an idea of the importance of the Lumber- Mining Fishing Manufac- forest industries.The following tabulation gives the Census ing 1 Agriculture turing value of production from forest industries in the State 1880 $1, 173 $117 $64 $1,405 in 1939: 1870 1,924 32,112 $109 290 2,851 1880 1, 735 4, 213 526 4 181 3, 250 Lumber and timber $151, 821, 000 1889 15, 068 13, 675 2, 998 1, 108 41, 788 1899 30, 288 29, 618 5, 394 2, 995 70, 831 Planing mills 17, 333, 000 1909 89, 151 78, 927 15, 484 1,513 220, 746 71, 249, 000 1919 231, 444 227, 212 18, 268 5 5,189 809, 623 Paper and pulp 1929 286,085 197, 745 22, 435 4 5,470 795, 562 Plywood 17, 907, 000 1939 169, 153 130, 849 31, 590 7 5,088 636, 650 Furniture, household (plain) 4, 220, 000 1 Includes planing mill products. Wood preserving 4, 342, 000 2 Includes lumber products. Wooden boxes 2, 770, 000 3 Includes betterments and additions to stock. 4 Includes seal fisheries. 5 For fiscal year ending Mar. 31, 1920; includes food and shellfish handled fresh, and preserved other than canned; also byproducts. Total 209, 848, 000 For fiscal year ending Mar. 31, 1930; same products as in note 5. 7 For fiscal year ending Mar. 31, 1939, same products as in note 5. In 1939 the value of production from agricultural in- Source: United States Census Reports of Agriculture, Mines and Quarries, Fish- ing, and Manufacturers; also State of Washington, Department of Fisheries, Annual dustries is shown in the Census of Manufactures for Bulletins. Washington to be in the neighborhood of $152,000,000 as follows: Table 18 shows the major industries of Washington Flour (grain, food preparations, feed) $36, 034, 000 ranked according to value of production in the year Meat packing, wholesale 26, 125, 000 1939.This table shows the overwhelming importance Canning (vegetables, fruit, fish) 24, 950, 000 of the logging-lumbering and paper-pulp industries, and the secondary importance of the food and manu- 1 Associate Professor, Economics and Business, University of Wash- ington. facturing group. 83 84 National Resources Planning Board

TARr.18.-Value of production of Washington manufactures, In 1939 about 63 percent of the wage earners engaged 1939 in manufacturing in Washington were employed in Value of pro- plants located in the Puget Sound region.Their wages Products duction Census of 1940 for amounted to almost 64 percent of the wages of employ- year 1.939 ees of manufacturing establishments in Washington. Thousands of Table 20 shows manufacturing data by counties. dollars Sawmills and logging $151,821 Paper and pulp 71,249 Flour and grain, food preparations and feed 36,634 TABLE 20.-Number of manufacturing establishments, wage earn- Meat packing, wholesale 26, 125 ers, wages paid and value of product in Puget Sound area, Canning, vegetables, fruit, fish 24,950 Publishing, printing, lithographing 22,335 1939 Baking, macaroni, biscuits 19, 791 Dairy products, canned milk 19,386 Plywood 17,907 Planing mill produej,s Number of 17,333 establish- Wage earn- Wages paid Value of Forging, machine shop products and repairs 12,878 ments ers product Paper boxes and paper products 11,326 Chemicals and allied products 10, 555 Malt liquors and wines 10,231 Thousands of Thousands of Tin cans and tinware 10, 033 Machinery, not electrical dollars dollars 8,993 Clallam 45 1,714 2,247 14,360 Food preparations, preserved, pickled, and frozen 8,890 Cement Island 7 22 16 122 8,421 Jefferson i 25 667 Clothing and apparel 7,679 King Furniture1 plain and upholstered, mattresses, and bed springs 1,216 24, 252 33, 954 173,038 6,752 Kitsap 38 932 1,320 5,459 Shipbuilding and repairs 6,381 Wood preserving Mason 35 1,509 2, 145 8, 772 4,342 Pierce 323 12,661 16, 754 129, 188 Ice cream 3,491 Concrete products San Juan 8 129 116 048 3,007 Skagit 95 2, 515 2,766 17,919 Wooden boxes 2,776 Candy Snohomish 178 7,023 9, 698 39,301 Airplanes i 2,650 Thurston 52 2, 553 3,495 15, 438 Whatcom 111 2, 571 3, 200 15, 957 Total i Value withheld to avoid disclosing the operations of single plants. 2, 133 56, 493 275, 706 2 420, 501 State total 3,240 90, 324 118,326 636,650 Source: United States Bureau of the Census, Sixteenth Census of the United States: 1940; Census of Manufactures, 1939-State Summary: Washington, p. 2. i Figures not shown are withheld to avoid disclosing the operations of single plants. 2 Partial totals: Jefferson County not included. The Puget Sound region is the chief industrial sec- Source: United States Census of Manufactures. tion of Washington in peacetime as well as in wartime. Table 19 shows the value of manufactured products and The great concentration of manufacturing in the the number of establishments engaged in manufactur- Seattle-Tacoma industrial area is clearly evident in the ing in the region as compared with the totals for the following tabulation derived from the 1939 Census of State.In the years preceding the outbreak of World Manufactures. War II the region contained approximately 66 percent of the manufacturing establishments and accounted for Number of Percent Percent about the same percentage in value of production. Cities and counties establish- region State ments total total

TAEut 19.-Value of manufactured products and number of es- Seattle 1, 083 51 33 tablishments in the Puget Sound region and Washington, Tacoma 253 12 8 1919 to 193.9 Seattle and Tacoma combined 1, 336 63 41

King County 1, 216 57 38 Number of establishments Value of production i Pierce County 323 15 10 King and Pierce Counties 1,539 72 48 Percent, Percent, Year Puget Puget Total for region 2, 133 100 66 Puget Puget Total for State 3, 240 100 Sound Wash- Sound Sound Wash- Sound region ingtonregion to ington region to Wash- region Wash- ington ington In table 21 is shown the location of various types of Thou- Thou- sands ofsands of manufacturing plants in the counties of the Puget dollars dollars 1919 2, 874 4,819 19.6 591, 563 809, 623 73. 1 Sound region as of 1939.It will be observed that the 1929 2, 391 3,648 65.5 546, 245 795, 562 68. 7 1931 1, 933 2, 897 66. 7 286, 193 418,922 68.3 food group was in the lead, closely followed by lumber, 1933 1, 527 2, 307 66. 2 221,016 331,225 66.7 1933 1,899 2,840 65.5 316,639 470,125 67.4 1937 1,961 3,017 64. 1 441,011 675,640 65.3 furniture, and paper when considered as a forest- 1939 2, 133 3,240 63.8 420, 501 636,650 66.0 products group.Location of food-products manufac- i The value of manufactured products includes lumber products. turing establishments is shown in figure 39 and of wood- Source: United States Census of Manufacturing. products plants in figure 40. Puget S'ound Region, War and Post-War Development 85

TABLE 21.-Number and location, by counties, of various types TABI 22.-Standing timber in the Puget ,S'ound region, of manufacturing plants in the Puget Sound region, 19i9 by counties

Counties Board feet Date of log scala County estimate (000,000 'B omitted) Type 0F0 I Clallam 1939 24, 296 so io Island 1933 133 B - 0000 0 Jefferson 1933 24, 896 -.-.o.rs B King 1941 16, 383 Kitsap 1940 315 Mason 1940 6, 472 Food 31 46 314 15 9 927 33 5116 45 603 1, 034 Pierce 1918 14, 292 Textile mill and other fiber manu- San Juan 1933 27 facturing -- 13 2 ------1 16 18 Skagit 1933 12, 567 Apparel 88 5 ------93 97 Snohomish 1938 15, 518 Lumherandtimberhasicproducts 24 215 801422 59 48 8526 38 413 748 Thurston 1939 1, 377 Furniture and finished lumber Whatcom 1938 9, 330 products 79 1 29 -- 51 3 118 143 Paper and allied products 5 --3 16 1 6 -- 1 4 2 38 55 Printing, publishing and allied Source: Pacific Nerthwest Forest and Range Experiment Station, U. S. Depart- products 2 1 1 18361 39 --5 15 3 9 265 391 ment of Agriculture. Chemicals and allied products 59 -- --13 -- -- 3 -- 1 76 98 Products of petroleum and coal------1 --1 ------2 4 Rubber prodsscto------4 ------4 4 Lumber production has fluctuated with the changing Leather and allied products 16 -- --2 ------18 23 Stone, clay and glass products 1 -- -- 41 1 1 1413 4 1 3 70 103 Iron and steel products, excluding current of business activity and the swing of the build- machinery 73 13 --2 5 24 99 113 Nonferrous metals and allied prod- ing construction cycle. A high point of production ucts 1 -- 50 --9 ------1 61 72 Electrical machinery 17 -- --2 ------19 22 was reached in the years 1928 and 1929, after which Machinery, excluding electricaL.1 -- 85. 1 15 --3 3 2 2 112 163 there was a marked decline to 1932, followed by gen- Automobiles and equipment 13 --1 ------14 18 Transportation equipment, except Table 23 automobiles ------271 -- 9 -- 3 -- 2 42 46 erally increasing production after that date. Miscellaneous 57 -- 12 ------1 70 84 shows the amount of lumber produced in western Total 457 25 1, 216 38 35 323 8 95 178 52 lii 2, 133 3, 246 Washington and the entire State from early pioneer Source: U. S. Census of Manufactures, days to the present time. TABLE 23-Lumber production, State of Washington and Lumbering western Washiny'ton, selected years 1869-1939 From early days the lumbering industry has been [In thousands of board feet} of first rate importance in the State.In the past Wash- State Western State Western ington has been the leading lumber producing area of Year total Washington Year total Washington the United States, but today it ranks second to Oregon. 1869 128, 743 - 1929 7, 302, 100 6, 739, 000 In 1934, the United States Forest Service estimated the 1879 160, 176 1930 5, 502, 100 4,967, 700 1889 1,064,000 1932 2,260, 700 1,973, 900 standing timber of Washington as fo1lovs: 1899 1,429,000 1934 3, 064, 300 2, 686, 900 1909 3,863,000 1936 4, 571, 744 4, 051, 200 Section : Board feet, log scale 1919 4,961,000 1938 3, 348, 507 2,884, 900 Western Washington_ 245, 255, 046, 000 1928 7, 305, 000 6, 700, 700 1930 - 4, 244, 001 3, 689, 500 Eastern Washington 35, 246, 000, 000 Source: U. S. Census Reports, U. S. Forest Service Reporte, and West Coast Lumbermen's Association Bulletin. Total 280, 501, 046, 000 Of the western Washington total, between 50 and 60 Paper and Wood Pulp percent was estimated to be standing in the 12 counties In connection with lumber products it is necessary to of the Puget Sound region, but according to the Wash- point out that the manufacture of paper and wood pulp ington State Planning Council only 60 percent of the ranked as the second most important manufacturing in- acreage, containing about 50 percent of the merchant- dustry of the State at the time of the last census.No able timber of the State, was actually in private hands great significance was attached to this industry until in 1933.About 40 percent of the acreage and 50 per- the census of 1920 when 6 paper and pulp mills reported cent of the merchantable timber was on national forest products valued at over $10,500,000 and placed this in- and other Federal lands, Indian lands, or land owned dustry in the list of leading producers.The number of by the State and political subdivisions thereof. mills in Washington grew from 3 in 1914 to 23 in 1942. The amount of standing timber in the various coun- In 1942 there were 16 paper and puhp mills located in ties of the Puget Sound region and the dates at which the region.Although it is not possible to state the the estimates were made are shown in table 22. value of production of Puget Sound region paper and WAR AND POST PUGETWAR DEVELOPMENT SOUND REGION 4 (I, FOOD PRODUCTS S EL U P4C. PT A WHATCOM MANUFACTURING. I93' *OOLLA,51000 ' ATTEftY C4P( S K AGI T VILLA 001180005 AR VEREIT VS VILLA POU18O JULYEMPLO'fUEI I 939 ST VU A' V IA o o 1018'-. 10 KITSAP RCWAflo 0 MIAUAN I0 SCALE N N LtS !0 to MASON TACOM. POVAIL REG ONAL PLANNING COMM SS ON PUGET SOUND TUM NATE A 4MP1A URGE OfPo.iI,I,Ifl$OI0n 01 UTstSspIoy#T' and Pocemat SEATTLE, 194S WASHINGTON THU TON Fiotnu 3). PIE RCE tQp i" WfsIt9T WAR AND POSTPUGET WAR DEVELOPMENT SOUND REGION 'S '5 on,",, 3.. DALI MOOD PRODUCTS WHATCOM IANUFACTURING. I93 *001.1-0!3(0110 f4TTfk) ,.roosoCAPt , PTOS *50,1? YCRI101. L OUPEVILL S K AG IT PORT ANGELES 's,,/6,quollflS 0 ANLtIl010S Pooh SIAN I300.LC VER(TT CLL L01011O3 501111100 300 ICC S SNOOI1_ 0 C$ 0 "ii to isI 0 0 (JTSAP 0500.110 00111 -o IC - 3.101-To to MASON TACOMA P01*1.145 to PUGET SOUNDSCALE N N LES OLYMPIA SOURCE Ofcics of Un,i000N REG ONAL PLANNING COMM SS ON SEATTLE. WASH?NSTON 0051110 OSNIONSI P ERCE )Th eE Comp.050'on ond PIoc,mi GNats of atIlfl9tCn 945 0' \ Fiavai 40. 88 National Resources Planning Board pulp mills apart from those of the rest of Washington, to influence the location of the industry. Low land the following tabulation derived from the Census of values, optimum climatic conditions, and the advantage Manufactures shows the growth of the industry for the of being able to start with limited capital are some of entire State: the factors which have contributed to the rapidexpan- Value of paper and wood pulp production sion of this industry in the period from 1920 to 1930. Thousands Thousands Poultry farms cluster around large cities; in addi- Year, of dOilcer8 ear. of dollars 1919 10, 653 1933 40, 657 tion to the upper Puget Sound region, the Winlock 1925 14, 684 1935 53, 225 district in Lewis County is prominent for egg produc- 1929 47, 094 1937 85, 460 tion.(See fig. 17.) 1931 44,288 1939 71,249 Small fruit and berries are grown for commercial In 1929 the value of paper and pulp products was 16.4 purposes in the region.Pierce County is the center percent of the value of lumber products, including plan- of raspberry and blackberry production, while Thur- ing mill products; in 1939 it had increased to 42.1 per- ston, Pierce, and King Counties are most important in cent.Stated another way, the value of production of strawberry culture.(See fig. 19.)All the small fruits paper and pulp products in 1929 was 13.5 percent of the attain some degree of commercial importance, particu- value of all forest products including paper and pulp, larly in the areas of from 30 to 60 inches of rainfall wood preserving, furniture, planing mill, and plywood per year.This includes the Puget Sound region and products. By 1939 the paper and pulp industry in the agricultural land to the south between Olympia Washington had increased the value of production to and Vancouver.Berry farms in this region, benefiting 26.4 percent of all forest products. from intensive cultivation and the combination of ideal Agriculture climatic and soil conditions, produce heavy yields which Puget Sound is not primarily an agricultural region, are either disposed of in the city markets or utilized but agriculture is an important secondary industry.It by canneries. consists principally of dairying, poultry raising, and the Small scattered areas make use of natural advantages cultivation of berries, vegetables, bulbs, and various in producing specialty crops, such as flower bulbs types of nursery stock.The average size of farms, (around Puyallup, Sumner, and Bellingham), garden based on acres improved, has decreased from about 42.5 seeds, ginseng, head lettuce, green peas, holly, and hot- acres in 1889 to approximately 10.8 acres in 1939, while house rhubarb. the average size of farms in the balance of the State The value of farm production by counties, together increased in the same period from 118.3 acres to 124.3 with the number of farms reporting, is shown in table acres.Table 2, which appears in the section on agri- 24 for the years 1939 and 1929.In 1939 the region pro- culture, shows the number of farms, acreage, average duced 27.0 percent of the value of farm products of size of farms and proportion of landarea in farms in Washington while in 1929 it accounted for 26.1 per- 1940.Decrease in the size of farms over the past 40 cent. years is due to the development of types of farms which TABLE 24-Value of farm products and number of farms report- require but small acreage. ing, by counties of the Puget S'ound region, 1939 and 1929 The region is notably a center of the dairying indus- Number of farms re- Value of production try and large condenseries have been built to utilize the porting (thousands of dollars) surplus of milk not used in immediate consumption. County The principal dairy regions are concentrated in the belts 1939 1929 1939 1929 of 40 to 60 or more inches of annual rainfall.(See Clallam 1,194 707 1,122 1,554 fig. 19.)The abundant pasturage of dairy farms located Island 1,016 860 1, 280 1, 790 Jefierson 495 268 466 541 mainly on river bottoms gives them a pasture-carrying King 5,192 4,305 7,611 10,919 Kitsap 2,052 1,444 1, 608 2, 308 capacity exceeding that of the nonirrigated areas in Mason 748 424 411 654 Pierce 5,411 4,387 5,783 8,519 eastern Washington. Although summer rainfall is low San Juan 473 454 498 809 Skagit 3, 137 2, 602 4, 140 5,816 over much of this area, the bottom lands receive mois- Snohomish 5, 992 4,093 4, 851 7, 718 Thurston 2, 744 1, 887 1,891 2, 472 ture from the surrounding upland areas and plant Whatcom 4, 558 4, 121 5, 713 8, 573 Puget Sound region 33, 412 25, 552 35, 374 51, 673 growth is thus sustained.The humid climate is con- Washington 79, 161 67, 225 130, 849 197, 745 ducive to the production of high quality dairy products, and the dairy industry has become a specialized Source: Bureau of the Census. business. Mining Egg and poultry production is also centered in the Mining ranks next to agriculture and ahead of fishing region.Natural climate advantages and the presence among the industries of the region.The value of prod- of a very strong cooperative association have combined ucts of the mines and quarries of Washington (see table Puget Sound Region, War and Post-War Development 89

25) increased at a rather rapid rate up to 1909 or 1910, Fishing but after 1910 the growth was relatively slow, and from Among the extractive industries, fishing follows 1931 to 1935, inclusive, the value of production of the lumbering, agriculture, and mining in importance. mining industry was less than it was in 1909. Table 27 shows the value of production of fisheries in TABLE 25.-Valsee of production of mines and quarries, State of the State since 1919. Washington, 1908 to 1940 TABLE 27-Value of production of fisheries, State of Washington, [In millions of dollars] 1.918 to 1938 Year Value Year Value Year Value [In thousands of dollars] Total Canned 1908 11.61 1919 18.27 1530 20.08 output fish e Year output fish Balance 1909 15.48 1920 26.68 1931 14.80 1910 16.81 1921 17.61 1932 12. 82 1911 15.87 1922 19. 73 1933 9.39 1918 $13,855 $8,370 $5, 485 1929 $17, 290 $9, 968 $7, 322 1912 15.35 1923 22. 17 1934 12.94 1919 18, 201 12, 956 5,245 1930 13, 101 7, 633 5, 470 1913 17.58 1924 21.16 1935 13. 69 1920 10, 120 4, 531 5, 589 1931 10, 590 5, 768 4,822 1914 13. 83 1925 22.38 1936 22. 92 1921 9,807 5,898 3,909 1932 5, 572 2,308 3, 264 1915 11.46 1926 21. 26 1937 26. 66 1922 9,014 5,025 3,902 1933 10, 774 5,770 4,998 1916 14. 52 1927 21. 97 1938 21,17 1923 12, 897 7,381 5, 516 1934 10,404 4, 899 5,505 1917 18. 58 1928 22. 12 1939 31. 59 1924 10,381 1, 215 5, 166 1935 11, 264 4,911 6, 351 1918 21.00 1929 22.44 1940 34.58 1925 15, 312 10, 159 5, 153 1936 9. 113 2, 975 6, 138 1926 10,684 5, 258 5,426 1937 13, 656 5, 860 7, 787 Source:11. S. Minerals Yearbook. 1927 17, 113 10, 256 6,857 1938 11, 465 4, 106 7,359 1928 12,000 5,899 6, 107 Coal production increased from 5,374 tons in 1860 1 Reports discontinued in 1939. Source: Washington, State Department of Fisheries, forty-sixth to forty-ninth to 2,418,034 in 1900 in the State.The expansion of annual reports, Olympia: State Printing Plant, 1939,p. 111. production reached a peak in the war years 1917-18 when more than 4 million tons were mined annually. The development of the fishing industry in the region In 1940 the region produced 52 percent of the coal is not sigulficantly different from the development of mined in the State, or about 1,017,646 tons (see table fishing for the State as a whole, as very little fish other 26), while Kittitas County, which is adjacent to the than salmon is landed at Washington ports outside region on the east side of the Cascade Mountains, pro- Puget Sound.It will be noted in table 27 that the value duced the other 48 percent, making a total of 1,675,- of canned fish in recent years has been less than 50 per- 592 tons for the State. cent of the value of all fish products. A wide variety of fish is obtained in commercial quantities but the prin- TABLE 26-Coal production in tons for Puget Sound region counties and State, 193,9 to 1942 cipal species landed at Seattle are halibut, salmon, pil- chard, albacore tuna, sole, clams, and crabs.Seattle County 1939 1940 1941 1942 has for some years beefl the leader in halibut, landings Cowlitz 218 averaging about 20.5 million pounds per year over the King 619, 427 602, 622 645, 650 622,840 Lewis 35, 687 39, 780 37, 374 23,240 10 years 1931-40.Most of the halibut landed at Seat- Pierce 39, 696 40,867 23, 606 27,607 Thurston 36, 179 33, 622 39, 576 80, 180 tle is caught off the coast of Washington. Through the ',Vhatcom 236, 806 185, 163 190, 139 233, 779 Total for Puget port of Seattle passes the bulk of the Alaskan canned Sound 968, 053 902, 056 936, 345 1, 017, 646 salmon pack, which varies between five and eight mil- Kittitas 728, 084 771, 536 940, 485 953, 539 lion cases (48 pounds to the case) per year. Total for Washing- ton 1, 696, 137 1,673,592 1,876,830 1,971, 185 The salmon pack for the region and for the State is Source: Annual Report of Coal Mines, State of Washington. shown in table 28.These data indicate in a measure the uncertainty in the salmon-packing industry due to The region plays a minor part in the production of variations in the runs and catches of salmon from year gold, silver, copper, lead, and zinc.In the year 1920 to year. this region was producing roughly 19 percent of the TABLE 28.-Salmon pack br the Pu get Sound region1 and for total value of these metals mined in Washington. In the State of Washington, based on 48-pound cases 1940 the 22 such mines located in the region yielded only 1000 omitted] $52,090, or less than three-quarters of 1 percent of the Puget Puget Washing. total Stated production of $7,018,812.The metal mines Sound Washing- Year Sound Year ton . ton of the region were distributed in 1940 as follows: region region

1928 330 496 1936 123 210 1929 1,140 1,275 1937 445 151 County Number Value of 1930 586 718 1938 160 211 of mines production 1931 954 1,058 1939 391 466 1932 261 381 1940 116 215 1933 775 853 1941 336 491 Clallam 3 $280 1934 507 594 1942 270 372 King 3 1, 575 1935 619 612 Snohomish 11 38,046 Whatcsm S 12, 189 Total for region 22 52, 090 Total for State.._ 83 7,018,812 534208-43---7 PART III COMMERCE

A. PATTERN OF COMMERCIAL ACTIVITY By Grant I. Butterbaugh1

Retail Trade Service Establishments The most recent available data covering the princi- The distribution by counties of service establish- pal commercial activities of the region are reported in ments such as barber shops, laundries, gasoline service the Census of Business taken in 1940 as a part of the stations, repair shops of all kinds, etc., is shown on fig- Sixteenth Census of the United States.Data covering ure 42, which also shows total and average unit receipts retail trade and service establishments are presented in of such establishments in each county. this report by means of maps; details are given by tables Approximately 65 percent of the service establish- for these and for wholesale trade as to the number of ments of the State were located in the region in 1939; establishments, value of business transacted, number of they did about 69 percent of the service establishment active proprietors of unincorporated businesses, num- business of Washington. ber of employees on the average for the year, and the Table 30 shows the number of employees and the total amount of pay rolls, by counties.The data cover the pay roll of service establishments, by counties.It will year 1939. be observed that 65 percent of the active proprietors Figure 41 shows the number of retail establishments of unincorporated service businesses, and about 73.5 and their total sales by counties and indicatesaverage percent of the employees were in establishments located unit sales.Approximately 60 percent of the retail 'in this region.These employees received 73.5 percent stores of Washington were in the region and accounted of the pay roll of those working in such businesses in for 61 percent of the sales reported. Washington. Retail trade employment and pay rolls by counties TABLE 30.Employment and pay roll or service establishments are shown by table 29.Approximately 60 percent of in the Puget sound area by counties, 1939 the active proprietors of unincorporated businesses and Active pro- Number of 63 percent of the employees in retail trade establish- Total pay County j°i(aveTar ments in Washington were in the Puget Sound region. ye) These employees received approximately 65 percent of Clallam 105 74 $81,000 the wages paid to retail trade employees in Washington. Island 28 6 1,000 JeffersOd 43 33 34,000 King - - - 3,090 ii, 341 9, 618, 000 TALBL 29Employment and pay rofl of retail establi8hments in Kitsap - - - - 170 176 182, 000 the Puget sound reion by counties, 1.939 Mason 59 34 34. 000 Pierce 1,044 1, 319 1,548,000 San Juan 12 2 2,000 Active pro- Skagit 232 195 128,000 Number of Snohomish 476 417 421,000 County employees Total pay Thurston 210 217 260,000 isr Whatcom 291 397 202,000 pora e for year)' busmesses Total 6,669 14, 207 12, 601,000

1Employees and pay roll include paid executives of corporations but not the num- Clallam 293 557 $644, 000 ber and compensation of proprietors of unincorporated businesses. Island oo so 41,000 Source: Sixteenth Census of the United States: 1940, Census of Business. Jefferson 132 181 171,000 King 7,686 26,302 31,379,000 Kitsap 505 1, 195 1,365,000 Meson 170 245 280,000 Wholesale Trade Pierce a 514 6,500 7,634,000 San Juan 54 46 31,000 Table 31 gives the number of wholesale establish- Skagit 660 959 1,016,000 Snohomish 1,258 Z 651 2,910,000 ments, their total sales and employment by counties. Thurston 505 1,262 1,510,000 whatcom 873 2,099 Z 301,000 These wholesale establishments represented 61 percent Total 14,820 42,146 49,282,000 of the number in the State and accounted for 73 percent 1Includes paid executives of corporations but not the number and compensation of the business done by such companies in Washington. of proprietors of unincorporated businesses. Source: Sixteenth Census of the United States: 1940w Census of Businesi. Companies in the region employed 64.5 percent of all Washington wholesale employees, 61.5 percent of the IAssociate Professor, Business and Economies, University ofwash- lngton. active proprietors of unincorporated business, and paid 90 WAR AND POST PUGETWAR DEVELOPMENT SOUND REGION RETAIL TRADSOUND REGION, 1939 N PUGE W HATCOM ZATI(HY ?T00.CAPt $ - NOUN? VCItNOW 1(,7, tr S K AOl T PORI ANGCLIS / I \rTO*?SE?. I EVtREITOR VIE LIE ""ONES, SIO.000GE SALES IoI5,OOC' PER JEFFERS. N S C 0 Ak 0P.,? 0SI.00O toOOOO 0.000 1 o2S,O0OR KITSAP rTAL 'A UN '?5,000 E.INtR RUM 0 I, to MASON 1P.CQMA REG ONAL PLANNING COMM SS ON PUGET SOUNDSCALE N Ni LES 'NOTE E;lottlishm*fltsOci.v lot U Sotti of Rilait adef,,d RtEt?lI (VI Cq.v'. OURGE US. Bursou ci C.nsu ATTLE, IS 43 WASHINGION Ftuua 41.

SERVICEWAR AND POST TRADE: WARPUGET DEVELOPMENT SOUND1939 REGION PLA 99 000' SKAGIT T ANGELES

AVERA ERRECEIPTS 5OOO 2 NN\N' S31 THANto °5,000 to°,OOOto2,000 4,OOO I69,OOO 56 PUGET SOUNDSCALE N N LEN 'NO.OFU../ / / / / /1/ RECEIPTS PEG ONAL PLANNING COMM SS ON SEATTLE, WASHINGTON brO I)EstoblishrnentoDo S Boreou et CennosOs defined '.C.,T,tI o n It Ser/ ce PIERCE SOURCE U S Bureou of Genius. Puget Sound Region, War and Post-War Development 93 TABLE 31.-sales and employment in wholesale trade in the out over 74 percent of the total State pay roll of Pae get sound area by counties, 193.9 wholesale establishments. Employment It is evident from the above statistics that the commercial activity of Washington is highly concentrated Number of Active pro- County establish- Sales prietors of in the Puget Sound region and that the companies ments unincor- Employees porated engaged in retail trade, wholesale trade, and the per- businesses formance of services of various kinds in the region pay Theusands of higher wages proportionately than like companies in dollars Clallam 31 2,868 14 113 the rest of the State. Island 7 243 4 Jefferson 7 373 4 Within the region cash income appears to be greater King 1, 571 458, 070 786 13, 732 Kitsap 41 4,370 23 179 in the industrial counties.This is borne out by reports Mason 8 461 4 18 Pierce 240 63, 124 119 2,217 of income tax returns.Figure 43 shows income tax San Juan 8 233 7 Skagit 74 6, 232 53 321 returns per thousand persons for the year 1941.King Snohomish 81 9,939 44 470 Thurston 36 3,915 18 166 County with 107 returns per thousand population had Whatcom 77 9,892 47 421 the highest proportion of returns in the area.Thurs- Total 2, 181 559, 720 1, 123 17, 663 ton County reported but 80 returns per thousand Source: Sixteenth Census of the United States: 1940, Census of Business. population.

B. THE TRADE POSITION OF THE REGION By James C. Rettie and James E. Maxwell8

Inshipments and Outshipments markets, the distribution by commodity groups was ap- Figures on the value of the products shipped each proximately as follows: year from Puget Sound to the rest of the world and on Products of agiicuIture $13, 000, 000 the value of products received from outside the region Animals and products 9, 000,000 for local consumption are not available.The Puget Products of mines 1, 000, 000 Sound ports, however, handle the bulk of the water- Products of forests 64, 000, 000 borne commerce between the State of Washington and Manufactures and miscellaneous 156, 000, 000 other territory.The region derives benefit not only A large proportion of the manufactures, of course, from the goods which it produces and consumes but also consisted of goods in transit. from those which are handled in transit.The figures In the foreign export picture the composition was for total water-borne commerce of the State have very about thus: considerable significance for the Puget Sound region. In tile 3 years prior to the outbreak of war in Europe Products of agriculture $15, 000, 000 (1937, 1938, 1939) the total value of outbound and in- Animals and products 3,000,000 Products of mines 1, 000, 000 bound water shipments averaged $610,000,000 per year. Forest products 8, 000, 000 Of this total $322,000,000 represents the value of out- Manufactures and miscellaneous 53,000,000 shipments and $288,000,000 the value of inshipments. Average domestic water shipments and receipts for The incoming shipments from domestic sources were the 3 years were very close to a parity: composed as here shown: Shipments $243, 000, 000 Products of agriculture $2, 500, 000 Receipts 254, 000, 000 Animals and products 9, 500,000 The value of foreign exports for the three years, how- Products of mines 15, 000, 000 Forest products 31,000, 000 ever, averaged approximately twicethe valueof Manufactures and miscellaneous 195, 000, 000 imports: Exports $80, 000, 000 The overwhelming predominance of manufactures is Imports 35, 000, 000 noteworthy. The foreign imports were composed as follows: Composition of the Trade The general composition of this trade is of consider- Agricultural products $6, 000, 000 Animals and products 7, 000, 000 able interest.Of the total outshipments to domestic Mine products 1,000,000 7,000, 000 2National Resources Planning Board, Region X, Alaska. Forest products 8 National Resources Planning Board, Region IX, Pacific Northwest. Manufactures and miscellaneous 14, 000, 000 WAR AND POST PUGETWAR DEVELOPMENT SOUND REGION UJL)ME IAX LT URNS I3ELLi'G*IA Same, WHATCOM Or'LATION.PER THOUSAND 9' wapeon VP, on, AdAC RRTCS WOOLLE!51050 CP(,Too;, 1- MOUNT vIRWO rrre / OOPI VILL S K AGI T POPT AUGrL(s Fa4* VC Pt I I CLL MV' Odymp UI' \. , nu,oQ *4010 SNOHOMISII P50*05'S - SIR 10 EN KTSAP O*C1419 OPT PISTON S00000LM!C ND rIP TACOMA PUT*UUP ,SMTICR I 04051 5 p caLl 0 IN N(LI5 (0 TO MA S ON TJLYMPIA REG ONAL PLANNING COMM SS ON PUGET SOUND 0 tST0Nv4ILr ,y Of '1y.flO Po.* SEA1TLE 1943 WASHNG1ON Ti-IURSTON /o'UT FIGURE 43 P ERCE (0,94' Pu get Sound Region, War and Post-War Development 95 Of the total outshipments by water, less than 19 and fresh fish, gold bullion and concentrates.The percent were destined for the foreign market.This total value of this trade during the period 1930-41 very poor showing in foreign trade is in dramatic con- amounted to $950,000,000.About 40 percent consisted trast with that of British Columbia which has about of the shipments to Alaska and 60 percent of receipts the same type of products to sell.Over 80 percent of from there. the British Columbia shipments go to markets outside Some perspective on the importance of this trade of Canada. With a revival of world trade and the can be obtained by comparing it with the 1930 41 suspension of the kind of economic warfare that was United States trade with some of the foreign countries. going on during the l930's it should be possible for Alaska - $950, 000, 000 Washington to recover at least a part of the trade which Norway and Sweden 949, 000, 000 was lost.It appears that better trade relations be- Australia 683,000, 000 tween the United States and other countries would Soviet Russia 638, 000, 000 Central America 813, 000, 000 greatly benefit Washington and the Puget Sound region. China 1, 197, 000, 000 Trade With Alaska In our trade with all these countries only that with Puget Sound ports, for many years, have had the China exceeded the trade with Alaska.All this was lion's share of the Alaska trade.Outshipments con- accomplished while Alaska had a population of only sist chiefly of food, clothing, and all sorts of material 72,000 persons, half of them natives.Future develop- and supplies used by the Alaska fisheries and mines. ment of the Territory should bring a corresponding Inshipments are made up largely of canned salmon growth in this trade. PART III 7. TRANSPORTATION AND COMMUNICATION By Transportation Committee, Puget Sound Regional Planning Commission

Highways which are just being opened up in connection with electro- metallurgical developments. The present main highways of the region follow the Roads for the recreational tourist business, in dollar value north and south valleys on both sides of the sound, with the third largest in this area.This business, too, is in its a ioop around the Olympic Peninsula. The system was infancy in size and extent, not oniy for local people but in built principally for commercial use, connecting the respect to other tourist centers of the Nation.Scenic highways have to be considered apart from forest industry use and peninsula and the valley cities.Within the last decade purely commercial traffic, since these recreational drives have the east-west highway over the Snoqualmie Pass has a value of their own in providing access to national forests and been made into a fine route open the year round. This parks, ocean beach, sea, and mountain view areas. highway, together with that by way of Stevens Pass All-purpose commercial roads.To be of maximum use- farther to the north, for many years has afforded the fulness to this type of traffic, the system now in use needs chief route east for motor vehicles from the entire improvements in alinement, roadbeds, and bridges. State, except in the extreme south, where roads along Heavy convoys of motor freight have demonstrated the Columbia River carry heavy traffic.It has long the necessity of bypassing residential areas in cities. been realized that more mountain pass routes built to Of late there has been evidenced a need for heavy traffic be kept open the year round would be necessary. Now routes bypassing whole cities.In the cases of Everett, the need is more urgent than ever. Seattle, Tacoma, and Olympia, separate freight routes The region has taken pride in its outstanding high- are being planned for the future, connecting these way system, paid for as built, and including the industrial centers. longest four-lane streamlined highway in the United Road construction can make a large contribution States, extending from Tumwater to Everett via Ta- toward providing employment in the post-war period. coma and Seattle.In recent years there has been Therefore, an attempt has been made to visualize all added the longest floating highway or bridge in the the important highway facilities which will be needed world across the navigation channel of Lake Wash- in the near future. ington, more than a mile long and unique in con- Figure 44 illustrates the main State highway system struction design.This bridge is a part of the Seattle- in the Puget Sound region and proposed additions to to-New York East-West highway over Snoqualmie provide alternate routes, scenic highways, and mine- Pass. to-market roads.If these proposed highways are built, The region will ultimately contain an important link the north half of western Washington will be con- in an international highway connecting the United nected adequately with the east side of the State, as it States, Canada, and A1aka via the short and scenic is not at present, and additional valuable mining and "A" or western route recommended by the International tourist areas will be made accessible. Highway Commission.It is to be hoped that rights-of- The roads designated on figure 44 cover practically way can be surveyed and plans completed for construc- all of the main routes that would be desirable for tion of all-purpose routes to Alaska after the war. commercial or scenic purposes.Highways and high- The Puget Sound region with its waterways, lakes, way needs off the main system are not shown. Coun- mountains, and valleys, presents difficult highwayen- ties are developing their own programs for rural roads, gineering problems.Its highways must in the future, while cities are preparing plans to meet urban highway as in the past, serve three main needs related to income- problems, all under adequate laws as to administration, producing industries: etc.While many of the roads and sections of the roads of the main system shown on figure 44 may not be com- 1. Roads for the forest industry, dependent now more than ever on highways to remove logs and to provide fire protection. pleted for many years, it is well to give them considera- These heavy-duty roads serve to connect forests and timber. tion in any plan extending over a long period of years, product plants with the railroads and waterways. The same to the end that all may be properly integrated in the roads in many instances can serve the mineral areas, some of system.Plans which are prepared now will be ready 96 PUGET SOUND REGION #1QsRrs EXISTINGWAR AND AND PROPOSEDPOST WAR DEVELOPMENT is- P455 HIGHWAYS .,ROU I frat C PtA r,ErCAPETarooss I p OUT fifO CASCADE7_a PAS- Ctha',j ; - PORT 0GLE OcIP!V!LC fV UT R,vt' STEVENS PA$ro We,ocheq QUELl JEFFERSOri LX ST NG 1 POPOSED HiGHWAYS IGHWAYZ '7u I NULT SNOQUALM E PASS s FI1insbur c_ R IWNC - '0 S 0 '0 10 MASON NACH ESG i vern,., REG ONAL PLANNING COMM SSION PUGET SOUNDSCALt N N LES ,4t'o.n __._,# L1 ?UMIIOTLIO CHINOOK PASS To rokimo PASS S(ATTLE IN4S WASHINGTON FIGuRE 44. \ PIERCE SOURCE-1oQel Soolidcmm4I%iOAI. 1,otporI R,3iOn 01 PIoninOt on Comrneo 98 National Besourtes Planning Board for use immediately after the war or in some future highway facilities.This proposed highway will be- emergeicy period, when useful construction projeèts come a logical link in the future highway to Alaska. are required to furnish employment. The Cascade Highway ("B" on fig. 44) is to be an in- Description of Proposed Projects ter-regional road between Puget Sound and the great Inland Empire to the east.In the central third of the Ai interregional highway (designated as "A" on fig. State there are three highways crossing the Cascade 44) connecting the Southwest Washington and Colum- Mountains; in the south third there is one road in use bia River area with the Puget Sound region will be and asecond projected;in the north 85miles part of an,: international highway between the United of the State thereis none.Thus from a great States and Canada, and a vital link in the inevitable area, the Methow-Okanogan Valleys and north-central Seattle-Alaska highway. As a regional route this pro- Washington, separated now from access to Puget Sound posed road will bypass the heavy traffic of Fort Lewis by a 23-mile highway gap, travel must be by a U-shaped and the cities of Olympia, Tacoma, Seattle, and Everett, route some 250 miles to arrive at closest tidewater. and preserve the present Pacific highway for the nor- Highway "B" is one of the earliest mountain crossings mal traffic originating in these cities.Recognized and projected by the State, having been surveyed and acute bottlenecksatSeattle and Everett will be mapped by the State Highway Commission in 1895 and avoided.commerce and agriculture will thus be saved designated as the "Cascade Wagon Road." Beginning appreciable time and expense and the cities involved in 1924 the State Highway Department spent a consid will be helped in solving their ever-increasing traffic erable sum on this road, completing about 12 miles of it problems. Highway "A" could be realized by stage to a very good standard, from Marbiemount easterly to construction because many short sections which would a point roughly 12 miles from the summit of the Cas- suffice for present requirements are already in existence cades.Likewise, on the eastern slope, an appreciable This highway, also referred to as the East Pacific mileage has been constructed from Winthrop, from Highway, is proposed for wartime or post-war con- Twisp and from Stehekin at the head of Lake Chelan, struction, from the general vicinity of the northerly westerly toward the summit.In fact it is now possible boundary of the Fort Lewis Military Reservation, to drive an automobile from Winthrop to a point 5 miles north to the United States-Canada boundary at or near west of the summit on the route marked "B-Alternate" Sumas.Generally this route will strike eastward from on figure 44.The approximate length of the existing near South Tacoma and enter an inland valley at or near gap in the prime route shown is 411/2 miles, and on the Puyallup or Sumner, continuing thence north through alternate route 23 miles.In addition to the value of Renton and east of Lake Washington to Bothell or connecting the two great regions, the proposed road will Woodinville, thence in a well-defined valley through bisect two mineral areas which for many years have Snohomish, Arlington, Sedro Woolley, and ending at been retarded in development by lack of transporta- Sumas on the international boundary.This intra- tion.Those areas are the Thunder Creek mining dis- regional link in the highway system has many advan- trict north of Cascade Pass and the. Cascade mining tages both in peace and in war.It bypasses all the district south of the pass.Some very fine samples of concentrations of traffic in the major cities on the lead galena, silver, copper, and small amounts of gold shores of Puget Sound, yet it is near enough to these have been produced in these districts. cities to be immediately useful.It provides an addi- The Sauk Valley road ("C" on fig. 44) is an intra- tional or alternate route for military movement from regional project of more than local interest.The area Fort I.wis to the most vulnerable portions of Puget traversed is popular with recreation seekers from the Sound and for interconnection between the parent large cities to the south of Skagit County.It is also a cantonment and its many subsidiary defense units to project looking to the greater development of agricul- the north, without the necessity of passing through ture and the more facile management and protection of Tacoma, Seattle, or Everett.This highway provides a large forest area, both private and public.The road natural protection for military transport, being removed from the open coastal plain upon which the parallels the south side of the Skagit River for about present north-south highways are constructed, and 30 miles to the confluence of that river with the Sauk. having on the west, for most of its length, a protecting There it connects with an existing road up the Sauk ridge of varying heights up to 2,000 feet.Its from River Valley to Darrington, in Snohomish County, 6 to 15 miles inland from the Pacific highway, now the thence down the Stillaguamish River to Arlington, only north-south highway above Seattle capable of thus completing a loop tied in with highway "A." The handling present-day traffic.It opens up to normal construction of this road will relieve Skagit County commerce a vast agricultural area and many industrial of delays and, at periods of extreme high and low sites heretofore undeveloped by reason of inadequate water, of total stoppage of traffic caused by inoperability Puget ASound Region, War and Post-War Development 99 of the six ferries now in use along the Skagit River. vast national forest area and provides access for rec- There is no bridge for the entire length of this pro- reational enjoyment to a large region of spectacular jected road, and the operation of these six ferries has beauty. become a most irritating and expensive burden on the Plans to construct a Naches Pass highway ("G" on public and on the county. fig. 44) as a vital means of handling an anticipated The Twin Sisters Mineral Development road ("D" sharp increase in freight traffic over the Cascades after on fig. 44) would leave the International Highway in the war are being studied.The State Highway Advi- the vicinity of Saxon, in Whatcom County, and follow sory Commission predicts that population increase in generally the South Fork of the Nooksack River to the Puget Sound area eventually will necessitate im- large mineralized areas.For a considerable distance portationof a large percentage of the area's foodstuffs this road could follow an abandoned railroad grade. A from east of the mountains (this idea is developed in single-lane truck road with suitable turn-outs would Part III, Section 13, Analysis of War and Post-War suffice for the initial project.The principal deposits in Population Needs, in this report). A traffic survey this area consist of chromite, and the field is said to be shows that the proposed highway, being 36 miles shorter among the most promising in the State.Approximate than the next shortest all-year route between Puget length of the road is 17 miles. Sound and the producing areas east of the Cascades, The Mazama Park Recreational road ("E" on fig. 44) would save the public an estimated $288,266 a year. would be a view road of unsurpassable grandeur and a The total cost is estimated at $11,054,612.Largest cost unit of the Mount Baker loop highway.It would begin item of the highway, approximately $6,000,000, would in the vicinity of Sulphur Creek ranger station on the be a tunnel 9,770 feet in length, crossing the crest under Concrete-Baker Lake road and run generally north- the southerly edge of Pyramid peak, emerging near the west through Baker Pass (elevation 4,000 feet) along north fork of the Little Naches River. the foot of Deming Glacier (a live glacier) and thence Parts of the proposed Puget Sound road system will down the Middle Fork of the Nooksack River to a con- provide a better connection ("H" on fig. 44) from Ste- nection with the present Mount Baker highway some- vens Pass to Seattle and an improvement to highway 99 what east of Derning, in Whatcom County.Unlike south of Olympia ("I" on fig. 44).From Tacoma over most recreational roads, this project would actually a new Narrows Bridge, route "J" will connect with the climb over a shoulder of the mountain, with no inter- Olympic Peninsula and Bremerton. ,Utilizing a ferry vening chasms.The summit is readily accessible from link, route "K" will save many hours in travel between Mazama Park.Approximate length is 25 miles. Seattle and Port Angeles. Hood Canal, famous tour- The Austin PassBaker Lake Recreational road ist summer resort area, needs Mount Olympus view ("F" on fig. 44) is to close a relatively short gap be- route "L." The road on the west side of the canal does tween existing roads already constructed by State and not at present give a mountain view.Routes for high- Federal agencies. From Baker Lake (elevation 700 ways marked "M" and "N" will open up mining areas, feet), the route would follow lip Shuksan Creek and ski bowls, and scenic areas now known and used to a Swift Creek, between Mount Baker and Mount Shuk- limited extent.The route "M" through the Olympic san, only 10 miles apart at their summits and respec- Mountains may not at first be a master highway but it tively 11,000 and 9,000 feet in elevation, to Austin Pass will serve to give access by "jeeps" and horses to the (elevation4,600).Glaciers,hotsprings,mineral national park now largely without use, and to furnish springs, waterfalls, cascades, lakes abound on all sides, a better means of fire protection.Routes "0" and "P" and winter sports are enjoyed much later than on any are the only proposed roads to give views of the Pacific other mountain in the State.The closing of this gap Ocean.These routes could be used now by foot pa- would complete a larger Mount Baker loop highway trols, but a "jeep" route at least should immediately fol- than that previously mentioned. Approximate length low the war.The road "Q" through Whidby Island is is 13 miles. not a new proposal. In addition to the benefits already listed for each of Figure 45 shows highway traffic flow as of 1940 on these projects, there are subsidiary phases of usefulness the existing regional system.Some increases have not to be underestimated.For example: Project "A" occurred since 1940. will provide a means of separating military from civil- City Traffic Projects ian traffic in the event of evacuation or other necessary Improvements and new construction of the terminal activities.Projects "A," "C," and, to a limited extent, facilities for railroads, ports, highways, bypasses, and "D" will tend to develop heretofore retarded or inac- grade separation of freight routes and passenger routes, cessible agricultural areas, principally dairy country. are recommended for the cities of Olympia, Tacoma, Project "B" opens up for protection and development a Seattle and Everett.One project is a valley-level WAR AND POST PUGETWAR DEVELOPMENT SOUND REGION from, RQSjTr5 -- H GHWAY ,0 IRA FFIC FLOW.I 99 FIOA.Anon WHATCOM TLATTfRV C4PE,.r000.. . "p SKAGIT PORT MCLES -j-4r ? 'PORTTOWN SE' 0000r.ILt-L ISTR!CT I GInc,, P000 D SIR T3 TT0000f I S NO 10 M I SN P. sM,00N,an PR MARY STATE H GHWAY RSN KITSAP OSCTT*I4O 0 CONOARYI STATE HLGHWAYRCT BOUNOARES FE to MASON SCALE N U LE5 TOM SAT CM D STRICT 2 / REG ONAL PLANNING COMM SS ON PUGET SOUND ----- .9 O(ATOTIVILI MRrn,ar SOURCE WhIngton St&e W SEATTLE, 1U45 WASHINGTON TuRSTO FIGURE 45. No HiQbwoy P Oflnng Survey. Puget Sound Region, War and Post-War Development 101

freight highway from Tacoma to Seattle (see fig. 46), Oniy streamlined trackage and equipment well main- with Highway 99 passing over this freight route near tained and soundly financed, can keep the railroad Duwamish.This freight route would connect the Ta- business active and profitable.The railroads have ac- coma and Seattle industrial and railroad centers, ports cess to scenic routes not paralleled by highways through and truck freight terminals, water front to water front. the mountains and along streams and seashore, and The Snoqualmie Pass highway should pass under Bea- they can offer travel comforts and ease not matched by con Hill in Seattle and continue as an overhead viaduct the automobile. to connect with the viaduct along Seattle's water front. All the Puget Sound cities have railroad terminal The latter (see insert in fig. 46), passing over railroads, facilities sufficient in quantity, but in Seattle, Tacoma, freight trackage, and switching tracks to the wharfs, Everett, and Bellingham these facilities, including should run from Spokane Street to north of Stewart freight yards and access sidings to wharves, docks, and Street then be depressed from Wall Street to Aurora manufacturing areas, need plans for new construction Avenue.The Spokane Street viaduct should be com- and better lay-outs.The proposed construction im- pleted from west Seattle to Beacon Hill over all inter- provements would facilitate faster handling of freight secting railroads and industrial approaches.These and passengers.Electrification of all Puget Sound proposed improvements affect the whole Puget Sound railroads is recommended for careful consideration. region, as railroads and highway traffic have competed This would make for cleanliness and, as the population for clearance of movement with consequent delay both increases, fast electric passenger service will probably to through State freight and passengers and to freight be needed.Railroads are as essential to the region as movement from railroads to ships.Other Puget Sound shipping facilities, airports, and highways.They de- ports, such as Everett, Bremerton, Olympia, Beiling- serve public support and consideration in effective ham, Port Angeles, Port Townsend, and Anacortes, planning as an integral part of the transportation have need for similar plans before congestion increases system. their problems. Ports and Terminals Financing and Coordination Proposed port facility expansions are especially A 6-year planned highway construction program for needed in Everett, Seattle, and Tacoma, as this expan- the State logically contemplates spending millions of sion is part of a plan for enlarged industrial areas. dollars for highway purposes in the Puget Sound ré- Figure 46 shows proposals for expanding ports and pro- gion.The coast cities also have a problem in connection viding necessary connecting facilities at Everett, Se- with handling industrial and port freight, with rail- attle, Bremerton, and Tacoma.Similar expansion is road traffic and needed highway separations which required at Olympia and at the northern Puget should be planned as a part of the State highway sys- Sound ports of Bellingham, Port Angeles, Port Town- tem.The Puget Sound region, because of its prepon- send, and Anacortes.Everett needs to develop use of derance of population and important industrial de- its shallow tide lands and control the silting-in of the mands, must have a considerable share ofState present harbor.Both Everett and Tacoma have pos- highway funds.Total highway expendituresState, sible seaplane freight terminal sites which can be pro- county and localin the region could well amount in 6 tected from flotsam. years to about $147,500,000, drawn from gasoline funds. If industrial population in this area should be doubled Railroads in connection with the development of available power, these industrial sites planned in combination with air, Railroads are adequate except for needed electric water, railroad, and highway transportation must be connections between Shelton to Bremerton and between provided.The construction can be started and built by Shelton to Quilcene.(See fig. 47.)The region would stageas needed..None of the proposed plans needs benefit also from construction of proposed rail lines, completion in its entirety before a partial use begins. for which surveys have already been completed, which would provide a trunk rail line from Seattle, via Van- Air Transportation couver and Prince George, British Columbia, to Alaska. America's fastest growing industry today is that of Duplication of rail service in the Puget Sound area aviation and the airplane.The tremendous air forces has been a subject for criticism during past years, but now determining so largely the course of the war are the war has emphasized the need for all the available likewise constructing in large measure the transporta- trackage.In the future even closer consolidation and tion foundation of the future peace.Aviation is up- cooperation must prevail if railroads are to compete setting our sense of direction, revamping our maps, and successfully with trucks and airplanes for freight and changing our entire concept of the world.Distance to passenger business. the far corners of the earth is no longer thought of in PUGET SOUND REGION WAR ANDPORT POST TERMINALS WAR DEVELOPMENT AND PlanningDeportment;SOURCE CornmIssIorr. Cittes, Puget Ports, Sound Stote flegl050l Highway SERVE LOWERHIGHWAY PUGET ROUTES TO SOUND AREA ISNOHOMISII

SUGGESTED GRADE SEPARATION AT TACOMA N 8REMERTON ORCHARDPORT SEATTLE TRUCKPASSENGER ROUTES CAR HIGHWAYS U COM9INATION HIGHWAYS SUGGESTED ELEVATED aHIGHWAYON SEATTLE WATERFRONT INDUSTRIALCITY AREAS LIMITS REGIONAL PLANNING COMMISSION PUGET SOUND SCALE IN MILES SEATTLE, WASHIGTQN FIGUI 46. WAR AND POSTPUGET WAR DEVELOPMENT SOUND REGION 1-

PUGET SOUND REGION WAR AND POST WAR DEVELOPMENT RELATION TO MAJOR CONTINENTAL AND GLOBAL ROUTES, PAST AND PRESENT

300 E

30°W

60°W

I 50°W 90° W Land- Based Airplane Routes Overseas Air Routes Shipping Routes -

PUGET SOUND REGIONAL PLANNING COMMISSION SEATTLE, WASHINGTON 1943 FIGUBE 49 Puget Sound Region, War and Post-War Development 107 the close collaboration of Federal and local agencies, and equipment.Existing facilities are the product of which should also give consideration to the problem of haphazard growth.They need to be better integrated how such a system of airports can be made paying in- and linked for a more efficient interchange of freight vestments rather than costly obligations. and passengers.Many of these improvements should Private flying is so much to be expected that airports look toward the more rational use of each kind of are planned and mostly completed to make possible a transport.At the end of the intensive war effort, it is recreational flying loop around the Olympic Peninsula likely that the time will be ripe for many transporta- for quick fishing and hunting trips and to give access tion improvements.Generally, it may be anticipated to summer homes.It is presumed, too, that indus- that (1) no wide expansion will occur in railroad con- trial and mining developments on the Peninsula north struction, but that extensive improvements and reor- of Mount Olympus will create more travelair travel ganizations will be in order; (2) extensive moderniza- 'where time is an element.The plane is not stopped by tion of trunk highways and city highways will be the waters of Puget Sound, and for only a few days of programmed; (3) owing largely to expanded basic the year need private flyers be grounded by fog.Their industry, continued inland navigation improvement in pleasure travel does not interfere with commercial waterways equipment and terminals will be a profit- airways. able undertaking; and (4) a sharp turn toward expan- It is not too soon to develop practical aviation plans sion and improvement of commercial air equipment, and to pursue them energetically.The aeronautical lines and terminals will take place with the slacken- possibilities of the region are limited only by the amount ing of military aviation needs.The availability of of foresight and intelligent planning its citizens are new metal industries, including the significant light willing to expend. metal plants, and the large new capacity for building Communications aircraft,ships, and boats may well be important factors in the modernization of transportation equip- Communications in the region have, in the main, been ment of various kinds.The wide availability of low- adequate, although some areas have not been served by cost power may have important effects on some forms of telephone because of insufficient population. Telephone transportation and transportation industry.Planning service in most urban areas has been at a ratio of better of joint transportation, transit, and terminal recon- than one telephone to every four people.Telephone struction projects for cities and metropolitan areas lines extend along all main highways, reaching all should be especially fruitful. A program of pipe-line community centers.The war has now changed the construction may be a transportation development of situation.Expansion and new installations needed in the more distant future. most areas represent about a 20-percent increase over The rivers and harbors of Puget Sound have been the region as a whole.Recently constructed popula- a major factor in the development of the region up tion centers containing some 50,000 homes are prac- to the present.With the new trend in establishment tically without telephone service because of wartime of basic industries in the region, new influences should shortages of equipment.This creates a field of post- be felt.The region's harbors and its major streams war work for more people than were engaged prior undoubtedly should exercise strong influences upon the to 1940. distribution of new industries; and, reciprocally, the Radio and telegraph service interconnected with establishment of a number of heavy industries should phone service will not require so great an expansion. have material effect upon the traffic and general de- rfhe service has proved quite adequate. velopment of waterways and ports. Among inland Conclusions waterways, Puget Sound should play a particularly Transportation offers one of the larger and more important partAmong projects for future consid- promising fields for the development and internal im- eration is the proposal for a Columbia River-Grays provement of the region and for fruitful activity in the Harbor-Puget Sound inland waterway.Construction post-emergency period.Improved facilities and equip- of this major inland water link between Puget Sound, inent and a better coordination of means of transporta- the Columbia River, and the interior basin would seem tion should bring about many economies and many im- to depend primarily upon the further development of provements inservice and convenience.Potential heavy industries in both areas and the need of low- works include: improvements and additions to trans- cost interchange of large volumes of bulk materials. portation lineswaterways, railways, highways, and Continuing improvements are required for the main- airways; modernization of line equipment; and im- tenance of channels at various ports on deep water and provements to individual and joint terminal facilities also at various smaller coastal harbors. PART III 8. URBAN PROBLEMS

A. COMMUNITIES AND FACILITIES By Joshua H. Vogel'

The Puget Sound Pattern of Communities such as are embodied in building and zoning codes. The region is a single planning unit, with which the The same problems in lesser degree appeared in other Puget Sound Regional Planning Commission is con- cities and towns. cerned in its capacity as a nonadministrative coordinat- Local planning agencies existing prior to 1940 ing planning agency.The authority for administering had explored methods of meeting problems involved the laws, for operating and constructing the public in providing public facilities.King County and its utilities and facilities, and for the taxing, collecting, planning commission had attacked problems adjacent to and spending of public funds is held by 746 different Seattle.Olympia and its planning commission had agencies. Among these agencies in the 12 counties are dealt with problems of the State's capital city.Plan- 72 incorporated cities and towns, 12 housing authori- ning commissions recently created have become very ties, 1 soil conservation district, and numerous port, active and efficient in planning and obtaining through utility, drainage, diking, fire protection, and school legislation the necessary authority for their govern- districts. mental units. The areas of these agencies overlap, with consequent Within the region there are now eight county and variation in tax rates and in the quality of service and 16 city planning commissions.Three counties and other facilities.Resulting bottlenecks and deficiencies eight cities have zoning regulations.All counties have are aggravated by lack of authority to solve certain trailer-camp regulations. Two counties have building problems and to allocate wisely the use of available code permit systems.Three airports are protected by resources.Because the pattern of government is so zoning regulations.These planning commissions and intricate, the problem of providing public facilities is legal controls are doing a great deal to provide guid- complicated even in ordinary times, but it became im- ance for the plans for future public facilities. mensely more complicated when, within 2 years, the Legal machinery still needs to be simplified to provide population of the region increased from 58 percent of more satisfactory methods for financing public im- the State's population to 62 percent, a change which provements.In five cities and four counties intensive has added a quarter of a million people to a popula- local surveys are under way to prepare detailed designs, tion which was slightly less than a million working drawings, and specifications for letting con- Prior to the war, programs had been started to sim- tracts for necessary public facilities and housing for plify school organization and to provide better school post-war industries. building facilities.Plans were in process of comple- Because of increasing problems in connection with tion by governmental units providing for other facili- public facilities, planning activities have been acceler- ties, such as sewage treatment plants, to prevent further ated during the past three years.More planning com- known stream pollution affecting health and commer- missions no doubt will be formed in the future.In the cial fisheries.Because of the growth of population in meantime, participation by local interests in activities metropolitan areas between 1930 and 1940, the problem of the Puget Sound Regional Planning Commission of financing needed school building programs and of serves the planning purpose until local surveys can be paying for water, sewers, roads, and fire protection had finished and local participation warrants organization already increased to some extent.Evidence had ap- of local planning commissions, which should make their peared of need for some authority to exercise police own studies of needs and plans for public facilities. powers in the rapidly expanding metropolitan areas in Effect of War King, Pierce, Snohomish, and Kitsap Counties, especially to regulate sanitation and to provide controls The population maps and statistics included in this report indicate and explain the recent urbanization of 1Planning Consultant, Association of Washington Cities. the region.Since this trend has not been confined 108 Puget Sound Region, War and Post-War Development 109 entirely within incorporated city limits, it has pre- of cities and counties.'l'he physical pattern of the com- sented difficult problems. munities and fringes around them was shown to be in- County government has been forced by legislative adequate.While much has already been done to pro- enabling acts, soxne enacted only in 1943, to exercise the vide housing and necessary public facilities, much still same functions as city government.The 1943 State remains to be done. legislature finally found it necessary to give county com- Most of the private and public housing constructed missioners more explicit police powers. recently must be removed eventually, because of its tem- Population increases in metropolitan areas adjacent porary nature or its location in respect to the futitre to Tacoma, Seattle (including Renton and Kirkland), needs of industrial centers.Some of the best resi- Everett, Bremerton, and Port Orchard have created an dential areas in our cities from the standpoint of view, urgent need for water, sewers, treatment plants, fire air, and transportation, are covered with old structures protection, police protection, building and zoning code too densely situated without sufficient open spaces and controls, license controls, transportation, sanitation, too unattractive in design. health and trailer camp regulations, garbage disposal, facilities for recreation, education, libraries and hos- Program and Activities pitalization and new housing. With sudden influx of population many new public Within city boundaries the effects of war on popula- facilities had to be located, planned, and financed. tion, while equally disturbing, have been more easily More than 35,000 housing units, public and private, planned for, because of existing legal powers of city were constructed.Schools, hospitals,firestations, officials and legal methods already set up for financing water and sewer projects, recreational units, and access construction projects.Brernerton, a cityf 15,134 roads were built.Many of these fortunately are part population, has become a metropolitan area of some of pefrnanent community plans as a result of surveys 70,000 people.Other cities have grown as follows: and the coordination afforded by planning programs. Port Orchard, from 1,566 to over 40,000 in the area; Tacoma, The advance work done by city, county, and state plan- from 109,408 to over 150,000 in the area; Renton, from 4,488 to ning agencies suddenly bore fruit, but the emergency over 20,000 in the area; Kirkland, from 2,084 to over 12,500 in emphasized instances in which there had been insuffi- the area; Seattle, from 368,302 to over 520,000 in the area. cient planning. Population increases within corporate limits only are At the end of the war, public facilities will have been shown by table 32, as estimated by the State Census overbuilt in Renton, Kirkland, Port Orchard, and Board, established by the 1943 State legislature. Brernerton unless industries can be held in these corn- TABLz 32.-Estimated population Mar. 15, 1943, incorporated and rnunities or in the areas nearby, to create employment chartered cities and towns with 3 percent increase or more for the expanded labor force.However, studies show since 1.940 census, Puget Sound region some basis for the belief that where public and private Population Population housing has been built hastily of war type designs, City or town City or town the streets and the underground facilities, the schools Apr. 1, Mar. In- Apr. 1,Mar. In- 1940 15, 1943crease 1940 15, 1943crease and public structures such as recreational and hospital buildings will not have been built at a loss in most Anacortes 5,875 7.200 1,325 Port Angeles - 9, 409 10, 000 591 Auburn 4,211 5,000 789 Port Orchard.. 1,966 4,000 2,434 cases. Bremerton 15, 134 46, 000 30, 866 Port Townsend 4, 683 7, 500 2,817 Buckley 1, 170 1,500 130 Poulobo 639 1,860 1, 221 Re1latting the housing sites with larger single-fam- BurlIngtOn...,. 1,632 1,700 68 Puyallup 7,889 8,800 911 Coupeville 325 387 62 Redmond 530 596 66 ily lots and rebuilding the housing for individual or Eatonville 996 I, 173 177 Renton 4. 488 6, 179 1, 687 Edmonds 1,288 1,500 212 Roy 261 301 40 group ownership will be one method by which private Enumclaw 2,627 2, 725 98 Ruston 739 770 31 Everett 30, 224 31, 000 4, 776 Seattle 368, 302 480, 000111. 698 industry can take the lead after the war if proper leg- Fir Crest 486 700 214 Sedro Woolley. 2,944 3, 100 156 Issaquab 812 900 88 Sequim 676 729 49 islation is enacted. With this rehabilitation of war- Kent 2,186 2, 900 314 Shelton 3, 707 4, 150 443 Kirkland 2,084 3,250 1,166 Snohomish.. . -3,794 2,880 86 blighted areas should be included a rebuilding of pre- Marysville 1,748 1,850 102 Snoqualmie.. 775 1,000 225 Milton 671 1,100 429 South Prairie,.. 226 244 18 war obsolescence areas.In the metropolitan semirural Mount Vernon 4, 278 4,500 222 Steilacoom 832 875 43 North Bend. - - 646 700 54 Sumner 2, 140 2, 300 160 areas much private shack construction will be replaced Oak Harbor... 376 1, 200 824 Tacoma 109, 408 136,000 26, 592 Olympia 13, 254 15, 500 2, 246 Tukwila 521 724 203 by modern homes if financial aid is given to the private Orting 1, 211 1, 345 134 Tumwater 955 1,000 45 Pacific 357 500 143 Wilkeson 369 416 47 owners.This type of aid can well include provisions for rural farm houses. With urban housing is included Total increase inside corporate city limits.194,002. semirural housing because the metropolitanareas Source: State Census Board. which have grown so in population during this war period will embrace agricultural lands, both lowland and The sudden increase in population immediately ac- upland, suitable for dairy, berry, bulb and truck grow- centuated the weaknesses in the functions and the plans ing and even some cattle farms.These homes, within 110 National Reso'urces Planning Board

20 miles of manufacturing plants, now are occupied and housing.It is urgent that these improvements be by industrial workers and can continue to be so occu- planned for construction in relation to replanned cities, pied after the war.The public facilities provided based upon rational living standards providing physical because of the war caa still serve. New construction conditionsconducivetofamilylife,health and can replace old. happiness. In the case of schools in Kitsap County, it was The Puget Sound area plan and the plans of con- planned that the old pre-war school buildings should be stituent communities are now concerned with(1) removed and the new buildings remain in use.All are problems created and adjustments made necessary as a used now and apparently will need to be used longer result of the war, (2) problems and adjustments of the than the contemplated life of the buildings.Because transition period, and (3) problems of adjustment to a of consolidation of school districts the new buildings long-term peacetime economy. will serve when transportation difficulties are removed Well-conceived public facility projects for communi- and the need for the use of the obsolete school build- ties must be engineered now.Reserve funds must be ings has passed. built up in accordance with enabling acts passed by the Critical conditions still exist in respect to some pub- State legislature for cities and counties. A partial list lic facilities, which will have to be cared for after the has been made in detail and will be revised continually war. Among these are: delayed maintenance, replace- to include the other needed community facilities. ment and repairs, as well as new construction needed Effective planning, programming, and budgeting for for the transportation system (highway, water, rail and these projects will prepare them for war development airway); school buildings and reorganization; water if such is found necessary now.But, most important, supplies; sewers and plants; hospitals and clinics; such preparation will have them ready to strengthen libraries; recreational facilities; parks and playgrounds the economy during the transition period.

B. A PROGRESSIVE PLAN: THE TACOMA PROJECT By Marvin R. Schafer'

Problem and Objective Concurrent with this examination was the considera- In cities where war and war-related industries have tion of the possible effect of the development of such increasingly dominated economic life, post-war re- potential resources on the future of Tacoma.Taco- adjustments could well prove catastrophic.It is be- mans, knowing this, could either (1) let the Columbia lieved, however, that the full impact of such a crisis can River developments take their course, accepting the be avoided or its effect minimized, in a city which will changes forced upon the city as they came but not study its future, develop plans with direct public sup- seeking or preparing for them, or (2) realize responsi- port and take action consistent with those plans.Ta- bility for the ordered future development and indus- coma, under the leadership of her mayor and a research trialization of the area and plan for the exploitation committee on urban problems, and with the assistance of of the city's unique combination of advantages.If the National Resources Planning Board, has n,iade a the latter is realized, Tacoma should organize to utilize promising start in this direction in the form of a pro- effectively all of the city's resources.The city should gressive community planning project. anticipate providing a comfortable place to live as well The organization and progress of the study has de- as to earn an adequate living. manded a comprehensive examination of the resources Elements of the Plan of the Columbia River basin and the Puget Sound region to determine: Study of the possible expanding needs of the city revealed that it will require: The power and irrigation resources, both potential and developed. Industrial areas, with proper water, land, and air facili- Other natural resources such as coal, lumber, metals and ties for freight transport and transportation of personnel to minerals, which could be economically processed. and from work. The transportation facilities available and those needed A commercial district adequately "insulated" and provided for future development. with ample approaches and depots for goods and people, flex- A consideration of the current agricultural resources and ible enough in size so that it can adjust to "city center" trends. possibilities for their increased efficiency. Organization of neighborhood shopping and service centers so planned that they are "insulated" from the residential areas, 2Professor of Sociology, College of Puget Sound. on which they could well have a deteriorating effect. Puget iSouncl Region, War and Post-War Development 111

An over-all highway plan to provide high-speed transpor- The available agricultural lands, producing at present rates tation between all of the units within the city and for passenger (plus irrigated land to be developed in the Grand Coulee irriga- and truck traffic to and from other areas. tion area) would provide for a much larger population for Ta- Adequate supply of power and water together with sani- coma but also place a definite limit on expansion if it is to tary sewage disposal. be basically sound. Adequate parks utilizing the superb locations and views The utilization of the power resources available to Ta- of the locality, with provision for recreational and educational coma would multiply the population several times. services. In the accessible environs of the metropolitan area are ade- Health services, general and institutional. quate raw materials to provide for expansion in the fields of Plans for the location of some of these elements are metallurgy, lumber and its byproducts, chemurgy and sea-borne transportation justifying the population predictions, which are illustrated by figure 50, one of many maps prepared regarded as reasonably conservative. in connection with the progressive study. The specific details of the over-all city study have Results included: From study and action along the lines indicated Break-down of the city into its natural units. above, the following results may be enumerated. Detailed study of the functional and ecological units of Certain conclusions as to minimum and maximum esti- the city and its environs. mates of population and the factors upon which those predic- Forecast of direction and character of the expansion in the tions are contingent have been stated. light of factors affecting and limiting population growth. A study has been made of the development shedule for Over-all city plan giving due consideration to soil, con- the energizing of the potentiall power resources, utilizing not only tours, and present "natural areas" of the city. the Columbia River but also the power resources of the Tacoma Details to implement the plan providing specifically for municipal utilities. the City center, shopping center, neighborhood centers, inter- Forest resources have been examined, the result of the action between the city and its environs. implication of a declining stand of old growth and an expanding Study of the effect of this development on special institu- second growth which will furnish a "crop" for lumber, veneer, tions, i. e., churches, schools, libraries, hospitals, etc. pulp, and plastics. An inventory has been made of the metallurgical, fuel, and The refinements of the plan are in process of develop- chemical resources which Tacoma could economically develop. ment.The Committee feels that through the informa- The potential agricultural and other food resources of tion it has so far disseminated the community is Tacoma have been carefully examined.The size of the food gradually beginning to realize that it can control the base Tacoma can safely plan to use for the development of its industrial population has been determined. slumbering industrial giant which its energized power Present study is concerned with determining the sites will awaken to produce for its own and the Nation's working ratio of power to labor in the industries to be welfare. fostered and the number of men that such industries Ahead lies the need for not only the refinement of a will require.This is to be coordinated with the nat- program well begun but the active and enthusiastic par- ural limitations placed upon an economically sound ticipation of those necessarily involved in its fulfillment. expansion of population by the agricultural resources So the second aim of the study is to energize latent human resources now largely dormant and to materialize of the area.These in turn have been coordinated with thenecessary transportationfacilitiesrequiredto plans and specifications for the city now on the thresh- handle economically the flow of food, raw materials and old of an industrial expansion which can certainly processed goods.The results of these studies will dwarf the past development.Here is an area where assist in answering the question as to whether there will those with convictions, confidence, and faith can find be a low or a high ratio established between power the resources to build a city sound in its economic base, used and labor required, and in turn will determine the secure in its economic future, and affording its growing type of industry to develop.At present it would population living space in a beautiful setting as well appear that: as industrial opportunity to challenge its best ability. PUGET SOUND REGION PonnrngS'udy.SOURCE: Tacoma Urban 112 TACOMA LONGWARA RANGEANDPROGRESSIVE POST PLANWAR DEVELOPMENT URBAN PLAN: LIBRARY,ISRESIDENTIAL AN INTEGRATEDCOMMUNITS CENTER COMMUNITY WITH ITS ELEMENTARY SCHOOL, URBAN RESIDENTIAL AREASISLANDS ARE DIVIDED BOUNDED INTO BY QUIETTRAFFIC ARTERIES NEIGHBORHOOD PLAYSROUNO. EACH "ISLAND' BRANCH FROM /2 TO HOMFSTFADS A55 OTHER LAHOF RESIDENTIALACRE. PLOTS RANGINS COMMERCIALPROVIDINGSMALL NEIGHBORHOOD SHOPPING DEVELOPMENT 'CENTERS' SHOPPING ALONG AVOIDSCENTERS TRAFFIC USFORTUNATE TO THE ARTERIES LARGE COMMERCIAL AREAS ARE SPACED TO MEET ACTUAL NEEDS FROM SHOESTRINGCITY CENTER. A140AMPLE WORKERS LAND AND WOULD GOOD LIVE RAIL. 05 WATER, HEIGHTS TRACKING NEARRY SMALLAND AIRPORT SOOTHIA CONNECTIONS,TACOMA AREA INDUSTRIAL AREA5. THE LARGE TIDE FLATS" AREA AFFORDS IS FOR INDUSTRIES WITHOUT WATER CONNECTIONS FREIGHT HIGHWAY CONNECTIONS. RECREATION AREAS, PAREWAYS, PARKED STREETS, STEEP AREAS, DISTRIBUTION CENTER WITH RAIL WATER AND RESIDENTIALVOUCHES AND USES. GREEN BELTS SEPAVATING INDUSIVIAL, COMMERCIAL MILITARY RESERVATIONS. RECREATION AREAS ARE EVENLY DISTRIBUTED, AND RESIDENTIALFREIGHT. SEVERAL AREA SMALLUSE, AIRPORTS ORATEGICALLY LOCATED FOR AIRPORTS. SEPARATE LARGE AIRPORTS FOR PASSENDERS AND Nationa7 Re8ourcesPlanningBoard SUPERLOCAL HIGHWAYS.TRAFFIC ARTERIES. DEVELOPED WHERE POSSIBLE AS 'FREEWAYS' 0 tCALE fl MILES REGIONAL SEATTLE. WASHINGTONPUGET PLANNING COMMISSION SOUND

IR83 I PART III 9. HOUSING By Ellis Ash1

Status of Housing ventory to absorb.The development of war housing, Tables 33 to 36 and figure 51 show statistically and however, to meet such needs does not necessarily mean graphically the Puget Sound housing situation as it ex- that post-war development in the region can be insured isted in 1940. as a result of having adequate housingdeveloped during the wartime period.This is due essentially to the fol- TABLE 33.-Number of dwelling units by counties, and by popula- lowing factors: tion, Puget Sound region, April 1940 No additional housing construction of any kind has been permitted in those areas which have not required in-migra- Number of dwelling units tion to satisfy critical labor needs of wartime activities.This County means that many localities are progressively adding to the Total Urban Nonfarm Farm backlog of housing demand from the general public, resulting from natural obsolescence, inability to make improvements due Clallam 6. 916 3,022 2,479 1, 415 Island 2, 801 0 1, 620 1, 241 to priority regulations, and increased appreciation of housing lelferson 2, 963 1, 276 1. 026 661 King 183, 151 139, 469 36, 561 7,121 standards. Kitsap 16, 803 5, 184 8, 163 3, 456 The major portion of war housing is of temporary char- Mason 4, 663 1, 204 2, 410 1,049 Pierce 53, 372 40, 715 11, 808 6, 849 acter and, as required by statutory limitations, must be re- San Juan.. 1, 295 0 607 688 Skagit 11, 835 4,469 3, 714 3, 652 moved at the conclusion of the war.It cannot be looked to Snohomish 30, 239 11, 278 11, 703 7, 258 as a source of housing to maintain the presentwar-expanded Thurston 12, 980 4,556 5, 092 3, 332 Whatcom 20, 199 10, 216 4, 952 5, 391 population. Total 353, 077 221, 419 90, 145 42, 113 Even in those localities which have been provided with war housing, there has been no possibility ofcounteracting the Source: 1940 Census, Housing, Second Series. progressively developing needs relating to natural obsolescence and the other factors mentioned under paragraph 1 above. The location of much of the war housing has been guided Post-War Implications by considerations other than those basic to the planning of peace- As with other factors, it is necessary to relate post- time balanced economy and, for this reason, is not adapted to war implications of housing to general developments in probable needs of the population as we embark into the post-war the region resulting from war activities.The tremen- era. dous impact of war requirements has brought about, as It is obvious that technological refinements relating to a concomitant of large-scale in-migration, criticalhous- housing will be of extreme importance to this field of ac- ing needs beyond the ability of the pre-war housing in- tivity after the war.Architectural considerations in

TABLE 34.-Number of dwelling units by adequacy and selected facilities Puget Soundregion, April 1940

Skagit Sn1h-Turs- What- Item chClallam Island Jefferson King Kitsap MasonPierce 12, 980 20,596 UI dwelling units in county 353, 677 6, 916 2,861 2,963 183,191 16, 803 4,663 59, 372 1,295 11,835 30, 239

tate of repair and plumbing: 11,636 15, 720 Not needing major repairs 294, 609 5, 619 2,003 2, 158 157,491 15, 292 4, 218 49,884 734 8,684 21, 250 3,465 834 1,304 125, 490 10,137 1,993 38, 039 350 5,333 14,238 6,893 10,597 With private bath and private flush toilet 218, 673 4,743 5,123 Without bath and private flush toilet 76, 026 2,154 1,169 864 32,001 5,155 2,225 11,845 384 3,351 7,012 839 4, 022 Needing major repairs 37, 922 969 702 661 12,215 900 273 6, 838 532 2, 061 7, 889 3,085 190 1, 706 With private bath and privato flush toilet 16, 651 385 74 123 6, 548 316 87 3, 381 125 630 186 3,457 407 1, 430 4,804 649 2, 316 Without bath and private flush toilet .. 21, 325 584 628 538 1,687 585 857 No report 21,056 328 156 134 13, 425 610 172 2, 630 29 1,090 1, 100 505 Sunning water in dwelling unit: 166, 153 13, 393 3, 115 52, 073 749 8, 825 23, 547 9, 460 16,583 Number 103, 252 5, 430 1,803 2. 321 81.4 Percent 86.9 79.6 63.8 73.0 92.1 80.7 67.6 88.1 59.0 73.6 78.8 73.8 Slectric lighting: 27, 327 4,438 19,162 Number 322. 794 5,508 2,179 2,237 171, 714 15, 275 1,512 56, 200 776 10, 360 81.2 77.3 77.2 97.9 92.2 78.4 95.8 61.1 80.2 91.6 98.0 94.3 Percent 92.9 44. 7 46.3 Percent of dwelling units substandard 34.3 47. 4 69. 2 53.9 26. 1 37. 4 55. 6 32.9 72. 4 50.4 51. 1

Source: 1940 Census, Housing, Second Series. 113 I Housing Representative, National Housing Agency PUGET SOUND REGION SUB-STANDARD:PERCENTWAR DWELLING Ar4DAUTHORITY POST HOUSIN( WAR UNITE DEVELOPMENT LOCATION C4PFi7Gr PORT

65 JE FE: LESS T 9¼ N 35% - Cc-.CITY / RmES SCALE 5 SILtS 10 to REGIONAL PLANNING COMMISSION PUGET SOUND l.DOrt CI War101111.ofle, Housing Hauling Slid R.gIo FPHA. Soofti.,Auhoa.ty SlimI.m *oahngton- at I ttcm U 1rspotld CATTLE. 14S wAsciNGroc FIGuRE 51. __'____\ Puget Sound Region, War and Post-War Development 115

TABLE 35.-Number of occupied dwelling units, by race of house- TABLE 37.-War housing programmed to May 1.943 for Puget hold, I'uget Sound area, April 1940 Sound localities

Public Private Number occupied dwelling units Percent Negro and County Other othgr New Conversion Conversion Total White Negro nonwhite New New nonwhite Locality familydormi- family tory Trailerscon- con- con- strue- Dormi- strue-FamilyDormi- Clallam 6,488 6, 278 11 199 3. tion strue-Familytory tion tory Island 2,018 2,006 10 tion Jefierson 2, 556 2, 531 2 23 0 3,476 5.0 King 169,125 164,092 1,557 20 Kitsap 13, 992 15, 754 47 191 1.7 Anacortes 155 50 5,616 3, 535 0 85 2.2 Bainbridge__ - 112 Mason 2 555 54, 711 53, 845 263 603 1.6 Bremerton 11,980 2, 615 300 Pierce 3 150 Pan Juan 1,035 1,001 34 3. 5 Everett 925 350 Skagit 11,098 10,977 117 1. 1 Keyport 1300 Snohomish 27,426 27, 195 64 167 .8 Oak Harbor4_ 225 45 100 Thurston 11,584 11,485 18 81 Port Angeles_ 140 5 Whatcom 18, 481 18, 288 16 177 0 Port Town- send 60 - 35 12 15 10 500 6,711 Total 322,130 314, 987 1,984 5,159 2.2 Seattle 10, 967 274 1, 200 Tacoma 3, 294 1,026 700 210 1,881 Wilkeson 30 10 Source: 1940 Census Housing, Second Series. TotaL_ 27,988 3,960 2, 335 710 400 9,351 15 10 TABLE 38.-Number of occupied dwelling units by tenure, Puget 1All units permanent construction. Sound area, April 1940 21,280 of these units are permanent. 385 of these units are permanent. 4The private priority quota shown for Anacortes is also available to Oak Harbor. Vacant dwelling Population 1940Occupied dwelling units units 100 of the new public family units are permanent. Per- 5 The Seattle program also covers Renton and Kirkland. 4,418 of the new public cent family units are permanent. The total public family units also includes 690 low-rent County home FPHA aided permanent units constructed prior to the war. TotalOwner- Tenant- For sale Not for owned 6 The Tacoma program also covers Fort Lewis.1,150 of the new public family Total occu- occu- sale or units are permanent. d eli or rent rent ing unit- pied pied pied Source: National Housing Agency.

Clallam 21, 848 3. 37 6, 488 3, 971 2, 517 257 171 61. 2 Island 6,098 3. 02 2,018 1,466 552 399 444 72. 6 Of immediate importance to planning possibilities Jefferson - - - 8, 918 3. 49 2, 556 1, 544 1,032 274 133 60.4 King 504, 980 2. 99169, 125 86, 069 83,05611,009 3,017 50. 9 affecting housing in the region are the following neces- Kitsap 44, 387 3. 1713, 992 8,863 3, 129 1, 549 1, 262 63. 3 Mason 11, 603 3. 21 3, 616 2, 196 1,420 496 551 60. 7 sary conditions: Pierce 182, 081 3. 3354, 711 33, 191 21, 520 3,461 1, 200 60. 7 SanJuan. 3,157 3.05 1,035 628 407 151 109 60.7 Amendment of the Lanham Act to permit the utilization Skagit 37, 650 3. 39 11,098 7,416 3,682 470 267 66.8 Snohomish. 88,750 3.2427, 426 17, 868 9,558 2,132 681 65.1 of such permanent war housing as is economically feasible to Thurston.... 37, 285 3. 22 11, 584 7,242 4, 342 1, 019 377 62. 5 Whatcom - 60,352 3. 27 18,481 12, 260 6, 221 1,652 466 66. 3 meet needs of low-income families in the localities in which Under the present provisions of the Lanham TotaL 1,007,112 3.13 322, 130182, 714 139, 41622, 869 8,678 56.8 they are located. Act, none of this housing can be so utilized. Source: 1940 Census, Housing, Second Series. The adoption of a clearly developed policy of expediting the disposition of temporary war housing with a minimum of this region have always emphasized individuality, em- hardship for the communities involved and their respective ploying the use of local building materials with the ideal populations. of a house and garden uppermost in the promotion of An acceptance of the necessity for eliminating blighted urban and rural areas through the demolition of substandard new home construction.All of these factors serve to dwellings and concurrent provision of facilities for the dis- introduction of im- pave the way psychologically for the possessed population. proved technological considerations if the natural in- The development of a satisfactory national policy which ertia of the building fraternity is reduced, adequate f a- will permit a maximum of Federal assistance to both publicly cilities and arrangements developed for a mutual partic- financed and insured-loan privately financed home construction. ipation of public and private capital, and, of most im- The continued integration of the potential ideal housing portance, a planned set of principles promulgatedfor pattern with over-all planning considerations for the region. acceptance by the region and integrated with an over- The constant stimulation and development of strong local housing authorities to the end of their assuming local respon- all conception of desirable planning considerations. sibility for meeting housing needs through the participation of As a measure of the volume of war housing that has private enterprise and complementary publicly financed dwell- been provided and as an indication of the extent of the ings for those low-income persoas unable to secure satisfactory problem of disposition which faces us in the post-war standard housing through the efforts of private enterprise. period, table 37 is provided.This table shows the Cooperation with all attempts effectively to guarantee amount of war housing by type of construction forall such legislative provisions as are necessary to thefulfillment of localities in the region. the above on both the Federal and local levels. PART III 10. RECREATIONAL FACILITIES By Resources Committee, Puget Sound Regional Planning Commission1

Recreational facilities now exist in the Puget Sound TABLE 38.Summary or forest service camps, facilities, and region on a scale sufficient not oniy to provide for all attendance in the natioiwZ rorests of Pu get Sound area, 1937 the needs of the local population but to furnish national playgrounds for millions of visitors annually. The National forest region is blessed with outstanding attractions which item Total MountOlympic Snoqual- serve the nation as well as the people of the region Baker mie itself. Number of camps 23 19 28 70 Recreation ranks sufficiently high Average distance to supplies 9 7 5 as a producer of Number of camps with trailer space 16 12 9 Total trailer space 54 37 43 income for the regional economy to be classedas an Number of camps with fishing 21 16 25 industry. Number of.camps with boating O 4 2 Despite the considerable industrial expan- Number of camps with hunting 10 4 21 sion now under way to meet war needs, the great Number of camps with swimming 0 5 0 recrea- Number of camps with winter sports 0 2 0 Number of camps with stoves 20 17 27 tional values of the Puget Sound countryare being Total number of stoves 258 178 362 Number of camps with fireplaces 0 0 3 preserved to serve as a source of income and enjoyment Number of camps with tables 23 17 27 Total number of tables 323 204 465 after the war. Number of camps with water 21 18 28 Number of community kitchens 7 6 6 Only in recreational facilities of the neighborhood Number of camps with toilets 23 19 28 Total number of toilets 84 69 116 playground type in urban, suburban, and isolated rural Number of campers 18,203 19,500 92,010 129,713 Number of picknickers 56, 135 29,200 95,915 181,250 areas is there a deficiency.Adequate library facilities Number of hotel and resort guests 33, 375 45,700 9,650 89,725 Numbcr of summer home residents and are also lacking in some of the same areas. guests 150 1,200 15,700 17,050 Total attendance A general over-all description of availablerecrea- 107,863 96,600 213,275 417,738 tional facilities, together with an enumeration of those Source: United States Forest Service. still needed, follows. Recreation in National Forests An outstanding development in the Snoqualmie Na- tional Forest is a trail system with numerouscamps. Within national forests readily reached by people Similar but probably less intensive developments,par- o the region, 659 forest camps comprise an area of 3,767 ticularly in the high mountainous country, may be found acres.Figure 52 shows the proximity of national for- in other national forests. ests and national parks to the populated centers of the Within the forests are 180 tracts which have been region, while figure 53 shows the location of public surveyed into lots for summer homes.In all, these forest camps and other accommodations. Camp facili- tracts total approximately 2,600 acres.Also there are a ties are limited mainly to stoves, fireplaces, tabhs, limited number of resort areas operated by individuals toilets, water systems, and other improvements designed or associations under special use permits to serve the for use by large numbers of people but conformingto normal needs of the traveling public. forest surroundings. Facilities available aresumn-ia- Although transportation systems in the national for- rized in table 38. ests are primarily for fire control purposes, many of the Nearly a million acres in two large tracts in theregion have been set aside fishing streams, lakes and hunting grounds have been s primitive areas: the North made accessible by roads and trails, except during ex- Cascade, and the Olympic. (See fig. 53.)Other des- treme dry weather when areas of high fire hazard may ignated recreation areas in the national forestsare be closed to public ,use as a fire protection measure. Glacier Peak recreation area, 233,600acres, and Mount Roads are not constructed within primitive areas. Baker recreation area, 74,859, acres. The North Fork The Cascade Crest trail, which traverses the Cascade Nooksack natural area, 1,495 acres, is set asideto preserve representative species of forest growth. Mountains from the Canadian line to the Columbia River on or as near the summit as practicable, provides Source of information. Washington State Planning Council, A Study 530 miles of foot and horse trails with numerous side of Parks, Parkways, and Recreational Areas, 1941. trips and alternate routes through the Mount Baker, 116 PUGET SOUND REGION -- WAR ANDINDIAN POST WAR RESERVATIONS, DEVELOPMENT BAKER AT ION NATIONAL FORESTS,NATIONAL PARKS £I$C RTS "no000CLO r'm P capt I, iUPIVILL( PORT AMGL1S TULAL P P GLMEGOAT LAKEEFUGE ULLLAYUTEND. PES. HUH ND RES T ONL QUINAULT NDLAN RES JEFF RoN KITSAP UCHaRO FOSSGAME RIVER REFUGE OLYMPC N F SKO(OMtSp, SMELl to 0 MASON T$CQMA U*LL0 PUGET SOUNDSCALC N N LCS NATLNAIL. PARKS FORESTS SOURCE: U S Deportment of MT. RANERNP. REG ONAL PLANNING COMM SS ON SEATTLE 1N43 WASHINGTON NAT'LGAMEINDIAN FORESTREFUGES RES. interior and U S. Forest Service. PUGET SOUND REGION YNOLfi sir. WAR AND POST WAR DEVELOPMENT RECREATIONAL FACILITIES - CASCADE rreoc,. F. NJIQ Aft RTS oo BAKER rt4rr(Rr C4P( / L NAT ONAL S K OPEAG1 I t. jJ I- PPT L(S Atrtv,ui flLtNGQM SNOWNERSHIP STATENATIONAL CLI AM M OI,mpt £UMDS SNOHOM S II UALM E MUC COUNTY MUNICIPAL (NON ')L r'c1 PARKS ON AL ?\TIOJ- A - A PRIMITIVEFORESTS AREAS JCcFER$N K ITS A P ORCI*flO ht firing A A CAMP GROUNDS / A OLrMPC NATIONAl EST U- 0 a: uJ F- AIA ORGANIZATIONPARKCOMMERCIAL CAMP GROU CAMPS CAMPS L._.., r'- - £00e01 SCALE 0 N N 1(8 to MASON UCOMA PIJYALLUP O*tlNS PUGET SOUND GAME REFUGES .- A I SOURCE- Slody ol Parks, Parkwoys, REG ONAL PLANNING COMM SS ON SEAT1L, WASHINGTON 048 FISHGAME HATCHER FARMS ES -URSTON 1' CAT0uIVIII - N i9L NationalSlateand Recreational Planning Pork Seruice Council Areas by Washington (with I¶_; Fioui 53 \ PIEW.O Pu get Sound Region, War and Post-War Development 119

TABLE 39.Washington State parks, Pu'et Sound region, 1.940 data

No. Name of park Developed County Location Attendance

304 Bay View P Yes 14 Skagit Smiles west of Mount Vernon. 306 Bogachiel P No 120 Clallam 8 miles south of Forks 307 Bridle Trail P Yes 480 King 1 mile east of Kirkland 308 Clearwater P No 10 Jefferson Sec. 19, P.24, N. R. 12W 310 Deception Pass P Yes------1,986 Island, Skagit 18 miles west of Mount Vernon 69, 076 311 Des Moines W Yes I King 1 mile north of Des Moines 312 Donovan W No 3 Skagit 5 miles west of Sedro Woolley 314 Edmosids P No 2 Snohomish WestsideofEdmonds 317 Illahee P Yes 13 Kitsap 3 miles north of Bremerton 321 Larrabee P Yes 1, 220 Whatcom 8 miles south of Bellingham - 33, 100 324 Mahier P No 30 King 2 miles west of Enumelaw 326 Millersylvania P Yes 760 Thurston 10 miles south of Olympia. 71, 000 327 Moran P-WL Yes 1,030 San Juan Orcas Island 10, 245 329 Ocean View P No 136 Jefferson 25 miles south of Forks 334 Rigney P \ o 2 Pierce I mile south of Tacoma 339 Saltwater P Yes 92 King 17 miles south of Seattle 340 Sam Hill MemoriaL P Yes S Whatcom U. S-Canadian boundary, Blaisse 341 Sammamish W No 5 King 5 miles east of Redmond 342 Schafer P Yes 14 Mason 13 miles north of Montesano 16, 000 343 Sequim Bay P Yes 85 Clallam 20 miles east of Port Angeles 43, 610 346 Pwanoh P Yes 167 Mason 24 miles west of Bremerton 76, 900 347 Vashon W No 5 King Vashon Island 349 Women's Federation 2 P No 62 King 12 miles north of North Bend

1Symbols for classification: P=parks; WLwildlife; W=waysides. 2Replaced by purchase of 233 acres of timber along N aches Highway Source: Washington State Planning Council. Chelan, Wenatchee, Snoqualmie, and Columbia Na- The 1937 Legislature gave stimulus to the county park tional Forests. plan by authorizing counties to acquire areas by pur- For permanent preservation for scenic and recrea- chase, donation, gift, or dedication which might be used tional purposes there has been created the Mather Me- for camping, scenic-view, recreation sites, and parks for morial Parkway, a half mile strip on each side of the public use and enjoyment. Naches Highway throughout its entire length of 47 Metropolitan and Municipal Nonurban Parks miles within the Snoqualmie National Forest.Par- Point Defiance park, a 640-acre plot located within ticular care is being taken to preserve the roadside cover the city of Tacoma on a heavily wooded peninsula jut- in its native state. ting into the protected waters of Puget Sound, is the State-Owned Recreational Areas outstanding metropolitan park of the State.The park has wide tourist as well as local appeal and yearly at- The region has a number of State parks, of which tendance figures crowd the half million mark. The possibly the most outstanding are Deception Pass. Seattle Park Board maintains two noteworthy muthci- Moran, and Twanoh. Accurate attendance count has pal nonurban water-front parks, Carkeek and 0. 0. never been kept on all the developed State parks.Fig- Denny, only a few miles from Seattle.(See fig. 53.) ures for 1940 for the most popular are shown in table 39 Another area, the secondary use of which is recreation, along with other State park information. The location is the site of Seattle's city light hydroelectric power de- of State recreation facilities is shown on figure 53. velopment which lies 150 miles northeast of Seattle on From an analysis of the complete data secured on the Skagit River in the primitive northern Cascades. 10 of the parks, Saturday and Sunday use is generally Round trip 2-day excursions from Seattle for 750 per- slightly more than total weekday use.More general sons at a time are featured with all accommodations fur- weekday use is made of parks located near population nished at cost. centers.This suggests the great desirability of parks Semipublic, Private, and Commercial Areas being easily accessible, a consideration which should be The region has many outstanding vacation resorts taken into account in future planning. operating on a high standard of service.(See fig. 53.) County-Owned Recreational Areas The comparative ease with which a resort of some form may be started, however, has been responsible for many Eight counties have acquired 59 park areas which low-standard, poorly operated establishments. have been developed or for which development plans The best opportunities for expansion in the commer- are under way. King County heads the list with cial field seem to be largely through satisfactory im- 36 areas, not all of which have been developed.The provement and normal development of existing facili- number of parks reported by other counties is: Island, ties.To eliminate any unfair advantages of public 8; Jefferson, 6; San Juan and Sijohomish, 3 each; Clal- versus private enterprise, a coordinated development lam, Kitsap and Mason, 1 each.(See fig. 53 for loca- program among all public and private agencies is tions.) strongly urged. 120 National Resources Planning Board Wildlife Resources skiing with the necessary facilities.Each of 10 areas The region's wildlife includes game, birds, and fish serves more than 5,000 persons during a season.Sno- of many varieties.Some conception of the economic qualmie Pass and Stampede Pass on the Sunset High- importance of wildlife is afforded by a study conducted way are intensively used because of their accessibility by the State game department, which estimates that and complete facilities.Silver Springs, which serves $28,500,000 were spent in the State in connection with the Enumclaw district, and the scenic area located near hunting and fishing in 1936.That these sports are the west entrance of the Great Northern Railway tun- enjoyed by an increasingly large number of persons is nel, are used to a certain extent.The Snoqualmie Ski indicated by the fact that 219,168 hunting and fishing Bowl, at Hyak on the eastern slope of the Cascades, is licenses were sold during 1939, an increase of 89,544 well developed for intensive use by large crowds.Stev- over 1933. A large number of persons enjoy merely ens Pass has been improved and a fine lodge built. observing wildlife in its natural habitat. Winter sports have developed so suddenly and ex- Despite earlier uncontrolled exploitation and the en- tensively that their popularity has far outstripped all croachments resulting from human habitation, the re- facilities.Public agencies have been unable to provide gion still possesses substantial wildlife resources due sufficient personnel properly to supervise the vast at least in part to the rehabilitation work of public throngs visiting these areas.The intense concentration agencies.Most of the native species of big game, birds, of great numbers of people on limited winter play- and fish are still present in varying numbers and several grounds has created new administrative problems be- from other regions have been introduced. Game ref- cause agencies heretofore have been organized to admin- uges, game farms, and fish hatcheries are shown on ister recreational areas for summer use only. tigures 52 and 53. The most pressing needs include cleared slopes, easily accessible from highways, where novices may practice, Winter Sports Facilities and steep, clear slopes and jumps for the more ex- Although there had been some earlier devotees, the perienced skiers.Down-hill trails must be cleared and sport of skiing really began to attract general public widened and all trails properly marked.Public com- interest about 1930 and from that year its progress has fort stations,shelters, waiming-huts, and first-aid been most rapid. By 1939 the Pacific Northwestern stations should be provided.Ski patrols should be Ski Association contained about 30 ski clubs.In addi- organized and properly equipped to care for injured tion there are a large number of small unaffiliated persons. groups.in 1923 the skiing public could be counted in hundreds; in 1939 a conservative estimate would place Water Recreational Opportunities the number of persons who ski at 100,000. In Puget Sound, with its 2,000 miles of forest- Mount Rainier National Park is one of the .N ation's bordered shore line, the region has one of the world's outstanding winter sports areas.Unlimited ski terrain greatest natural landlocked harbors. The steep gravel in and above Paradise Valley on the south side of Mount beaches are ideal for picnicking, bathing, and clam Rainier and good runs in Cayuse Pass, located in the digging.Across the Strait of Juan de Fuca lie the 172 northwest corner of the park, now attract nearly 100,000 scenic San Juan Islands and to the north stretches the skiers during winter months. As many as 8,000 have famous Inside Passage to Alaska. The climate is so attended during a single day.Tipsoo Lake, at Chinook mild that boats are kept in commission all winter and Pass, is used by a few skiers. regattas are held on New Year's Day. Deer Park, located 23 miles from Port Angeles in the Nine active yacht clubs account for only a small Olympic National Park, furnishes skiing for residents proportion of the fleet of pleasure craft constantly cruis- of Port Angeles, Port Townsend, and the northern part ing these waters.Almost half of these are outboard of the Olympic Peninsula.During the 1937-38 sea- craft, and 3,000 are rental boats used chiefly for son its attendance was approximately 5,500. salt water sport fishing.Some of the finest seagoing At Mount Baker snow conditions are excellent and sail and power yachts are registered and in addition complete facilities and accommodations, including a ski- many out-of-state craft are always present.During tow, make it one of the best winter sports areas in the the summer months public carrier ships are used by State.The total 1937-38 season attendance was about great numbers of people for week-end cruises into 42,000, with a peak day of 5,000.Approximately 2,000 Canadian waters. out-of-State skiers visit this area during the season. Another water recreation is sport fishing.Recent The national forests along the Cascade Range offer years have seen a tremendous increase in its popularity. unlimited opportunities for winter sports development. The sport is enjoyed the year round, but the climax Under the Forest Service 31 areas have been opened for of the season is on Labor Day when the finals of the Puget ASound Region, War and Post-War Development 121 salmon derbies are held and substantial prizes are ing northward along the coast for approximately 40 awarded for the biggest fish caught. miles.The Cascade Mountains, in which there are al- In addition to the recreation provided, the direct ready recreational areas of outstanding State and Na- employment due to pleasure boating and sport fishing tional importance, should be given close study to is a distinct economic factor.Boats, sails, marine determine the best land uses of the various subregions. engines and supplies, maintenance and docking facili- Possibly recreation is the chief use in certain remain- ties, fishing tackle, outdoor clothing, and other equip- ing portions not now so designated. inent must all be purchased and maintained. No reli- Parkways and Scenic Highways able figures are available to show the economic importance of water sports activities but it is known that The most highly developed motorway for recreational the amount of money which enters the channels of travel is the parkway, winch may be defined as an elongated landscaped park traversed by a paved motorway, trade as a result is considerable. The parkway Swimming is an important recreation for the young the primary use of which is recreation. type of motorway may be properly applied to all zones It deserves special consideration, especially and active. of unusual natural beauty and supplemented with such in its relation to the population pattern.Some muni- cipalities are noted for their provision of public artificial landscaping as the surroundings justify. The parkway may also be applied to excellent advantage be- beaches or pools adequately patrolled.Unfortunately, many ideally located natural bathing spots are made tween large cities on such stretches as those between Everett, Seattle, and Tacoma, where traffic volume and unfit for use through contamination by sewage or mine opportunities for pleasure driving suggest this type of or industrial wastes.Some corrective steps are being treatment. taken and it is hoped that the State department of Since outdoor recreation in Washington is largely health will press its corrective program, especially near dependent upon highway transportation, highway and urban centers. recreational development should be closely coordinated. Possibilities for development of water-sports facili- Roadside development programs should be expanded ties are almost unlimited.The State parks committee to include areas of scientific interest, scenic vistas, and could assist this enterprise by providing needed dock- picnic spots with convenience facilities erected for gen- age at vantage points in State parks suchas that at eral public use. Deception Pass.The State still retains title to about One of the region's most valuable and easily destruc- 1,500 miles of tide and shoreland and it is recommended tible natural resources consists of stretches of timber that the State land commissioner consult with the State bordering its highways.Both economic and esthetic parks committee on the advisability of setting aside interests dictate that roadside timber be preserved additional water front for public use. wherever possible.Today throughout western Wash- Other Sports ington, roadside stands all too rapidly are falling before Approximately 1,400 persons hold membership in or- the axe and fire.Tinibered stretches along highways ganized outing clubs in the region.Most of the groups passing through national forests are being preserved, participate in mountain climbing, hiking, ansi skiing. as are those in national parks.Most of the existing Cabins are maintained in the mountains for use by timbered stretches needing and worthy of protection members.The Cascade Trail is used extensively in are in private ownership.Interest, carrying charges their activities. and taxes operate to encourage liquidation of forest Attendance figures show that about 400,000 golfers holdings,articularly the more accessible timber along played on the 13 Seattle courses alone during 1938. the roads, which, by virtue of its location, usually is This was approximately the total population of the assessed at higher values.Public ownership of most city and immediate suburbs not served by other golf of the suitable forested stretches is imperative if these courses and indicates the presence of about 8,000 weekly are to be preserved.The. first step in such a program players in the area. calls for a detailed survey of all highways in the region for the purpose of locating: (1) All stands of virgin tim- Potential Areas ber, (2) scattered groups of trees valuable as scenic as- In order adequately to meet increasing needs for addi- sets, and (3) logged-off areas on which reforestation tional park facilities and to insure the preservation of should be encouraged.Ownership maps should be pre- additional prominent scenic areas and historic sites, ac- pared of such locations, together with legal descriptions tion should be taken to add to the State parks system of sections or fractions thereof recommended for pur- such areas as Ozette Lake and adjacent land extending chase.Special attention should be given the following to the ocean, including a heavily timbered strip extend- areas: (1) The Naches highway east of Enumclaw and

534268-43 9 122 National Resources Planning Board adjacent to the western boundary of Snoqualmie Na- Seattle parks are even less adequate when locations tional Forest; (2) the loop drive on the Olympic Penin- are studied in respect to habitation and population sula;(3)Stevens Pass highway.Counties with density. Of 5 of the largest parks which total forested and cut-over lands acquired through tax delin- 915.72 acres, 4 are concentrated in but 2 districts.One quency and adjoining highways should retain owner- district has 46 people to an acre of park and some have ship until studies indicate whether they are more valu- over 1,000 per acre.There are 25 mile-square sections able for roadside borders than for otherpurposes. with no parks and over 100,000 persons.Seattle's 5 In the lay-out and construction of new highways first large parks include half of the total park acreage of the consideration should be given to their scenic and recre- city and the distribution of the remaining parks is such ational possibilities.In making locations of scenic that approximately one-third of the city and one-fifth highways special consideration should be given to blend- of the population have no park within walking distance. ing the road with natural topography and to connecting If the city's population doubles by filling up the present parks and scenic points.They should be amply pro- vacant property, park ratios will be such that Seattle tected from undesirable encroachments bymeans of will have only one-fourth as much park area as is con- highway zoning and wide rights-of-way. sidered desirable.In varying degrees this is the prob- Urban Facilities lem of all the èities in the area.It is recommended that Greater areas in openspaces and more parks and cityplans,housing developments, industrial playfields are needed in all the cities of Puget Sound. developments, and urban rehabilitation take park loca- In some of the cities, it is true, it is not quantity that tions into account, because considerations such as prop- is lacking but advantageous location inrespect to the erty valuation, cost of city government, decentralization density of population. Newareas for recreation should and congestion warrant heavy expenditures inpro- viding recreational facilities as a health-wealth balance. be located after determination of need, followingcare- fully prepared city plans. Library Facilities Areas are needed adjacent to industrial plants for noonday relaxation and other purposes.Areas are Public library facilities located as shownon figure 54 indicate a distribution not entirely commensurate with needed likewise in the shopping centers.Every family in the residential districts needs within short walking population needs.Recent State laws make possible distance an open park with play spots for small children the establishment of rural as well as city libraries, financed locally. besides the regulation playfield for school children and Even a small percent of the money now spent on commercialized amusements and cheap adults.The region is blessed with outstanding week- reading matter would suffice to provide a much-needed end recreational spots, but the spacesopen daily are not up to the average. library system over the whole area.Existing libraries Even the cities with the best recrea- report an almost universal demand for more new books, tional facilities still have barren spots. An analysis of better circulation methods, and larger central library Seattle's recreational facilities portraysa typical con- book reserves. dition common as well to smaller cities.Even where It is recommended that at least $25,000 annually be facilities are provided, there is insufficient supervision, spent for public library expansion in the region.As personnel and organized activities.This is a field in space is usually available to some degree, most of this which many more persons should be employedas trained money should be spent for equipment and books. supervisors, landscape architects, assistants, and maintenance employees. Conclusions While no national norm can be established, themean average ratio of park and playground to total city area Preservation and development of the region's out- in 16 selected cities in 3.98 percent, varying widely from standing scenic and recreational resources is today's pressing responsibility. 0.45 percent to 13.07 percent. A city havinga popula- To meet this challenge it is recommended: tion comparable to Seattle has 7.78 percent of its total area in parks and playfields.Seattle has 4.7 percent of That in the development of areas set aside for recreational, its total area in these open spaces, less than half of historic, scenic, or scientific values, care be taken to exclude an uses which would jeopardize these values. accepted standard of 10 percent.In the 16 cities men- That the State legislature divide the region into three tioned, there is a variation from 0.68 acres of parkper State park areas, each of which shall have a district committee 100 population to almost 1 acre per 100.Seattle has to aid the State parks committee and its supervisor in the de- 0.479 acres per 100 population, or 1 acre for each 231 velopment of State parks within its area, to procure enlarge- people. By contrast, 1 city in the State, not in this ment of park areas where this is deemed advisable, to foster local use of the parks in each area, and to make recommenda- area, has an acre for each 50 persons. tions to the State parks committee and its supervisor for needed WAR AND POST PUGETWAR DEVELOPMENT SOUND REGION t47 Puget SoundRegion,WarandPost-WarDeveZopment HEALTH FACiLITIES WHATCOM ND THEIR DISTRIBUTION Pot._ (1c;3 \ DDtt U. ------/ f IOUNT VINNON U... Ciac,,, Peeb Jf I,, JsQMj1_ O5PITALSOVERNENTRWAT P TU8ERCULO$L$ASUPPORTED1'rSCIAN$ $ OE TE. $ JEFFERSO - EGISTEREDLIRSE$ENflS?S + I $ $ 831 524 KEY + . PUV*LutP U- ,_liii + 2100SE All L E to PD TACOMA ""L WM 4 SOURCE Stote OOb> \ isu(-4.4 4 . ,It, Ja, I ) Univ.of}-ieolthDeportment Sociology of ;Oeportmnent WoStcglOr of REG ONAL PLANNING COMM SS ON PUGET SOUND 40 NO $ a tJIk4+*4*L Lj- SEATTLE, I43 WASHINGTON 23OLMIN+ ST THJRsroj' -" PIERCE t... 124 Nat onal Resources P7a'mning Board improvements and the judicious local expenditure of funds That in constructing new roads and in improving existing allotted to that area.Proposed park district division of the roads the State highway department take into account the Puget Sound area is as follows: needs of bicyclists and pedestrians. That public agencies administering winter sports areas make every effort to secure sufficient funds for adequate shelters, Counties Population sanitation facilities, and additional ski courses, including practice courses and instructors for beginners. District 1: That the State parks committee give greater consider- 8 State parks Clallam 1, 726 21,848 ation to facilities for pleasure boating in all State parks Jeflerson 1,747 8,918 Mason 930 11,603 offering opportunities therefor and make a thorough survey of Thurston 709 37, 285 the shorelands of Puget Sound to locate, acquire, and develop Total 5,112 79,654 desirable sites with facilities for pleasure boating. District 2: That the State department of health, having in mind the 7 State parks San Juan 178 3, 157 Island 208 6,098 place of industry in the State's economy, urgently prosecute its Whatcom 2,082 60, 355 program for the elimination of pollution in fresh water and Skagit 1, 774 37, 650 Snohomish 2,664 88,754 tidal areas used for recreational purposes. Total 6,906 196,014 That the State parks committee study the approximately District 3: 1,500 miles of tide and shorelands, title to which is now held 10 State parks King 2, 111 504, 980 by the State, with a view to furnishing adequate bathing facili- Pierce 1,701 182,081 Kitsap 371 44,387 ties close to urban centers. That further study be made of the problem of protective Total 4,383 731, 448 highway districts and legislation be prepared which will permit establishing such districts. That there be continued and expanded support of State That further study be made to determine location and parks by public funds. ownership of roadside timber and lands suitable for reforesta- That the State expand its program for the training of tion which are desirable for acquisition and preservation, and leaders for organized camping activities and foster the estab- that State, Federal, county and private agencies promote neces- lishment of youth' camps, giving special consideration to sites sary legislation acquiring desirable roadside forest lands in easily accessible to centers of population. public ownership for preservation through purchase, exchange, That the Federal Government cooperate in the State's condemnation, or gift. organized camping program by training personnel and provid- That the State highway department's policy of establishing organized camp facilities where needed on Federal camp ing turn-outs and markers at points of historic and scenic inter- land, with particular attention to providing facilities for inex- est be expanded as rapidly as feasible. pensive winter sports. That the highway department in its future planning give That a youth camping agency be established under the State attention to the development of parkways and scenic highways department of education to coordinate plans of all agencies along Puget Sound, the Olympic Peninsula and Naches Pass. concerned with human resources. That priority be given to the acquisition of potential areas That the State health department make inspection of or- which will round out a well-balanced system of State parks. ganized camps and enforce laws pertaining to health and sani- That the State parks committee give special attention tation, preparing for each camp a rating sheet, based upon proper to supplying facilities for the recreational and cultural needs laws of health and sanitation, available to the public. of sparsely settled communities. That public agencies in their development programs co- That the cities and the counties develop in the more popu- operate with private operators who are rendering a worthy lated areas, facilities carefully located, planned, and supervised public service so that public developments will not jeopardize adequately to meet the recreational and cultural requirements of private investments. their people. PART III ii. MEDICAL AND PUBLIC HEALTH SERVICES By Public Health Committee, Puget Sound Regional Planning Commission'

Distribution TABLE 40.Medicol and hospital facilities, Puget Sound region, 1940 The distribution of hospitals, physicians, nurses, and (See fig. Regis- dentists closely follows population density. Popn- GeneralteredPopu- Num- lotion Hos- Tuber-beds nurseslation 55.) This leaves some incorporated towns and the County Popula-ber A per pital culosis general per tion 1940physi- beds I 1,000 regis- thinly populated districts of the Olympic Peninsula cians physi- beds practi-tered clsn lationtioners nurss and the Cascades without adequate medical services. 1940

The hospitals are concentrated even more heavily Clallam 21, 848 IS 1, 214 172 0 7. 87 90 243 Island 6, 098 3 2, 031 0 0 0 9 678 in the north and south belt, leaving additional areas Iefferson- 8,918 8 1,115 130 0 14.5 20 446 King 504, 980 909 555 2, 914 771 1. 77 2, 245 221 without adequate hospitalization facilities, though they Kitsap 44, 387 50 888 203 0 4. 57 130 341 Mason 11, 603 8 1, 450 47 0 4. 05 41 283 have physicians and a population warranting such ser- Pierce 2 179, 398 275 652 827 281 4. 09 704 255 San Juan. 3,157 3 1,052 0 0 0 7 451 vice.National surveys show that where hospitals are Skagit 35,600 20 1,227 152 0 4.27 121 294 Snobossstsh 88, 754 79 1,123 435 59 4.01 251 354 at a distance they tend not to be used by families Timrston_ 37, 285 45 828 100 0 2.86 102 361 of low income, even when cases urgently require Whatcsm 60, 355 59 1,023 258 0 4.22 193 313 hospitalization. 1940 tstal 1,002,581 1,486 675 5,239 1,115 1.22 3,911 256 Among the 15 incorporated towns without doctors, I Army, Navy, and Marine hospitals, and State mental hospitals are net included. 2 2.683 mental cases not included. eight have registered nurses or are within five miles of 2,050 snental cases not included. Sources: Stats Department of Licenses, Washington State Department of Health, towns having doctors.Five towns, three of which Jessnsal, American Medical Associatisn, and Washington State Nurses Association, have only nurses, are more than five miles from a town Inc. which has a doctor.All are in Skagit and Snohomish If tile 1940 ratio of 1 doctor to each 675 persons or 148 Counties. per 100,000 population is maintained, some 1,850 phy- Table 40 indicates the uneven distribution of medical sicians would be required, an increase of 850.This and hospital facilities.These were the conditions as need very likely will become greater rather than less, of .1940, prior to changes caused by the war.Since as the population is still increasing and will probably 1940 there has occurred a marked decrease in the num- not be reduced, although there may be a shifting of ber of physicians and nurses and a very great in- population within the area. crease in population, which has magnified the shortage A comparison with ratios of population per phy- of medical and hospital facilities.After the war the sician existing elsewhere in the United States indicates region should provide an attractive field for employ- the Puget Sound region's position in this regard. ment -for a greater number of the medical and health Standards based upon the 1938 national distribution of profession.The people have been accustomed to bet- medical forces indicate that 1 physician to 613 peo- ter than average medical services.Continuing prior ple, or 163 physicians to 100,000 population, was the standards, the increase in population will demand an highest rate in the United States on an area basis.Lo- increase in hospital facilities and in the number of medical surveys show that prior to 1940 there was 1 phy- cal practitioners, nurses, dentists, public health officers, sician to 555 people in King County or 180 physicians public health nurses, sanitarians, and bacteriologists. to 100,000 people. A 1938 national survey showed: In Southern States, 1 physician to 1,063 population, or 94 Physicians physicians to 100,000 population; Central States, 1 physician Since the beginning of the war, the number of phy- to 770 population or 130 physicians to 100,000 population; North- sicians in the region has decreased to about 1,000. eastern states, 1 physician to 1313 population or 103 physicians to 100000 population; Western States, 1 physician to 689 popu- 1 Sources used in the preparation of this section include the following lation or 115 physicians to 100,000 population. Hospital statistics, Journal of the American. Medical Association, March 28, 1942, Vol. 118, No. 13 ;dentists, State Department of Licenses: National surveys indicate that physicians do not physicians, State Departmcnt of Licenses, and Public Health Reports, necessarIly follow the greatest density of population Vol. 57, No. 37, 44, 47; public health personnel, washington State De- partment of i-lealth ; nurses, Washington State Nurses Association, Inc. ot' the areas where people have the highest incomes. 125 WAR AND POST WARPUGET DEVELOPMENT SOUND REGION ,. 0 3atRr5 01ST R I CT HIGH S CHOOLCENTER WHATCOM AND LIB RARIEC RTES fLATItRY 64P(!j7ôS 1 IJ1 Y(RON SKAGI T '/eoO !I81Q Goc,e, j Pa FIGURE 55. EVERTT SNONOM SN

IN-flGH EX SCROOLSTENCELUB ORD(STRAND UNDER PR CT VATELY CENTERS STUDY SUPPORTE National ResourceePlanningBoard BLO LRRARY S WH CH G VE FREE SERV KING 0 M ASON GYMPA PUGET SOUND - 4. ¶c1,Go$I.Sta?,SO U MC ES- C REGIONAL PLANNING COMM SS ON SEATTLE, 945 WASHINGTON S TON TZIsiNO , - PIERCE ,- -- ond Cuuny CrIsI???.,,oronI:tion Sv Pug'et Sound Region, War and Post-War Development 127

They tend to locate near training centers and good Requ4red for special cases hospital facilities.They also are attracted to areas Contagious diseases_. 0.5 beds per 1,000 population. having good roads. Children's diseases__ 0.5 beds per 1,000 population. Maternity cases 0.45 beds per 1,000 population. Nurses Total 1.45 beds per 1,000 population. The 'Washington State Nurses Association, Inc., Tuberculosis - 3 times number of annualdeaths (for found in a survey made for this report that the dis- the Puget Sound region this would mean tribution of nurses is poor (see fig. 55) and is not always about 1,200 beds). related to the needs of the community. Employment of nurses depends upon number and activity of hos- Requirei for general cases pitals, doctors, and public health agencies in a given Normal . 3.75 beds per 1,000 population. area.Industries have been an increasing factor in the For peak loads 1.25 beds per 1,000 population. employment of nurses, using them in increasing num- Total 5.00 beds per 1,000 population. bers. Good salaries and living conditions play a part If Kitsap County has 140,000 population it would thus need in attracting nurses from less favorable areas.Nurses a total of: 70 beds, contagious bases; 70 beds, children's cases; tend to be more mobile than doctors and dentists, and 63 beds, maternity cases; 17 beds, tuberculous cases, estimated; as many are married, their availability is influenced by 700 beds, general cases; 920 total beds. their husband's place of employment, his salary, and There are now (1943) 343 beds in the county; there is needed the prospects of raising a family. therefore, according to these standards, an additional 577 beds. There were in the Puget Sound region in 1940 a total For a population of 1,250,000 in the region there of 3,913 registered nurses. Among these are 143 public should be 8,062 hospital beds for general, contagious, health nurses, distributed as follows: children's, and maternity cases, and, in addition, 1,200 tuberculosis sanatorium beds. Any additional tubercu- Clallam and Jefferson Counties 7 San Juan County 1 losis sanitorium facilities should include one large Island County 1 central institution in the Puget Sound area equipped Whatcom County 9 for occupational therapy and rehabilitation work, Skagit County 3 which small scattered canatoria can ill afford to finance. Snohomish County 9 King County 5 Dentists Pierce County 35 Distribution of dentists follows quite closely that of Mason and Thurston Counties 8 (See fig. 55.)There were Kitsap County 11 hospitals and physicians. 891 dentists in this area in 1940, distributed as follows: According to American Medical Association stand- Clallam County 11 ards, the region should have 5,000 nurses for its present Island County 2 estimated population of 1,250,000. Jefferson County 5 King County 561 Hospitals Kitsap County 34 Using a 1940 population figure of 1,002,383 (which Mason County 5 Pierce County 129 excludes patients in the two State institutions for the San Juan County 2 insane) the number of hospital beds (exclusive of those Skagit County 24 in Army, Navy, and Marine hospitals) for each 1,000 Snohomish County 46 of the civilian population was 5.22; i.e., 5,239 beds Thurston County 26 total.'The present population, conservativelyesti- Whatcom County 46 mated, is 1,250,000.This population would normally Public Health Personnel require, at a rate of 5 beds per 1,000, a total of 6,250 Full-time public health officers in the region are lo- beds.Hospitals now under construction or planned cated only in the following places: Clallarn and Kitsap will provide 540 more beds, making a total of 5,779 beds. Counties, Pierce County and city of Tacoma, King There is thus a need for building hospitals having 471 County and city of Seattle, Snohomish, Mason, and beds.As 100 of the existing beds are in obsolete build- Thurston Counties. ings, 571 are needed to bring hospital facilities up to 5 Public health officials recommend 1 public health beds per 1,000, approximately the standard that pre- nurse for each 5,000 population; thus for 1,250,000 vailed in 1940. population, 250 nurses are needed. This standard would If we folloW the hospital standards proposed by the require an addition of 110 nurses to the present 140. American Medical Association, the number of beds More public health officers, sanitarians, and bacteri- required would be as follows: ologists are needed, at least 1 to every 20,000 popula- 128 National Resource8 Planning Board tion.Thus this personnel in the aggregate at the Medical Insurance present time is at least 50 short. In some counties medical and hospitalization insur- Various departments of the State government, with ance systems are in operation.This service is given local cooperation in some instances, are responsible for in one instance by a "County Medical Board" consisting the following public health activities and services ren- of all county physicians, who have incorporated on a dered in the Puget Sound region. more or less experimental basis to work in an area For general medical care of the needyPromote local pro- largely rural in character. grams; supervise and provide consultation service for local Many industries have medical insurance systems for organizations; distribute and administer financial grants-in-aid through general relief funds to local units for general home, workers only.There is a public demand for complete office and hospital care; maintain special facilities for medical medical and hospitalization insurance systems to cover care of migratory laborers; furnish medical examination, phy- the entiie family.Conditions of the community, the sical restoration and artificial appliances in vocational rehabili- medical facilities, type of industry, and other considera- tation services. tions warrant an individual study to form the best local For services for crippled childrem.Conduct promotional and educational programs regarding prevention and treatment programs. Medical services, including dentistry, should of crippling conditions; supervise and provide consultation serv- be available to the whole population, paid for by them ice to local organizations; distribute and administer financial during their earning capacity periods.If necessary grants-in-aid for hospital care through subsidy to local hos- because of local difficulties; a subsidy might be provided pitals or contracts with local hospitals on a per diem or in- from general funds, as lack of medical facilities even- dividual care basis; for convalescent home care, operate a direct service program of diagnostic and treatment clinics; provide tually costs the public more than a preventative system. nursing service for case-finding and follow-up; provide braces In the county referred to above, the local people and and other orthopedic appliances, post-hospital treatment (phy- their physicians have with open minds attempted to sical therapy), and render some additional service not covered finance and develop a system of their own choosing. in these classifications. This method of collaboration between the medical prorn For cancer service.Conduct or participate in educational programs for early diagnosis. fession and the public in working out medical problems For the prevention and care of blindness.Promulgate and is a desirable one for other areas. enforce State laws, rules and regulations concerning routine In conclusion, it is recommended that medical and use of prophylactic in eyes of new-born; finance individual health personnel and facilities be increased to at least ophthalmological examinations or eye treatment service to the the pre-war standards or better.It is also recom- needy; hospitalize, at State expense, indigent patients needing eye operations or treatment, including trachoma cases; make mended that the professions be advised of the oppor- special studies to determine causes of blindness; operate or sub- tunity for service and employment in the Puget Sound sidize sight-saving classes. region. PART III 12. EDUCATION By State Committee for Reorganization of School Districts

The Reorganization of School Districts a considerable number of wealthy districts secure adequate revenue on a levy of less than 5 mills. The act under which a school district reorganization 2. The presence, of many small districts in which costs are program is now being carried forward in the State of high and school facilities and services unsatisfactory, as is Washington was passed by the 1941 legislature.Legis- illustrated by the following: lative action in this field is an outgrowth of recominen- One hundred and seventy-five districts that do not operate any school; 133 districts with an average daily attendance dations contained in the Washington State Planning of from 1 to 5 pupils; 185 districts with from 6 to 9 pupils; a Council's report on A Survey of the Uomiiwn School total of 758 districts with no school or with an average daily System of Washington, published in September 1938. attendance of fewer than 20 pupils. This report recommended reorganization of school dis- A cost of from $2 to $2.25 per pupil-day in one-room tricts as the first step in the direction of further equali- districts adjacent to a small city district, with a cost of $0.64 zation of educational opportunity in the State.It also cer pupil-day in the city district. In one rather densely populated western Washington recommended for adoption by the legislature a plan for county, which is traversed by a network of good roads, two- securing the necessary reorganization.This recom- thirds of the school buildings in the 45 small elementary school mended plan became the basis of the 1941 act. districts heated by stoves installed in the classrooms; the common drinking cup and the washpan in use in one-third of the Summary of Planning Council's Findings buildings; outdoor privies (many of them very unsanitary) in School districts have been formed in a haphazard 18 of the districts; and library facilities and resources either manner throughout the State's history. There is little poor or nonexistent in 42 of the 45 districts. evidence of careful planning for sound district organi- 3. Excessive costs for pupil transportation due to: The operation of buses by small districts to serve their zation.Moreover, there has been, and still is, a pro- own limited territory only and in so doing tra\ersing each other's nounced tendency to perpetuate original or pioneer dis- territory without picking up students, a practice that prevails tricts formed years ago to meet primitive conditions because highways are laid out to serve an area and not to serve that have disappeared in most sections of the State as a school districts with narrow territorial limits.Operation of result of improvements in highways and in the means of one transportation system throughout an area by a single enlarged school district would result in economies. transportation, and for other reasons. District boundaries located on roads, thus placing in dif- The foregoing facts, together with the marked con- ferent districts the pupils residing on opposite sides of a road trasts in physiographic features and the resultant and thereby requiring that buses of both districts travel over inequality in the distribution of taxable wealth and in the same road to serve their resident pupils. population density, have resulted in: (a) Students transported past or near one high school building en route to another high school 10 to 15 miles beyond. 1. Wide variations in the ability of local districts to sup- 4. Oppressive and discriminatory requirements under which port schools, accompanied by inequalities in the educational opportunities for high school education have been extended to opportunities of children and in the tax rates of local dis- pupils residing in non-high school districtsrequirements under tricts.There has been, for many pupils, a rich and varied which (a) the high school in every high school district must educational program, including numerous special services of admit all residents of non-high school districts who are prop- public education and wholly satisfactory teaching, library, shop, erly qualified for admission to high school, and (b) the entire laboratory, and health and recreation facilities and services; burden for providing buildings, grounds, equipment, etc., for and for many other pupils, a rudimentary educational program high school students is imposed on the taxpayers residing in the with a decided dearth of many essential and special facilities high school districts. and services.There have also been thousands of pupils housed in attractive, safe, sanitary, well-lighted and properly heated If educational opportunities and local school district buildings; and other thousands spending their school days in tax rates are to be further equalized, school funds ex- buildings unfit for pupil habitationthe latter condition result- pended wisely, and school services improved in large ing from the inability of poor districts to provide replacement areas in Washington, thelegislature must provide a housing.In addition, many low valuation districts have been furthering the school dis- compelled to make annual tax levies (regular and excess com- means for simplifying and bined) of more than 25 mills to provide meager revenue, while trict reorganization process. 129 130 National Resources Planning Board

Progress ment, thus effecting a Saving roughly comparable to the cost of County school district reorganization planning com- operating these small schools). (b) Such duplications in bus routes as were revealed by the mittees have been formed in all counties in the region. planning council study already reported herein. Reorganization plans are in various stages of comple- (C) Subsidies from State funds to "minimumattendance" tion.Many of them have already been put into effect districts. in the manner prescribed by the reorganization act; The equalization of taxpayers' burdens for school support many others are nearly ready for elections to be called; through the elimination of excess levies heretofore paid by taxpayers in poor districts. still others are almost ready for submission to the state The extension of responsibility for providing high school planning committee provided for in the reorganization buildings, grounds, and equipment to residents of non-high act. school districts who have heretofore enjoyed the use of such Among the counties in which partial or complete facilities without sharing the cost thereof. school-district reorganization was effected between the Improved educational opportunities for pupils through: (a.) An increase in the number of pupils enjoying the advan- passage of the act and May 1943, are: tages of graded schools in which the number of grades assigned Kitsap County, site of the Puget Sound Navy Yard and of to each teacher is limited and such special facilities and services other Federal reservationsentire county has been reorganized; as libraries, health education, luncheons, visual aids, music 50 school districts are now comprised in 5 new districts. education, vocational preparation, the teaching of handicapped Kingarea south and east of Seattle that has been affected children, and the like are available. by expansion of aircraft plants, the shipyards, and other war (b) More effective utilization of the services of teachers in industries.Thus far five new districts have been formed com- that the graded school system permits of their assignment to the prising the territory of 29 old districts.Other reorganization grades or to the fields of work for which they have received plans are being worked out. special preparation in institutions for higher education. Piercearea adjacent to Fort Lewis Military Reservation and to McChord Field Air Base. Two new districts have re- Building Construction' placed 18 old districts.Plans for the formation of other new districts are nearing completion. New school building construction is being planned Whatcomthe entire county.46 school districts are now for the reorganized school districts. Because of district comprised in 7 new districts. reorganization> it has now been found possible to set up Islandcompletely reorganized. Three school districts now financial budgets, including necessary expenditures for comprise the entire area of the county. new school buildings, and still stay within constitu- Skagit-38 old school districts have been replaced by 2 new districts; plans for the reorganization of the remainder tional tax limitsAn additional advantage lies in the of the county are nearing completion. fact that since district boundaries are clearly estab- Thurston-3 new districts have been established from 16 lished, it is possible to plan with certainty. The logi- old districts; plans are under way for remainder of county. cally planned high school service area gives a better Snohomishplans are under way. tax base and makes possible the proper locating of the Clallamplans are nearing completion. Jeffersonplans are under way. various school facilities to meet the pupil attendance San Juanplans are nearing completion. densities, and to conform to a planned transportation Most of the school district reorganization effected to system. date (May 1943) has resulted in the establishment of The school building program which has been pro- new school districts, each of which comprises the entire posed includes buildings for the various grades from service area of a high school, that is, the high school elementary through junior college, and in some cases, district and its tributary non-high-school districts. special facilities such as vocational schools. The estimated cost of school building construction Results of School District Reorganization for the region, including State educational institutions, The results of school district reorganization may be is $30,350,000. For common school building construc- summarized as follows: tion alone, this represents the equivalent of a 5-mill A reduction in the number of unnecessary small elemen- annual tax levy for a 5-year period, based upon 1942 tary schools (mainly one-room school), accompanied by an assessed valuation; for construction at State educa- increase in the number and size of graded elementary schools tional institutions, a 3-mill levy for the 5-year period, operated at points in the new districts which offer maximum convenience foipupils and make for economies in based upon the State valuation. transportation. This program is recommended as necessary quickly A reduction in the per capita cost .of education as a result to bring to fruition the full benefits of reorganization of the elimination of: plans.Figure 55 illustrates the high school service (a) Small schools with a low per-teacher ratio (in many instances, the pupils from several small schools have been centers which are under consideration. This construe- absorbed in larger graded elementary schools without additions i This section prepared by Puget Sound Regional Planning Com- to teaching staff, to building facilities, or to transportation equip- mission. Pu get ASound Region, War and Post-War Development 131 tion program could well repeat itself after the 5-year need for authoritative studies in this field to the end period if there has been evidenced, by that time, greater that past mistakes may be obviated.Basically, the needs because of an increase in population not at present problems of the school plant are as continuing as the contemplated. school system itself.All future planning for school Furthermore, adequate present and post-war plan- plants must be properly related to the orderly progress ning should include definite preparation for the estab- of curricular improvements and extensions. Otherwise, lishment of sound and continuing State-wide policies plants designed in the light of current educational and practices in the field of common school building concepts will have to be scrapped to meet the demands finance, design, and construction.Casual studies of of a new day or will stand as barriers to educational past and current policies and procedures point to the progress. PART III 13. ANALYSIS OF WAR AND POST-WAR POPULATION NEEDS By Paul R. Fossum°

Complementary Regions TAELE 41.Power and agricultural land resources and Those who live in the Washington area of the Pacific population, Pacific Northwest Northwest divide it into two parts, the east and the west. Hydroelectric power, 194i I Agricultural land Population To the meteorologist they are the dry and the wet.To Installed Undeveloped Used for Potential, Census, Possible; the citizen they are the agricultural and industrial sec- horsepowerhorsepower crops, 1939 2 1942 1 1940 land limit tions, which the Cascade Range divides.This natural only division of the area is of the utmost importance to the 2, 573, 000 25,056,000 10, 526, 819 6, 034, 908 3, 564, 874 4 7,019, 794 region as a whole.The resources of timber and min- I U. S. Statistical Abstract, 1941, p. 446. erals of the west can be processed in a cool working 2 Census figures. 3 National Resources Planning Board, Development of Resossree8 and of Economic climate almost ideal in type. The food to feed the Opportunity in the Pacific Northwest. 4 This figure includes the 1940 census of 3,564,874 and adds 3,445,920.The latter working force in the west can be produced in the east- figure is secured by allowing 4.254 acres per person for land to drain and cleai and 1.067 acres per person for land to be irrigated. The acres per person are national ern section, where the fertile land irrigated by mountain averages for unirrigated land and regional averages for irrigated land in 1930. They differ from the Army Engineers' report, which uses 3.26 and 1.21, respectively. water during an almost cloudless growing season pro- These ratios vary from census to census. duces heavy and constant yields for man and beast. Thus the east and the west sides tend to be complemen- Mountain barrier and from California by distance and tary, and the development and prosperity of the one the southern Siskiyou Mountains.Geographically it depends to a high degree upon the development and has every characteristic of an economic unit. As such prosperity of the other.There has only remained the its industrial activities are limited both by the high energizing of hydroelectric-power sites to drive the cost of transporting food for its population from out- wheels of industry on tidewater in the western section, side the area and by the agricultural productivity of giving employment to men whose demand for food can its own meager share of arable land (less than 10 per- bring about that agricultural expansion on the east side cent of its area). which the available water and the fertile soil can sup- Power Resources port. The development of the Pacific Northwest as The tremendous hydroelectric-power resources avail- a powerful section of the American industrial organiza- able to the region challenge the industrialist to put tion thus seems to turn on two factors: First, the ener- them to work. On the basis' of power alone the Puget gizing of the hydroelectric power sites on its streams; Sound region could support a very large population, and second, the irrigation of its fertile arable lands. as is shown by table 42. The population which its industries can support and the The energizing of the Columbia River would pro- type of industry which will appear seem to depend upon ride power for an estimated 4,757,000 additional peo- the supply of food which the region is able to produce. ple in the Puget Sound region, allowing an average Table 41 shows a population estimate based upon this domestic power consumption of 5,000 kilowatt-hours factor. per year at the close of the development.2This is To those who have watched the rise of modern industry it has been most apparent that neither power 2 We compute the population possibilities on the power base as follows: The total power produced is divided into three parts: Industrial, corn- nor minerals alone are capable of generating a large snercial, domestic.It has been found that the largest possible income industrial population. Industries do appear, however, from a power system and therefore its most economical use can be derived by following a marketing policy which will approach an equal where power, minerals, and food can be economically division of the power among these three fields. We assume this policy combined, to support a skilled population. The Puget to be followed.We assume that the Tacoma 1941 average of 3.25 persons per domestic billing will be maintained.We recognize that Sound region is by nature separated from the large these ratios may change, but we have no better figures at present.In food-producing areas of the continent, from the Mis- computing the 1uget Sound population we assume that the present population ratios between the Puget Sound area and the metropolitan sissipji Valley by both distance and the eastern Rocky districts of Portland and Spokane will remain the same, i.e., 55.8 percent, 34.2 percent, and 10 percent, respectively.We assume that 1 chairman, The Mayor's Research Committee on Urban Problems, since electric power is very fluid the population will attract it in that Tacoma; Visiting Lecturer in Economics, College of Puget Sound. same ratio. 132 Puget Sound Region, War and Post-War Deveiopmen 133

TARLE 42.T7arious population estimates for an istdustriaiied larger group.Since hydroelectric power can be secured .Puget Sound region,1 power base in so great volume, it in itself is not a limiting factor.

If aver- Since the area can provide all the necessary energy the age an- Estimated people can economically use, the population will tend to Annual pro-nual reel- population duction of dential Possiblelimits (1940 Estimate base prime power billing,populationcensus add- be limited by other factors. (kilowatt- (kilowatt-increase ed to fore- hours) hours), going) Food were The amount of food produced within a reasonable or Allavailablehydroelectric power sites in the Pacific economical distance of the industrial centers, therefore, Northwest energized 80, 000, 000 5, 0009, 611, 000 10, 728, 000 2. Allavailablehydroelectric would come to have an important bearing upon the power sites in the Pacific Food is a dominating factor Northwest energized 80, 000, 000 8, 000 6, 101, 000 7, 222, 000 number within the area. 1. Columbia River hydroelectric power only 41, 000, 005 5, 000 4, 883, 000 6, 000, 000 in the attraction and retention of a population in this 2. Columbia itiver hydroelectric First, it appears that good power only 41, 000, 000 8, 000 3, 158, 000 4, 275, 000 area for several reasons. housing is relatively cheap and therefore easy to acquire, 1 These figures based on PaciIc Northwest population going 10 percent to the Spokane area, 34.2 percent to the Portland area, and 55.8 percent to the Puget Sound due to the presence of an ample volume of good building area.Distribution of electric power, c9 to industry, .s to commercial, to domestic. 3.25 nersons per domestic billing. materials.Second, fuel costs are relatively low both because of large quantities of wood fuel and also because twice the average domestic billing for energy in 1941 California oil can come by water.In this moderate in the city of Tacoma, where domestic rates are ex- climate both these fuels have been able in normal times ceedingly low.Even if the average domestic power to undersell and eventually to close many of the coal consumption should rise during the development period mines in the Puget Sound area,Finally, the mild to 8,000 kilowatt-hours per annum, the Columbia River climate requires no great supply of clothing.The project on its completion would provide power for an availability of food, then, seems to be the most variable additional 3,198,000 (a figure 1,559,000 less than the factor.If tin ample supply of food is assured over the foregoing). The potential power of the entire North- long period, the industrial activity of the area will be west could raise the total Puget Sound population at able to retain its required personnel or to attract addi- the close of the development period to 10,728,000 on the tional labor. basis of a 5,000-kilowatt-hour average domestic con- The ease with which Americans now move from place sumption, or 7,222,000 at 8,000 kilowatt-hours,3 to place and the greater ease with which they are likely Thus, on the basis of hydroelectric power alone, the to be able to move in the future is very likely to make population of the region could reasonably expand almost them extremely sensitive to variations in real living tenfold.If the domestic power consumption were costs.Since the largest single expense in the budget of lower than these calculations allow, it would be quite the workingman is food, that item can be the deciding possible to provide power and employment for an even factor.Amiy large increase in food costs would tend to increase living costs which would eventually be reflected If we use horsepower per worker as ass udex it would appear thai Increases in wage rates without com- the Puget Sound share of the power fromthe Columbia River would in wage rates. provide 923,255 workers with 6.42 horsepower each (the 1940 average) mensurate increases in efficiency tend to increase the at the completion of the project in 1980.If, however, we project the price of the produc-t, which, in turn, will tend to reduce United States curve for horsepower per worker from 1919-39 to IPSO, that curve indicates 12.40 horsepower per w-orker in 1980.Using thss demand to the point where the marginal plants will be latter figure, the Columbia would provide almost twice the present pow-er forced to close and thereby reduce the demand for labor. per worker for 461,627 workers.The division of pow-er in this computa- tion would allow for a 100-percent increase in averege domestic and Thus the lack of food would tend to limit the industrial commercial billings during the four decades under cosisideratiosi, an activity of the area.Overexpansion on the basis of too increase that seems possible.These latter figures for workers compare favorably with the figures for both the ags'icultural and industrial bases great a volume of imp-orted supplies can lead to capital mentioned above.If we fit a parabola to the 1869-1939 power per anti population losses where tile available local agricul- workercurve,the1980figureofpower per worker would be approximately 16.0 horsepower.The basic census figures we have tjm-al food supplies are limited by natural factors and used indicate three distinct periods, 1869-99 1899-1919 1919---39, wit ii the population in or near the outside source of food is y=112.5+1.345'; y=94.5+4.48x; y= .-416.79+15.18x, respectively. We think these curves indicate the ease with which higher forms of free to increase to absorb its own area's surplus. power have been utilized.Thus the steam-power period saw the adop- It would appear that the agricultural lands of western tion and use of pow-er at a low-er rate, slope 1.34, than tile next or electrical period, with slope 4.48, or the present iuternal-conibssstion Washington are indeed limited.In 1940 the popula- plus electrical period, with slope 15.18.It would Seoul that as power becomes cheaper to install we use more per worker.Thus the figure tion of all the 19 western Washington counties totaled of 12.4 horsepower per worker may be conservative,vet we feel that 1,216,579. rihere is cultivated agricultural land west of this is very high and use it in spite of the fact that 8.5 horsepower the Cascades totaling 858,000 acres.If we assume the may be more likely, because the higher one (12.4 horsepower per worker) gives us a lower population estimate, one more in line with the foorl base. United States 1930 average of 3.20 acres per person, the 134 National Resouree8, Planning Board figure used by the Army Engineers,4 this would mean TABLE 43.Various population estimates for an industrialized that approximately 78 percent of the people in these Puget Sound region, agricultural land base1 counties are supported by agricultural products brought Estimated in from the outside. Potential Possible population Basing our conclusions on these Estimate base agricultural population limits land increase (1940 Census western county figures, we may say that approximately added) 78 percent of the agricultural products consumed in the 1. All class A, Al, and B, B1 land in Puget Sound area are imported.Statistics on the Pacific Northwest 2 6, 034, 908 1, 928, 341 3, 105, 695

2. Grand Coulee irrigation projeet 1 1, 519, 000 851, 534 1 volume of intrastate trade do not exist, yet it may be Potential arable land west of the Cas- 2, 182,200 assumed that a great part of these supplies come in from cadcs 1 Classes A and B only 500, 000 153, 374 the irrigated areas east of the mountains.According 1 These figures based on population go ng 10 percent to the Spokane area, 34.2 percent to the Portland area, and 55.8 percent to the Pugot Sound area, where the dis- to a recent survey of potential agricultural land, it would tribution of electric power is 34 to industry, 34 to commercial, 34 to domestic.3.25 persons per domestic billing. appear that there are in the same 19 counties some 2 Development of Resources and Economic Opportunity in the Pacific Northwest, National Resources Planning Board, Portland, July 1941. 500,000 acres available.At 3.26 acres per person, these 3 1.21 acres per person.10 percent to Spokane, 187,000 allowed for the Grand Coulee irrigated area, at 8 acres per person. would provide for 153,374 more persons.Even though 4 3.26 acres per person. Army Engineers ratio. all the land now available or now under cultivation were cultivated at the national average of efficiency, the provide industrial, commercial, and domestic energy Puget Sound region would still be a deficit food area. for a population one and one-third million greater than It is necessary, then, to look to areas outside for further the available agricultural land could support with food. food supplies.The agricultural productivity of these Further increases in the volume of hydroelectric power neighboring areas may indicate the limit to which the would only tend to emphasize the discrepancy between Puget Sound population may expand. food and industrial power. The same survey indicated 'that within the entire The energizing of the power sites on the Columbia, Pacific Northwest there are available 6,034,908 acres of however, will also provide water for the 1,500,000-acre potential agricultural land of the irrigable and non- Grand Coulee irrigation project, which is capable of, irrigable classes on which development is feasible.If and so located that it can provide, agricultural pro- we assume the 1940 ratio of 1.067 acres per person in the duction for an additional 851,534 of population in the irrigated areas of the United States and 3.26 acres of Puget Sound region.This number, together with the nonirrigated land per person, this potential agricultural 153,374 which can be supported by the potential agri- land can support a population of 3,454,920 and make cultural lands in the western countries, can raise the possible an increase of the Puget Sound population to population of Puget Sound to 2,182,260 at the time 3,105,695 at that time when all the agricultural land of when the Grand Coulee project is completed.Food and the Pacific Northwest has been put under cultivation, power from the Columbia, then, can almost double the provided the metropolitan and Puget Sound popula- population of the Puget Sound region during the 40- tion ratios remain the same.(See table 43.) year period of its proposed development.5 Thus, even though domestic rates would permit 8,000 Additional food may be derived from several imine- kilowatt-hours per domestic billing per annum, the Pu- diate local sources.Chief among these is the improve- get Sound share of the Columbia River power would ment of agricultural practices which will increase the efficiency of the available soil, such as mountain pas- 4 These ratios vary from time to time, as is Indicated by the table printed below. We are chiefly interested in land used for crops, since that indicates a sort of forecast tures, cut-over-land pastures, and the introduction of of annual demand. It will be noted that Pacific Northwest ratios run consistently Brown Swiss and other mountain-ranging cattle to in- higher. This may be due to dry-land farming or to extensive activities indicating the possibility of greater efficiency as the popuiation demand increases.It can be crease the, volume of dairy products; the extensive en- said that these ratios fell directly with the fall in living standards. couragement of research both in agriculture and marine Pacific Northwest popnlat ion and crepland life to find and to establish new foods and methods of production; the encouragement of all types of fisher- Land used for crops Crop land harvested ies to increase the fish-products volume from its 1941 no no Acres per.3 Acres per.3 position of 16 percent of the Pacific coast and Alaska Year person person Acres Acres 5 Population studies made by the Army Engineers calculated on the basis of industrial development in New York and New England from z 1830-1930, when prorated according to the ratios we have used for the three districts under consideration, indicate a possible increase of 1929 23,182,962 11,412,527 3.59 3.0384.4 10,890,930 3.42 2.9385.7 1,001,787 for the Puget Sound region.Since the New England-New York 1934 5 3,373, 918 10,994, 7853. 262. 83 86.810, 178, 795 3.022. 3276. 8 area possessed ample food supplies either locally or from the Middle 1939 4 3, 594,874 10, 526, 859 2.952. 60 88. 110,498, 561 2.94 2.44 83. 0 West, the industrial population could expand as the market demanded their products.If we assume that such is also the case in this region, 1 Washington, Oregon, Idaho, 17 Western Montana counties. up to that point whore agricultural land is available, it is not surprising 2 1930. S Estimated. that our figures and the calculations of the Army Engineers' run so 4 1940. close together. Puget Sound Region, War and Post-War Development 135 catch to many times that amount; and finally the pro- livered power so cheap that each worker can have a tection of all marine and aquatic life from any type of large volume at his disposal.The industries such a sewage or industrial pollution which will reduce the relationiship will develop can therefore tend to the elec- food supply and thereby directly reduce industrial trolytical, the electro-chemical, and the electro-thermal activity.The population of the region can increase industries.Copper, aluminum, chrome, and manga- over and above the maximum land-limit estimates made nese can be reduced and refined here.Lead and zinc here in direct proportion to the region's success in these ores provide ample resources for those industries, while fields of food conservation, research, and sanitation. the lime, iron ores, and coal provide a place for electric With the Cascade Range lying directly between the steels and iron in the area's activities. ideal industrial area and the agricultural section of the In addition to the metals, the plastics are a field Northwest, the problem of food transportation is in- whose ingredients this area does, or is able to, provide. deed important. No reasonable expense should be Electric power is by far the most important single spared to develop ample and economical truck and factor in the production of ammonia and the other passenger highways, both east-west and north-south. necessary nitrogen products which are basic over a Few curves and low levels should be sought on every large section of the plastic field.These products, to- route, since the lower the cost of farm produce to the gether with acetylene, ethyl alcohol, and cellulose, are consumer the higher the standard of living he can main- the materials required for the entire series of cellulose tain and the easier it will be to hold and encourage the plastics. industrial population.Furthermore, any reductions The vinyls are a second series of resins of increasing in the costs of transport will be reflected not only in re- industrial importance for which this area possesses duced costs to consumers but also in increased prices to all the ingredients.Acetylene and hydrochloric acid, producers.Thus both agriculture and industry are en- both products of Tacoma industry, play the dominant couraged to produce through the establishment of an role in this section of the plastic field. We may add efficient highway system. to these two the polystyrene and nylon resins which Industrial Opportunities can be made from coal derivatives. With cellulose from the forests, the necessary chemi- Given the food, the power, and the population, what cals from the coal- and salt-reduction plants, together are the possibilities for industrial development? The with sulfur from the iron pyrites of the Howe Sound old-growth timber is being rapidly reduced. At pres- district, the hydroelectric power of the area is actually ent rates soon very little will be left.The great tin- in a position to provide the plastics for an expanding bers of the Northwest will have passed with those who variety of industrial activities. To these must be added felled them. The continuing demands for lumber, what industries the incoming cargo space may provide however, promote greater activity in the forest-products with cheaply transported raw materials.Silk from the field.Industries to be introduced will not compete to Far East, cotton from the Gulf ports, wool from Aus- displace the established activities but, because of the tralia, can be spun and woven to advantage in this additional hydroelectric power and the population the humid cool climate with the power that is so cheap and new agricultural areas can support, will have added to so plentiful.Other "back haul" industries are bound them those industries for which the timber operations to appear as the region trades its own products for have cleared the way, built the roads, and uncovered those of other areas. the resources.Thus timber has functioned, as it has always functioned, as the pioneer industry of an area. Conclusions It has cleared the land and prospected the area for those Thus it may be said that the industrial integration who are now to come to develop further the region's which may follow the introduction of Columbia River various resources. power seems more or less dependent upon an increased Looking at Puget Sound as a whole, the resources of food supply.This supply can be increased, first, this area seem to divide its activities into two groups. through agricultural and marine research, and second, True, these groups are in many respects interdependent, through the provision for a highly efficient highway yet in many ways they are independent.The metals and the chemicals, the coal, the minerals and the forest and transport system geared effectively into the indus- products, transportation, and the "back haul" industrial organization. Then power, food, highways, and triesall these are a related part and all are distinct an effective population provided with proper markets in the industrial pattern of the district.Behind them should be able to generate a most prosperous economy all lie the hydroelectric-power resources of the area and for this area, whose scenic and mineral resources can the population its food can support.The ratio of have a profound effect upon the product of its industry power to population in this area is so high and the de- and its people. PART IV DIRECTION OF POST-WAR READ JUSTMENTS, RECONSTRUCTION, AND DEVELOPMENT

Page Review of Major Economic FunctionsBy N. H. Engle. 139 Summary of Post-War Problems of the Puget Sound RegionBy N. H. 141 Engle. Public and Private Construction and Improvement ProgramsBy Puget 151 Sound Regional Planning Commission. 137

342G8-43-----1O PART IV 1. REVIEW OF MAJOR ECONOMIC FUNCTIONS By N. H. EngIe1

The Puget Sound region is coming of age as a result Forest Resources of the forced-draft development necessitated by the Nor need this new opportunity be at the sacrifice of war effort.The pioneer stage of exploiting natural older industries. New and better days appear in the resources had about run its course and was scheduled ofling for the wood-based industries.Progress in tech- for decline even before the war clouds gathered. A nology points the way to wood-based plastics, plywood, new age of greater industrial diversification is heralded pulp, and even more of the larger products for which by the events of 1943. the region is famous. The trends point to a new age Light Metals in which more efficient utilization will be made of forest resources, which in time will be conserved by im- While it would be an exaggeration to say that a proved care of the forests, by fire prevention, selective transition from a wooden to a metal age is portended, cutting, and replanting. The fact that Puget Sound it appears certain that a much larger place than here- can, if it will, maintain a perpetual source of as vital tofore will be taken in the future industrial pattern of and varied a raw material as wood, is one of the great the region by both ferrous and nonferrous metals. The assets of the region. light metals, aluminum, magnesium, and their alloys, in particular, have made tremendous headway, the mo- Markets mentum of which may well be expected to carry over But what of the markets for all of this new indus- into the future. Two concrete facts may be cited. The try?The answer lies in several directions.First of region's largest single employer of labor at the war all, the State of Washington has become a larger mar- peak will be an employer of aluminum metal work- ket by reason of the rapid influx of new citizens. When ers, the Boeing Aircraft Co.Thousands of trained the war ends, the State will have between 300,000 and workers in this metal will be available for the post- 400,000 more population than it had in 1940.Some of war market. Again, aluminum metal is actually being these newcomers may drift away, but many will re- produced for the first time in the history of the region main.In addition, many service men, perhaps 100,000 by the. Olin Co. at Tacoma.Forty to fifty million to 200,000, may be expected to swell the total even pounds a year will thus be available to the new peace- higher. time industries of post-war Puget Sound. Here, then, But Puget Sound industries are not limited to the are two basic ingredients, labor and materials, for local market.They should be able to sell effectively industrial diversification. throughout the Western States and compete with other Heavy Industry producers at home and abroad. Low water rates to the east coast make possible the development of the rich In addition substantial expansion has come to the markets of that seaboard. iron and steel industry, quite apart from shipbuilding, Again we. need not limit our outlook to the national which has seen a repetition on a larger scale of World market.The same sea lanes lead to the ends of the War I experience, with a much larger use of steel. earth.The great continent of Asia is a natural market Thus an army of new heavy-industry workers has for Puget Sound sellers.(See fig. 49.)China is cer- been recruited to add to those in the light metals. tain to launch a great new era of industrial develop- These facts make it probable that Puget Sound will ment for which materials and equipment will be de- find itself with all the ingredients for a new burst of manded on a huge scale.Our Government, in coopera- industrialization when the war ends. tion with others of the United Nations, is even now laying plans for an international clearing house or Director, Bureau of Business Research, University of Waslungton. bank to facilitate the financing of foreign trade with 139 140 National Resources Planning Board China, with Russia, even with Japan, one of our best ered, and Puget Sound is the gateway to Alaska. New pre-war customers. shipping lines should be opened to the north and west to Alaska, Siberia, Japan, and China, and to the south and Transportation east to Latin America and our own east coast. Indeed, no region enjoys a more enviable asset than Puget Sound is also the natural taking-off point for the great inland waterway from which the Puget Sound the vastly expanded air traffic of the future.Air region takes its nameDevelopment of port facilities freight and express, air mail, passenger service, all may should stimulate a great volume of business in shipping. confidently be expected to darken the skies of Puget As a byproduct of the war, Alaska has been rediscov- Sound in the years that lie ahead. PART IV 2. SUMMARY OF POST-WAR PROBLEMS OF THE PUGET SOUND REGION By N. H. Engle1

Statement of the Problem TABLE 44Estimated employed labor force, Puget ,S"ound region, January 1, 1943 The post-war problem which faces this region may be concisely stated in a single wordjobs. Work must be Industry Employed provided for the thousands of people who have come to labor force the area, as well as those of longer residence.As a Total: All industries 583, 654 corollary, purchasing power must be maintained in Agriculture 29, 219 Forestry 2,920 order to maintain the standard of living. Mining 2,058 Concentration of war industries in and about the Construction 46, 788 lower Puget Sound region has created the major man- Manufacturing 223,863 Food products 15,627 power problem of the State, with Seattle the focal point. Textiles and apparel 4,087 Logging and basic lumber 30, 110 Shipyards at Tacoma, Seattle, and Bremerton, and the Finished lumber products 4,404 Paper and pulp 4,959 Boeing Aircraft Co. factory at Seaftle were natural Printing and publishing 4,207 Chemicals 2,156 magnets for war orders. A large and early influx of Petroleum products 176 Leather products 874 war workers followed the concentration of demand in Stone, clay, and glass 1, 504 Iron and steel (ordnance) 8,698 these centers.At the outset severe strains were imposed Nonferrous metals 3, 230 Machinery 5, 899 upon these communities to provide living accommoda- Automobile equipment 659 Aircraft and parts 34, 690 tions for such a sharp expansion in population. As the Ships and boats 101,486 war advanced, relief was had from two or three direc- Other manufacturing 1,097 tions. War orders were fanned out to other Puget Utilities 37, 519 Railroads 9,817 Sound centers and to other parts of the State, thus Trucking service 5,499 Other transportation 9,050 relieving the pressure of the original impact of war in- Communication 6, 184 6,069 migration on the Seattle-Tacoma-Bremerton section. Other utilities 179, 843 The rapid construction of housing facilities, schools, Trade and services Wholesale trade 27, 300 and other essential living accommodations in the pri- Food and Dairy products 11,778 Eating and drinking places 18,015 mary war centers has eased the tightness of war-gener- Automobile sales, repairs, and gas 9, 261 Other retail trade 33,945 ated congestion somewhat. The decision to hire women Other businesses and repair services 6, 370 Finance, insurance, real estate 15,701 workers for Boeing, the shipyards, and other war Domestic service 8, 257 Hotels and lodging places 6,878 plants has been of great assistance in easing the man- Laundries, cleaning, miscellaneous services 8, 213 Amusement and recreation 6,424 power situation.While this program did not prevent Professional services 27,661 women as well as men from migrating to the region, Government 53,422 there has been a large use made of Puget Sound's own Postal service 3, 988 National defense 29,302 womanpower. There remains nevertheless a large Federal Government1 10,844 State and local government1 9, 288 reservoir not yet utilized, the importance of which lies Industry not reported 8,022 in the fact that new housing is not required since these workers live in the region 1Not elswhere classified. Table 44, prepare(l by the United States Employment Source: United States Employment Service. Service, gives an appraisal, based on existing employ- Figures 56 to 61 show graphically employment dis- ment reports, of the breakdown of employment by indus- tribution by counties prior to wartime expansion. tries in detail, as of January 1, 1943.Distorted by the Table 45 summarizes the manpower picture in the war effort, this picture is of value as revealing what has region before the war and as it is forecast for the war happened. What the future holds may be quite another peak.Similar information for the region, city of story. Seattle and State, is shown graphically in figures 62, Director, Bureau of Business Research, TJniversity of Washington. 63, and 64. 141 142 National Resources Planning Board

EMPLOYMENT DENSITY OF WASHINGTON COUNT1ES 1940. PERCENTAGESBASED ON ALL PERSONS 14 YEARS OLD AND OVER

- % EMPL Qyfo 'Ii .35 ro4O 4O ro 45 '5 rc, 50 ro 55 SOURCES: Bureau of Business Research, University of Washington.

CM.I U.S. Census Bureau.

FIGUxE56. TABLE 45.Manpower in the Puget sound region, 1940 and 14 years of age at the war peak than in 1940 is ex- war peak plained by the influx of war workers, some without 1940 War peak families, others leaving their families behind.Un- Occupational status employment will be reduced to the minimum and the Number in Number in thousands Percent thousands Percent proportion of employed workers greatly expanded from 35.6 percent to more than half of the total popu- Total population 1,007 100.0 1,315 100.0 lation.Although the actual numbers of school chil- 14 years old and over 823 81.7 1,107 84.2 In the labor force 423 42.0 690 52.1 dren and women in the home will be larger at the esti- Employed 359 35. 6 687. 5 52. 3 Unemployed 65 6.4 2.5 .2 mated war peak than before the war, the percentages Not in labor force 400 39.7 417 31.7 In school 73 7.2 80 6.1 Own home work 232 23.0 252 19. 2 are down. Many of the older boys have, of course, Unable to work 49 4.9 60 4.6 All other 46 4.6 25 2.4 entered the armed services, but many boys and girls Under 14 years old 184 18. 3 208 15.8 have also gone to work at high war wages. Women Source: 1940 U. S. Census. War peak (end of 1943 or early 1944), estimated by have left their homes to build ships of the air and Bureau of Business Research, University of Washington. sea and to engage in other war industries. Many more A total increase of more than 300,000 people since women could be absorbed into industry if ways and 1940 is indicated. The larger percentage of those over means could be found to care for the younger children. Puget Sound Region, War and Post-War Development 143 The size of this problem is not great when it is ob- workers, and new citizens from outside the State. served that there will be oniy about 200,000 children Some of the service men will want to return to college under 14 years of age out of some 330,000 families. or to technical or other schools tocomplete their edu- Even if those in school over 14 years of age are in- cation and prepare themselves for peacetime employ- cided, there is less than 1 child per family on the ment.Others, after a brief respite at home, may well average. return to the Army or the Navy as a career.The majority will want to marry and settle down in good jobs, Suggested Solutions at a good rate of pay, with a chance forpromotion. Sttting the problem in general terms is compara- Some of the women war workers will also want to com- tively simple, once the facts are assembled.To be plete their education. Many of them will marry re- specific in pointing to practical solutions is more dif- turning service men, or others, and devote their lives to ficult.Where, after the war, are we to look for the the important job of honiemaking.Some will want to 300,000 or 400,000 more peacetime jobs than existed in remain in industry.Those who before the war were the region before the war? Four groups may be singled unemployed or WPA workers will want to keep their out for further analysis: returning service men, women jobs.So, also, will the majority of new citizens, al- newly employed in industry, formerly unemployed though some of them will return to their former homes. EMPLOYED WORKERS (14 YEARS OLD AND OVER) IN MANUFACTURING; 1939.

000NOCAN 0.78

0.63AIFFflSQ LINCOLN

0.08GRANT 0.2/ /---.---.-1 GANFICLO FRANKLIN -03j Th,002,kF 10 COLuMNS1 ' ANOTIN RINTOS WALLS WALLS L_ cziq ao 1

?ercentage of State Tot

Under 1% 1 5% 5lc% SOURCES: Bureau of Business Research, 19 --25% Over25 University of Washington. bALI II 0 II MILlS US.Census Bureau.

FIGURE 57. 144 National Resources Planning Board EMPLOYED WORKERS(I4YEARS OLD AND OVER) IN SERVICE INDUSTRIES; 1939. r L1 S. oos (J I PINS 015050005 IORCILLI 087 'CNN, 02z adi I..ND L CLALSAM f SNOMDWIH I C.. - i "5-.-4 "1 j7i hA CACLAN I' _N1_,

- 0.26 f'$PQCOSC f a54LINCOLN IA/2.30 GRANT

ADAMS mANna5 9.60 1.80 0.2#

SCON WALLA WALLA

Percentage of State Total CL ICC tAT Under 1% (-1 5% 5--lO% WIEII SOURCES: Bureou of Business Research1 10 -- 25% University of Washington. Over 25%

C 0 IS CMtI$ U.S. Census Bureau.

FIGuRE 58. Some of the war workers may also be attracted back kinds and if they can get the necessary new machinery to their farms or to new farms in such areas as that and tools, they should be able to build a peacetime embraced by the Columbia Basin project.Just how business comparable in scope to their vast war opera- many will drop from the Puget Sound labor force can tion. Of course, almost every aircraft manufacturer in only be conjectured.Undoubtedly there will remain the country probably has similar plans and it is obvi- a very substantial number of workers wanting jobs. ous that, even in an expanding air age such as we Where are the jobs to be found? probably will enter at the end of the war, full wartime The answer lies in existing industries, in new indus- capacity throughout the industry cannot be maintained. tries, or on public-works projects.Let us examine each The competitive position of the Boeing organization is field.First of all, existing industries are dominated by believed to be generally favorable. aircraft' and shipbuilding.Reports in the press indi- The outlook for the shipyards is less hopeful. To cate that Boeing's are planning definitely to provide as the unbiased observer there appears little reason to much employment as possible by utilizing their plants, hope that a repetition of the decline which effaced the equipment, and engineering skills in producing new World War I shipyard industry from Puget Sound can products after the war demand for Flying Fortresses be averted.It should be pointed out, however, that the ends.If they can start early enough on the de- decline following World War I was due largely to signing and marketing of new products of various the fact that the Northwest was specializing in wooden Puget Sound Region, TVar and Post-War Development 145 ships, the need for which ended with the war.But In addition, the development of new industries using even though we retain a two-ocean Navy, vastly in- new techniques in wood utilization, such as those increase our shipping under conditions favorable to volved in plastics, plywood, chemical utilization of world intercourse and trade, and even though U-boats wood waste, tannin, and cork from Douglas fir bark, have been sinking great numbers of ships, the fact re- point the way to many new jobs for the future. mains that we have yet to prove that we can compete, New industries in other lines may also be mentioned. where cost is a factor, with other nations of the world The following, among others, have been recommended in ship construction.There may well remain a sub- by the Market Development Section of the Bonneville stantial volume of repair work which will provide Administration for future consideration in developing the area: many jobs, but far fewer than at the. war peak. The electrolytic production of metallic aluminum frompuri- The basic forest industries may look for a substan- fied aluminum made from local clays and alunite or imported tial volume of peacetime orders to fill up the gap in bauxite. housing, to reconstruct foreign lands, and to reconvert The electrolytic production of metallic magnesium from American plants to peacetime operations.These in- magnesium chloride prepared from the chemical treatment of sea water by the Dow process, or from anhydrous magnesium dustries may be expected to provide jobs for their chloride made by the carbon-chlorine treatment of olivine, ser- peak loads or even more. pentine, or talc. EMPLOYED WORKERS(14YEARS OLD AND OVER) IN TRADE; 1939.

eroentage of State Total Under 1% 1 5% SOURCES: Bureau of Business Research) 5 - 10% till" University of Washington. 10 25% U.S. Census Bureou. Over 25% FIGURE 59. 146 National Resources Planning Board EMPLOYED WORKERS (14 YEARS OLD AND OVER) IN EXTRACTIVE INDUSTRIES; 1939.

Percentagef State Total Under 1% 1- 5 souRcEs:Bureau of Business Research, 5 - 10 % uuuuuI University of Woshington. 10 - 25 WA

* 0 C Mfl.i0 U S Census Bureau.

FIGURE 60. The electric furnace manufacture of phosphoric acid or The manufacture of wall and insulation fiberboard from ferrophosphate from imported phosphate rock and local coke wood waste and asbestiform minerals such as asbestos and and silica sand, with ammonium phosphate and trisodium phos- talc, with binding materials such as magnesium oxychioride phate as derivatives. cement, etc. The production of sponge iron from iron oxide ores and Public Works also from pyritic ores with the accompanying production of liquid sulfur dioxide for the pulp and paper industry and Private industry, it is hoped, will provide the bulk sulfuric acid manufacture. of the post-war employment in the old and new indus- An electrolytic zinc plant to treat ores and concentrates tries just discussed. In addition, the private construc- derived from the coastal mining districts, Alaska and the Orient. tion industry will find a large scope for employment in Additional electrothermal production of copper matte, utilizing copper ores and concentrates of the Coast, Alaska, and the back-log of public works which has accumulated the Orient, with subsequent electrolytic refining of the matte during the war. In this field government and business to metal. must cooperate, government indicating the need and The electric furnace production of pig-iron from Alaska, letting the contracts to business which hires the labor British Columbia, and local iron ores and concentrates. and does the work. The electric furnace production of ferrosilicon from iron ore and silica rock. The State of Washington has been forehanded in this The manufacture of mineral pigments and mortar colors field. A recent report by the Washington State Plan- from low-grade iron ores. ning Council outlines a 6-year program of essential Puget Sound Region, War and Post-War Development 147 TABLE 46.Jobs required for full employment after the war, public works.In the following section of this report Puget Sound region, by major industries will be found a partial list of the proposed construction projects for the Puget Sound region. Economic group Post-war Pre-war New jobs

Conclusion Total 750, 000 358, 900 391, 100 In conclusion it appears that existing industries, new Manufacturing 178, 500 86, 100 92, 400 Services. 174, 000 83, 720 90, 280 industries, and public works offer great possibilities Trade. 154, 500 73, 795 80, 705 Extractive industry 69,750 32,960 36,790 for optimism for the future.Just what contribution Transportation 66, 750 32, 100 34, 650 Government 52, 500 25, 000 27, 500 each may be able to make is difficult to say.Perhaps Construction 42, 750 20, 412 22, 338 the best way to approach the task of allocating respon- All other 11,250 4,818 6,432 sibility for jobs is to use the same percentages pre- vailing in the immediate prewar years. On this basis It is inevitable that these proportions would be we may break down the estimated 750,000jobs, which changed somewhat but probably less than might be will be needed to keep our regional manpower fully expected. Basic regional economic patterns change employed, as shown in table 46. slowly.

EMPLOYED WORKERS(I4YEARS OLD AND OVER) IN TRANSPORTATION INDUSTRIES; 1939.

Peroentage of State Total Under 1$EJ 1 to5% -. 5 to].O% 111111111 10to25% souRcEs: Bureau of Business Research, 25 tO 40% University of Washington.

041.t . a e tans. U.S. Census Bureau.

FIGuRE 61. 148 National Re8ourees Planning Board

MANPOWER IN PUGET SOUND REGION; 1940, 1943, WAR PEAK.

MALE fi(NALE

MAL £ PE11.4L £ ENPL0 YED 436,000 /4 000 E,1PL 0 YL0

OWN /lot'ie: '4% ,'V0R/c £32,000 oWN J-/011E 23'6,00o 252.000 WORM If'/ScHoo. (OvER/4) 38O00\..J3,0oO" IN SCHOOL "38,000 .'oo N (OvER /4) ALL OrHi.V,000 /550o029000 ,IiI,I,,IIIIThALL OTHER UNDER /4 UNDER /4 94,000 :90,000 /13,000'/03,000 )R5 \ \ \\ \\\\\\\ I\\\\\ /940 d /943 /g4_ p TOTAL 1,007,000 rerAL: 1.237,000 rorAL. 1,3,5,000

SOURCES: t940 U.S. Census Bureau. 1943 and War Peak(Late 1943 or 1944)Estimates by Bureau of Business Research, University of Washington.

FIGu1*62. Puget Sound Region, War and Post-War Development 149

MANPOWER IN SEATTLE 1940, 1943,WAR PEAK & £

L 6 F2rbf4/.. E

'1J5800 757Q0 2c7Z,700 9?.,/od 6

E,qpcy5//O4058'43,894' '7 /00,000 II95,000 Wo,K 80, /1op9': /8,000'/5000' IJ,,SQe-ioo,. I /,00 UI300 "/,coo '/7,00O /4) TA' JC.,'OO. (dvt,#) /3,ZO 1,20 300 UNj-,pLo)eo 39,40o /5,O00 4LE 7 J7,8'3 III2I 500 /4, .00 WøQr .4NO /31_7 C-'jvag /4 \\ \\)\\ \ \ \37,000 YEMRs .o \7,73/\4 538\ 35,000 '35,000 \ /940 J4#v, /943 /94- p Tor4. 38,3o2 rdr.u: 314,000 roz.: 55,000

SOURCES: 1940US. Census Bureau. 1943 and WarPeak(Late 1943 or1944)Estimates by Bureau of Business Research, University of Washington.

FIGURB 63. 150 National Resources Planning Board

MANPOWER IN WASHINGTON; 1940 AND WAR PEAK.

aa 000 EMPLOYED

398,aoo Owiv -2 924000 4ABOR /29 000 s../4'cHa0L. /09o00"V dø'4'E7vfPLCYZP /5 000 t4t48LE 7 W- /44(

Th1i1 iiHII 3Z4 a0 VOE/ /4' Y4Rs O& 3/ 000 1111111 I!"! /940 /94p Tar41'73Z'oo ror 2,/25,DC

SOURCES: 1940-US. Census Bureau. 194-War Peak-Estimates by Bureau of Business Research.University of Washington. FIGUEE 64. PART IV 3. PUBLIC AND PRIVATECONSTRUCTION ANDIMPROVEMENT PROGRAMS By Puget Sound Regional Planning Commission

The planning and construction of projects which willmeet Following a period of relatively rapid development based upon region now needs arising out of anticipated industrial growth, from the primitive stage, the Fuget Sound available low-cost electric energy. approaches maturity, with war-expanded industris, The preparation of projects for area reconstructionand community facilities and housing, and with anincrease development, to further the conservation, developmentand use in population and labor force.Along with these has of resources, to improve the base for industriesand services and come a newly awakened consciousnessof inadequacies to improve communities. and constrictions which were discovered whenpeak Planning ;[oads, theoretically "planned for," were suddenlyforced It is the forthcoming period oftransition and the upon the region's systems ofutilities, transportation, possible period of inflationary spendingafter the highways, terminals, ports and generalcommunity transition which may hold as great danger forthe peo- facilities. ple of the region and the Nation as the waritself. In earlier yearsand again even more notablydur- Therefore, it is highly important that despite the stress iiig the present war expansiongrowth of the commu- of the war effort, the greatest preparationpossible be nities and their service facilities has been found tohave made before the war's conclusion to alleviate andcushion been insufficiently guided by well-thought-outplans. the problems of the post-war period. The result, in structures and facilities, is amixture of The Puget Sound Regional PlanningCommission, or- the good and the bad.Unfortunately, little of the re- ganized during 1940, embodies and expresses thedesire cent construction has been consciously andscientifically of the people of the region to giveconsideration to designed for an enlarging population.With an even problems of the Puget Sound basin, to proposesolu- larger population forecast, services willbecome even tions, and to lend assistance towardcoordinating the less efficient, facilities less adequate andliving condi- activities of existing agencies, including State andFed- tions less favorableunless by effectiveplanning we can eral, which are concerned with such problems.In ad- avoid these results. dition the Commission has rendered, andintends to Millions of dollars in war contracts have come to the continue to render, every possible assistance inthe prep- region.Many of these millions have been invested in aration of well-conceived plans and programsfor con- new and improved manufacturingplants and military struction projects, and for conservation and develop- facilities.Their construction has caused theformation ment of the region's resources as apartial solution of within the expanded labor force of a large nucleusof future employment problems. skilled construction workers, surrounded by many more Before private interests can feel free to maketheir capable of becoming construction workers.Thus there plans for cooperation in over-all cityand county plans, is present in the region an unusually large group capa- certain legal machinery must be provided andpolicies ble of profiting from a sound constructionindustry determined. prograill. Some of the existing challenges which, if met,will Some general problems must be solved beforethe generate construction work include: adequatehousing post-war period if we are to be ready toaccelerate pri- of both urban and garden tract types; recreationalf a- vate and public construction programs.Among the cilities to offset juvenile delinquency; newthorough- maj or problems facing the local governments are: fares and bridges to improve transportation;the elimi- The development and expansion of public facilities to meet nation of unnecessary streets and razingof obsolete needs resulting from the defense effort and the increasein buildings, both residential and industrial, toimprove population. living facilities and property values;development of The development and construction of projects, such as airports with modern terminals and expresshighways flood control, which were required and planned prior tothe connecting them with population centers;off-street war. 151 152 National Resources Planning Board parking areas to aid retail business and thegeneral itself, contributing importantly to the labor income public; balancing retail shopping facilities against of the region. resident population to stabilize the value of residential Projects districts; building more efficient types ofneighbor- hood supply and service centers; "daylighting"con- Various local political units have submitted lists of gested districts with parkways; developing large-scale projects thought necessary to meet requirements in redesigning and rebuilding programs to bring depre- their respective communities. To thesewere added ciated and decaying central areas of cities toa modern local or regional projects, suchas forestry, drainage, or state of efficiency. floodcontrol, which overlap politicalboundaries. Our planning should beon the basis of the improve- There must be a continuous development of this list ment of groups of properties and buildings ratherthan so that it can be used as a basis for a post-war pro- the individual buildingor plot. We should have program for the construction industry.Priority of con- grams for the use and restoration to tax rolls of tax struction and methods of financing should be given consideration as integral parts of the planning. delinquent and tax reverted lands and properties.We This proposed construction program must be augmented by should control "shack" development within andon the fringes of cities.Workable techniques should be private undertakings, such as industrial plantcon- developed to permit local groups ofproperty owners struction, as well as by an expanded local industry for to take the initiative in analyzing theirown problems manufacturing materials of construction, suchas plas- and working out plans for development of theirown tics, metals, equipment, furnishings, etc. As the local districts.Details of city and county plans cement industry has been developed to meet the needs are thus of this area, so must other industries develop provided for presentation to planning commissionsfor to pro- adoption. duce similar construction materials. A study of the possibilities for manufacture of plastics, metals, Our needs include not onlynew homes, improve- wall coverings, and other materials isnow being conducted ments to present houses, apartments and hotels,but new industrial plants and business properties built to by private and public agencies. higher standards.These should be grouped in units Table 47 indicates the nature and volume of projects which would provide the amenitiesplayfields, assembled to date, and the suggested sources of funds parks, for their financing.The total value of all taxable prop- open spaces, traffic facilities, sunshine and shade,peace and quietwith easy access to workers' homes. erty in the 12 Puget Sound counties for 1942 was $611,622,288.The program outlined in the table, based Economies will naturally follow, ifwe eliminate the costs now connected with blighted or backwardareas, TABLE 47.S,mmary of a partial list of proposeti construction such as delinquency, tax losses; extra fireprotection, projects high insurance rates, lack of sanitation, illhealth, and Type of project Proposed sources of financing Estimated relief.Society as a whole will profit if byproper plan- cost ning the community becomes more efficient, with se- Highways Gasoline taxes $147, 500,000 Sewers and disposal plants Special assessments and revenue 8,010,000 curity assured industry, business, workers,and the gen- bonds. Water supplies Revenue bonds 6 800,000 eral public.It is possible to construct and maintain Schools and institutions Local tax levies and State building 30,350,000 funds. Libraries more economically all utilities, including water,sewer, Local tax levies 525,000 Hospitals Federal and local funds 1,400,000 and treatment systems. Waste in handling State hospitals State funds 3,000,000 freight and Recreational and parks projects-Local tax levy 790,000 passengers can be eliminated through better transpor- Flood control and navigation Federal funds 10,000,000 Land reclamation Revenue bonds and State funds 20,000,000 Reforestation, fireprotection,State and Federal funds tation systems, new terminal facilities,and intercon- roads. 5,000,000 nections between railways, waterways, Mineral exploration do 5,000,000 highways, and Fisheries projects do 10, 500,000 Power projects Revenue bonds 30, 000,000 airfields. New fireproof wharves, freightwarehouses, Railroad terminals and ports -Revenue bonds, private and gen- 29,000,000 eral funds. sanitary markets, libraries, schools,playhouses, and Housing Homeowner rents '288 000,000 many other structures should be included in Major repairs Private funds 2240,000,000 our vision Total for a more productiveeconomy and a better life. 835,873,000 Approximate annual total on basis of a 6-year program 139,000,000 When a substantial share of theseaspirations can be met, a long-range construction 'New houses, on the basis of 16,000 a year at $3,000 per unit for 6years. program is provided, SBased on a 6-year period. which can be acceleratedas necessary during some Sources: Local and State governments, State department of education, the medical profession, Army Engineers, drainage and diking districts, the forest industry, transition period followingpeace. mineral industry, Stats department of fisheries, power companies, railroadcompanies, Construction un- port commissions, realtors.Detailed data from which the estimates were drawn der such conditions becomes are on file in the Puget Sound Regional Planning Commission office.They have a substantial industry in not been published because they are tentative and continually being revised. Pu get Sound Region, War and Post-War Development 153 upon a 6-year spread and to repeat thereafter as neces- Present private and public studies of possibilities for manufacturing construction materials, such as plastics, metals, wall sary, represents an annual industry of approximately coverings, etc., should be continued. $139 million in labor and materials. From the local standpoint, most materials should be largely of local Conclusions manufacture, so that as much as possible of this sum will Increased war activities and increased population go directly into labor and trade channels of the region have added greatly to the governmental and service itself.The sums involved are not beyond the financial problems of the area, particularly as to power, trans- ability of the various governmental units, as determined portation, schools, housing, and sanitation. Public im- by constitutional limitations.Use of funds from rev- provements have been limited largely to the more urgent enue bonds will help pay part of the cost. of projects directly related to the war effort. A number Recommendations of public improvements are overdue, and much main- It is recommended that present efforts to develop a tenance is also being deferred. substantial construction industry should be continued, A large program of public and private construction having the following objectives in mind: improvements will be needed for the immediate post- war period, with its necessity for readjustmentsbefore That during the war there should be only the most necessary developments of well-conceived defense emergency public there can be a resumption of more normal trends of works, and when possible this construction should be a seg- development.It will be necessary to overcome the war- ment of the area's master plan development. caused lag in development of physical plant and services. Since assistance is desired by some cities and some coun- It is imperative that we plan and build now a framework ties in the preparation of long-range improvement programs, for private and public works and services for the period and since there is a public interest in the principle of advance works programming and planning, encouragement should be of growth that is coming shortly after the close of the given by the governmental units in the form of financial assis- war.This development seems inevitable as a result of tance to the planning and engineering agencies for continua- our resources, power, industry, strategic location and ex- tion of this work, which will alleviate, later, some of the major panded markets. We must plan and build to prafit problems connected with industrial growth and post-emergency from a stimulated and released science, from invention employment. The various cities and counties, the school, drainage, dik- and new technology in industry, commerce and trans- ing and utility districts should avail themselves of the existing portation. enabling legislative acts (some just enacted) permitting, en- Assuming continued development in the Pacific couraging and urging political units to set up reserve funds Northwest and in a wider North Pacific region, extend- for future construction projects, delayed repairs and replace- ing as far as Alaska, together with a post-war renais- ments, thus to accumulate funds for future employment.If Puget followed now, when excess funds are available, such a policy sance of world trade, the future growth of the will aid both in meeting the present problem of inflation and Sound area will probably be substantial.Thus we need in paying in advance for much work which normally would be to make "large" plans with a vision and a certainty of done annually and paid for now in any event.As a corollary, fulfilment, at first providing an employment cushion the public should realize a responsibility in meeting programs and later a continuous construction industry in provid- to retire floating debts where they exist and in giving intelligent ing useful economic regenerative works and services for support to public officials for going forward thereafter in building up reserve funds. the enjoyment of this generation and those to follow.

534268-43------ll PART V CONCLUSIONS By Puget Sound Regional Planning Commission

Page Summary of Reconiinendation 157 What Is To Be Done? 159 155 PART V CONCLUSIONS By Puget Sound Regional Planning Commission

A. SUMMARY OF RECOMMENDATIONS The Puget Sound Region sion began have been limited largely to urgent projects The region contains slightly more than 15,000 square directly related to the war effort. A number of much miles and had in 1940 a population of just over a million needed public improvements are now overdue and much It is distinct geographically and coherent both econom- normal maintenance has been deferred.To catch up ically and culturally.With its diverse industries and with these needs and to furnish employment, a large trade, the region serves an extensive hinterland in the program of public improvements will be needed for Pacific Northwest.Its principal ports have special the post-war period of readjustment and the resump- relationship to Alaskan, North Pacific, trans-Pacific, tion of more normal trends of development. coastal, and intercoastal trade.During the past 2 years Assuming continued development in the Pacific population in the 12 counties comprising the region has Northwest and in a larger International Northwest increased by more than 200,000 with a further increase extending as far as Alaska and assuming a post-war in prospect under the impetus of war production. renaissance of world trade, the future growth of the By the end of 1943 a population of 1,315,000, as com- region probably will be substantial. pared with a 1940 population of 1,007,000, is indicated. General Plans Many industries have been expanded and several en- In an area more than ordinarily tied together by tirely new ones added.Present activity in Navy ship- geographic conditions, with a number of extensive building and repair, merchant shipbuilding, aircraft metropolitan communities, and with substantial agri- fabrication, forest products manufacturing and alum- cultural, forest, mineral, recreational, and other re- inum production is particularly noteworthy. Expanded sources, there is a definite need for continuous over-all military activities involve ground, air and supply forces planning to supplement that of counties and cities, of the Army and Navy sea, air, and supply establish- especially to meet the common problems of war adjustments.Alaskan and overseas shipping activities have ment and of post-war reconstruction and development. been stepped up markedly. The advantages of over-all and multiple-use planning The Current Situation in various fields are particularly striking. The foregoing report includes general plans in all The current situation might be summarized as fol- the various fields of regional development. Assembly lows: After a long period of growth at a rate consider- of these plans provides a first draft of an over-all ably in excess of the national average, the region has regional plan.It is hoped that this will lead toward recently experienced an extremely large accession of the further development of specific working designs, war industries, new population, and new housing, and programs, and additional projects. Beyond the values with it new problems attendant upon large disloca- involved in plans for development in specific fields tions which have occurred in community life.The there are important benefits in an integrated view of region faces post-war problems of unusual intensity objectives, directions, and plans for meeting the social, involving the conversion of industry, new shifts in pop- economic, cultural, and governmental needs of the re- ulation, deferred and new public improvements, and a gion and its present and prospective population. The new adjustment to resume normal growth.Coordi- consolidated plan envisaged as a result of the present nated region-wide solutions are required for many of the project should provide a valuable guide to the develop- problems of the war and post-war eras. ment of more detailed policies, plans, projects, and Increased war activities and increased population programs. have added greatly to the governmental and service problems of the region, particularly those relating to Land and Agriculture power, transportation, schools, housing, and sanitation. After the war and for a considerable period in the Public improvements since the period of rapid expan- future there will undoubtedly be increased pressure on 157 158 National Resources Planning Board the land and an increased need for well planned and industries providing a higher degree of utilization and orderly land settlement. Land use controls are essen- a larger proportion of local remanufacture should be tial.Land settlement opportunities involving a total developed. of about 130,000 acres ultimately will provide about 1,600 new farm units.These opportunities can be cre- Water Resources ated as required by reclamation through clearing, Public water supplies are generally pure at their drainage, diking, and irrigation. Similar developments sources and ample in quantity. The demands of war on an additional 410,000 acres would benefit about production have overtaxed a few supplies but their 12,000 present farms or fully one-third of all which expansion presents no serious problems.The reserva- now exist in the region. Supplemental summer irrigation of certain streams and the elimination of existing tion in some areas will increase the productivity of sources of pollution of a few surface supplies are recom- agricultural lands. mended in the body of the report.Pollution most seri- We may not all agree that our population volume is ously affects the supplies taken from the Skagit River. limited by the cultivated and available agricultural Increasing pollution of Lake Washington is seriously land acreage of the Pacific Northwest.Puget Sound affecting its recreational uses.Early construction of residents will continue to squeeze oranges from Cali- sewage treatment plants adequately to treat all sewage fornia and drink coffee from South America, because entering these waters is recommended.Serious flood of long-existing trade relationships and the necessity problems exist on most of the rivers of the Puget Sound of continuing them for national and international, as basin.Each streamrequires separate study.Improve- opposed to purely regional, prosperity.Nevertheless, ment of the Puyallup through Tacoma as planned by the it is essential that there be developed all possible acre- United States Army Engineers should be undertaken at age for crop lands. The use of land must be intensified the close of the war. Added protection is urgently by irrigation and soil conservation.This will assure needed in the Skagit, Snohomish, and Green Rivers, fol- food for our present increased population at reasonable lowing plans of the Army Engineers. The major need costs and will also supply employment opportunities is increased Federal funds for speeding up the river im- for many families on reclaimed lands. provement program. An increase in fisheries produc- Minerals tiveness for the area's streams appears economically feasible through stream improvements recommended in As the industrial situation, which has recently been detail in this report. A continued expansion of the changing so rapidly, continues to develop in the post- water power resources of the area should be guided by war period, more intensive and extensive geological the economic considerations involved and the principle surveys are required to provide private initiative with of multiple use; it should precede the development of necessary information as to mineral resources.The markets.Cheap and ample power is the key to the mine-to-market road program now in effect appears industrial development of the area, and its maximum adequate.Public research in treatment of ores and utilization is essential.Preparations for an expansion in extraction of metals should continue, as should pub- after the war in waterborne commerce, both coastwise lieassistance to prospectors through preliminary and foreign, require improved terminal facilities and a determination of ore samples. better coordination of all forms of transport at the Forests various Puget Sound ports.Recreational advantages Most of the forest and forest industry problems have will be augmented by eliminating pollution, improving been accentuated by war activity. A large part of the the fish runs, and providing additional safe salt water more accessible and valuable forest lands of the region moorings for small boats and easier access to the have been cut over.There should be a wider recog- lakes and streams of the area.Further studies of nition of the urgency of putting an end to localized erosion and its control should be carried out with a view overcutting.Adequate restocking must be fostered in to reducing the cutting away of farms and the silting up many areas if the basis for the forest industries in the of harbors and river mouths. Supplementary irriga- region is to be perpetuated.Adequate protection of tion during the dry summer months is proving effective all forest land against fire must be provided.Forest and profitable.Groundwater investigations should be lands should be managed on a sustained yield basis made by the United States Geological Survey under under a cooperative plan.This will involve stabiliza- local cooperative agreements so that data will be avail- tion of ownership including removal of some of the able as needed by local interests.More comprehensive economic obstacles to private ownership and a better basic stream flow data are needed and an expansion of distribution of private and public ownership.Forest stream gaging facilities and program is recommended. Pu get Sound Region, War and Post-War Development 159

Industry and Commerce general lessons may be drawn from the current Tacoma On private initiative rests the responsibility for the progressive urban planning project. providing of jobs in industry and commerce.Public Housing initiative may well examine existing regulations and Before the war, some beginnings had been made, par- taxation to determine that every encouragement be ticularly in Seattle, toward slum eradication through given to private enterprise.To aid industry and com- low-rent housing developments. We recommend adop- merce, public funds may well be expandedin research tion of clearly defined policies for the disposal of pres- to further new or improved industrial processeswhich ent temporary war housing, bearing in mind that some use our natural resources and to facilitatethe market- of the Lanham Act war housing may be of sufficiently ing of these products.Trade relationships with the high standard partly to meet local ordinancerequire- Pacific Northwest, the North Pacific, and northeastern inents and could be used for low-incomefamilies. Asia will probably be particularly significant after the Amendments to State and Federal legislation should war.National policy affecting the volume of commerce stimulate strong local housing authorities which willbe with the rest of the world will dictate the regibn's future able to encourage private enterprise or a combinationof in this field.Therefore, it is in the region's interest to public and private enterprise to build housing forlow work for the freeing and promoting of mutually benefi- income groups. cial international trade. Recreation Transportation Climate and physiographic features provide unparal- Engineering surveys, designs and specifications for leled opportunities for varied recreation. With the ex- the integrated plans in the field of transportationde- ception of inadequate local facilities of playgrounds velopment reviewed in this report are especiallyneeded. and buildings the recreational needs of the region are A system of limited or express highways withinter- substantially met.Better organization to administer existing facilities at State, county and city levels is nec- regional, national, ana international connections is over- should be given in con- due. War activities have demonstratedinadequacies in essary and greater attention The cities and ports need struction of new highways to the preservation of, and port and terminal facilities. Since the pro- to take the lead in these recommendedimprovement ready access to, recreational features. viding of services and facilities to tourists and recrea- programs.The revolutionary development ofair transport, both passenger and freight, domesticand tionists calls for extended investments and provides a foreign calls for radical revision of air transport substantial income to the area, private enterprise should facilities as well as their connections with rail, motor be encouraged to the maximum. and water transport.Most of the plans for airport Medical and Public Health Services facilities already are being developed.Airports should 'While medical and public health servicessupplied be completed as indicated in this report. A stream- previous to the war reached, in some cases,accepted lining of railroad trackage, terminals, and equipment standards, there were areas which showed serious defi- will benefit the region, and maintain the necessaryrail- ciencies.The armed forces' demand for such services road facilities for normal and future emergency use. has seriously reduced standards. With increased popu- Port and channel improvements are a continuing need- lation following the war, pre-war standards, atleast, public health Communities and Facilities should again be attained and surpassed, personnel increased and a system of medical andhos- There should be further development of standards pitalization insurances such as is now in force in one and criteria for the improvement of communitypat- county considered for adoption in all counties. terns, facilities, services, and governmentalorganiza- tion.Specific detailed designs should be drawn to meet Education problems created by the war, to make adjustments in Reorganization of school districts is serving toim- the transition period following the war and to secure a prove educational opportunitiesin the region. A im- long-term peacetime economy.In these problems com- school building construction program should be an mon to the communities of theregion some important portant part of post-war planning. B. WHAT IS TO BE DONE?

The Puget Sound Regional Planning Commission be- dividually proceed to develop, by furtherengineering lieves that, with this report as a basis, the constituent studies, their own detailed plans for publicimprove- counties, cities, and other public bodies should now in- ments, together with methods of financingconstruction. 160 National Reeources Planning Board

Evidently the region's transportation systems require that they themselves should proceed to develop their such a body as this commission to coordinate plans own plans for post-war full employment. and to work with the State, but within each city sep- The Puget Sound Regional Planning Commission arate consideration should be given to improvement of commends this first report to people of the area and traffic facilities, to elimination of grade crossings, to urgently requests that they give it sympathetic study so off-street parking and to other improvements to facili- that it may be improved and refined and ultimately tate the safe and easy flow of traffic.It is expected that other public and cooperative agencies having jurisdic- translated into action programs. Only by such means tion over other items in these proposed plans will also can the region take its proper place in the State, in the take necessary steps immediately to set up action pro- Pacific Northwest and the Nation and secure for itself grams, as time may be limited. an economically efficient and socially desirable civiliza- While the interest of the business men of the region tion, one that will provide for present and future in- in these plans and studies is not only highly desirable habitants and occupy a significant place in national and but essential for their ultimate success, it is believed world reconstruction, industry, commerce, and security.