Transportation System Analysis and Recommendations

Table of Contents Executive Summary Overall Purpose...... ES-1 Corridor Description...... ES-2 Contents of Plan...... ES-3 Uses of the Corridor Management Plan...... ES-4 Vision Statement...... ES-4 Whidbey Scenic Isle Way Intrinsic Qualities...... ES-5 Summary of Transportation Analysis and Recommendations...... ES-6 Summary of Visitor Experience and Services Program...... ES-6 Summary of Preserving and Enhancing the Byway...... ES-7 Summary of Signing and Wayfinding...... ES-8 Summary of Marketing and Promoting the Byway...... ES-9 Summary of Action Plan...... ES-10 Summary of Next Steps...... ES-10 1 Introduction Overall Purpose...... 1 Corridor Description...... 2 A Typical Drive Along the Whidbey Island Byway...... 3 Whidbey Island Byway - State Scenic and Recreational Highway and Part of the Cascade Loop...... 4 Contents of Plan...... 4 Uses of the Corridor Management Plan...... 5 Benefits...... 6 Community Involvement...... 7

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLA N TableTable ofof ContentsContents

Completing this CMP is Only the Beginning...... 9

2 Vision Statement and Goals Vision...... 11 Goals...... 11

3 Existing Conditions Analysis Whidbey Island - The Overall Experience...... 15 History...... 16 Climate...... 18 Geology and Physical Characteristics...... 19 Hydrology...... 20 Vegetation...... 21 Wildlife and Fish...... 22 Demographics, Land Use and the Regional Economy...... 23 Transportation Conditions...... 26

4 Intrinsic Qualities Assessment What are Intrinsic Qualities?...... 27 What is Required for National Scenic Byway and All American Road Designation?...... 29 Whidbey Island Intrinsic Qualities...... 29 Visual and Scenic Character Analysis...... 39 Historical Site Commemorative Project...... 40

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN Table of Contents

5 Transportation System Analysis and Recommendations Introduction...... 41 Regional Transportation...... 41 Existing Roadway Analysis and Planned Projects...... 41 Other Transportation Services and Facilities...... 44 Transportation Recommendations...... 46

6 Telling the Byway Story: An Interpretive Master Plan for Whidbey Island Introduction...... 51 The Purpose of Interpretation...... 52 Central Interpretive Themes...... 52 Recommendations for Interpreting the Byway Story...... 54 Interpretive Media...... 60 Historic Site Commemorative Project...... 62 7 Visitor Experience and Services Program Introduction...... 65 A Review of Existing Visitor Services and Facilities...... 66 Preserving and Enhancing the Visitor Experience...... 67 Emphasis on Stewardship and Education...... 67 Whidbey Island Residents are Byway Visitors Too!...... 68 Balancing the Needs of Byway Users...... 69 The Importance of Multi-Modal Transportation...... 70 Recommended Improvements and Enhancements...... 71

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN TableTable ofof ContentsContents

8 Preserving and Enhancing the Byway’s Character Introduction...... 75 Summary of Existing Design and Development Guidelines...... 75 Recommended Design and Development Guidelines...... 78

9 Signing and Wayfinding Recommendations Introduction...... 85 Types of Signs...... 85 Signing Recommendations...... 86 Implementing the Signing and Wayfinding Program...... 90 Compliance with Outdoor Advertising Controls...... 92

10 Marketing and Promoting the Byway Introduction...... 95 The Target Market...... 96 Marketing Objectives and Strategies...... 96 Marketing Strategies and Tools...... 98 Other Helpful Information...... 103

11 Action Plan How the Action Plan is Organized...... 107 Benefits of the Action Plan...... 107 Important Issues and Considerations...... 109 Recommended Action Items...... 110 Implementing and Updating the Action Plan...... 111 Action Items...... 113

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN Table of Contents

12 Next Steps: Recommendations for Ongoing Public Participation, Management and Coordination National Designation...... 119 Expanding and Strengthening the Byway Organization...... 120 Confirming the Identity of the Corridor Organization...... 122 Broadening Interest - Bringing in More Stakeholders...... 123 Potential Subcommittees/Focus Groups...... 124 The Contact List...... 125 Building a Volunteer Support Base...... 125 Ongoing Activities...... 126 Potential Funding Opportunities...... 126 The Importance of Ongoing Public Participation...... 127

Appendices • Community Involvement Tools • Plant, Fish, and Wildlife Inventories • Intrinsic Qualities Inventory Matrix • Transportation Technical Information • Potential Funding Sources Matrix • Resources and Reference Materials

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN

Acknowledgment

We would like to thank the following individuals for all their hard work, time, energy, and dedication on the Corridor Management Plan: Byway Steering Committee Sarah Birger, Beach Watchers Jack Lynch, City of Langley Marshall Bronson, Ebey’s Landing National Historical Reserve Rich Melaas, Naval Air Station Helen Chatfield-Weeks, Oak Harbor History Norma Metcalf, South Whidbey Historical Society Larry Cort, City of Oak Harbor Mike O’Neil, Island Transit Roy Daniels, Island Transit Malcom Brian Peters, RTPO Advisory Committee Terry Doran, Washington State Parks Pat Powell, Whidbey/Camano Land Trust Steve Ellis, Audubon Society Martha Rose, Island Transit Sharon Hart, Economic Development Council Chris Saxman, Resident of Whidbey Island/Architect Priscilla Heistad, Oak Harbor Chamber of Commerce Dick Snyder, Island County Public Works Geoff Hornsby, Friends of Freeland Tom Stacey, WSDOT, MT Baker Area George Jackman, Whidbey Island Trails Council Larry Webster, Clinton Community Forum Larry Kwarsick, Town of Coupeville Ron Wikinson, Island County Historical Museum

Project Manager Consultant Mike Morton Mandi Roberts, Project Manager Island County Department of Public Works Jodie Vice, Assistant Project Manager PO Box 5000 Otak, Inc. Coupeville, WA 117 South Main Street, Suite 400 509.679.7331 Seattle, WA 98104 206.224.7221

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN ES Executive Summary

Overall Purpose goals of preserving and enhancing the the individual culture and historical qualities of the byway, while heritage cherished by island residents, This document is a Corridor accommodating and enhancing the visitor which was integrated into the efforts of Management Plan (CMP) created for the experience. This is done by emphasizing a community-based Steering Committee corridor and state scenic byway that the need for awareness, through composed of area residents and agency consists of the state highways (SR-525 education, of the unique settings and representatives. Consequently, the plan and SR-20) on Whidbey Island in the environments on Whidbey and the is the result of a grass-roots, community- State of Washington. This CMP focuses associated stewardship of these driven process that included extensive on a collaborative community and elements. To achieve this end, this plan public involvement. The plan has been organizational approach to achieve the was developed with a healthy respect for developed in accordance with the

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN ES-1 Executive Summary

Deception Federal Highway Administration’s Pass from Keystone to Port Townsend (see (FHWA) National Scenic Byway Program map of the byway on this page). For this guidelines. reason, byway travelers and residents are surrounded by the Puget Sound, the Corridor Description Strait of Juan de Fuca, Skagit Bay, Penn Cove, Holmes Harbor, Useless Bay, and From Deception Pass at the north end of other prominent waterways. In the the corridor to Clinton at the south end, backdrop of the waterways, some of the and the spur connecting the ferry at most impressive mountains and glaciers Keystone, the corridor’s character offers in the world, including the Olympics, Mt. an impressive variety of experiences. Rainier, Mt. Baker, Glacier Peak, and Sweeping vistas of water and sunsets, other sentinels of the Cascade Mountain picturesque farmland seemingly range offer dramatic scenery from unchanged since the nineteenth century, various vantage points throughout the tree-lined stretches of “green canyons,” island. Residents and visitors can and pockets of bustling commerce greet appreciate, along with the sweeping Keystone byway travelers. The highway system views, the serenity of a rural, small town itself is an entrenched cultural blueprint lifestyle where remnants of life from the that is as much a part of island life as the late 1800s and early 1900s still exist. historic communities it connects. For The byway can be pictured as a large the purpose of the CMP, the corridor public “parkway” threading together the includes areas visible from the highway, communities and land along it into a as well as recreational sites and cohesive unit. destinations either directly accessible from the corridor or located within a Those seeking a fast-paced, drive- short driving distance - in essence, all of through experience will be disappointed. Whidbey Island! Instead, travelers and residents move on what is known locally as “island time,” Whidbey Scenic Isle Way The Whidbey Island corridor is the only slowing their pace to enjoy the scenery island byway in the entire country. It is and to enhance the safety of highway also unique in that it begins and ends travel. For not only does the byway over waters of the Puget Sound: the function to move travelers, it also serves bridge over Deception Pass as well as the as the ribbon of commerce and ferries providing the “marine highways”– connectivity for island communities. the ferries from Clinton to Mukilteo and One of the few byways in the nation that

ES-2 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN Executive Summary

is entirely accessible by public transit, This plan includes many elements travelers will be encouraged to visit required by the Washington State Scenic Whidbey without their cars and travel Byway and the FHWA National Scenic around the island via a number of Byway programs. In addition to this different modes (i.e. bus, bicycle, water Introduction, the plan includes the taxi, and walking). following sections: This plan for the future of the Whidbey • Vision Statement and Goals Scenic Isle Way provides a critical • Existing Conditions Analysis opportunity to build awareness about the importance of community partnerships, • Intrinsic Qualities Assessment “…This is a heritage land. This is environmental stewardship, and • Visitor Experience and Services Program where the settlement of the Pacific preservation of historic settings. The Northwest began…. Here is the root CMP will become a catalyst for the • Preserving and Enhancing the Byway’s of statehood. Cherish it. Protect it. future, shaping the way residents and Character Pass it on to future generations visitors relate to the lands and waters of • Telling the Byway Story: Interpretive unspoiled. Let them find the Garden Whidbey. Master Plan of Eden … for this is a heritage land.” • Transportation System Analysis and Cook, Jimmie Jean. Foreword. A Particular Contents of Plan Recommendations Friend, Penn’s Cove. By Cook. Coupeville: • Signing and Wayfinding Island Historical Society, 1973. This Corridor Management Plan has Recommendations been developed to create a vision for the • Marketing and Promoting the Byway future of the Whidbey Scenic Isle Way. This plan uses the Federal Highway • Action Plan Administration’s (FHWA) criteria for • Next Steps: Recommendations for scenic byways. The FHWA criteria Ongoing Public Participation, ensured that a comprehensive, Management and Coordination community-driven planning process was conducted to create the CMP and Together, these components make up a establish a strong foundation for its cohesive document to be used to ongoing management. preserve and enhance the byway’s unique character.

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN ES-3 Executive Summary

Uses of the Corridor and project implementation processes Management Plan and responsibilities; • As a document that broadly and It is envisioned that this Corridor generally addresses a diversity of Management Plan will be used for the interests throughout the corridor – this following purposes: is a community-based planning document; and • As a comprehensive description of existing conditions and intrinsic • As a resource for local organizations qualities - the description and and a reference for residents and assessment of these elements provide a visitors alike to learn about the byway. basis for developing a unifying corridor theme and implementing interpretive programs that reflect the corridor’s Vision Statement rich heritage; The Whidbey Scenic Isle Way will • As a vision that will draw together enhance visitors’ experience and preserve people from all communities of the quality of life enjoyed by island Whidbey Island, helping to make the residents. plan a reality; • As a tool that provides The communities and residents of recommendations for specific Whidbey Island are dedicated to the strategies and actions that improve, development of a scenic byway plan for enhance, and sustain the corridor’s State Routes 20 and 525 and the pursuit unique intrinsic qualities and the many of projects and activities that: enjoyable experiences it offers; • Preserve and enhance the scenic • As a guide for solving existing corridor along the highway; problems along the corridor; • Conserve the environment and open • As a resource for future corridor spaces of the island; organization(s) to refer to and draw • Clarify the identity and qualities of the ideas and information from related to island that set it apart from other potential funding sources, coordination scenic highways and also create both with stakeholders, public involvement, visitor interest and community pride;

ES-4 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN Executive Summary

• Promote the collaboration and • Deception Pass State cooperation of communities along the Park scenic byway; • Dugualla Bay • Preserve the rural character and way • Oak Harbor Downtown/ of life for the island communities; and Marina/City Park • Establish a long-term view of the • Blue Fox Drive-In values and qualities that are most • Fort Ebey State Park important to the island. • Fort Casey State Park • San De Fuca Whidbey Scenic Isle Way • Penn Cove Intrinsic Qualities • Ebey’s Prairie • Grasser’s Hill Intrinsic qualities are the important attributes of the byway that make it • Town of Coupeville special – the significant features and • Crockett Lake places that attract people and also may • Keystone Spit/Ferry Terminal & become the focus of some combination of Crossing enhancement, preservation, and • Rhododendron County Park promotion. The Federal Highway • Lake Hancock Administration (FHWA) recognizes six • Hastie Lake primary categories of intrinsic qualities: natural, recreational, scenic, historical, • Greenbank Farm cultural, and archeological. The Whidbey • Double Bluff County Park Scenic Isle Way possesses an abundance • South Whidbey State Park/Smuggler’s of intrinsic qualities within all six Cove categories. In fact, the Steering • Meerkerk Gardens Committee inventoried over 300 • Saratoga Woods and Goss Lake Woods examples on the island. Below is the list • Bayview of the top 25 intrinsic qualities that the • Langley steering committee identified as key to the mission of this plan. The qualities • Maxwelton Beach are listed in north to south order. • Clinton Gateway/Ferry Terminal & Crossing

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN ES-5 Executive Summary

Summary of Transportation design, horizontal and vertical Analysis and curvature, and other highway elements Recommendations with the intent to preserve the visual and scenic character of the byway; The purpose of this section is to • Enforce speed limit – Byway residents describe the existing conditions, and visitors have mentioned that scheduled projects, and proposed drivers at speeds faster than posted future conditions on and along the speed limits; Whidbey Scenic Isle Way. This section • Promote the “non-driving experience” - also describes transportation services you don’t need your car to visit provided by the Washington State Whidbey Island!; Ferry System and Island Transit, as • Improve park-and-ride lots with the well as via various multi-use paths addition of plantings and other and bikeways on the island. aesthetic elements; Opportunities for an enhanced non- motorized system are also discussed. • Expand multiuse trail system; and In addition, this section includes a list • Provide safe and convenient crossing of recommendations for improvements opportunities for pedestrians. along the byway, including facilities that accommodate bicyclists, pedestrians, and transit passengers. Summary of Visitor Experience Other key improvements focus on the and Services Program gateway communities of Oak Harbor and Clinton. Some of the This section of the corridor management recommendations include: plan assesses existing visitor facilities, as well as websites and information that • Seek funding for studies in gateway serve the needs of visitors. This section communities to analyze existing also provides recommendations for byway traffic patterns and evaluate improving these services for both potential traffic calming and traveler residents and visitors including: wayfinding opportunities; • Evaluate alternatives for lane • Gateways at Deception Pass State widening, embankment/side slope Park, Keystone, and Clinton

ES-6 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN Executive Summary

• Comfort station/rest area at Lake “good stewards” of Hancock the byway. • Interpretive facilities along the byway • Wildlife viewing platforms along the Recommendations byway for preserving and enhancing the • Recreational Pull-off Areas along the byway include: Byway • Interpretive brochures • Create an “annual • Multi-lingual provisions awards program” • Visitor surveys that would recognize • Touring routes property owners, • Local resident involvement businesses, etc. • Existing services who help preserve corridor resources; Summary of Preserving and • Design gateway Enhancing the Byway sign at Deception Pass designed in This section of the plan provides a such a way to summary of the existing design and reflect the rustic development guidelines in place along Cascadian style of Corridor Enhancement Concept for Oak Harbor the byway as well as suggestions and park buildings recommendations for additional constructed during the CCC era; guidelines. It is important to note that • Keep structures located along State this section is included solely for the Route 20 between Deception Pass State purpose of providing a set of guidelines Park and Oak Harbor relatively low in to retain the byway’s character and is not height and scale to preserve the intended to be regulatory. For this beautiful views along this stretch of the reason, there is a strong need to involve highway; residents, property owners, and businesses along the byway in being • Coordinate with WSDOT and others to ensure that as much native vegetation

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN ES-7 Executive Summary

and natural slopes are retained as Summary of Signing and possible; Wayfinding • The intersection of State Route 20 and Pioneer Way is a key point along the This section includes information on byway. It is recommended that existing signage that could be removed, improvements be made to this consolidated, or improved while intersection to encourage people to recommending areas where additional travel off of the corridor and into signage, such as byway and trail signs, downtown Oak Harbor; could enhance the corridor. • The corridor through San de Fuca and Developing a unified and coordinated Penn Cove provides one of the most approach to signing on the byway will spectacular experiences of the entire help reinforce the identity of the byway. Roadway character should corridor, assist the traveler with remain similar to its current condition; wayfinding, and minimize intrusions on • It is recommended that Ebey’s Reserve the scenic values of the corridor. All continue to require design review and signs should be easy to read and clearly encourage developers to preserve convey the intended information. historical buildings and structures; • New development in Coupeville is The Signing and Wayfinding Program encouraged to be compatible with the addresses several types of signs for the historic architectural elements; Whidbey Scenic Isle Way: • The design of the Lake Hancock • Existing signs along the byway overlook should be compatible with the historical architecture of Greenbank • Gateway signs Farm; • Scenic byway logo signs • Pedestrian improvements should be • Directional guide signs installed between Freeland and Clinton • Supplemental guide signs to provide better connections to transit • Interpretive signs/panels and historic service on State Route 525; and markers • Improvements to State Route 525 • Special feature/name place signs through Clinton should be completed to enhance the gateway experience for byway travelers.

ES-8 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN Executive Summary

Careful consideration should be given to Marketing strategies include: eliminating redundant informational and directional signs and consolidating signs. • Promote the Whidbey Scenic Isle Way Where possible and practical, multiple as the only island byway in the signs can be located on a single sign post, country; as long as the information presented still • Promote the byway’s intrinsic qualities conveys a clear message. As signs are while educating both residents and replaced due to maintenance, they visitors on the importance of should be consolidated where feasible. preserving and enhancing those qualities; and “It’s easy to get here, but difficult to All signing located within the SR 20 and • Retain the byway committee made up SR 525 right-of-way will need to be leave. The prettiest seaside towns of various groups, businesses, look across the water to mountains coordinated with WSDOT. organization, and government lit up in the afternoon sun. representatives. Charming shops, deluxe accommodations, century-old Summary of Marketing and farms, lighthouses, big trees, tender Marketing tools include: mussels, and military history are Promoting the Byway discovered here.” This section includes marketing • Targeting existing visitors; objectives, strategies, and specific • Promoting the shoulder season; ExperienceWashington.com marketing tools as well as a great deal of Washington Tourism Council • Promoting shorelines, beaches, and helpful information and resources that marine resources; are available for the byway organization as it embarks upon marketing and • “Leave your Car at Home” campaign; promoting the Whidbey Scenic Isle Way. • Promoting safety; • Promoting eco-tourism; and Marketing objectives include: • Developing interpretive guides and • Create partnerships, collaboration, and maps. cooperation between byway communities; and • Continue relationships with existing efforts to promote Whidbey Island.

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN ES-9 Executive Summary

Summary of Action Plan Byway-wide Programs, Initiatives, and Projects The Action Plan of the Whidbey Scenic Isle Way contains the following • Organize and conduct a “Kick-off” subsections: event – Spring 2005 Byway Birthday • Create byway website • Anticipated Benefits of the Action Plan • Promote the “non-driving experience” • Summary of Important Issues and through a brochure and website Considerations postings • Recommended Action Items/Action • Touring routes brochure Plan Summary Table • “Walks of Whidbey” Map/Brochure • Implementing and Updating the Action Plan • Study needed transit facility improvements and develop a master plan The following action items are • Safety campaign – speed limit recommended for the Whidbey Scenic enforcement Isle Way. • Maintain scenic roadway character Byway Management and Administration through roadway design Actions • Planting/revegetation projects (native plants) along the roadway; master plan • Obtain funding for ongoing byway and implementation support services • Expand multi-use trail system and • Expand existing corridor organization; improve/enhance access to trails • Partner with local agencies • Media/speaker’s kit • Obtain 501c3 organization status • Enhance safety at pedestrian crossings • Confirm scenic byway “brand identity” • Reduce and eventually eliminate the and develop scenic byway logo use of herbicides and pesticides along • Reach final decision on pursuing the byway national scenic byway designation • Develop highway beautification plan • Implement ongoing community for SR 20 and 525 participation program • Sign inventory

ES-10 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN Executive Summary

• Interpretive guide and map groups; • Scenic easement master plan • Creating and maintaining a contact list; • Informational brochures • Building a volunteer support base; Location-Specific Projects (from North to • Staying involved with ongoing South) activities; and • Dugualla Bay Improvements • Finding potential funding opportunities. • Oak harbor - Traffic calming and wayfinding study in Oak Harbor and subsequent improvements There are many resources in the • Hastie Lake Improvements community including volunteers, in-kind • Crockett Lake Improvements support, gifts of materials and printing costs, etc. that can be “tapped into” as • Comfort Station/Improvements at Lake part of a strong program of community Hancock Pull-out involvement and outreach. • Traffic calming, circulation and safety study in Clinton and subsequent improvements (to SR 525)

Summary of Next Steps The final section of this plan lists several “next steps” for ongoing byway management and coordination activities including: • Expanding and strengthening the byway organization; • Confirming the identity of the corridor organization; • Broadening interest by bringing in more stakeholders; • Creating byway subcommittees/focus

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN ES-11 1 Introduction

Overall Purpose qualities of the byway, while heritage cherished by island residents, accommodating and enhancing the visitor which was integrated into the efforts of This document is a Corridor experience. This is done by emphasizing a community-based Steering Committee Management Plan (CMP) created for the the need for awareness, through composed of area residents and agency corridor and state scenic byway that education, of the unique settings and representatives. Consequently, the plan consists of the state highways (SR-525 environments on Whidbey and the is the result of a grass-roots, community- and SR-20) on Whidbey Island in the associated stewardship of these driven process that included extensive State of Washington. This CMP focuses elements. To achieve this end, this plan public involvement. The plan has been on a collaborative community and was developed with a healthy respect for developed in accordance with the organizational approach to achieve the the individual culture and historical Federal Highway Administration’s goals of preserving and enhancing the

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 1 1.1. IntroductionIntroduction

(FHWA) National Scenic Byway Program Figure 1.1 for a map of the byway). For guidelines. this reason, byway travelers and residents are surrounded by the Puget Corridor Description Sound, the Strait of Juan de Fuca, Skagit Bay, Penn Cove, Holmes Harbor, Useless From Deception Pass at the north end of Bay, and other prominent waterways. In the corridor to Clinton at the south end, the backdrop of the waterways, some of and the spur connecting the ferry at the most impressive mountains and Keystone, the corridor’s character offers glaciers in the world, including the an impressive variety of experiences. Olympics, Mt. Rainier, Mt. Baker, Sweeping vistas of water and sunsets, Glacier Peak, and other sentinels of the picturesque farmland unchanged since Cascade Mountain range, offer dramatic the nineteenth century, tree-lined scenery from various vantage points stretches of “green canyons,” and pockets throughout the island. Residents and of bustling commerce greet byway visitors can appreciate, along with the travelers. The highway system itself is sweeping views, the serenity of a rural, an entrenched cultural blueprint that is small town lifestyle where remnants of as much a part of island life as the life from the late 1800s and early 1900s historic communities it connects. For still exist. The byway can be pictured as the purpose of the CMP, the corridor a large public “parkway” threading the includes areas visible from the highway, communities and land along it together as well as recreational sites and “And best, though not least of all, into a cohesive unit. destinations either directly accessible there are five thousand enthusiastic from the corridor or located within a persons who are of the opinion that, Those seeking a fast-paced, drive- after all, the garden of Eden never short driving distance - in essence, all of through experience will be disappointed. was permanently established on the Whidbey Island! Instead, travelers and residents move on east bank of the Mediterranean … but what is known locally as “island time,” right here on Whidbey Island, and The Whidbey Island corridor is the only slowing their pace to enjoy the scenery preferably at Greenbank.” island byway in the entire country. It is and enhance the safety of highway travel. also unique in that it begins and ends For, not only does the byway function to The Westerner Magazine, November 1913 over waters of the Puget Sound - the move travelers, it also serves as the bridge over Deception Pass and the ribbon of commerce and connectivity for ferries providing the “marine highways”– island communities. One of the few the ferries from Clinton to Mukilteo and byways in the nation that is entirely from Keystone to Port Townsend (see accessible by public transit, travelers

2 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 1. Introduction

will be encouraged to visit Whidbey and preserving a without their cars and travel around the cultural island via a number of different modes landscape. An (i.e. bus, bicycle, water taxi, and active program by walking). the National Park Service to This plan for the future of the Whidbey purchase Scenic Isle Way provides a critical development opportunity to build awareness about the rights is importance of community partnerships, complemented by environmental stewardship, and local efforts to preservation of historic settings. The build a strong CMP will become a catalyst for the record of land future, shaping the way residents and preservation in visitors relate to the lands and waters of central Whidbey. Picturesque the island. landscapes of prairies and working farms welcome travelers along this stretch of A Typical Drive Through the the byway.

Whidbey Island Corridor Next comes the historic town of At the northern end in Deception Pass Coupeville, the Island County seat, and State Park, Washington’s most visited then in a few miles State Route 20 veers state park, State Route 20 winds toward the ferry landing at Keystone, southeast through seven miles of forest, which offers regular service connecting pastoral fields, and water views to the to Port Townsend on the Olympic island’s largest city: Oak Harbor. Peninsula. Continuing south on Whidbey Moving south from this city, the highway Island from the SR 20 ferry turn-off, passes through a small number of State Route 525 continues the byway working farms and cultural landmarks route to the south and meanders through such as the Blue Fox Drive-in Theater. a heavily forested portion of the island, which is interspersed with post-war Just north of Penn Cove State Route 20 subdivisions only occasionally visible enters Ebey’s Landing National Historic from the highway. This six-mile stretch Reserve, the first National Park Service opens to display wide views of historic unit in the nation dedicated to honoring

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 3 1.1. IntroductionIntroduction

Greenbank Farm on the east and Lake Park, SR 153 from Twisp to Pateros, US Hancock on the west offer. 97 from Pateros to Wenatchee, and US 2 South of Greenbank the forest cover from Wenatchee to Monroe. Figure 1.2 resumes and persists as far as Freeland, shows the entire Cascade Loop. This an unincorporated area with the second corridor is the last remaining portion of largest population center on the island. the Cascade Loop to complete a CMP. Between Freeland and the ferry landing in Clinton, State Route 525 begins to Contents of Plan travel through a landscape of smaller This Corridor Management Plan has fields, stands of trees, and neighborhood been developed to create a vision for the commercial centers to Langley, Whibey’s future of the Whidbey Scenic Isle Way. third incorporated city. It is accessible This plan uses the Federal Highway from three highway intersections along Administration’s (FHWA) criteria for SR 525. As the road nears the Clinton scenic byways. The FHWA criteria ferry, it drops toward the ferry approach ensured that a comprehensive, to reveal awe-inspiring views across community-driven planning process was Possession Sound to the Cascade conducted to create the CMP and Mountains. establish a strong foundation for its ongoing management.

Whidbey Scenic Isle Way - State This plan includes many elements Scenic and Recreational Highway required by the Washington State Scenic and Part of the Cascade Loop Byway and the FHWA National Scenic Byway programs. In addition to this State Route 20 and State Route 525, Introduction, the plan includes the through Whidbey Island, were following sections: recognized as Washington State Scenic and Recreational Highways in 1967. The • Vision Statement and Goals Whidbey Scenic Isle Way is a unique • Existing Conditions Analysis segment of a larger byway experience • Intrinsic Qualities Assessment known as the Cascade Loop, a 400-mile • Visitor Experience and Services route encompassing Whidbey Island, SR Program 20 through the North Cascades National

4 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 1. Introduction

• Preserving and Enhancing the Byway’s programs that Character reflect the • Telling the Byway Story: Interpretive corridor’s rich Master Plan heritage; • Transportation System Analysis and • As a vision that Recommendations will draw • Signing and Wayfinding together people Recommendations from all • Marketing and Promoting the Byway communities of • Action Plan Whidbey Island, • Next Steps: Recommendations for helping to make Ongoing Public Participation, the plan a Management and Coordination reality; • As a tool that provides Together, these components make up a recommendations cohesive document to be used to for specific preserve and enhance the byway’s unique strategies and character. actions that improve, Uses of the Corridor enhance, and Figure 1.2 - Map of the Casacade Loop Management Plan sustain the corridor’s It is envisioned that this Corridor unique intrinsic qualities and the many Management Plan will be used for the enjoyable experiences it offers; following purposes: • As a guide for solving existing problems along the corridor; • As a comprehensive description of existing conditions and intrinsic • As a resource for future corridor qualities - the description and organization(s) to refer to and draw assessment of these elements provide a ideas and information from related to basis for developing a unifying corridor potential funding sources, coordination theme and implementing interpretive with stakeholders, public involvement, and project implementation processes

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 5 1.1. IntroductionIntroduction

and responsibilities; and Organization (RTPO), represents a • As a document that broadly and collaboration between multiple agencies generally addresses a diversity of and jurisdictions including: Island interests throughout the corridor – this County, FHWA, Washington Department is a community-based planning of Transportation, Town of Coupeville, document. City of Langley, the City of Oak Harbor, • As a resource for local organizations Island Transit, and the Port Districts. and a reference for residents and As such, implementation of this CMP visitors alike to learn about the byway. will be supported by these agencies and This document is not intended to be a ongoing efforts of the Sub-region TPO. plan that creates additional regulations, or restrictions on private property, The Policy Board established three beyond those that already exist under directions for the corridor management federal, state, regional, and local plans plan. First, instead of focusing specific and regulations. This plan is not a efforts to accommodate and enhance the regulatory mandate, but a visitor experience to Whidbey Island, the recommendation based on the hard work plan gives equal emphasis to measures of the steering committee members and that preserve the quality of life enjoyed many community representatives, by island residents. This plan proposes a stakeholders, and interested citizens number of ways to preserve the small- from all areas of the island. town, rural character that has been Whidbey Island’s history. Secondly, exploration of and support for Benefits alternative transportation modes through the corridor is emphasized in The Policy Board of the Island Sub- this plan. The popularity of Whidbey region Transportation Planning Island, as a place to live and to visit, has Organization determined the need for potential to degrade the very intrinsic this corridor management plan for the qualities that currently appeal to both Whidbey Scenic Isle Way scenic and uses. This plan addresses enhancements recreational highway. The Policy Board of public transportation, facilities for created a small-focus group to prepare non-motorized travel, and increased the application for FHWA funding. The park-and-ride options. Finally, corridor Sub-region Transportation Planning preservation will be entrusted to the

6 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 1. Introduction

citizens of Whidbey Island. Recognizing BSC inventoried the sites that were that each jurisdiction already has the located in the areas of the island where authority to regulate those aspects of the they reside, and the list soon grew to corridor most valued by its community, include 300 locations (See Appendix A – this plan is aimed instead toward Intrinsic Qualities List). Of those developing a range of non-regulatory identified, 25 of the “outstanding” options and guidelines. By allowing qualities have been further assessed and people and groups to invest in reviewed in Section 3 of this Plan. preserving the intrinsic qualities of the corridor a tradition of stewardship can Concurrently to the intrinsic quality emerge that will serve the island inventory and assessment, existing community and visitors for years to conditions along the corridor were come. analyzed. The BSC then sub-divided all “Local residents can be your the elements of the corridor management byway’s best ambassadors - they Community Involvement plan and contributed their ideas, are aware of your organization’s thoughts, and suggestions for each purpose and initiatives.” Byway Steering Community element of the plan including: design guidelines, visitor experience, The Whidbey Island Steering Committee National Scenic Byway Program. interpretive program, marketing and Making the Grassroots Grow. (BSC), made up of about 30 local citizens, promotions, and signing and wayfinding. stakeholders, agency representatives, Once the ideas and strategies for each and technical experts, worked closely element were established, the BSC began with a consultant team to prepare this developing the Action Plan. The CMP in accordance with the FHWA planning process and BSC milestones are guidelines for corridor management illustrated in Figure 1.3. plans. The first step for the BSC was the creation of the vision statement and goals for the corridor. Next, the BSC Community Involvement Activities compiled an inventory of sites that were Extensive outreach to the island representative of the six intrinsic communities took place during the CMP qualities that characterize corridor process. management planning: historic, archaeological, recreational, natural, • Project Information Sheet scenic, and cultural. Members of the A Project Information Sheet was

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 7 1.1. IntroductionIntroduction

before and during the community open house series in May 2004. • Community Dialogue Workshops A “Community Dialogue” workshop series took place on Whidbey Island during the week of January 26, 2004. During this week, the consultant team traveled to four communities along the byway, including Oak Harbor, Coupeville, Bayview, and Clinton to gather input and ideas for the CMP. The purpose of the interactive workshop process was to: - Build awareness of the corridor Figure 1.3 - CMP Planning Process and Milestones planning effort and clarify the purpose of the project; created for the corridor and can be seen in Appendix, Community - Confirm general goals and Involvement Tools. The Project objectives for the planning process, as Information Sheet was periodically well as for the corridor; updated to reflect the latest - Report on the findings of the information and progress throughout existing conditions analysis and the CMP process. The first intrinsic qualities inventory and gain distribution of the Project Information additional input from the general Sheet occurred before the January 2004 public; public workshops, discussed below. - Inform the public on the Project information sheets were development of strategies to enhance distributed throughout the island, and preserve the corridor’s intrinsic displayed at libraries, visitor qualities, residents’ quality of life, information centers, governmental and visitors’ experiences; and agencies, and various shops and - Engage the public in the planning businesses. An updated project process and build support for the information sheet was distributed project as a whole.

8 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 1. Introduction

The consultant team and several provided with a special section inviting members of the BSC met with various people to vote on the byway name. local agencies and community groups • Press Releases during the workshop sessions. This Press releases for both the community extensive effort resulted in broad dialogue workshops and community participation and involvement of a open houses were distributed to all the diversity of community groups and local media. Copies of the press organizations throughout the island. releases are in Appendix, Community The meeting notes are in the Appendix, Involvement Tools. Community Involvement Tools. • Byway Naming Process • Corridor Management Plan The Steering Committee chose four Questionnaire names for the byway: During the workshop week in January - Whidbey Island Scenic Byway 2004, attendees and others interested in the CMP process completed - Whidbey Island Byway questionnaires. - Whidbey Island Scenic Passage • Community Open House - Whidbey Island Loop The consultant team participated in After the four names were chosen, the four community open house meetings process was open to the public input during the week of May 24, 2004. The and many creative contributions were open house displayed 15 presentation offered. The vast majority of public boards with the draft CMP elements used the name “Whidbey”. The other and recommendations. Questionnaires two words the public offered again and and comments were received during again were “scenic” and “isle.” the open houses. • Traveling Display What’s in a Name The Draft CMP was exhibited at various locations in all the communities Based on the input from the public, the along the byway. Boards showing the byway steering committee had to chose a corridor map, photos from the corridor, name. The committee decided it was and important aspects of this plan were important to use the word “Whidbey” as displayed. Public comment forms were it locates us geographically. Scenic is appropriate because the scenery really is

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 9 1.1. IntroductionIntroduction

the most striking thing you experience Completing this CMP is only the while traversing Whidbey Island. The Beginning word “Isle” appealed to the committee as well. This is an older word with historic The completion of the Whidbey Scenic and cultural richness. Isle Way Corridor Management Plan is only the first step toward future One thing the committee kept in mind is planning and management of the that they were about to name and corridor. The future of corridor planning designate America’s only scenic byway and management efforts will evolve over that is on an island. Whidbey’s byway is time, but an important next step will be uniquely different from all other the formation of an expanded corridor byways..it is an isle way. The committee organization to carry the vision, goals, chose the “Whidbey Scenic Isle Way”as and action items forward. the byway name.

From a marketing standpoint, this name has a lot of richness and complexity that can be spun off in several directions including “the island way of life”, “island time” or historic connotations and references. Even if people hear it as “aisle way” that would be appropriate considering the corridor-like nature of the byway.

10 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 2 Vision Statement and Goals

Vision • Preserve and enhance the scenic life for the island communities; and corridor along the highway; • Establish a long-term view of the The Whidbey Scenic Isle Way plan offers • Conserve the environment and open values and qualities that are most to enhance visitors’ experience and spaces of the island; important to the island. preserve the quality of life enjoyed by island residents. • Clarify the identity and qualities of the island that set it apart from other Goals The communities and residents of scenic highways and also create both Below is a list of goals developed by the Whidbey Island are dedicated to the visitor interest and community pride; Byway Steering Committee (BSC). development of a scenic byway plan for • Promote the collaboration and These goals provide the basis for the State Routes 20 and 525 and the pursuit cooperation of communities along the Byway Action Plan, discussed in Section of projects and activities that: scenic byway; 11. These goals assisted in defining the • Preserve the rural character and way of programs, activities, and projects of the Action Plan. WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 11 2.2. VisionVision andand GoalsGoals

• Strengthen community and agency that minimize impacts to citizens’ daily partnerships through collaborative routines, traditional cultures, and programs and projects. “island life-styles,” as well as to • Ensure that the CMP is consistent with minimize impacts to sensitive natural applicable local, state, and federal resources. plans and regulations and implement • Promote year-round experiences of the adopted community visions, plans, byway to travelers to disperse initiatives, and programs through plan visitation and expand economic objectives and strategies. (Coordinate benefits throughout all seasons. with ongoing and overlapping planning “…This is a heritage land. This is efforts.) • Continue to provide and enhance opportunities for multi-modal travel where the settlement of the Pacific • Leverage funding and resources along the byway (transit access, trails, Northwest began…. Here is the root through collaborative planning and pathways, etc.). Emphasize safe transit of statehood. Cherish it. Protect it. partnerships. Pass it on to future generations and touring programs as a means for unspoiled. Let them find the Garden • Increase community pride and reducing traffic congestion and impacts of Eden … for this is a heritage cooperative relationships between to resources. communities along the byway. land.” • Enhance views and vistas along the • Broaden awareness of the need for byway and the character of the corridor Cook, Jimmie Jean. Foreword. A preservation, protection, and Particular Friend, Penn’s Cove. By Cook. overall (through vegetation Coupeville: Island Historical Society, 1973. stewardship of sensitive and unique management and development of byway resources and intrinsic qualities: overlooks). - natural environments and habi- • Enhance ways to offer citizens and tats; visitors immediate access to - forest and understory that en- undeveloped areas, while also hance the scenic quality and preserving and protecting sensitive natural attributes of the byway; resources. and • Expand educational and interpretive - historic settings and buildings. opportunities for citizens and visitors • Increase business, tax revenue, and through wayside exhibits, historical carefully enhancing tourism in areas markers, and other programs and along the byway that can adequately projects. support increased visitation. • Strengthen character and visitor • Promote and manage tourism in ways experiences related to gateway communities to the byway (i.e.

12 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 2. Vision and Goals

Mukilteo, Clinton, Oak Harbor, • Organize and conduct regularly Coupeville, Langley, etc.) and sponsored byway events and disseminate byway information to celebrations. travelers in gateway communities and • Provide formal opportunities to foster at other recognizable locations. public interest, involvement, and • Enhance visitors’ traveling experience “sense of ownership” in the health, (convenience, comfort, safety, etc.) welfare, and success of the byway. through the creation of additional pull- • Ensure compliance with regulatory off areas, overlooks, traffic calming outdoor advertising and signing techniques, directional signs requirements. Create corridor-specific information and interpretive centers, design guidelines to ensure that the restrooms/rest areas, “park-like” park visible roadside elements along the and ride areas, recreation byway maintain and enhance its unique improvements, and other services and character, are of lasting quality, and amenities. unobtrusive, blending in with the • Build a cohesive “brand identity” for natural environment. the byway; creating a distinctive • Restore, maintain, and enhance native character of signing, logos, brochures, plant communities adjacent to the state etc. for the Whidbey Island Byway, as highways, where feasible. well as blending, where beneficial, with the identity of the Cascade Loop. • Develop byway specific promotional materials (driving tours, brochures, videos, etc.)

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 13 3 Existing Conditions Analysis

Whidbey Island- byway serves as a welcome mat to a throughout time. A journey along the byway is often one of discovery, leading The Overall Experience collection of public and private lands, threading through national, state and to experiences and destinations beyond The diverse landscapes, historical and county parks, forests, conservation lands, the highway corridor. The byway is only cultural resources, and majestic views of wetlands, working farms, pastures, the beginning of the experience. Beyond mountains and water offer an prairies, rural homesteads, light the traveled way, residents and visitors unforgettable experience for residents industrial parks, naval air station can enjoy a multitude of recreational, and visitors traveling the Whidbey properties, urban centers, and small, historic, cultural, archeological, natural, Scenic Isle Way. historic towns and communities. and scenic experiences on Whidbey Island. Washington icons, including the From Deception Pass State Park at the The byway unites the lives of past and snow-capped peaks of the Olympic north end of the island, to the Clinton present island residents, and the Mountains, Mount Baker, Mount Ferry Terminal at the south end, and the abundance of cultural, historical, and Rainier, and other Cascade peaks, and short spur to the Keystone Ferry, the natural resources they have cherished the brilliant waters of the Puget Sound,

WHIDBEY ISLAND SCENIC CORRIDOR MANAGEMENT PLA N 15 3. Existing Conditions Analysis

Strait of Juan de Fuca, and many bays suitable strategies can be developed to and coves provide stunning backdrops preserve and enhance the byway. for these experiences.

The island communities of Oak Harbor, History Coupeville, Greenbank, Freeland, Whidbey Island showed its worth as a Bayview, Langley, and Clinton all have productive and pleasant place to live their own unique characteristics well before Europeans discovered its including architectural style, cultural advantages. American Indians found events, and historical pasts. Each of that it suited their needs, and the Salish these places offers a variety of facilities Tribe established several settlements and services for byway travelers, around Penn Cove. functioning as important gateways and activity hubs for the corridor. Later, Whidbey Island was among the first parts of Washington State to be Island County Historical Society Museum 2004 Whidbey Island’s location within the Calendar—Native American Heritage: Tribal discovered by Europeans. Captain Influences and History in Island County, “rain shadow” of the Olympic Mountains, George Vancouver’s expedition explored photographer and year unknown creates a unique phenomenon of sunnier, the Straits of Juan de Fuca in 1792. His drier weather conditions, particularly in crew member, Master Joseph Whidbey, the central and north portions of the is credited for discovering Deception island. The mild weather makes the Pass and venting down to examine the “People have lived in Island County island an enticing getaway where shore along Penn Cove. It was Whidbey for millennia; their history there visitors can enjoy year-around who named Penn Cove, for a good friend has been inextricably tied with the recreational opportunities, including of his. Charmed with the beauty of the islands and the waters that hiking, wildlife viewing, biking, island, Vancouver remarked that it surround them.” kayaking, camping, beach walking and reminded him somewhat of a few of the fishing. huge estates in Europe, and he was White, Richard. Land Use, Environment, and Social Change: The Shaping of Island surprised by the amount of game he saw. County, Washington. Seattle: University By looking at existing conditions of the of Washington Press, 1980. 5. byway, including history, climate, The first contact between the indigenous geology, hydrology, vegetation, wildlife, islanders and white men occurred when land use and demographics, the regional Whidbey’s party landed in Penn’s Cove. economy, and transportation conditions, Here more than 200 Skagits stared in the important resources of the byway can rapt astonishment at the white skin of be identified. With this knowledge, the visitors. Vancouver unbuttoned his

16 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 3. Existing Conditions Analysis

tunic and shirt to show that he and his grew. Coupe had the distinction of being men were not painted with ashes, as the the only man ever to sail a full-rigged ship Native Americans thought. Joseph through Deception Pass. In Coupe’s time Whidbey was the first known contact the more than one thousand American Indians Snohomish Indians had with white men lived along the waterfront by his claim, a on the south part of the island, although few of whom worked for the white settlers. their land would be visited by trappers during the early part of the 19th century. The population grew steadily, and by the 1870’s there were several prosperous In 1848 Thomas Glasgow took up a communities. Living was cheap; although prairie claim on the western side of the imported food was high priced. The island, not far from present day cultural growth advanced with the Coupeville. Intending to settle there, population: more schools and churches Glasgow planted some crops. It was not were established; lodges and clubs long, however, before the Skagits became organized; and some communities grew displeased, and Glasgow, thinking his into small towns. life in danger, fled the island. Two years passed before there was any other The south end of the island was inhabited attempt of settling. Then, under the predominately by the Snohomish for Oregon Donation Land Law, Isaac Ebey decades, until the 1850s when adventures claimed the same land Glasgow had begun arriving to exploit timber and abandoned. A month later three more fishing resources; and some seeking a men took up claims on the prairie. Mrs. place apart from society. The community Isaac Ebey, her children, and another of Clinton was born in 1875 and continues family arrived in 1851. As time passed, to this day as the southern gateway access more settlers arrived, most of them to the mainland. By 1880, a handful of taking up claims on the prairie. By 1856 settlers had arrived and become seven blockhouses had been built at landowners. By 1890s, Langley was strategic places for the protection of the established but came under hardship in women and children during Haida 1894 when a storm destroyed the town attacks. dock. Logging camps employed many people, including a large group of Finnish Thomas Coupe, a sea captain, took up a laborers in Greenbank, most of whom had claim in 1852 on Penn’s Cove, and it was previously lived in Minnesota. on this property the town of Coupeville

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 17 3. Existing Conditions Analysis

Freeland was originally a Socialist favorable flying weather existed 96% of community. Each member of the Free the time. Land Association paid $10 for 5 acres. The future payments were to come from Today, Whidbey Island has all the charm the profit of the co-op. of the country, yet the facilities of the city. There are few places where the At the turn of the century Fort Casey majestic peaks of the Olympics or came into being for the defense of Cascade Mountains cannot be seen. It is Admiralty Inlet. By this time almost all a place of forests, farms, and rail fences, the prairie land was being farmed, and, windswept bluffs, sandy beaches covered as logging grew apace, new farms with drift wood, and hidden corners that developed where tall timber grew. whisper of days long past, but nevertheless capturable in the smell of Comparative prosperity arrived after the wind. World War I. Farms producing grain, cattle, dairy products, poultry, and berries began to come into their own. Climate The Comstocks brought fame and a The maritime influence on Whidbey world’s record to Whidbey by raising a Island’s climate creates generally cool

record 1171 summers and mild winters. Average /2 bushels of wheat to the acre. Selected potatoes, a foot or more in highs during the summer months are in length, were shipped East. A fine bridge the upper 70s with average lows in the took the place of the old ferry across winter months in the mid-30s. The Deception Pass, and a regular ferry temperature at the northern end of the service from Mukilteo to Columbia Beach island differs from that at the southern replaced the up-island ferry route from end by about three degrees. Fog is Everett. A large farm for the breeding of commonly present from fall through game birds was developed by the state. winter throughout the whole island.

North of Oak Harbor lies a permanent As noted above, the climate of Whidbey United States Naval Air Station, Ault Island is heavily influenced by the Field. Whidbey was chosen because Olympic Mountain “rain shadow” effect, meteorological studies showed sunlight resulting in relatively low rainfall prevailed 75% of all daylight hours, and amounts compared to other areas in the

18 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 3. Existing Conditions Analysis

Pacific Northwest. The rain shadow is a the mainland by the East River result of the mountains interrupting the technically makes it a peninsula). The flow of moist air coming off of the Pacific island topography is diverse and Ocean. The Olympic Mountains form a includes beaches, bluffs, rolling hills, barrier that protects the northeastern prairies, and ridges. The island’s Olympic Peninsula, the San Juan Islands elevation ranges from sea level at and Whidbey Island from the heavy rains shorelines to 500 feet in the highest that move off the ocean. inland areas. Approximately five The average annual rainfall on the island percent of the island consists of prairie It’s a place with a rich if turbulent is 25 inches, compared to 200 inches in lands, and these areas are some of the history. The ice age bore down Forks, Washington, just 120 miles to the richest farmland in the state. 100,000 years ago, bulldozing a west. Rainfall amounts vary on the wide, flat prairie out of the middle Whidbey Island was once located island, with south Whidbey receiving 30 of the island and depositing a layer beneath a layer of ice approximately inches a year on average, and central of rich soil, ideal for growing camas 3,000 feet thick. Three waves of glaciers bulbs (tubers prized by Native Whidbey receiving 19 inches a year on helped form Puget Sound. When the Americans), potatoes, grain, average. The Deception Pass area Vashon Glacier - the last of the these - enormous Hubbard squashes and typically receives about 26 inches of retreated some 15,000 years ago, much of even peas, until the pea weevil annual rainfall. Some precipitation (at present day Whidbey Island was still devastated the crop during the least one hundredth of an inch) occurs an under water. It took another 4,000 to Depression. average of 139 days each year, and 5,000 years for the island to emerge after December is the rainiest month of the Smithsonian Institution. Destination the waters of Puget Sound receded. America: Living Tradition. May 2004 year. Snow is unusual on the island with 1.5 inches accumulating an average of Whidbey Island soils were formed as one day each year. glacial ground moraines were dropped over sandy glacial till. The characteristic Geology and Physical hummocky surface of a moraine produced the hills and depressions that Characteristics mark the topography of the island. This At 45 miles long and one to ten miles is further scarred by the presence of wide, Whidbey Island is often considered craters, called kettles, which were the longest island in the contiguous produced when large blocks of ice buried United States (New York’s Long Island by the till melted. Today, this feature may be longer, but its separation from can be observed at Lake Pondilla in Fort Ebey State Park.

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 19 3. Existing Conditions Analysis

Hydrology Passage. Deception Pass lies at the including Cranberry, Swan, Hastie, Goss, north end of the island, cutting off the Crockett’s, Hancock, Lone, and Deer Water defines the experience of Whidbey mainland from the island. lakes, to name a few. Crockett Lake is Island located inland sea of Puget Sound. actually a 250-acre shallow saltwater A visit to the island starts with a marine A dual layer flow of water occurs marsh. It is unique in that the crossing by bridge or ferry. Once there, between Puget Sound and Admiralty freshwater of the lake is separated from numerous lakes, streams, wetlands, bogs, Bay, as freshwater flows on the surface the saltwater of Admiralty Bay by a mile and other hydrologic features highlight and more saline waters flow on the long gravel bar, known as the Keystone the diversity of the landscape and its bottom. The freshwater tends to move Spit. Another important lake on the wild beauty. seaward and the more saline waters flow island is Hancock Lake. Once an inland. Deception Pass, a shallow area, operational area for Whidbey Island The west side of the island is bound by is one example of where these two layers Naval Air Station, the lake now supports the Strait of Juan de Fuca, Admiralty converge. a high-quality wetland area, which Inlet, and Puget Sound. The east side is provides significant wildlife habitat. bound by Skagit Bay and Saratoga Several lakes are located on the island,

20 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 3. Existing Conditions Analysis

Vegetation cattails, skunk cabbage, and sphagnum moss can also be found on the island. Whidbey Island’s many landscapes create opportunity for a wide array of On Grasser’s Hill, the only community of vegetation to flourish, much of it visible the Rocky Mountain iris (Iris along the scenic corridor. Trees, missouriensis) growing west of the including bigleaf and vine maples, alders, Cascade mountains can be found (A Road ash, Douglas firs, western red cedars, Like No Other). Whidbey Island is also hemlocks, madronas, and other species home to one of three known populations provide a green backdrop for the of Golden Indian Paintbrush, which can corridor. Once heavily forested with be seen at Fort Casey State Park. mature conifers, the island is still approximately 58 percent forest, The island’s prairies are significant although little old growth remains. The because they did not develop forest stand of old growth forest in Deception cover; however, cahas, lomatium, Pass State Park is the second oldest chocolate lily, and other wild flowers stand in the greater Puget Sound provide color to these treeless areas. lowlands. (The largest old growth stand Native grasses found on the island is located in Moran State Park on Orcas include dune wildrye, velvet grass, Island [A Road Like No Other]). yarrow, sand verbena, orchard grass, blue grass, and pea vine. Native understory vegetation includes the beautiful Pacific rhododendron and The variety of native species growing other shrubs such as oceanspray, along the corridor is impressive. snowberry, Oregon grape, salmonberry, However, nonnative, invasive species of and red flowering currant. Groundcover vegetation do pose problems along areas along the corridor consists of species of the corridor. The Himalayan such as sword fern, salal, and mock blackberry is the most predominant of orange. Flat leafed cacti at Partridge these. Point are particular to the area, and there are many species of wildflowers, A listing of the plants found on Whidbey including false lily of the valley, yellow Island is included in the Appendix. monkeyflower, and lupine. Wetland vegetation such as nettles, sedges,

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 21 3. Existing Conditions Analysis

Wildlife and Fish herons are commonly seen throughout the area. The abundance of vegetation on Whidbey Island supports a variety of wildlife. A The seashore, marsh, and tidal lagoon wide array of birds, including shorebirds, stretching from Ebey’s Landing to Point wading birds, waterfowl, raptors, and Partridge, and the dense woods upland, upland and forest birds live and migrate are still minimally impacted by human in the area. Warblers, including the activity. Thus, they offer safe shelter to yellow-rumped, Townsend’s, black- black-tailed deer, raccoons, red-tailed throated gray, and orange-crowned take foxes, and other common, small advantage of the native madrona tree for woodland creatures. Coyotes, cottontail habitat. Understory shrubs provide rabbits, beavers, and additional small berries for birds such as the mammals have colonized other parts of hummingbird, northern flicker, and the island. American goldfinch. The waters in and around Whidbey Island provide key California sea lions, migrating gray habitats for a myriad of birds and aquatic whales, Orca whales, Dungeness crab, species. and various other aquatic species live in the waters of the surrounding area. In Many types of ducks, geese, swans, and the waters between Whidbey Island and other waterfowl species use the wetlands Port Townsend, the largest species of Photo by Larry Webster and shoreline for resting during octopus in the world lurks: the Pacific migration, breeding, and nesting. giant octopus. Another of the world’s Crescent Harbor marshes provide largest species, the gumboot chiton, lives habitat for the black oystercatcher, an in the Keystone jetty area (A Road Like Audubon Society WatchList species. No Other). Birds such as the black turnstones, surfbirds, peregrine falcons, merlins, use Fish that live and spawn in the area Penn Cove and Kennedy Lagoon as include coho (silver), chum, pink, and winter foraging areas. Crockett’s Lake Chinook salmon, as well as cutthroat and the adjacent agricultural lands near trout. The marine waters adjacent to Fort Casey State Park support a large and within the island are very important population of permanent and migratory for juvenile salmon rearing and waterfowl. Bald eagles and great blue migration, particularly pink and chum fry.

22 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 3. Existing Conditions Analysis

Significant commercial and recreational Demographics, Land Use, and fishery resources exist within or nearby the Regional Economy the island. Penn Cove is the site of one of the major recreational fisheries for Demographics surf smelt in Puget Sound, and much of the Penn Cover intertidal area is used Whidbey Island is generally defined as for spawning. three areas: north, central, and south. North Whidbey includes Oak Harbor and Shellfish resources in the area are the surrounding area. It has a significant. Commercial resources population of approximately 40,000 include a substantial subtidal clam bed people (2003). Central Whidbey includes offshore from Ebey’s Landing. The Penn the Town of Coupeville, Island County’s Cove clam beaches are among the most seat, and the community of Greenbank productive in the state, and the mussel and has a population of about 10,600 culture in Penn Cove represents a major people (2003). South Whidbey includes industry for the island. the unincorporated communities of Freeland, Bayview, Clinton, and the There are several species that once incorporated city of Langley and has a inhabited the land and waters of population of about 14,000 people (2003). Whidbey Island. Remnants of woolly mammoths, including teeth, bones, and The Communities tusks have been found along the shoreline and cliffs near Possession The communities that make up the Point to Double Bluff. Wolves, bears, byway are as different in character and and elk also used to live on Whidbey culture as the natural landscape that Island. surrounds them. Each community, from Oak Harbor to Clinton, offers a unique A listing of the birds, mammals and cultural flavor. aquatic species that utilize Whidbey Island is shown in the Appendix. Oak Harbor is the largest city on the island. In addition to the late twentieth century look of the highway corridor, the city also boasts a relatively intact early twentieth century and interwar main street overlooking the protected bay of

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 23 3. Existing Conditions Analysis

Oak Harbor Although Oak Harbor’s exists today as it did back in the 1800s as waterfront is currently fragmented and a rural, farming community. Greenbank disconnected from the “old town,” Farm is a unique partnership with opportunities exist to create a more working farms, artists, and craftspeople. inviting community with connectivity A cooperative market place supports and attractive streetscape designs, local farmers and merchants, recreation, public art, landscaping, and other and a place for people to gather for amenities. Oak Harbor’s waterfront special events. offers beach access, parks, and a full service marina while enjoying the Freeland is currently a vibrant and sweeping views of the Cascade and active community in south Whidbey that Olympic mountain ranges. Oak Harbor is was established in the early 1900s as a host to several annual cultural events utopian socialist society. Freeland is a including Holland Happening, Olde commercial and retail hub that also provides abundant recreational opportu- Fashioned 4th of July, and Race Week. nities including beaches, parks, trails, Coupeville is the oldest town on and wetland. Whidbey Island and the second oldest in Washington. It is the center of the Ebey’s Bayview is not classified as a town, but Landing National Historical Reserve, Bayview Corner is a community hub established “to preserve and protect a made up of small local shops, including a rural community which provided an garden store, café, and historical commu- unbroken historic record from nity center. Bayview is host to many nineteenth century exploration and community events, including a farmers’ settlement of Puget Sound up to the market, and gatherings. Several acres of present time” (Act of Congress in 1978). the Bayview Corner are used for recre- Many original structures in Coupeville ational activities, including open space, still exist along Front Street and in the educational trails, and a wetland. surrounding area. Coupeville is host to a variety of cultural events including the Langley is the only incorporated city in Kite, Logan Berry, Harvest, and Mussel south Whidbey. It is a charming, historic Festivals. community with a vibrant waterfront and Greenbank is a small community in boat harbor, quaint galleries, cafes, and retail shops. Langley also provides central Whidbey. Much of Greenbank,

24 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 3. Existing Conditions Analysis

passive recreational opportunities with land use, housing, historical magnificent views of the Saratoga Passage and Olympic Mountains. preservation, natural lands, transportation, shorelines, parks and Clinton is an important gateway for recreation, water resources, and travelers to Whidbey Island. Several utilities. The Transportation Element is million vehicles travel through Clinton highlighted in further detail in Section 8 annually as they disembark at the ferry – Transportation Systems Analysis. The terminal. Residents have expressed Comprehensive Plan contains goals, concerns about the speed of traffic and existing conditions, and future programs the divisive nature of the highway and projects for each element. through the core of the town. Clinton Other Plans provides many commercial and retail shops for island residents and visitors. The local jurisdictions along the byway Clinton’s waterfront is a valuable asset and within Island County include Oak to the community and visitors alike, as Harbor, Coupeville, and Langley. These breathtaking views of the Olympics, jurisdictions have their own Cascades, and Puget Sound can be seen comprehensive plans and zoning codes. from nearly every location in the Design guidelines have also been settlement. developed for the Freeland/Bayview area. Ebey’s Landing Natural Historic Reserve also has a comprehensive plan Existing Management Plans and that focuses on preservation and Policies management of the rich farm and prairie lands, protection of critical viewsheds, Island County historical buildings, and shorelines, and The Whidbey Scenic Isle Way is located interpretation of the significant within Island County, Washington. historical and cultural elements that Island County has a comprehensive plan encompass the reserve. The Reserve’s and zoning code. Comprehensive Plan serves the mission of the National Park Service, which is to protect and enhance resources while Island County Comprehensive Plan providing a quality visitor experience The Comprehensive Plan, adopted in and serving the needs of the public September 1998, contains ten elements: welfare. Whidbey Island shorelines are

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also protected and regulated through the manufacturing and 12 percent in retail. Washington State Shoreline Other industries, including Management Master Program. entertainment and arts, construction, and research, administration, and Regional Economy waste management employ eight percent of Island County residents, Over the past two hundred years, while the agriculture industry Whidbey Island’s economy has changed encompasses 1.7 percent of the work drastically. In the early days of the force. 36.9 percent of Island County native peoples, fishing and trading were residents are not employed, and this the primary activities on the island. As includes the large number of retired the early settlers arrived this shifted to citizens. Photo by Larry Webster farming, fishing, logging, and hunting. Today’s economy is much different from either of these situations, and in Transportation Conditions September of 1939, 14 months before The existing conditions of the island’s “Platted in 1881, the town of World War II began, the US Naval Air transportation system have been Coupeville grew quickly into the Operations chose to base operations on assessed by the Washington State market and service center of the Whidbey Island. The Naval Operation Department of Transportation and island.” continued to grow, and today the Naval Otak. An in-depth analysis of these Air Station is one of the economic Gilbert, Cathy. Reading the Cultural conditions is included in Section 5 – Landscape: Ebey’s Landing National leaders on Whidbey Island. Transportation System Analysis and Historical Reserve. Seattle: National Recommendations. Park Service, 1985. 40. According to the 2000 US Census, 21 percent of Island County residents (which includes Camano Island) are in the education and health service industry, while 12 percent are in

26 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 4 Intrinsic Qualities Assessment

Photo by Larry Webster WHAT ARE INTRINSIC communities along the highway, and to Scenic Byways Program defines intrinsic QUALITIES? each other, thereby contributing to an qualities as the “features that are underlying theme or story, the byway considered representative, unique, Intrinsic qualities are the important may qualify for national designation. irreplaceable, or distinctly characteristic attributes of the byway that make it Such is the case with the Whidbey Island of an area.” special – the significant features and corridor. places that attract people and also may FHWA recognizes six primary categories become the focus of some combination of Intrinsic qualities are not just landmarks of intrinsic qualities: natural, enhancement, preservation, and and activities along the road, but rather recreational, scenic, historical, cultural, promotion. the distinctive features that create an and archeological. FHWA Policy 5.18.95 overall sense of the corridor’s character, describes these categories as follows. Typically, when these outstanding history, or culture. The Federal Highway resources relate to the highway, the Administration’s (FHWA) National

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Natural visible environment. The characteristics Natural quality applies to those features of the landscape are strikingly distinct of the visual environment that are in a and offer a pleasing and most memorable relatively undisturbed state. These experience. All elements of the features predate arrival of human landscape – landforms, water, populations and may include geologic vegetation, and man-made development formations, fossils, landforms, water – contribute to the quality of the bodies, vegetation, and wildlife. There corridor’s visual environment. may be evidence of human activity, but Everything present is in harmony and the natural features reveal minimal shares in the intrinsic qualities. Virginia planters and New disturbance. England sea captains colonized Historic the island in the mid-1800s. Recreational Historic quality encompasses legacies of Many of the prairie houses are the past that are distinctly associated Recreational quality involves outdoor even today inhabited by descen- with physical elements of the landscape, dants of the original families. activities directly associated with and whether natural or man-made, and that Other dwellings, legend has it, dependent upon the natural and cultural are haunted by their ghosts, like elements of the corridor’s landscape. are of such historic significance that they the woman sometimes seen to be Recreational activities provide educate the viewer and stir an staring from the downstairs opportunities for active and passive appreciation of the past. The historic window of the 1853 Coupe experiences, including, but not limited elements reflect the actions of people House, the oldest in Coupeville. to, swimming, bird watching, boating, and may include buildings, settlement fishing, hiking, and camping. Driving the patterns, and other examples of human Smithsonian Institution. Destination byway itself also qualifies as a activity. Historic features can be America: Living Tradition. May 2004 pleasurable experience. Recreational inventoried, mapped, and interpreted. experiences may be seasonal, but the They possess integrity of location, quality and importance of the experience design, setting, material, workmanship, as part of a seasonal activity must be feeling and association. well recognized. Cultural Scenic Cultural quality includes the evidence Scenic quality is the heightened visual and expressions of the customs or experience derived from the viewing of traditions of a distinct group of people. Cultural features include, but are not natural and man-made elements of the limited to, crafts, music, dance, rituals,

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festivals, speech, food, special events, Whidbey Island Intrinsic and vernacular architecture that are Qualities currently practiced. The cultural qualities of the corridor may highlight The Whidbey Scenic Isle Way possesses one or more significant communities and/ an abundance of intrinsic qualities or ethnic traditions. within all six categories. In fact, the Steering Committee inventoried over 300 Archaeological examples on the island. The complete list Archeological quality involves those is included in Appendix A. characteristics of the corridor that are Out of the nearly 300 intrinsic quality physical evidence of historic or locations inventoried, key examples were prehistoric human life or activity that chosen and are described below. In some are visible and capable of being cases, these locations relate to one inventoried and interpreted. The another. For example, unique natural byway’s archeological interest, as qualities of the corridor contribute to the identified through ruins, artifacts, abundance of recreation opportunities structural remains, and other physical and scenic qualities. Historic elements evidence, have scientific significance that contribute to present-day culture. educate the viewer and stir an Figure 4.1 maps all the intrinsic appreciation for the past. qualities. What is required for National Deception Pass State Park Scenic Byway and All American (Historic, Scenic, Cultural, Road Designation? Archaeological, Recreational, Natural) For official designation as a scenic The dramatic entry to Whidbey Island byway, the FHWA requires corridors to from the north begins in Deception Pass possess intrinsic qualities within one or State Park. This park encompasses the more of the six categories: natural, character of the island, thus it is no recreational, scenic, historical, cultural, wonder that it possesses all six and archeological. An All-American categories of intrinsic qualities. Its Road must possess intrinsic qualities in natural qualities include secondary and at least two categories. old-growth forests including an eight-

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hundred year-old Douglas Fir, the oldest over distant mountains are of the in the park, growing at the Sand Dunes. essence of this place, too. Other natural qualities include lakes, sand dunes, wetlands, bluffs, marine Historic structures like the bridge beaches, and tidal mud flats. Tidepools remind visitors of the park’s rich past. and a tranquil landscape are found on Instrumental in the development of the Rosario Head. A plethora of wildlife is park, the Civilian Conservation Corps found in the park and the surrounding (CCC) built several buildings and park waters, including birds such as osprey elements in the 1930s that are still used and peregrine falcons as well as animals today. These buildings include the like whales, clams, and crabs. interpretive center at Bowman Bay as well as buildings now used as kitchen Recreational opportunities abound at shelters. Deception Pass State Park. Passive activities include wildlife and bird The archeological qualities date back watching, picnicking, interpretive 6,000 years ago during the settling of activities ranging from panels to a Cornet Bay. The Samish, a Coast Salish museum, lectures and slide shows at the tribe, settled the land and lived in what outdoor amphitheater, and ranger talks. is now the state park until the early Active recreational activities vary from 1900s. In 1792, Captain George boating, fishing, and swimming to hiking, Vancouver led the first European beachcombing, clamming, and crabbing. explorers into the area, leaving behind nomenclature still in use today. Scenic qualities found in the park consist of historic structures, such as the Deception Pass Bridge, incorporated into Dugualla Bay natural features. Particularly (Natural, Scenic, Historic) compelling is the western vantage point on the east end of the bridge, as one Intrinsic qualities present at Dugualla observes the sheer, forested cliffs Bay include natural, scenic, and historic plunging into the turbulent waters qualities. The natural landscape churning hundreds of feet below its provides habitat for wildlife while the elegant architecture. And while this surrounding scenery includes impressive location defines the park, the mature views of Mt. Baker. The historic nature forests, rocky coasts, islands, and sunsets of the area is derived from the rich

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farming history begun with pioneer Oak Harbor was settled in 1853 by the families and continued today. It is in Irish but also has a rich military and this area that a singular culture of Dutch heritage. Visitors can learn managing resources for the use of through an A-6 airplane display and a wildlife and farmers occurs. windmill replica Public art is exhibited throughout the town, including the Lady Oak Harbor Downtown/Marina/ in Waiting sculpture and a wooden eagle. City Park Blue Fox Drive-In (Recreational, Scenic, Cultural, Historic) (Historic, Cultural, Recreational) Oak Harbor Marina and City Park offer recreational, scenic, and cultural Remember when movies were only ten intrinsic qualities to visitors. A turn off cents and a Coke was only five cents? the highway on Pioneer Way leads to Those days might be long gone, but the dowtown Oak Harbor, sheer Blue Fox Drive-In theater remains as a topographical slendor. Downtown rises testimony to this past. Adults love the on a gently slope overlooking a sparkling drive-in theater for the memories it harbor, with a modern boat marina with evokes, while kids like it for its 404 slips. Recreational opportunities irregularity. This blast from the past include sailing access to Saratoga exhibits three intrinsic qualities: Passage, easy access to the San Juan recreation, history, and culture. Not Archipelago, excellent salmon fishing, only are movie-goers at the Blue Fox walks along the waterfront and beach, Drive-In enjoying a good movie, they are swimming, and bird watching. If also becoming part of distinctly recreating is not what the visitor desires, American history. The Blue Fox Drive- beautiful scenery is readily available in In is one of the only drive-in theaters in views out over the harbor and marina. Washington and one of only 400 in the Piled driftwood is also visible when United States. This theater provides the looking towards the bay and Penn Cove, opportunity for an individual to enjoy the making a lovely setting for a photograph rural character of the island while also to remember the area. seeing the latest box office hit.

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Fort Ebey State Park the most photographed site on the (Natural, Recreational, Scenic, Historic) island: the Admiralty Head Lighthouse. Originally built in 1861, the lighthouse Visitors to Fort Ebey State Park witness was the sixth in Washington Territory. first hand Mother Nature’s impact on the The current building was built in 1903 land through their natural, recreational and is on the National Register of and scenic experiences. Visible within Historic Places. A lighthouse keeper the park are depressions, known as operated the lighthouse until 1922. He kettles, left in the earth from retreating was thought to have the most glaciers. Over time, forests of hemlocks comfortable house in the territory, as he and firs have reclaimed the land, enjoyed an indoor bathroom and laundry providing ample hiking trails through room. the forests and along the beaches. Visitors who choose to hike within the Historically, the fort formed a triangular park see first hand the stirring beauty of defense system with Fort Flagler and this forest type, which speaks of the Fort Worden. The purpose of the forts resilience of nature. was to defend against hostile war ships entering Admiralty Inlet, the entrance to Fort Casey State Park Puget Sound, and to protect the Bremerton Shipyard. Built with state-of- (Natural, Recreational, Scenic, Historic) the-art weaponry, the fort included two In the late 1800s, Fort Casey served as 10” disappearing guns. Visitors to the part of the United States’ coastal park today can view these guns, the only artillery defense system. Today, Fort ones of this type on display in the world. Casey State Park furnishes visitors with Although this fort never experienced numerous recreational, scenic, historic action, it was used until World War I. At and cultural opportunities. This state that time, technological advances in park is a starting point for recreational warfare rendered the fort obsolete. destinations both locally and within the Military influence on the island greater San Juan Islands. Specifically, at continues today, however, with the US the park, visitors can enjoy boating, Navy base located at Oak Harbor. fishing, hiking, and public open space for Visitors to this park can expect to learn more passive activities. about past and present armies in the Fort Casey State Park contains perhaps comfortable setting of a state park.

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San De Fuca aspect of ancient American heritage so (Natural, Recreational, Scenic, Historic. prevalent on the island. Cultural) Another layer of history in Penn Cove The scenic, historical and cultural includes its function as a port of ocean- attributes of San De Fuca attract visitors bound steam ships from Seattle. The age year around. This picturesque site is set and breath of experience found in this against the backdrop of Penn Cove. The area illustrates the complexities of life area was settled in the late 1800s as a along the coast. farming community, and today it maintains its rural character, offering Ebey’s Prairie “A thousand places in Western visitors a glimpse of the past. Washington could vie for the title of (Natural, Recreational, Scenic, Historic, “quintessential Northwest view,” Cultural, Archeological) the one vista that seems to sum up Penn Cove As a part of Ebey’s Landing National why this is such a wonderful place to live. Yet there is one place so (Natural, Recreational, Scenic, Historic, Historic Reserve, Ebey’s Prairie accessible, so historic, so panoramic Cultural, Archaeological) maintains natural, recreational, scenic, and so representative that it From its natural beauty to its and historic qualities. The natural perhaps deserves to be first among recreational opportunities and its rich prairie has changed little over the last equals. The bluff trail at Ebey’s history, Penn Cove offers something for 150 years, resulting in a tranquil farm Landing, in the middle of Whidbey every visitor. This naturally sheltered setting. Early inhabitance of the area Island, has been balm for ten bay provides habitat for wintering birds. dates back at least 9,000 years. The thousand souls, a Mecca for urban- Looking closely, one might even see an Skagit Indians first used the land for ites seeking renewal.” eagle nesting here. Birds and various agriculture and were followed by the pioneers. Today, farming is still an Seattle Times, Whidbey Island’s Best Kept types of marine life find shelter in the Secret, William Dietrich. June 2004 bay, and shellfish such as mussels have important component of the prairie and been in Penn Cove for centuries. of the economy of the area.

American Indians also lived in Penn Not only has farming survived through Cove for centuries. They were drawn by the years, but so have the originally built the cove’s natural shelter and vast structures. Homes, such as the Jacob shellfish beds, which provided a staple Ebey Saltbox built in 1855, still stand item for their diet. Visitors exploring today in their initial locations. Other Penn Cove can gain insight into this historic locations include the Sunnyside Cemetery, barns, and outbuildings.

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Roads, fencelines and hedgerows also illustrates the scenic and historic remain in the same location; the last 150 character of the town. Walking down years have changed the management of Front Street exposes one to the the landscape very little. commercial center of town. Make sure to stop at Town Park, which encompasses Grasser’s Hill almost two acres and features impressive (Natural, Scenic, Historic, Cultural, views over Penn Cove. If one still feels Archeological) like walking, take the steps between Toby’s Tavern and the Knead and Feed The natural beauty of Grasser’s Hill is restaurant to the beach where strolling immediately evident to all those who and beachcombing are available. When visit. Only during the summer, though, tired of walking, stop into one of the does the hill’s most unique feature reveal many choice restaurants or check into itself as a show of rare and unusual one of the historic lodges or bed and wildflowers blooms, including the native breakfasts for a good night’s rest. iris. The hill resembles a beautiful painting in shades of pinks, purples, For those visitors who desire more in- yellows, and whites. Raptors and other depth knowledge about the rich history wildlife also find the hill appealing. and culture of Coupeville, a visit to the Although many cultures, including local museum is a must. Here one can American Indians, cultivated this hill, learn about the water festival races in the landscape remains nearly unaltered. the 1920s and 1930s, read about the Coupeville Wharf, and view the Native American canoes on display. Another Town of Coupeville way to enjoy Coupeville is to attend a (Recreational, Scenic, Historic, Cultural, bandstand show. Regardless of one’s Archeological) interest, the Town of Coupeville offers something for visitors young and old Established in the 1850s, Coupeville is alike. the second oldest town in the State of Washington. As such, it draws visitors with its medley of recreational, scenic, Crockett Lake historic, cultural, and archeological (Natural, Recreational, Scenic) qualities. A walk through Coupeville will not only provide exercise, but it Crockett Lake’s importance to migrating birds provides recreational opportunities

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for visitors interested in bird watching. opportunities for salmon fishing. This lake is one of Washington’s most Historically, the spit was developed as a important habitats for shorebirds, result of the building of Fort Casey; waterfowl, and raptors during the spring located here was the quartermaster and fall migratory seasons. Its brackish dock, which serviced the fort. The US water and salt marsh environment Corps of Engineers eventually built the provide biologically rich wetlands that Keystone Jetty and harbor in the 1950s. waterfowl need. This environment also This enabled ferry service across to the provides learning opportunities for Olympic peninsula, which still operates people in order that they may today. The Keystone Spit is owned by understand the role a healthy wetland Washington State Parks and Recreation, plays in sustaining flora and fauna. which preserves the land in its natural Besides its natural, recreational, and state. This ferry crossing offers one of scenic qualities, Crockett Lake also the most striking panoramas in the offers visitors a historical perspective. nation. Old homesteads still dot the area around the lake. The site even reflects some of Rhododendron County Park the military history of the island. (Natural, Recreational, Scenic) Rhododendron County Park offers Keystone Spit/Ferry Terminal & visitors natural, recreational and scenic Crossing qualities. Native vegetation flourishes in this park, demonstrating the various (Natural, Recreational, Scenic, Historic, native species of the island. The key to Cultural, Archeological) the luxuriant growth of the The unusual land formation forming rhododendrons is the ‘rain shadow’ affect Keystone Spit exhibits all six intrinsic produced by the Olympic Mountains qualities. The spit was sculpted by protecting much of Whidbey Island from glacial forces supplemented by tidal the heavy rains typical of the Pacific deposition. The resulting soil Northwest. As a result, the composition of the spit supports a rhododendrons are able to compete with variety of flora, which adds to the other species. For visitors who would picturesque beauty of the area. Its like to experience the rhododendrons up location affords beach access as well as close, hiking and camping opportunities

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exist. agreed to preserve the land as wildlife (Natural, Scenic) habitat. Visitors can enjoy the beautiful Hastie Lake serves is one of the Lake Hancock views of the lake and the sound, flourishing wildlife habitats on the however, from a vantage point. Other island. Consequently, in encompasses (Natural, Scenic, Cultural) views include those of the natural bog, a several natural and scenic jewels and one Natural, scenic and cultural qualities delicate environment shaped by glaciers of the largest wetland along the byway. abound at Lake Hancock although they and subsequent geologic activity over As one of the few freshwater bodies on can only be viewed from a distance. The thousands of years. the island, it attracts a diversity of public is not permitted access to Lake wildlife, including flocks of birds, during Hancock, because the area was once used Hastie Lake the fall and winter months. as an operational area for the US Navy. The Navy still owns the land but has Greenbank Farm (Historic, Recreational, Cultural, Natural, Scenic, Archeological) The goal of the Greenbank Farm includes preserving the farm as a “living-history farm, scenic recreation site, and cultural community center” (www.greenbankfarm.com/history.cfm). As a result, this site shines as an example of natural, recreational, scenic, historic, and cultural qualities. From the road and the farm itself, amazing panoramic views await the visitor. Trails exist for those who choose to see the farm from a variety of angles, and there are also wetlands and bird watching platforms on the farm.

The farm began as a dairy in the early 1900s but quickly turned to berry farming. In 1972, the farm held the distinction of the largest loganberry farm

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in the United States. A retail shop of Chateau Ste. Michelle operated on the picnicking. With the expanse of beach farm for a time, and then Island County access, views out across the water are purchased the farm. Currently, the farm phenomenal. is reintroducing organic farming South Whidbey State Park/ methods. Users and visitors to the farm enjoy seasonal u-pick crops, certified Smuggler’s Cove organic farm land leases, community pea (Scenic, Recreational, Natural, Historic) patches, and research and education opportunities. A retail shop in the red South Whidbey State Park offers a barn showcases the Greenbank Farm diverse system of natural, recreational, product line as well as wine tasting and scenic, and historic qualities. Within the selling and food service. park is the Classic U Forest, one of two old growth forests remaining on Whidbey Cultural events occur often at the farm. Island. The “Ancient Cedar” is a Among them include receptions, breathtaking example of the beauty, and meetings, classes, and workshops. The consequent value, of old growth. The Loganberry Festival takes place every Hobbit Trail provides for an exciting July, bringing tourists in from far and short interpretive trail, intriguing for all wide. Local produce, crafts, art, and food ages. An amphitheater allows for is available at the year round market. multimedia presentations as well as With all these activities available, nighttime lighting for those infamous regardless of the season, it is easy to campfire ghost stories. Tidelands lend understand why the Greenbank Farm is themselves to activities such as fishing, loved by Whidbey Island residents. beachcombing, and picnicking. Whether hiking through the forests or enjoying the scenic panoramas across the water, Double Bluff County Park South Whidbey State Park is a thrilling (Scenic, Recreational, Natural) place to explore. With its two miles of publicly owned beach access, Double Bluff County Park Meerkerk Gardens affords recreational and scenic qualities (Scenic, Recreational, Natural, Cultural) to visitors. Recreational activities include clamming, hiking, kite flying, and On Mother’s Day families spread blankets on the lawn of Meerkerk, listen

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to the guest over 600 acres of the preserve and some musician perform, portions of private property. These and drink in the woods are home not only to many colors of thousands animals, but also a huge glacial erratic of rhododendrons. known as Waterman Rock. Founded in the 1970s, the non- Bayview profit gardens cover ten acres within a (Historic, Cultural) 43-acre woodland Every Saturday morning in spring, preserve. Besides summer, and fall farmers, gardeners, rhododendrons, the bakers, and artists gather, in the blooms of bulb Bayview hall or outdoors, to sell their flowers, perennials, products at the Bayview Farmer’s and flowering trees Market. This hall was built in the 1920s scent the air for to accommodate community and social visitors who may wander the paths in the events, and it still functions as a garden and preserve or shop at plant gathering place today. Down the road sales held in the spring and summer from the hall stands the Bayview Cash months. Store, which was built in 1924 and rebuilt in 1999 to house several Saratoga Woods and businesses and a community meeting room. Bayview also holds the distinction Goss Lake Woods of being the location of one of the first (Scenic, Recreational, Historic) schools built on Whidbey Island. Formerly the elementary school, today During the early settlement of the west, the building houses an alternative high the United States government mandated school. that tracts of land be set aside in trust for the support of local public schools. These lands on Whidbey Island were Langley logged in the early twentieth century. Today, the forests have grown again, and (Historic, Recreational, Scenic) volunteers have built trails for hiking, For one weekend in February, Langley is biking, birding, and riding throughout plunged into crime and intrigue as

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citizens host their annual “Mystery Clinton Gateway/Ferry Terminal Weekend.” After the criminal is & Crossing apprehended, one may visit Seawall Park “Many people credit the growth of and look for whales or gaze across (Historic, Scenic, Recreational, Cultural) Maxwelton to the arrival of the Saratoga Passage at Mt. Baker. The The southern entry to the byway begins charismatic Mackie brothers and their large families in 1905. As they town is also filled with fine restaurants, with a ferry crossing and arrival at learned to till the land, the Mackies art galleries, inns, bed and breakfasts, Columbia Beach in Clinton, offering historic residences, and a winery. joined hands with existing settlers scenic, historic, cultural, recreational, to build homes and barns. They and natural attributes. Whether on the also took an active role in convinc- Maxwelton Beach ferry crossing feeding the accompanying ing people from Seattle to buy land seagulls, or at the Clinton Landing, the and settle in this last frontier of (Historic, Scenic, Recreational, Cultural, views are spectacular. They include Mt. Whidbey Island.” Natural) Baker to the north, east to the Cascades, Linnea, Ann. A Journey Through the Maxwelton was the last unsettled spot south to Mt. Rainier, and west to the Maxwelton Watershed; A Natural and Social History. Whidbey Island: Maxwelton on Whidbey Island and was only bluffs and shoreline of Clinton. The ferry Salmon Adventure, 2002. 37. christened in 1905 upon the arrival of its terminal area is an excellent venue for founders—the Mackie brothers. In spite telling Clinton’s history, including its of its late start, Maxwelton was the site history as a entry point to Whidbey of the first Northwest Chautuaqua in Island. 1912 and, in that same year, began hosting an annual Fourth of July Parade, which has continued every year since, Visual and Scenic Character except during World Wars I and II. The Analysis beach in Maxwelton fronts Puget Sound The scenic resources of Whidbey Island and houses a public boat launch and the perhaps represent the byway’s most Dave Mackie County Park. important and dominant intrinsic quality. The exceptional views and The Maxwelton Salmon Adventure is a vistas and the changing character of the community effort to rehabilitate the scenery throughout the island are the Maxwelton Watershed for salmon heart of the byway experience. The spawning while maintaining the land for existing mood of the byway is defined by agriculture. Area residents and school the landscape that surrounds and children began the effort in 1993 and encompasses the highway corridor. Like have since purchased land and built an the nature of Whidbey Island, the outdoor classroom.

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roadway varies throughout its entire landscape or with the context or setting; length. interesting elements such as historic Orange – Suburban or rural pockets of barns (big red barns) and structures, or A “windshield” visual and scenic development dotted between forests, unique landscapes in the viewshed. character analysis was completed for the farms, or open land that in some cases entire byway corridor, recording are not visually cohesive to a scenic Historic Site Commemorative northbound and southbound observations byway experience; Project of scenic character. The purpose of this An important project related to Yellow – Urban, suburban, or rural analysis was to identify locations where commemorating historic sites with development that is visually cohesive outstanding and exceptional views and markers is underway on Whidbey Island. with a scenic byway experience and scenic qualities exist, as well as locations This project is described in more detail blends well with the surrounding where buffering and screening may be in Section 6, Telling the Byway Story. most needed and/or where voluntary context and landscape; architectural design guidelines could help to improve the visual quality. Green –Forested corridor, areas of “green canyons” - tree-lined, enclosed Figures 4.2 depicts the preliminary views; results of the visual and scenic character analysis for the byway. The map Turquoise – Rural, open areas with includes the southbound/west side of SR territorial views of farmland, rolling 20 and SR 525 and the west north side of hills, and prairie landscapes with forests the SR 20 byway spur to the Keystone in the backdrop; Ferry and the northbound/east side of SR Blue – Rural, open areas with broad 20 and SR 525 and the south portion of views of farmland, rolling hills, and the SR 20 byway spur. The visual prairie; landscapes with forests, water character categories are displayed or mountain views in the background; or through a color coding system: unique habitat including wetlands and Red – Urban development areas - in marshes in view; and some cases these areas include visual Purple – The highest quality scenic clutter and architectural style and experience - open areas with exceptional character that is not visually cohesive to broad views of the surrounding a scenic byway experience, meaning that landscape and with water the visible elements do not necessarily and mountains blend well with the surrounding in the viewshed and, in some cases,

40 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 5 Transportation System Analysis and Recommendations

Introduction Regional Transportation Existing Roadway Analysis and This section describes the existing Whidbey Island is accessed by two ferries Planned Projects conditions, scheduled projects, and and one roadway. State Route 20, via the The roadway review and highway design proposed future conditions on and along Deception Pass bridge is the only and maintenance standards element of the Whidbey Scenic Isle Way. This roadway to Whidbey Island. The other the Whidbey Scenic Isle Way Corridor section also describes transportation accesses include a ferry from Port Management Plan describes the existing services provided by the Washington Townsend on the west side and from conditions, scheduled projects, and State Ferry System and Island Transit, Mukilteo on the south end. Figure 5.1 proposed future conditions on and along as well as via various multi-use paths depicts a map of travel routes to Whidbey the portions of State Routes (SR) 20 and and bikeways on the island. Island, including regional connections to 525 traversing Whidbey Island. The Opportunities for an enhanced non- Interstates 5 and 405. review examines elements of roadway motorized system are also discussed.

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 41 5. Transportation System Analysis and Recommendations

design such as functional classification, State Routes 20 and 525 were named roadside development, horizontal and Washington State Scenic Byways in 1967. vertical alignment, lane and shoulder In 1978 they became part of the Cascade widths, the provision of clear zones, and Loop Scenic Highway Association, level of access control. All these linking Whidbey Island’s Scenic components play a major role in the highways with The North Cascades operation of a highway. In addition, the Scenic Highway, the Methow Valley, the report briefly discusses structures Okanogan, and the Stevens Pass (bridges), channelization, signalization, Greenway in a spectacularly diverse 440 and speed limits. These components are mile necklace of state scenic byways. only discussed briefly in this section. A full report is included in the Appendix. SR 20 and SR 525 are part of the National Highway System (NHS), Highway Designations meaning they function as part of an interconnected system of principal The highways we now know as SR 20 and arterial routes that serve interstate and SR 525 on Whidbey Island were interregional travel; they meet the originally added to the state highway national defense requirements; and they system in 1937 as Secondary State serve major population centers, Highway 1-D (SSH 1-D). In 1964 the international border crossings, ports, main trunk of SSH 1-D extending the airports, public transportation facilities, Figure 5.1 - Regional Connections to the length of Whidbey Island between other intermodal facilities, and other Whidbey Scenic Isle Way Clinton and Deception Pass was major travel destinations. SR 20 and SR redesignated as SR 525, and the 3.4 mile 525 are also designated as part of the branch extending from the trunk to the Strategic National Highway Network Keystone ferry terminal was (STRAHNET), as they link important redesignated as SR 113. In 1973 SR 113 military facilities to the NHS. from the Keystone ferry terminal to the main highway trunk, and the portion of SR 525 from the intersection with SR 113 Roadside Classification north to the Deception Pass Bridge and The WSDOT Roadside Classification on into Skagit County was redesignated Plan (RCP) is a policy tool used to as SR 20. coordinate and guide the management of Washington State Highway roadsides, including planning, design, construction

42 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 5. Transportation System Analysis and Recommendations

and maintenance activities. The intent Bridge Structures of the plan is to provide a uniform There are four framework for consistent, proactive bridge structures in roadside management statewide, and to the Whidbey Island facilitate cost-effective restoration of highway corridor, state roadsides. The RCP provides most notable of guidelines for roadside restoration, and which are the it advocates the use of native plants, historic and scenic Integrated Vegetation Management, and Deception Pass a long-term management approach to Bridge and Canoe achieve sustainable roadsides. For more Pass Bridge, both information on Roadside Classification, built in 1935. The see Appendix. Appendix includes a list of the highway Access Control / Access Management bridge structures on SR 20 and SR 525 are controlled access Whidbey Island. facilities. Most of the corridor is in the Managed Access category with partial Speed Limits The name “Deception Pass” derived Limited Access established at several Nearly 90 percent of the 51-mile Whidbey from Captain Vancouver’s realization locations. See Transportation Report in that what he had mistaken for a highway corridor has posted speed limits the Appendix for the controlled access peninsula was actually an island. He of 50 to 55 mph traversing mostly winding classifications for all of SR 20 and SR 525 named that island “Whidbey” in honor and undulating rural countryside. In the on Whidbey Island. of his assistant, Joseph Whidbey, who Clinton commercial area, and the was at his side when Vancouver approach to the Clinton ferry dock, SR 525 realized the mistake. The captain Pavement Conditions speeds are reduced to between 30 and 40 named the inlet at which he was The majority of the highway pavement on mph. In the vicinity of the Keystone ferry anchored “Deception Pass” to SR 20 and SR 525 is in good condition. landing the posted speed on SR 20 is 25 commemorate the error. mph. Posted speeds are also reduced to Approximately 80% of the highway has Washington State Park website been paved within the past 10 years. See between 30 and 40 mph on SR 20 through Appendix for pavement projects planned the commercial area of the City of Oak and scheduled for years 2004 to 2008. Harbor and again through Deception Pass State Park lands and the Deception Pass Bridge. See Appendix for a complete list of speed limit postings for SR 525/SR 20.

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 43 5. Transportation System Analysis and Recommendations

Other Transportation Services 109 minute headways and 20 trips per and Facilities day in the summer at 45 to 75 minute headways and carries 75 vehicles. The Whidbey Island corridor is unique in that it is one of the few byways in the Other Water Transportation nation that can be accessed entirely by Opportunities travel modes other than automobile via the Washington State Ferry System, Several parks on Whidbey Island offer Island Transit, and various trails and kayak docking and camping pathways throughout the island. opportunities as part of the 140-mile Cascadia Marine Trail. The Cascadia Marine Trail is one of only 16 designated Washington State Ferries National Millennium Trails. There are two ferry routes that provide access to Whidbey Island. Both are part Island Transit of the “marine highway” system. The Washington State Department of Island Transit has been providing public Transportation’s Marine Division transportation services for Island operates the Mukilteo to Clinton and the County, which includes both Whidbey Port Townsend to Keystone ferries. and Camano Islands, since 1987. These According to Island County’s services include Fixed Route, Route Transportation Element of the Deviation, Feeder Route, Comprehensive Plan, ferry usage had Complementary Paratransit, Bike & been steadily increasing since 1986. Ride, and a very successful Vanpool and Total ridership on the Mukilteo-Whidbey Rideshare Program. Service is offered Ferry was 4,215,400 (1996) and total throughout all of Whidbey Island ridership on the Port Townsend to Monday through Saturday. Eight Park & Whidbey Ferry was 842,300 (1996). Ride lots are located along State Route 20 and State Route 525, with connections The Mukilteo to Clinton ferry makes from the ferry terminals to all about 40 trips per day at 30 minute communities along the byway. Residents headways and carries 130 vehicles. The and visitors can enjoy a non-motorized Port Townsend to Keystone ferry makes experience for the entire length of the 8-10 trips per day in the winter at 90 to byway.

44 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 5. Transportation System Analysis and Recommendations

Island Transit’s Mission and the Fare Free Philosophy without once setting foot in an SOV (single occupancy vehicle). An Island As Island Transit’s mission states, it is County resident, or anyone visiting the transportation provider’s goal to Island County, can take an Island Transit provide a package of ride-sharing bus to make various multimodal services which emphasizes rider use, connections to the Washington State safety and satisfaction, and results in Ferry system, other transit agencies, rail increased mobility opportunities, less and airporter shuttles. Immediate dependence on the automobile, connection destinations include: Everett, decreased traffic congestion and Seattle, Port Townsend, Anacortes / San improved air quality for all people in Juan Islands, Mt. Vernon and the service area, riders and non-riders International connections into Canada - alike. the routes and possibilities are endless! Island Transit’s Board feels that Routes charging a fare is contrary to the Island Transit has many routes that mission. Typically, for smaller or rural serve Whidbey Island. Figure 5.2 depicts transit systems, collecting a fare all the transit routes. generates virtually no usable revenue because of the costs associated with the The Island County Comprehensive Plan - collection. In addition, the farebox Transportation Element - Bike and imposes an unnecessary inconvenience Pedestrian which is detrimental to ridership, and therefore contrary to the mission. The Transportation Element of the Island Transit is currently 100% pre- Island County Transportation Plan paid with 6/10ths of 1% local sales tax, outlines additions to the existing multi- and ridership has grown from 13,024 in use trails, bike routes, and pedestrian 1987, to over an amazing 1,004,267 trails in the county. annually. The Comprehensive Plan also outlines important elements that should be Multimodal Transportation Options considered when planning and designing Island Transit riders can utilize public new pedestrian and bicycle facilities. See transportation wherever they need to Appendix for a complete list. go in Washington State and beyond

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 45 5. Transportation System Analysis and Recommendations

Transportation solutions for other important hubs and Recommendations pedestrian activity areas along the byway should also be completed. Below is a list of recommendations for gateway communities, highway Highway Improvements improvements, transit, pedestrian, and There are a number of improvements bicycle facilities to improve overall related to the highway that could be transportation for byway travelers. considered as projects or programs in the Action Plan that would enhance byway Gateway Community Design and Traffic travelers’ experiences: Calming Studies • Maintaining scenic character of • The gateway communities of Oak roadway through cooperative design Harbor and Clinton should work with processes with byway representatives the Regional Transportation Planning (much like the current process Organization, WSDOT, and others to involving design of highway seek funding for separate studies to realignment in the Ebey’s Landing analyze existing byway traffic patterns Historical Reserve). Evaluation of and evaluate potential traffic calming alternatives for lane widening, and traveler wayfinding opportunities. embankment/side slope design, Traffic calming, in particular, is a horizontal and vertical curvature, and stated need within these communities. other highway elements with the intent • Clinton community representatives to preserve the visual and scenic should meet with WSDOT regional character of the byway should be a representatives to coordinate on the priority to all interests involved. status of past planning efforts and Maximum efforts to preserve existing proposed projects. scenic, historic, cultural, archeological, • Oak Harbor representatives should and natural features along the byway meet with WSDOT regional should be integrated into all highway representatives to coordinate on improvement design solutions. proposed projects and improvements • Bring the plantings to the roadway within proximity to the city. edge: appropriate native vegetation • Analysis of traffic calming should be planted and maintained up to opportunities and appropriate the roadway edge. Current cooperative efforts between WSDOT and the

46 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 5. Transportation System Analysis and Recommendations

various organizations on the island design related to the design and maintenance workshop of the vegetated edge of the highway with should continue. WSDOT staff • Alternate off-byway tour routes should and be encouraged and promoted to the involving extent appropriate and acceptable to representatives local residents. See Figure 5.3 for from the recommended touring routes. These local routes will offer the byway traveler a communities chance to experience more of the could help to island’s natural and historical beauty. define This could potentially decrease traffic potential ideas. on the main byway corridor, as well. • Establishing a cooperative program • Speed limit enforcement – Byway with business and property owners residents and visitors have mentioned along the byway to allow for all to that drivers are often traveling at participate in scenic byway projects, faster than posted speed limits. This is assisting with designs and vegetation of particular concern in residential and management and scenic improvements. urban areas where pedestrians frequently cross the byway, but also of Water Related Transportation concern throughout the entire byway, Recommendations which is a designated bike route. There are opportunities to provide Enforcement of speed limits will allow “water taxi” service around the island. people to enjoy “island time” and Langley, Coupeville, and Oak Harbor are experience the byway at the posted port cities that could offer taxi services speed limits. for both residents and visitors. Taxis • Traffic calming measures - as could be small boats with carrying mentioned above, suitable traffic capacity for 20 passengers including calming opportunities and solutions room for bicycles and other gear. should be considered for the gateway communities and at other activity hubs There are also opportunities for along the byway (park and ride lots, additional kayak camping sites along the pedestrian crossings, etc.) A focused Cascadia Marine Trail. Camp site

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locations could be identified throughout • Additional bicycle carrying capacity the island. There could be opportunities and bicycle amenities – adding bicycle for kayakers to dock in one the capacity would help increase ridership. communities and stay at a local bed and Island transit should increase bicycle breakfast. Secure kayak storage would carrying capacity for service on need to be available. Whidbey Island. • Park-and-ride improvements – it has Transit Recommendations been stated that the these areas along There are a number of transit the byway should be expanded as improvements that could be considered required and become “park and ride projects or programs in the Action Plan parks” with more emphasis on that would enhance byway travelers’ landscaping, greens, public art, experiences: amenities for transit riders, and community gathering and waiting • Promoting the “non-driving spaces. These types of enhancements experience” - you don’t need your car to would also elevate the overall scenic visit Whidbey Island! Local chambers character of the byway. of commerce and tourism organizations • Special tours and programs - The should team with Island Transit to byway committee and local chambers promote, educate, and encourage the and tourism organizations should non-driving experience “Whidbey coordinate special tour routes for Island Experience – “Leave Your Car at island visitors with private bus Home.” companies. Island Transit should • Sunday service – Many travelers come assist in promoting and coordinating to Whidbey just for the weekend. connections with the private tour-bus Adding Sunday service would allow route activities. (Envision the “parks” them the opportunity to use transit all tour bus, the “historic sites” tour bus, weekend long. Locals would benefit the “beaches” bus, the biking/hiking from Sunday service to access bus, etc.). trailheads and recreational opportunities. Island Transit will continue to seek and obtain funding necessary to provide Sunday bus service.

48 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 5. Transportation System Analysis and Recommendations

Bicycle Facilities Improvement Pedestrian Facilities Improvement Recommendations Recommendations Bicycle improvement recommendations • Provide safe and convenient crossing to enhance byway travelers’ experiences opportunities for pedestrians on State include: Route 20 and State Route 525 near transit stops, activity centers, and in • Promoting tour routes – Island County the gateway communities and local jurisdictions should consider • Provide traffic calming to enhance promoting local tour routes off the safety for byway travelers and main byway corridor – see Figure 5.1 pedestrians. for touring opportunities. These tour • Investigate the need for and identify routes could be promoted through new trailhead opportunities and maps distributed on the ferries, needed improvements in those website information, tourism guides, locations. and other means. Further coordination and communication with local • Multiuse trail system expansion – community residents and provide additional trails, like the representatives will be important Kettles Trail, along the byway. Provide before proceeding with this opportunities for beach walks and recommendation. hikes, along with beach walking stewardship and education. • Multiuse trail system expansion – provide additional trails and paths for • Map – provide a map/guide/brochure exclusive use by bicyclists and depicting the “top 20 recommended pedestrians. Studies indicate that walks on Whidbey” that are available at recreational bicyclists (such as families state parks, local libraries, schools, and and people enjoying the scenery) prefer recreational centers, and visitor off-road trails compared to roadway centers. shoulders.

WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 49 6 Telling the Byway Story: An Interpretive Plan

Introduction themes and the relevant stories are the Several agencies on Whidbey Island heart of an interpretive program. The have already created their own Unique qualities and significant interpretive program educates, interpretive plans/programs. Many of resources surround the Whidbey Scenic entertains, and elevates the experience the state parks, including Deception Isle Way. This interpretive master plan for people of all ages. From the existing Pass, Fort Ebey, Fort Casey, and South provides ideas for communicating these conditions analysis and intrinsic quality Whidbey, have their own interpretive qualities to residents and visitors of the research, several reoccurring themes plans. Ebey’s Landing National corridor. emerged that give the Whidbey Scenic Historical Reserve, managed by the National Park Service, also has an The most significant stories related to Isle Way its unique character. The potential stories related to the special interpretive plan. Interpreting the the six intrinsic qualities (natural, places on Whidbey Island are resources and historical stories of scenic, historic, cultural, archeological, Whidbey Island helps both the visitor and recreational) can be tied together summarized in this section of the Corridor Management Plan. and residents understand the with interpretive themes and presented importance of preserving the area for through a variety of media. These present and future generations.

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Purpose of Interpretation interwoven into the interpretive program. The purpose of interpretation is to broaden visitors’ and residents’ awareness of the byway story. Central Interpretive Themes Interpretation is the specific Some overall interpretive themes, communication strategy that is used to central to telling the story of the translate information from the technical Whidbey Scenic Isle Way, have been language of an expert to the everyday developed as part of this Corridor language of all age groups, and, with that Management Plan. These themes consist goal in mind, it should be creative and of elements that highlight the rich enjoyable. natural and historical aspects of - “island life,” - past, present, and, the future we Francis Tilden, a renowned expert on see for the byway. interpretation provided this definition of the subject: An educational activity which aims to reveal meanings and Strategic Geography relationships through the use of original Throughout prehistory, history, and objects, by firsthand experience, and by present times, Whidbey Island has illustrative media, rather than simply to played a seminal strategic role due to its communicate factual information. location. Whether as a natural environment supportive of a wide range Interpretation can be accomplished of flora and fauna, as a gathering and through a variety of media including sometimes contested, place for signs, exhibits, visitor centers, audio/ indigenous peoples, as an embarkation visual productions, publications, and point for Puget Sound, as a national special programs such as guided hikes defense stalwart armed during the and tours, living history reenactments, Spanish American War and World War lectures, and other special events. II, or as a “do nothing here” respite from Interpretation of the byway’s treasures the rigors of urban life, the island story will foster an appreciation of the area by must include a nod to this remarkable educating people about the significance legacy stemming from its geography. of the island’s important resources. Stewardship messages to “tread lightly” on the natural environment should be

52 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 6. Telling the Byway Story: An Interpretive Master Plan

People and Conflict Let’s Go To Whidbey The advance of human occupation on People have always been attracted to Whidbey Island contributes a compelling Whidbey Island. For thousands of years chapter to the byway story, a chapter not people have visited the island and made without some conflict. Concentrations of this special place their home. Through people linked by a common national changing times and tastes, Whidbey origin (as the Dutch in Oak Harbor), a Island has been able to offer succeeding common understanding of social utopia generations the ability to provide for (as in Freeland), or a common desire for their own needs through its natural Island County Historical Society Museum free land to farm (as the donation land resources. The island has always been a 2004 Calendar—Native American Heritage: claimants in central Whidbey) are destination, whether for a day visit to a Tribal Influences and History in Island examples of groups that give special festival, or for a lifetime for those who County, Ernest Hancock, year unknown character to local places. Likewise, get hooked on life on the rock. Visitors tensions traceable to competing tribal and residents are struck by the variety of interests, racial intolerance toward attractions available within a very Chinese settlers, and entrepreneurs discrete area, and it is perhaps this seeking profit from land speculation, concentration that has contributed to the “People have lived in Island among others, are all well-documented enduring ability of Whidbey to lure County for millennia; their and must be part of the story. people to its shores and uplands. The history there has been scenic byway offers indisputable inextricably tied with the evidence of this vast array. Water First, Then Roads islands and the waters that surround them.” An integrated road network was a relatively late arrival that was grafted A Place for All Time - The Preservation White, Richard. Land Use, of Whidbey Environment, and Social Change: onto a geography established and The Shaping of Island County, nurtured by water connections to points Residents of Whidbey Island know how Washington. Seattle: University of off the island. The byway corridor has lucky they are to live on Whidbey Island. Washington Press, 1980. 5. shifted over the past hundred years from They cherish, respect, and take pride in offshore to onshore, and most people are the beautiful, natural environment that able to experience the island in a way surrounds them from all sides: water, that would have been impossible until prairies, working farms, flora, fauna, 100- quite recently. year old homesteads, and numerous historic buildings and monuments. The byway is an individual one because these

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traits exist. The partnership between the Recommendations for communities and local, state, and Interpreting the Byway Story national agencies will ensure that Whidbey Island residents and visitors This section outlines recommended have opportunities to enjoy the “island themes and interpretation opportunities experience” and all the particular for many of the places along the byway attributes for years to come. What will that travelers visit and enjoy. The ideas most of Whidbey Island be like 100 years listed below can be conveyed at these from now? Hopefully, very similar to sites through a variety of media, how it is now. including signs, wayside exhibits, brochures, kiosks, maps, special Other sub-themes and important programs, audio/visual media, and other messages that should be interpreted means (living history demonstrations for along the byway include: example). The collective stories of these places come together to represent the • “Slow down, relax, you’re on island overall tale of the byway. As such, time.” interpretation related to the Whidbey • A visit to Whidbey is a step back in Scenic Isle Way should be organized time; please respect the island’s unique around the central themes previously heritage and sensitive ecosystems so presented to the greatest possible this experience can preserved for extent. See Figure 6.1 for interpretive others. themes and locations. • What makes islands unique? Why is Whidbey Island one of the most unique islands in the world? Deception Pass State Park • Whidbey is a place for all seasons - Interpretive Messages, Themes, and watch the changes throughout the year Ideas: when you visit your favorite places on • Deception Pass State Park has a rich the island. human history, dating back thousands • No other scenic byway is on an island. of years. • Deception Pass State Park is home to many diverse and fragile ecosystems. • Many people travel to Deception Pass each year to partake in the numerous

54 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 6. Telling the Byway Story: An Interpretive Master Plan

recreational opportunities the park has Hastie Lake to offer. Interpretive Messages, Themes, and • The story of Deception Pass is one of Ideas: humans and the way they interact with their surrounding environment. • A viewing platform with telescopes and • The resources of Deception Pass can interpretation about the importance of only be preserved through the help of the wildlife habitat of this area and the all park visitors. diversity of species it supports and supporting facilities, such as parking, • The park’s handsome landscape was could be provided in this area. shaped by the Civilian Conservation Corps, President Franklin Roosevelt’s Downtown Oak Harbor (Marina and City New Deal Era workforce. Park) • History of the Native American peoples – the story of the Salish - is interwoven Interpretive Messages, Themes, and with the lands and waters of this area. Ideas: • The Deception Pass Bridge provides a • Oak Harbor is an important center for dramatic gateway to the Whidbey commerce on Whidbey Island, and a Scenic Isle Way. gateway community to the byway • There are opportunities to provide offering an assortment of facilities and enhanced interpretation throughout services to travelers. the park. • Navy history and military influences could be interpreted. Dugualla Bay • Oak Harbor past and present pier Interpretive Messages, Themes, and activities – fishing, water taxi fleet, Ideas: tours, etc. could be interpreted. • Early twentieth century development • Dugualla Bay provides critical habitat shaped the city’s character and to a diversity of wildlife species. evidence of much of this era is still Photo by Helen Chatfield-Weeks • A viewing platform with spotting visible today. The uniquely designed, historic 1910 Neil Tower scopes and interpretation about the fell into disrepair but was re-constructed in 1989 • Trails map, water activities guide and by volunteers. It resembles a Dutch wimdmill role of the wildlife habitat of this area other information could be provided to without arms. A small museum is located at the and the diversity of species it supports visitors. base, named after the major donors of the and supporting facilities, such as reconstruction effort, Orren and Ruth Ward. parking, could be provided in this area.

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Blue Fox Drive-In Grasser’s Hill/ Kennedy Lagoon Interpretive Messages, Themes, and Interpretive Messages, Themes, and Ideas: Ideas: • The Blue Fox Drive-In is one of the few • Early use of the area by native peoples remaining outdoor movie theaters in could be interpreted here. the country. • Identification of aquatic life of the • The history of drive-in movie theaters intertidal zone and importance of as cultural experiences (old photos, proper beach use for protection of movies, etc.) could be interpreted. resources could be interpreted. • Historic settlement and early San De Fuca government of this area - what Interpretive Messages, Themes, and remnants of that era still exist and can Ideas: be interpreted?

• Historic setting/importance of historic Fort Ebey State Park preservation could be interpreted here. Interpretive Messages, Themes, and • The schoolhouse is an important Ideas: historical icon. • Glacial kettles can still be seen in this Penn Cove area today. Interpretive Messages, Themes, and • Respect the park’s natural features – Ideas: stay on trails, keep dogs on leashes, etc. • Mussel farming still plays an important role in Penn Cove. Town of Coupeville • Story of the Salish villages/tribal uses Interpretive Messages, Themes, and of the area could be interpreted here. Ideas: • Reasons early settlers established in Penn Cove • The rich history of the town and its • George Vancouver and Joseph Whidbey settlement is reflected in its unique Expedition character. • Why does the town look so similar to how it looked 100 years ago? The town

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is a living example of the importance of Fort Casey State Park historic preservation and how it has Interpretive Messages, Themes, and enhanced community pride. Ideas: • Coupeville should be experienced on foot - opportunity to provide a walking • Fort Casey was a part of the U.S. Army tour map. Coast Artillery defense system. • Coupeville is an important byway • Admiralty Head Lighthouse was an community - a place where travelers important navigational aide to the tall can go for facilities and services. sailing ships.

Kettles Trail Ebey’s Prairie Interpretive Messages, Themes, and “It was fully intended, back in Interpretive Messages, Themes, and the 1970s, that Ebey’s Prairie Ideas: Ideas: and adjoining farmland — • Map of trail/ interpretive waysides • Partnerships – How the reserve nearly half of Whidbey’s total — would be turned into three along the route could be provided. achieves success by working with subdivisions, the windows of surrounding land owners to preserve • Why walking matters – health and each new house jostling for a the prairie and the agricultural uses of environmental benefits of walking scrap of scenery that would could be interpreted at the trailhead. the land. then be covered by another • Where are the other trail opportunities • Recreational opportunities – trails house. In other words, the on Whidbey? List /map of sites map: step out into the landscape and American Way.” experience the reserve on foot. Bill Dietrich. Whidbey’s Secret. Smith Prairie • Protect the natural resources – there is Seattle Times. June 2004 Interpretive Messages, Themes, and a diversity of habitats here for plants Ideas: and wildlife. • Unique character: a visit to the reserve • Introduction to a native prairie is like “stepping back in time” – environment - plant species and prairies and farms, historic barns and importance of preservation (one of the houses, lakes and ponds, beaches and few remaining habitats of this type in bluffs, woodlands and wetlands – the region); experience the range of this setting. • History of prairie land ownership and preservation measures underway could be interpreted here.

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Crockett Lake Lake Hancock Interpretive Messages, Themes, and Interpretive Messages, Themes, and Ideas: Ideas: • The lake is home to many rare and • Emergence of a wetland - the delicate endangered species such as river and diverse ecosystems of the island otters, bald eagles, northern harrier, could be interpreted here. whistling swans, snowy owls, great • What can you see from here? blue herons, and shovellers. • Sharing the land - identify the wildlife •Identified as one of the most important habitat prevalent in this area. bird areas in Washington – what can you see? Identify bird species Greenbank Farm • Important rest stop and wintering area Interpretive Messages, Themes, and for shorebirds. These, and other birds, Ideas: connect the island to Arctic tundra, Cascade Mountain slopes, and the • Who has owned and operated the farm tropics of Central and South America. over time – unique land ownership “The Isle Way as a Flyway.” changes since the beginning • Cooperation – the farm is operated Keystone Spit & Ferry Crossing/Terminal through cooperative efforts and is a Interpretive Messages, Themes, and living, working example of the Ideas: importance of agricultural-based lifestyles on the island. • Keystone Spit is a unique land form • Trail map – experience the farm on foot that has served many purposes. - additional interpretive exhibits could • The spit provides habitat for an be provided throughout the farm and abundance of bird species. along the trail system. • The ferry crossing is an incredibly • The farm is an important traveler hub scenic journey and an important along the byway - centrally located on gateway experience for the Whidbey the island. Island Scenic Byway. • Stewardship messages, respect for the island’s resources, should start during the ferry crossing.

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Bayview Corner Freeland Interpretive Messages, Themes, and Interpretive Ideas: Messages, Themes, and • Cultural history of Bayview – story of Ideas: preserving what is left and building community pride. • Experience • Organic farming – importance of Freeland on farming community and why organic foot – wetland, matters trails, etc. • Artists and craftspeople of this area • Freeland could be highlighted. beginnings – • Native plant species of Whidbey Island socialism on could be identified and interpreted Whidbey, history of the town’s name, Double Bluff here. etc. Interpretive Messages, Themes, and • Why native matters- the benefit of • Value of retaining native vegetation in Ideas: preserving and using native plants in an urban setting could be interpreted • Importance of beach restoration and the landscape. here. protection could be interpreted here. South Whidbey State Park Useless Bay • Visitor facilities, parking, pull-out, etc could be enhanced here. Interpretive Messages, Themes, and Interpretive Messages, Themes, and Ideas: Ideas: City of Langley • What is an old growth forest? Why is it • The story of the Maxwelton watershed important? This is home to one of the – its significance to Whidbey Interpretive Messages, Themes, and last old growth forest on Whidbey (and • Salmon – why upstream matters could Ideas: in Washington)! be interpreted here. • Local driving loop off the byway should • Historical/cultural background – the • Beach education – “respect your be promoted here. beaches,” messages of beach etiquette story of the Chautauqua community • Historic town: picturesque setting & could be interpreted here. could be interpreted here. scenic views – an overlook could be provided here. • Tourism experience - an important place for traveler access to facilities and services.

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Clinton Port Facilities Maps and Ferry Terminal Maps of the entire byway can be Interpretive provided at the gateway locations: Messages, Themes, Deception’s Pass, Clinton, and Keystone and Ideas: Ferry. These maps would highlight the byway, intrinsic qualities, and •Why islands are interpretive opportunities. unique places – geologic features, Maps highlighting recreational people that live here, opportunities could be provided at some sense of isolation key locations such as Greenbank Farm, could be interpreted Kettles Trail, Ebey’s Landing, Oak here. Harbor, etc. •Community of Clinton – identity could be interpreted here. Brochures • Clinton is an important center for Various brochures could be designed and commerce on Whidbey Island, and a published with the byway logo and gateway community to the byway themes. One could highlight “touring offering a host of facilities and services routes, while another could identify all to travelers. the native plant and animal species • Ferry crossing is a dramatic gateway to prevalent on Whidbey Island and where the byway - an exceptionally scenic they can be viewed. Brochures should experience. also contain stewardship messages and • Stewardship messages should begin preservation opportunities open to the during the ferry crossing. public (volunteering, donating to organizations, etc.). Interpretive Media Below are descriptions of general Interpretive Panels interpretive media that could be Thematically designed interpretive developed at the places described above. panels could identify, describe, and illustrate a variety of messages to be communicated at any of the above sites.

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Live Interpretive Programs and Other Self-Guided Tours and Interpretive Trails Creative Events Self-guided tours provide another Some themes could be interpreted opportunity to interpret the byway. through living history programs, Visitors and residents can take self- reenactments, or other special events. guided tour using Island Transit, which These activities can be conducted in would stop at various trailheads or the cooperation with special groups and communities along the byway. Self- organizations (local historical societies, guided trails in certain areas etc.). An important phase of these types accompanied by a brochure, such as of interpretive programs is the training wetlands or prairies, could provide an of participants. Also, these types of opportunity to educate people on the programs provide opportunities to merit of these areas. coordinate with local schools, teachers, and students, who can play meaningful Multilingual Information roles in the events. Local residents could participate in live interpretive Information and interpretive media for programs at various sites, including a non-English speaking visitors should be historical tour of Coupeville or Langley, provided as practicable. For example, or a wetland tour. The variety of special audio media could be translated into activities that can help interpret the multiple languages. byway’s story is as broad as the imaginations of those developing and Commemorative Markers and Signs conducting these programs. Less interpretive media and more monumentation of historic activities, Audio Media commemorative markers provide some opportunity to educate visitors about the Audio CDs or tapes could be produced past through simple statements of for the entire byway length. Audio historic events that occurred at specific media should be centered around a sites and buildings. theme. For example, one audio media could focus on the natural environment, one could focus on historical stories and Experiences for Everyone structure still present, and another could It is important that interpretive focus on “Whidbey today” and the programs and experiences be as cultural landscape. universally accessible as possible to

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people of all ages and physical abilities. visitor information displays and media Providing tactile experiences (learning (including beach etiquette). through touch), audio media, and graphics designed to display simple Historic Site Commemorative messages can ensure that the exhibits Project appeal to the broadest audience possible. An important project is underway on Firm, stable ground surfaces around Whidbey Island. This project will outdoor exhibits and the provision of a commemorate several historical sites route of access that does not exceed and buildings across the island with typical maximum gradient standards for historical markers. The local committee people in wheelchairs is also an involved in the project is currently important consideration. coordinating with Island County and WSDOT on the placement of directional Other Interpretive Recommendations signing to help visitors find the locations. • The people who live and work on A brochure/map is also being created, Whidbey Island should be the and it is recommended that this storytellers. information also be provided on tourism • Direct the highest concentrations/ websites. The following sites have been volumes of travelers to the places that identified for commemoration through have capacity to handle their needs - this project. the towns and villages on the island; all other places (especially sensitive Current Sites in Process: historic and ecological environments) • Greenbank Farm should be designed to handle lower concentrations/volumes of visitors. • Deer Lagoon Grange #846 - 5142 Bayview Rd. Langley, Wa. 98260 • Encourage experiencing Whidbey Island by foot, bicycle, bus or by water. • Langley — So. Whidbey Historical Encourage and direct visitors to leave Museum their cars off the island or in • Dog House - 230 1st St. Langley communities such as Clinton and Oak • Freeland Hall Harbor (fits well with previous point.) • Freeland (the story of Freeland, an • Stewardship and environmental early Socialist development) education themes should be woven • Historic Coupeville throughout all interpretation and • Neil Barn and Water Tower - 98 N.E.

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Barron Drive - Oak Harbor • St. Peter’s Lutheran Church - 6309 S. Wilson Pl. - Clinton Future Possibilities: • Admiralty Head Lighthouse • Ebey’s Landing view site end of Sherman Rd. Coupeville • San De Fuca Schoolhouse • Alexander • Bayview School • Bayview Hall • Crockett Blockhouse • Glendale Store • Old Powder Plant - Glenndale • Old Indian and White graveyard

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Introduction The visitor experience related to the This section of the corridor management Creating additional opportunities to Whidbey Island byway should be plan assesses existing visitor facilities, promote, educate, and direct visitors to memorable, educational, safe, and as well as websites and information that the unique qualities along the bwyay is enjoyable. Visitors should be provided serves the needs of visitors. This section an important aspect of this plan. Each with a variety of opportunities to relish also provides recommendations for year over a million people visit Whidbey the beauty of the island and to learn improving these services for both Island to enjoy the numerous activities about the rich history and culture of the residents and visitors. offered along the byway and throughout people who have lived there throughout the island, such as sightseeing, hiking, the ages. Island businesses should camping, bicycling, fishing, kayaking, accommodate visitor needs through shopping, and attending cultural events. friendly, hospitality-driven service.

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A Review of Existing Visitor publication includes interesting facts and Services and Facilities information about various places on Whidbey Island. Because the Whidbey The Whidbey Island Byway currently Island Byway is a part of the Cascade offers several visitor services, such as Loop, the Cascade Loop Association chamber of commerce facilities, facilities includes information about activities, at existing parks, and private businesses accommodations, events, and maps for throughout the island. However, there Whidbey Island in the brochure it are no public comfort station or rest area publishes annually. facilities along the byway. Below is a list of existing visitor services located along The World Wide Web is increasingly the byway: becoming a research tool for visitors from all over the world. Millions of • Oak Harbor Chamber of Commerce/ people use the web to gather information Visitor Information Center about vacation destinations, including • Central Whidbey Chamber of Whidbey Island. There are several Commerce in Coupeville websites that promote Whidbey Island. • Freeland Chamber of Commerce These include: • Langley South Whidbey Chamber of • http://www.donothinghere.com –Island Commerce County Tourism “Doing nothing here takes • Fort Casey Interpretive Center – • http://www.islandweb.org/ - Island several deceptively active Admiral Lighthouse (part-time) forms. The difference is in County Tourism enjoying these things in an • Washington State Ferries • http://www.oakharborchamber.org/ - environment that demands • Deception Pass Bridge Oak Harbor Chamber of Commerce absolutely nothing of you.” • http://www.whidbey.net/ - provides These existing facilities provide visitors links to various Whidbey communities, www.donothinghere.com with information on entertainment, organizations, and services accomodations, eateries, and shopping published in brochures. There are All of the state parks and Ebey’s Landing several tourist publications printed each maintain websites, and many of the season on Whidbey Island including the businesses, including bed & breakfasts, MacGregor “Newcomer and Visitors hotels, motels, galleries, cafes, and Guide” and the Whidbey News-Times restaurants have websites. Information “Islander,” and Marketplace. Each

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about transportation options is also on Preserving and Enhancing the the web, including Island Transit and the Visitor Experience Washington State Ferry System website. Before a visitor arrives to Whidbey Visitors are drawn to Whidbey Island to Island, he/she can access much of the experience the majestic and beautiful information needed for a visit. scenery, history and culture, abundant natural resources (such as the natural Visitor Statistics forests, prairie landscapes, and beaches), extensive recreation opportunities, and The majority of visitors coming to the distinctive rural character of the Whidbey Island for a day trip or island defined by the lifestyles of the overnight stay are from the greater people who live there. There would be no Puget Sound region. A survey conducted tourist flow without the preservation of by Ebey’s Landing National Historical these qualities. Many of these intrinsic Reserve in 1995 showed that 59% of qualities are already maintained and visitors were from Washington, 29% preserved through land management and were from other parts of the US, and 10% land use plans; however, some of these were from Canada. Of the 59% from qualities are at risk. It is imperative that Washington, 37% were from King the preservation of these characteristics County. continues to be a priority for the county, state, and federal governments, as well According to the Washington State Parks as the citizens of Whidbey Island. More Commission 2,725,211 people visited information on specific guidelines for Deception Pass State Park in 2002, preserving and enhancing the byway’s making it the most visited state park in character are discussed in Section 8 – Washington. In that same year 89,659 Preserving and Enhancing the Byway’s people visited South Whidbey State Park, 741,519 visited Fort Casey State Character. Park, and 305,734 visited Fort Ebey State Park. Emphasis on Stewardship and Education It is necessary for visitors to understand what makes Whidbey Island special, thus part of the visitor experience should

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include stewardship and educational Whidbey Island Residents are messages that help visitors appreciate the exceptional beauty of the ecology and Byway Visitors Too! geology, historic buildings and Whidbey Island residents travel the landscapes, and natural resources of byway more than visitors do. The byway Whidbey Island. Below is a list of such functions as the central transportation messages that should be conveyed: corridor on the island, linking all the communities and important destinations • A visit to Whidbey is a step back in and origins. For this reason it is time; please respect the island’s unique important that island residents also are heritage and sensitive ecosystems so encouraged to become stewards of the this experience can be preserved for all byway. Ongoing byway programs and time. projects should encourage residents to •Beach habitat is fragile; please respect preserve and enhance the island not only our beaches by picking up after for visitors, but for themselves as well. yourself and your pet. •Island habitats, including prairies, Another important aspect of byway “Island County became known lakes, forests, beaches, and wetlands, planning is making sure that as as a place of old settlers and support an abundance of wildlife. experiences for visitors are expanded longtime residents.” Please respect the land and wildlife and enhanced, the rural lifestyles and White, Richard. Land Use, habitats. community settings also are maintained Environment, and Social Change: • Whidbey Island is home to a large and preserved, and impacts related to The Shaping of Island County, variety of wild animals and birds; increased tourism are minimized. This Washington. Seattle: University of can be accomplished by directing visitors Washington Press,1980. 55. please allow them to flourish. to the areas of the island designed to • You are traveling a very special, unique accommodate their needs - the towns, island byway; let’s keep it beautiful and communities, and visitor information litter-free. centers. Visitors should be encouraged • Environmental and safety education to leave their cars behind or to park and programs – “Ride Transit” and “Share ride Island Transit to minimize traffic the Road with Bikes.” impacts. Residents should be made • Make it your goal to leave no trace of aware of the abundant of walking trails your visit. available on the island. As mentioned previously, the importance of educating visitors about environmental

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stewardship, beach use etiquette, provide travel opportunities off the main respecting private property rights, and byway. other messages is critical to the success of this byway plan. It may be desirable to consider additional facilities and improvements Balancing the Needs of Byway that will help balance the uses of the roadway. Recommended strategies for Users accommodating all users include: State Route 20 and State Route 525 are • Promote multi-modal transportation the main thoroughfares for all traffic on (discussed throughout this plan). Whidbey Island, including freight, residents, and travelers. For this reason, • Educate byway travelers, including it is important to look at the needs of all residents, visitors, bus drivers, and byway travelers. Both residents and truck drivers, about bicyclists; visitors should be encouraged to use Bicyclists are allowed on the roadway transit, carpool, or vanpool along the and they deserve the respect of other byway. Bicycle riders and pedestrians byway travelers. are also byway users. Wider shoulders • Create recreational pull-off areas to and a “share the road” campaign could disperse visitors and provide resting help bicyclists feel safer sharing the road opportunities for byway travelers. with freight trucks, recreational • Promote touring routes to create more vehicles, and cars. Recreational pull-off opportunities for visitors and disperse areas, passing lanes, turn lanes, and byway travelers. The promotion of other features, discussed in this section these routes needs to be closely and in the transportation section, will coordinated with island residents and also help alleviate some of the congestion communities to ensure that impacts to along the byway. Visitors will be lifestyles and local access and mobility encouraged to use the recreational pull- are minimized. off areas to enjoy the scenic vistas and • Encourage communities to design natural beauty if Whidbey Island. highway treatments and traffic calming Touring Routes, as discussed in Section 5 techniques, including medians, street – Transportation, will also disperse trees, crosswalks, etc. to enhance the visitors and bicyclists. These routes will safety of pedestrian travel and when crossing of the highway.

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• Create and mazimize the visitors’ use Another opportunity would be a water of motorist services and businesses on taxi to and from the communities along the byway. the byway. Oak Harbor, Coupeville, and Langly all have port facilities and The Important Role of Multi- marinas that could accommodate a small Modal Transportation water taxi fleet. The water taxi could be both a tour opportunity and The Whidbey Island Scenic Byway very transportation option. well may be the only byway in the country that can be accessed entirely by In order to attract non-motorized modes other than an automobile, travelers, pedestrian and bicycle including the ferry, public transit, facilities should be a priority. For bicycles, kayaks, and other watercraft. example, Deception Pass is the only state park with bike racks. All the parks In 2008, construction is scheduled to should have bike racks to encourage begin on a multi-modal transportation bicycling to and from the parks and facility in Mukilteo. This facility will pedestrian travel should also be include the ferry terminal, Sound Transit encouraged. Pedestrians should feel safe commuter train station, bus center, and a crossing the byway to access transit, passenger pick-up/off-load area. The otherwise they may be discouraged to completion of the facility, in 2010, will use it. Safe and convenient access to offer new possibilities for multi-modal transit will encourage use. An byway travelers. City dwellers will be assessment of crossings near bus stops able to hop on the train in Seattle, should be completed, and crossings connect to the ferry, and travel the should be improved where possible. byway using transit or bikes. The multi- modal facility offers an opportunity for A list of other recommended businesses to provide shuttles to and transportation improvements is included from their places. For instance, B&B’s in Section 5 – Transportation Analysis could co-operate a shuttle to transport and Recommendations. guests to and from the ferry terminal. Once in town, visitors could use transit options to travel to various destinations along the byway.

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should be increased to improve visitors’ Recommended Improvements restroom and additional visitor wildlife viewing experiences. Below is a and Enhancements accommodations such as picnic facilities list of sites for recommended viewing at the Lake Hancock Overlook is While there are several existing visitor platforms: service centers located at the chamber of recommended. This facility could also commerce offices on Whidbey Island, include interpretation about Lake • Crockett Lake is visited by there are several potential areas of need Hancock, see Section 6 for interpretive multitudes of birders each year. where improvements and facilities could themes for Lake Hancock. Platforms would enhance birding enhance the visitor experience. opportunities for visitors and residents Interpretive Facilities alike. Partnering with Washington Interpretation was discussed in Section 6 State Parks and Ebey’s Landing Gateways – Telling the Byway’s Story. This section National Historic Reserve is needed for Visitor information and education included recommended interpretation this effort. centers should be located in Whidbey’s throughout the byway. The themes of • Hastie Lake – A viewing platform gateways including Clinton, Deception the byway should be clear in site-specific would attract more nature enthusiasts. Pass, and Keystone. These visitor interpretation which details the history, The design must discourage people centers could be self-guided and self- culture, and natural aspects of the from creating “social trails” to the lake sufficient and provide visitors with location. Similarily, sensitive areas itself. education, interpretation, information should include environmental and • Dugualla Bay Lake – A viewing about lodging, recreational stewardship messages. platform would be an asset. opportunities, historic sites, and other items of interest for visitors. These Wildlife Viewing centers should also provide information Platforms about transportation options, such as Island Transit routes, bike maps, and Thousands of pedestrian facilities. Visitor kiosks also people visit should be located in Mukilteo and Port Whidbey Island Townsend since these communities to encounter likewise “gateways” to the byway. wildlife and the diverse wildlife habitats of the Comfort Station/Rest Area area. Viewing A comfort station/rest area should be opportunities located at a central point on the byway. Assessing the feasibility of developing a

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• Greenbank Ebey’s Landing should be encouraged. Farm – A viewing • Smith Prairie – A pull-off with platform with a parking spaces is needed in this area. spotting telescope to Each spring, people come out to view watch whales would and enjoy the native wildflowers in provide additional bloom. A visitor kiosk could tell the opportunities at the story of the prairie. A partnership Farm. with the Au Sable Institute is Recreational Pull-off recommended. Areas • Double Bluff – create a pull-off with parking for a few cars. Also, create Creating recreational bicycle parking to encourage use. pull-off areas or waysides along the • Possession Point – create a pull-off byway will allow visitors the opportunity with parking for a few cars. This area to leave the highway and enjoy the is used often by kayakers. beauty of Whidbey Island. Formalized pull-off areas create space for a small • Penn Cove – create a pull-off/viewing number of cars or a bus. Bus stops area for mussel harvesting activities. should be added to the pull-off areas. • Clinton – create a pull-off/viewing These areas will also create platform near Clinton Beach project opportunities to disperse visitation currently underdevelopment by the throughout the island. Pull-offs should Port of South Whidbey. have interpretive signage and small signs on the byway directing people to Brochures them. Below is a list of potential pull-off There are several existing brochures for sites: Whidbey Island. Most provide advertising for businesses along the • Hastie Lake – Create a pull-off area to byway. Educational and informational accommodate five or six cars (or a small brochures could be made available for bus.) byway travelers to learn about the many • Grasser’s Lagoon – Improve the unique aspects of Whidbey Island, existing pull-off area. This is a popular including history, geology, vegetation, fishing and birding site for visitors and wildlife, and cultural events. These residents. A strong partnership with brochures could be available at the

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gateway kiosks and visitor centers as Geology well as local libraries and cafes for locals. The formation of Brochure information should be designed Whidbey Island is to be easily posted on web sites. unique. A brochure Potential brochure topics are described explaining the glacial below. In addition to, or in lieu, of a periods that caused this multitude of brochures information would be educational for related to these topics could be made visitors and school available in displays, posters, and other groups. types of media. Marine Life History of Whidbey Island An island is surrounded The history of Whidbey Island is rich, by marine life. It is a beginning with the early native peoples part of the everyday who inhabited and visited the island. A culture of Whidbey brochure with a chronological history of Island and a brochure Whidbey could be available for visitors. could explain the This brochure could also be available to importance of marine life to the island, school groups visiting the state parks or provide a description of these creations, Ebey’s Landing. and places to see them. Emphasis on the proper use of the beach should be Historical Structures addressed, together with information on The South Whidbey Historical Society is how to get involved in protection efforts currently working on a brochure to (Beachwatchers, Maxwellton, etc). highlight significant historical structures on Whidbey Island. This brochure will Vegetation be produced and made available to The vegetation and landscapes change visitors and residents so that they may from north to south due to differing appreciate the preservation and amounts of precipitation on the island. A restoration of structures and their brochure could include line drawings and associated stories. descriptions of the flora and fauna that make up the various vegetation communities and landscapes on the island.

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the dates of each event. All cultural events are distinct and are linked to the Transportation for touring routes.) history and natural environment of These routes will not only disperse Whidbey Island. visitor traffic but also provide additional opportunities to experience Whidbey “off the beaten path.” Destinations such as Multi-Lingual Provisions Langley, Double Bluff County Park, and Multi-lingual information and several state parks are accessed using interpretation should be provided for alternative routes. byway travelers where feasible. Byway information should be designed to be Local Resident Involvement easily understood by a broad audience. Local residents are very knowledgeable Graphics, maps features, symbols, and about the cultural and historical stories universally recognized words can help to of Whidbey Island. Involve the local better guide travelers. community in the visitor experience. For instance, a local resident could provide Visitor Surveys historical tours of Langley and/or Coupeville showing visitors treasured Knowing the visitors will aid in planning structures while educating them on the for the types of facilities needed and the importance of preservation. Residents information visitors are interested in could also give tours of beaches or nature obtaining. It is useful to know why hikes containing elements of the visitors are traveling the byway and principles of protection of valuable what actvities they are interested in. An resources. Residents are the “stewards” annual or bi-annual survey would assist of the byway and should pass along the committee in planning for increased important messages about preservation visitor service. The survey should be Cultural Events and protection of natural resources to conducted at the state parks, Ebey’s visitors. One brochure should continue to include Landing, Oak Harbor, Langley, all the cultural events that take place on Greenbank, etc. to capture the opinions the island, including festivals in Oak of a wide variety of byway users. Existing Services Harbor, parades in Coupeville, Encourage travelers to use existing celebrations at Greenbank, blooming Touring Routes services including visitor centers, rhododendrons at Meerkerk, art shows chamber offices, etc. for information. in Langley, etc. This brochure would The visitor experience should also need to be updated annually to include promote touring routes (See Section 5 –

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Introduction Architectural styles differ as one travels recommendations for additional The Whidbey Island Scenic Byway has through the byway. For example, many development and design guidelines. It is been recognized for is exceptional scenic, buildings in Oak Harbor are important to note that this section is historical, cultural, natural, and representative of the 1950s, post-WW II, included solely for the purpose of recreational qualities. These special while the vernacular architecture of providing a set of guidelines to retain qualities should be preserved and, in Coupeville dates back to the late 1800s to the byway’s character and is not some instances, enhanced to retain the early 1900s farmhouses, cottages, and intended to be regulatory. byway as a unique, attractive place. bungalows. Summary of Existing Design and Because the byway encompasses a This section of the plan provides a diversity of landscapes, one set of design summary of the existing design and Development Guidelines guidelines or development blueprints development guidelines in place along There are several existing documents cannot be created for the entire byway. the byway as well as suggestions and that have been created to help guide the

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design and determine how the character of the development of community could be enhanced and made buildings, structures, more attractive for tourists, businesses, and landscape along and residents. The Design Assistance the corridor. Below Team created a document to help make is a brief summary of positive design change in Oak Harbor. those documents. This document shows proposed changes to Pioneer Way and the potential for North Whidbey making a connection to historic downtown Oak Harbor from State Route Deception Pass State 20. Park has its own character in a The waterfront is Oak Harbor’s best forested landscape is asset and it is currently underutilized. retained and The waterfront should connect to managed by the downtown. New buildings along Pioneer Washington State Way should be designed and based on Design Assistance Team Sketch, Parks and Recreation Oak Harbor Pride, 2000 existing architecture, scale, and most Commission. importantly, the pedestrian-friendly Buildings, roadside railings, signs, and atmosphere. other elements have been designed in accordance with the “rustic Cascadian” The City of Oak Harbor also regulates style of architecture. Many elements are the design of signing, site development, the result of Civilian Conservation Corps landscaping, and other aspects through work in the 1930s, which often the City Zoning Code. incorporated creative, craftsman style details. Central Whidbey As the corridor transitions from the Ebey’s National Historic Reserve was forest of Deception Pass State Park to established to “preserve and protect a the burgeoning community of Oak rural community, which provides an Harbor the character changes unbroken historical record.” Ebey’s dramatically to a developed, urban Landing encompasses 17,400 acres of environment. Oak Harbor citizens have coastal strip, prairies, woodland, gone through a visioning process to uplands, and Penn Cove, thereby

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covering most of central Whidbey. residential structures, commercial Within this district, historic block structures, new construction, and houses, barns, farm houses, bungalows, recommendations for remodeling cottages, and other prominent historical materials. structures are still intact, and these elements represent the story of the The cultural landscape of Ebey’s Reserve settlement of this area, a central piece of and Central Whidbey is a place unlike the byway’s history. 90 percent of Ebey’s any in the country its efforts related to National Historic Reserve is in private land ownership, land management, and ownership but the Central Whidbey land preservation. It will be essential to Historic Advisory Committee, a design continue preserving the cultural and review board, assists local and county natural landscape along the view jurisdictions with review of historic corridors surrounding the reserve. More buildings and structures located on the discussion on recommendations for reserve. Any addition, remodel, or new Ebey’s Reserve is discussed later in this Whidbey’s popularity could, of construction in the Ebey’s Reserve section. course, engender its boundary is required to go through the destruction—which is why the design review process. This helps South Whidbey inhabitants have taken up ensure that designs are compatible and protecting what they love here, consistent with the architectural style of The community of Freeland has created from the island’s social and central Whidbey. design standards for development within economic diversity to its living its sphere of influence. The objective of traditions. Ebey’s Reserve has several documents these standards is to “establish Smithsonian Institution. Destination that provide design suggestions and predictable and defined land use America: Living Tradition. May 2004 guidelines for the reserve. The design patterns that support the community guidelines for the reserve are a vision, building a sense of community, reflection of the landscape. The “Visual improve and encourage economic Compatibility Guidelines” provides in- development, protect environmental depth design standards for signs, quality, and enhance the unique visual waysides, bollards, block houses, fences, identity of the Freeland community.” etc. for the reserve. “Design The design standards include Considerations for Historic Properties,” recommendations for building heights, presented in a newspaper foldout format, setbacks, visual appeal, and open space outlines design considerations for the for new development. This document cultural landscape, barns, outbuildings, also examines parking, pedestrian-scale

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design, architectural elements, and an unincorporated town that is a hub of signage. activity surrounding the ferry terminal. The architectural character of Clinton is The Freeland area sub-committee also a mix of Post WW II architecture and recommends creating a Highway modern commercial and industrial Corridor Overlay Zone in Freeland for buildings. There are no specific design SR 525. The goal of the Overlay Zone is guidelines in place for Clinton, but the to consolidate access for businesses town and other unincorporated areas while seeking to add trails, paths, and along the byway are regulated by Island sidewalks to better connect pedestrian County code with regard to signing, and bicycle environments, ultimately landscaping, site development, and other producing a safer community. It is requirements. recommended that the Overlay Zone also address commercial design along the highway including setbacks, screening, Recommended Design and and the need to preserve and maintain Development Guidelines mature trees and landscaping. General Recommendations Bayview Corner, in south Whidbey, is an Given that these are only guidelines and excellent example of development that not regulatory, there is a strong need to blends into the character of the rural involve residents, property owners, and environment. Bayview Corner was businesses along the byway in being designed and renovated with an “good stewards” of the byway. environmentally-sensitive design that includes geo-block parking lots, Citizens should be provided with permeable asphalt walkways, waterless educational information on preservation restroom facilities, composting toilets, and enhancement ideas for their water-cleaning aquatic plants and property. Brochures and/or pamphlets creative ways to recycle graywater could be mailed to property owners and (source: http://www.bayviewfarm- contain information on a variety of garden.com/ information including the importance of LPerennialTemplate.asp?cid=611). native vegetation and where to find native plants, information about public The byway transitions to the gateway transit, etc. community of Clinton in South Whidbey,

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Another way to involve residents would be to create an “annual awards program” that would recognize property owners, businesses, etc. who help preserve corridor resources or develop properties using good design techniques, including green building and resource conservation efforts.

North Whidbey Deception Pass State Park New improvements along this segment of the byway should be designed in context with the forested character of the state park. Features, such as a new byway gateway sign, roadside pull-off areas with interpretation, and other improvements, should minimize intrusion into the landscape and be designed in such a way to reflect the rustic Cascadian style of park buildings Figure 8.1: Deception Pass Gateway Sign Concept constructed during the CCC era. The gateway sign should be designed to Scenic Vistas, Overlooks, and Waysides along incorporate timber and mortared stone, State Route 20 like the existing historic guardrails along “By the 1930s there were campaigns State Route 20. Figure 8.1 shows a Structures located along State Route 20 between Deception Pass State Park and to save elements of the island design for the north gateway. Design for environment that seemed on the Oak Harbor should remain relatively low the gateway and other elements, such as point of vanishing.” waysides, interpretive signs, etc. should in height and scale to help preserve the be coordinated with Washington State beautiful views along this stretch of the White, Richard. Land Use, Environment, highway. Native landscaping, trees, and and Social Change: The Shaping of Island Parks and Recreation Commission and County, Washington. Seattle: University Washington State Department of shrubs adjacent to the highway could be of Washington Press, 1980. 148. Transportation. installed to screen some existing commercial and residential structures.

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Any interpretive Oak Harbor panels and kiosks Development along the byway through developed in this Oak Harbor should incorporate the area should be design recommendations from the consistent in design “Harbor Pride: A Blueprint for Change,” with existing as know as the “DAT” document. The interpretation at recommendations in this document Deception Pass provide a solid foundation for positive State Park. Mature change to Oak Harbor. trees in the right-of- way should also be The intersection of State Route 20 and preserved. Pioneer Way is a key point along the Coordination with byway. It is recommended that property owners improvements be made to this and incentives to intersection to encourage people to preserve land travel off of the corridor and into adjacent to the downtown Oak Harbor. Figure 8.2 corridor is depicts the intersection with a encouraged. Scenic roundabout. The roundabout maximizes easements could be mobility, slowing traffic that purchased to continuously moves through the protect land intersection. Byway travelers in the adjacent to the roundabout have the choice of either corridor and Figure 8.2: Corridor Enhancement Concept for Oak Harbor proceeding on their journey or preserve viewsheds. continuing round to access Pioneer Way and the waterfront/downtown. Design An important aspect of this area is the guidelines for Pioneer Way, as shown in existing native vegetation along the the DAT should be followed to create an roadside. With any new highway inviting downtown where visitors and development, WSDOT should coordinate residents will want to shop, eat, and with the Byway Committee and others to stroll down to the waterfront. A ensure that as much native vegetation waterfront connection is a vital and natural slopes are retained as component to the success of downtown possible. and water amenities like the city dock, pedestrian path, and beach.

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Improvements along State Route 20 and enforced to increase safety. Also, through Oak Harbor are also viewsheds should be maintained in their recommended. Planted medians, street current state as much as possible. Any trees, and landscaping could “soften” the new improvements to the highway urban landscape. Public art and should be closely coordinated with the wayfinding signs could also help to Ebey’s Landing National Historic enhance this segment of the byway. Reserve, the Byway Committee, and Bike lanes are also encouraged through other local interests. Roadway Oak Harbor. Adding these amenities to improvement design should seek to SR 20 would slow traffic down and create retain and restore natural landscapes a safer, less congested experience for and slopes along the byway as much as motorists, pedestrians, and bicyclists. possible.

Central Whidbey Ebey’s Landing National Historical Reserve San De Fuca and Penn Cove The reserve already has guidelines in place to help preserve the cultural There are several prominent historical landscape of central Whidbey. It is structures in San De Fuca that should be recommended that Ebey’s Reserve preserved, including the old school continue to require design review and house. These structures tell the story of encourage developers to preserve settlers in the Penn Cove area. historical buildings and structures. Interpretation is recommended for San Ebey’s Reserve should continue to De Fuca and Penn Cove. The design of acquire scenic easements and work with interpretive elements should be surrounding partners, including consistent with existing interpretive Washington State Parks, Whidbey- panels, waysides, and overlooks for Camano Land Trust, the Nature Ebey’s Landing National Historical Conservancy, and others to preserve as Reserve. much of the land in central Whidbey as possible. The “working family farm” is The corridor through this area provides becoming lost in American culture. The one of the most spectacular experiences natural and cultural landscape of Ebey’s of the entire byway. Roadway character Reserve is a rare experience in this should remain similar to its condition country and should be preserved for today. Speed limits could be reduced generations. Interpretive elements Ebey’s Landing NHR. Design Considerations for Historic Properties

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should be designed to be compatible with roadside character should be retained in the design of existing facilities and the its existing condition as much as possible design guidelines for the Reserve. through this area. Native plantings such Coordination between Ebey’s Reserve as low-lying shrub and rhododendrons and State Parks is encouraged to further should to be planted in the right-of-way develop a design standard to be used on to reinforce the natural vegetation edge lands under the jurisdiction of both along the byway. The design of the Lake agencies or in proximity to each other. Hancock overlook should be compatible with the historical architecture of Coupeville Greenbank Farm. Greenbank Farm is a Commercial and residential design in gem along the corridor that should Coupeville should continue going always be preserved and protected. through the design review process and the design style and character of features South Whidbey along the byway should be consistent Greenbank to Freeland with the design guidelines for the town and Ebey’s Reserve. New development is This portion of the roadway is mostly a encouraged to be compatible with the forested corridor with a mix of deciduous historic architectural elements. and coniferous trees. Roadside character Residential structures in Coupeville along this portion of the byway should be should follow existing style of vernacular retained in a forested condition. New farmhouse: Italianate, Queen Anne, development should be encouraged to be bungalow, and cottage. Remodels are setback off the highway to continue the encouraged to restore structures to their forested corridor. Native low-lying original condition through usage of planting and shrubs should be planted in materials and colors. Context and scale the right-of-way along the byway to should be considered in commercial enhance the natural vegetative edge. developments. The phone booth located in this portion of the corridor should be protected and Coupeville to Greenbank maintained. This phone booth is a Much of the character of the corridor cultural icon along the byway. An from Coupeville to Greenbank includes interpretive panel could be added near mature trees and shrubs mixed with the phone booth telling the story of the pockets of rural development. The its historical use and location, which

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represents the dividing line between WSDOT, this north and south portions of the island. new plan means An informal parking lot should be that in many developed along with the interpretive areas grass will wayside display to provide a safe pull-off be allowed to area for travelers. grow up to the edge of the Freeland highway surface Design and development guidelines for instead of Freeland have already been created. The keeping the Freeland Design Review document typical three-foot should be incorporated into Island plant-free buffer. County’s Comprehensive Plan. The With spring Highway Corridor Overlay Zone underway island provides a blueprint for design along residents can State Route 525. This zone will help to expect to see enhance the character of Freeland and WSDOT crews provide a basis for preserving the rural, mowing, pulling Photo by Larry Webster neo-traditional character of the weeds and trees, planting native plants community. Beautification efforts should and judiciously using herbicides. be considered in all Freeland WSDOT’s plan is instrumental in development projects. protecting the natural resources along the corridor and providing a better Freeland to Clinton experience for motorists, bicyclists, and The character of the roadway from pedestrians. Freeland to Clinton includes forests, rural development, farmlands, rolling Pedestrian improvements should be hills, mountain views, marshes, installed in this area to provide better wetlands, and pockets of rural and urban connections to transit service on State development. A recent decision by the Route 525. Currently, proper crossings Washington Department of do not exist in some areas of this Transportation (WSDOT) will eliminate roadway. People will take transit if it is herbicide use in the right-of-way for most easy and safe to access. of this area of the corridor. According to

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Clinton landscaping along the byway, public art, Clinton is one of the gateways of the and wayfinding signs. The Clinton byway, through which roughly two community and Island County should million cars per year travel. work closely together to evaluate Improvements to State Route 525 existing design requirements for this through Clinton should be completed to area and develop a new sub-area plan enhance the gateway experience for with design guidelines that recommend byway travelers. Improvements could specific character requirements, such as include a planted median along with setbacks, parking design, and controlled additional street trees and landscaping. access along the byway. Also, a byway gateway sign should be A park design for the port property located in Clinton, perhaps at the top of adjacent to the ferry terminal is the hill at an overlook point/wayside currently underway. Pedestrian access pull-off area on the right side of the to this park should be considered an highway. Figure 8.3 shows a conceptual important element of the design. Local plan of State Route 525 through residents should feel welcome and Whidbey. Improvements for increasing encouraged to use the park and beach, pedestrian and bicycle safety and and byway visitors could start their mobility are also encouraged. This island experience here, particularly if includes improved crossings and an information kiosk was incorporated intersection signals. WSDOT is into the design. currently making changes to southbound ferry lanes including the addition of a wider shoulder. Other amenities for Clinton could include increased

Corridor Enhancement Concept for Clinton 84 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 9 Signing and Wayfinding Introduction informational. Redundant signs should be avoided. Where possible, signs should Signing along the byway should be consolidated to one location. Signs effectively communicate information to should identify and provide direction to travelers while minimizing adverse points of interest and intrinsic qualities impacts on the scenic values of the of the byway, but not necessarily all corridor. Signs serve many different places and businesses along the corridor. functions; they identify, inform, warn, advertise, direct, describe, and explain. This section includes existing signage The purpose of this Signing and that could be removed, consolidated, or Wayfinding Program is to identify improved while recommending areas existing excessive signage along the where additional signage, such as byway byway and potential for additional and trail signs, could enhance the signage. corridor. All aspects of this Signing and Wayfinding Program should be closely Developing a unified and coordinated coordinated with the Washington approach to signing on the byway will Department of Transportation (WSDOT), help reinforce the identity of the as well as other state, county, and local corridor, assist the traveler with agencies as appropriate. wayfinding, and minimize intrusions on the scenic values of the corridor. All signs should be easy to read and clearly Types of Signs convey the intended information. Signs The Signing and Wayfinding Program must be carefully designed and installed addresses several types of signs for the in accordance with all applicable Whidbey Scenic Isle Way: requirements to avoid creating hazards to drivers and bicyclists. Additional signs • Existing signs along the byway added along the byway should be • Gateway signs carefully designed and placed to • Scenic byway logo signs minimize intrusions on the scenic experience. Signs along the Whidbey • Directional guide signs Scenic Isle Way should be attractive and • Supplemental guide signs • Interpretive signs/panels and historic

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markers examples of signs that are sensitive to • Special feature/name place signs the scenic character of the byway. Regulatory signs that serve a safety Ferry Terminal Signs purpose are regulated by federal and There are many ferry terminals signs state agencies and organizations, when approaching Clinton, some of these including the Federal Highway signs could be consolidated. Administration, the American Association of State Highway Officials, the Manual on Uniform Traffic Control Tourist Activities Devices, and Washington State These signs could be removed or Department of Transportation. As such, consolidated. There are other ways to this plan does not address regulatory advertise activities for tourists. Remove some signs types of signs, other than to request that the agencies responsible for these signs Old Signage consider opportunities to minimize, There are signs that could be eliminated consolidate, and eliminate signs as much from the byway, such as the sign shown as possible. on the left.

Signing Recommendations Private Businesses Recommendations for existing signs There are many examples of private along the byway, as well as for additional business signs that blend into the signs, are described below. environment. Here are some examples:

Remove or consolidate Existing Signs Along the Byway Existing signs along the byway should be consolidated as much as possible. There are many signs throughout the byway that could be added to existing signs or c removed altogether. Below is a summary of signing recommendations along the corridor that could be consolidated or removed. The inventory also shows Remove old signs

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Gateway Signs “Welcome to the Whidbey Scenic Isle Gateway signs should be located at or Way - slow down, relax, you’re on Island near the beginning of the scenic byway to Time” or “Welcome to the Whidbey notify travelers that they are entering Scenic Isle Way - where majestic the byway. These signs typically include mountain vistas and tranquil waters the byway logo, possibly in a larger size, await you.” A gateway is the and may be attached to a welcome panel/ community’s front door to the world, structure. There may be landscaping or thus the design should leave a lasting other features, such as timber columns or impression that would be memorable. stone bases installed as part of the gateway feature. Scenic Byway Logo Signs Scenic byway logo signs identify the Some byways (such as the Cascade Loop significance of the corridor as a scenic and Stevens Pass) have installed byway to travelers and may also identify “gateway” signs that consist of a larger it as a historically, culturally, and/or standard highway sign with a green educationally significant route. background. However, gateway signs designed and constructed to carefully Byway logo signs consist of the byway blend with the natural settings of logo which is sometimes depicted on a Whidbey Island are recommended for shield or plaque affixed to a standard this byway. Gateway signs may be back- post sign. The sign may be accompanied lit, bottom-lit, or reflectorized for night by highway route markers or other visibility. Refer to WSDOT’s Scenic directional signage affixed to the same Byway Logo Signing Guidelines for post. The minimum suggested size for additional design considerations. the sign is 24 inches by 24 inches, and the Coordination with WSDOT on the design sign should be reflectorized for night of gateway signs is important. visibility.

Gateway signs for the Whidbey Scenic The logo design for the Whidbey Scenic Isle Way should be placed at the three Isle Way should be placed at various gateways to the byway: Clinton, locations along the corridor at intervals Keystone, and Deception Pass State of about 10 to 15 miles. Where possible, Park. Smaller signs could also be placed logo signs can be added to existing sign with the logo, name, and tagline, such as posts that already hold a directional sign. Consolidating signs along the

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corridor will help to minimize visual Directional signs should be highly visible intrusion and constructed for long-term durability in accordance with all applicable The scenic byway logo could be designed/ standards. developed by the residents of Whidbey Island. A competition among local The Whidbey Scenic Isle Way already artists, school children, or other groups contains many directional signs. A full would spur interest in the project. assessment of these signs should be done Residents could vote on the byway logo before choosing where to place sign. additional signs and to determine if some of these signs could be consolidated. Directional Guide/Advance Notice Signs There are many blue and white signs Directional guide signs direct and orient along the corridor that provide an visitors to their destinations along the “advertising” function, aimed to direct corridor. These signs assist corridor visitors to various businesses. In order visitors with wayfinding and identify to minimize visual intrusion along the points of interest located along the scenic byway these signs should be corridor or off the main route. consolidated so all businesses are on one Directional signs identify recreational sign if the businesses are in the same opportunities, visitor services and general direction. WSDOT should facilities, cultural and historic sites, and consider the possibility of eliminating other destinations and attraction along this program on Whidbey Island as a the corridor, such as recreational and pilot program to implement model scenic historic sites. byway signing. There are other potential negative consequences of these signs in Blue and white information signs and addition to visual intrusion, such as brown and white recreational signs are increased competition among businesses included in this category. These signs (adding more signs); and redundancy in are typically placed in advance of these signs (some businesses may have sites and sometimes include a reference multiple signs). Also, the overall size of to the distance to the point of interest the blue and white sign is large in scale (i.e. “Heritage Marker - 1/4 mile ahead” to other highway signing, and in some with an arrow). cases, there are large blank areas on the blue signs that are unused because not

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enough businesses are advertising. communicate something about distictive Additional directional signs along the places and events that either currently byway may detract from the visitor exist or that existed in the past along the experience by cluttering the byway. corridor. Interpretive signs are typically Some signs directing visitors could be tied together with a unifying style that is consolidated. For instance, signs recognizable as a design element directing visitors to Crockett Lake, throughout the byway to reflect an Keystone Ferry, and Fort Casey State overall theme for the byway. Park could be on one sign. Interpretive signs and the structures Additional directional signage for public that support the signs should be transit stops and park and ride lots is constructed of materials that encouraged. complement the natural and cultural elements unique to the byway. Interpretive signs should be responsive Supplemental Guide Signs to context, setting, and special qualities Supplemental guide signs direct visitors of the sites, yet still provide unity to the to the byway from intersections with overall byway system. other state routes or major roadways. These signs would be useful in Mukilteo, Historic/heritage markers include signs Port Townsend, and Anacortes – the or monuments that have been installed three adjoining destinations leading to to mark a historical event. These signs the Whidbey Scenic Isle Way. These usually provide less detail and signs typically have a green background illustration than an interpretive sign/ and must be designed in compliance with panel. WSDOT requirements. It may be possible to include reference to the Interpretive wayside exhibits are an Whidbey Scenic Isle Way (logo signs) on excellent medium to tell travelers about these signs. the intrinsic values of the corridor. Multiple exhibits throughout the corridor can be used to link various sites Interpretive Signs and Historic/Heritage together through a strong theme and Markers consistent design. Interpretive Interpretive signs, panels, and kiosks information can also be displayed on larger kiosks, along with traveler

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information and maps. Streams, lakes, bogs, wetlands, and other natural features could also be identified The corridor logo could be included in a with small, discreetly designed and placed smaller size on the interpretive signs. elements. Displays should use a consistent color scheme, format and type Milepost Markers style. Waysides and interpretive exhibits could follow the same design as WSDOT provides milepost markers along existing panels used throughout the the byway corridor. However, it may be byway in state parks and Ebey’s Landing. desirable to consider replacing these with more context sensitive milepost markers Design of interpretive panels and and to provide additional milepost displays should comply with the National markers for consistency. Milepost markers Park Service Wayside Design could be important for developing an Guidelines, which include standards integrated interpretive plan and related to accessibility. Refer to the informational brochure. Interpretive Telling the Byway’s Story for more areas and other areas of significant information on where interpretation interest could then be easily identified, should be located along the corridor. referenced in the publication, and readily located on the ground. Special Feature/ Place Name Signs Special features and place names could Implementing the Signing and be identified along the corridor with Wayfinding Program small signs. These small signs could be placed in the right-of-way or on private Overall Benefits property with the permission of property The recommended Signing and Wayfinding owners. Examples of these signs for the Program will provide travelers and Whidbey Scenic Isle Way include signing residents with an informative and the different flora and fauna present attractive series of signs along the byway along the byway to help educate byway that will supplement the existing signs, travelers of the native vegetation. These including regulatory and advisory signs. signs could also recognize agricultural Consolidation of existing and potential growing (crops) along the byway. future signs will help minimize visual intrusion. Removal of unnecessary signs

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and the adoption of specific signing that need to be considered for removal, if regulations at the local level should be possible include: considered. The use of byway logo on gateway signs help to make visitors • Adopt-a-highway litter management aware they are on the scenic byway. signs • Fire danger level signs Reducing “Sign Clutter” • Business advertising signs (WSDOT blue and white signs) Implementing a Signing and Wayfinding Program provides an opportunity to • Abandoned signs avoid the overuse of signs, which can • Duplicate signs “Do Not Block” create “sign clutter” along the corridor. • “Do Not Drink and Drive” signs Careful consideration should be given to • “Burn Barrels are Illegal in Island where to eliminate redundant County” signs information and directional signs and where to consolidate signs. Where Although some of these signs contain possible and practical, multiple signs can important public information, there may be located on a single sign post, as long be more appropriate ways to get the as the information presented still message out. Local jurisdictions, such as conveys a clear message. As signs are Island County, the City of Oak Harbor, replaced due to maintenance they should and the Town of Coupeville should be consolidated where feasible. review existing signing ordinances to determine if the requirements and As a means of avoiding the overuse of guidelines will provide the best possible signs along the corridor directions to less scenario for design and placement of prominent destination and attractions signs to minimize visual intrusion and be could be provided in brochures, set in context. pamphlets, and other information available at visitor information centers. Signing Program Process A comprehensive inventory of existing The basic steps for designing and signs along the byway should be installing the types of signs described completed. This inventory should earlier in this section are as follows: address signs that should be consolidated or removed. Potential signs 1.Confirm identity, logo, and gateway designs to be used on the corridor;

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2.Assign a “Signing Signing Design Regulations and Wayfinding” All signing located within the SR 20 and subcommittee for SR 525 right-of-way will need to be the byway with coordinated with WSDOT. members who can focus on signing The WSDOT Scenic Byway Logo Signing analysis, needs, and Guidelines contain design ideas that can design suggestions; be used for the corridor. Some types of 3.Develop a sign, including directional guide signs coordinated signing and supplemental guide signs will need plan that includes to be designed and installed in adding, accordance with the USDOT Manual on consolidating, and Uniform Traffic Control Devices removing signs; (MUTCD) and the WSDOT traffic 4.Coordinate and Manual, as well as the WSDOT Sign work with WSDOT Fabrication and the WSDOT Design on the addition, Manual. consolidation, and/ or removal of signs; Compliance with Outdoor 5.Pursue funding from the Federal Advertising Controls Highway Administration National • The Federal Highway Administration Scenic Byway Program and/or other requires outdoor advertising controls sources to implement the signing plan; for designated scenic byways and 6.Finalize design of additional signs (see specifically prohibits billboards in WSDOT’s Scenic Byway Logo Signing Washington. The Scenic Vistas Act of Guidelines); 1971, Chapter 47.42 RCW and Chapter 7.Coordinate the manufacture and 469-66 WAC, were enacted to promote installation of the signs with WSDOT; and protect the natural beauty of areas and adjacent to officially designated state scenic and recreational highways, as 8.Continue on-going coordination with well as primary and interstate WSDOT during sign maintenance. highways. The purpose of the Scenic Vistas Act was to promote the pubic

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health, safety, welfare, convenience, In addition to the federal and state laws and enjoyment of public travel. The related to the placement of outdoor existence of the Scenic Vistas Act advertising that are administered by the ensures that the Whidbey Scenic Isle Washington State Department of Way will be in compliance with the Transportation, local governments along FHWA requirement of no billboards the corridor regulate signing and and outdoor advertising controls. Local advertising through local ordinances. regulations at the county and city level also regulate outdoor advertising. All property owners are expected to comply with local, state, and federal Specific Outdoor Advertising Controls of regulations for outdoor advertising the Scenic Vistas Act control along the corridor. Compliance On-premise advertising signs are with outdoor advertising requirements, specifically regulated by the Scenic in accordance with the provisions of the Vistas Act. An on-premise sign Scenic Vistas Act and other signing advertises an activity conducted on the regulations, is verified on a regular basis property on which the sign is located. by local authorities and WSDOT outdoor This type of sign is limited to identifying advertising inspectors and maintenance the establishment or the principal or workers. additional products or services offered on the property. For more information related to existing advertising and signing controls and All signing must comply with applicable guidelines refer to the following governmental regulations and signs publications. must be located in accordance with WSDOT standards for clear zones • WSDOT Highway Advertising Control: adjacent to the highway. Scenic Vistas Act • WSDOT Highway Advertising Control: Motorist Information Signs Other Applicable Regulations • Island County Zoning Code In addition to Scenic Vistas Act • Oak Harbor Zoning Code requirements, state scenic, primary and • Coupeville Zoning Code interstate highways must comply with the Highway Beatification Act, Title 23 • Historic Preservation Codes U.S.C., Section 131.

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Photo by M.B. Peters Introduction the important resources, private lands, Marketing and promotion of the byway sensitive sites, view corridors, and can result in direct economic benefits to Marketing and promotional strategies, intrinsic qualities of the corridor. Whidbey Island. More travel translates programs, and projects will help attract Encouraging stewardship and to more shopping, more overnight stays, more visitors to the area, but also can be conservation of these resources and more jobs, and more revenue generated valuable tools in managing visitors and qualities should be an integral component by sales and hotel/motel tax. conveying important messages to the of promotional programs related to the traveling public. Along with marketing corridor, for both the visitors and Promotional efforts should be aimed at and promotional opportunities, there is a residents who enjoy the qualities of existing businesses, restaurants, shops, responsibility to educate visitors about Whidbey Island. galleries, and motels, hotels, and bed

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and breakfasts. The abundance of Below is a list of activities people engage locally-owned establishments is part of in while visiting Whidbey Island: the charm on Whidbey Island and should be promoted as such. • Driving/sight-seeing tour • Hiking and walking opportunities Marketing plans should involve the • Bicycling public as much as possible. Including interested citizens, local businesses, • Learning about history, culture, and public agencies, and special interest natural resources (interpretation) groups will increase support for the • Family outings and picnics program. Continual efforts should be • Shopping made to notify the public of corridor • Birding meetings, inform them of progress on the • Cultural events (parades, festivals, project, and invite their input at each races, etc.) step of the way. • Fishing and clamming • Kayaking and canoeing The Target Market • Kite flying As noted earlier, the majority of visitors • Garden viewing to Whidbey Island are from the Puget • Camping Sound region including King, Snohomish, • Sailing Pierce, and Skagit counties. An increasing number of visitors come to Marketing Objectives and Whidbey Island from around the country Strategies and the world. With additional marketing and promotion, the level of Objectives and strategies for marketing visitors from outside the area will and promoting the byway are listed increase even more. Is Whidbey Island below. ready for increased visitation? This marketing and promotions plan, along Objectives with the corridor management plan as a •Create partnerships, collaboration, and whole, will help to ensure that the byway cooperation between byway is better equipped to handle increasing communities; numbers of visitors. • Continue relationships with existing efforts to promote Whidbey Island;

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• Develop new efforts to use the views of Puget Sound and both the Whidbey Scenic Isle Way designation Cascade and Olympic mountain as a marketing tool; ranges, find solitude in the • Encourage public and private surroundings, and see a glimpse of partnerships in economic and tourism Washington’s past. planning and development; and • Promote the Whidbey Scenic Isle Way • Generate and identify funding as the only island byway in the country. opportunities for marketing and It begins on the south end with the promotional activities. largest ferry system in the United States and is accessible entirely by General Strategies transit. • Promote Whidbey Island as: • Promote the byway’s intrinsic qualities - A scenic island of green forests while educating both residents and with miles of coastlines, beaches, visitors on the importance of and natural tidelands; preserving and enhancing those - A quiet place with friendly qualities. people, a mild climate, and year- • Retain the byway committee made up round activities; of various groups, businesses, - A recreational destination with organization, and government one national, five state, numerous representatives after the development county and port district parks of this plan with goals that should be: with water access, and a variety of - Scenic conservation and view accommodations; corridor planning, - A place with rural character - Identifying the benefits of trails where wildlife and birds abound; and greenways for visitors and - A location at the mouth of the wellness, Puget Sound inland sea for - Vegetation restoration, boating, fishing, and whale - Visitor management planning to watching; and minimize impact on local - A place to explore nature, find resources, and adventure along the byway and - Enhancement of community nearby trails, be awed by the pride.

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• Develop partnerships to encourage Byway Program in order to identify public and private interests to possible partnerships and funding maintain the long-term viability of this opportunities. plan. • Work with the environmental Marketing Strategies and Tools organizations on the island to promote There are several specific marketing the CMP’s educational and stewardship strategies and tools that could be used for messages. the byway. The list of strategies above are • Partner with local schools and involve more general in nature. More specific the students in programs and projects strategies and tools to effectively promote that achieve byway goals, objectives, the Whidbey Scenic Isle Way are “Of course, doing nothing here and strategies. This will help promote presented below. takes several deceptively active the byway on a local level. forms - reading, golfing, • Organize an annual event to promote Specific Marketing Strategies beachcombing, rollerskating, the byway and include invitations to swimming, shopping, hiking, local and state politicians. Target Existing Visitors dining, & more - the difference is in enjoying these activities in an • Identify methods to be used for public Deception Pass State Park has more than environment that demands information such as a website, two million annual visitors, while Fort absolutely nothing of you.” brochures or visitor guides, kiosks, Ebey State Park receives about 700,000 welcome centers at the island annual visitors. The byway plan includes www.donothinghere.com gateways, telephone access for visitor provisions for dispersing visitors to other information, alliances with other parts of the island to relieve congestion organizations, such as Cascade Loop, and the resulting impact occurring at the and cooperative advertising. “loved to death” locations of the island. • Submit grant proposals to generate funding to implement the identified The “island experience” of the byway could projects and support the current be promoted more strongly. Visitors could initiative beyond the fall of 2004. begin their journey with ferry crossings on the “marine highway” and then visitors • Seek funding from existing businesses, could travel north to Deception Pass. This organizations, and local governments to would bring visitors to other areas of the implement short-term projects and island and allow more economic plans to sustain byway momentum. opportunities for businesses along the • Maintain contact with the Washington byway. State Department of Transportation’s

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Promote the Shoulder Season bicyclists, and pedestrians. A campaign Whidbey Island is already busy and slogan could be added to signs along the bustling during the summer months. The byway such as “Slow down and enjoy the byway should be promoted as a “year- Whidbey Experience.” A “Share the around” destination. The rain shadow Road” campaign would educate drivers of effect should be promoted in the Puget the presence of bicyclists on the Sound region. Hiking, birding, biking, roadway. Use of “Pedestrian Crossing” and fishing are year-around activities on signs and other traffic calming Whidbey. Market Whidbey Island as the improvements at intersections and areas “Best Kept Winter Secret.” near bus stops would alert drivers of pedestrians. Promote Shorelines, Beaches, and Marine Resources Eco-tourism Much of Whidbey Island’s history, What is eco-toursim? According to the culture, scenic quality, and recreation International Eco-tourism Society it is include water. It will be important to “responsible travel to natural areas that promote these aquatic stories and the conserves the environment and improves role of water transportation, including the well-being of local people.” The ferries, boats, kayaks, and possible Whidbey Scenic Isle Way could be return of fleet water taxis to Whidbey marketed as an eco-toursim destination. Island. People from all over the world travel to areas specifically to experience natural Leave your Car at Home areas that are protected and cherished by those who live near the resources. The Whidbey Scenic Isle Way is perhaps Eco-tourists have an appreciation and the only byway entirely accessible by respect for the natural environment, and transit. This should be a promotional these are the types of visitors Whidbey Photo by Helen Chatfield-Weeks point for visitors to the island. “Leave Island should attract. your car home and hop aboard Island Transit.” Marketing and Promotions Tools Promote Safety Interpretive Plans There are opportunities to promote Interpretive plans have already been safety along the byway from travelers, created for several of the state parks and

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for Ebey’s Landing National Historical The brochure could also include: Reserve. A cohesive approach to interpreting the byway is envisioned, • Calendar of special events, which would integrate the ideas, themes, • Websites and regional contact and projects identified in existing plans. information, and See Section 6 of this plan, Telling the • Stewardship messages. Byway’s Story, for more information This information may be excessive for about the interpretive plan. one brochure. It may be better to consider one brochure that is oriented Interpretive Guide and Map “It’s easy to get here, but difficult to toward visitor interpretation and one leave. The prettiest seaside towns As a primary promotional piece, the look across the water to mountains that is oriented toward recreation and lit up in the afternoon sun. byway organization could develop a full- scenic vistas. Charming shops, deluxe color brochure in the form of an accommodations, century-old interpretive guide and map. This Brochures should be professionally farms, lighthouses, big trees, tender brochure could depict a map of the designed, produced, and distributed to mussels, and military history are brochure racks throughout the state at discovered here.” corridor including the following features: visitor centers, key tourist destinations, • Intrinsic qualities as identified in hotels, parks, and motor clubs. Experience Washington.com Section 3 of this plan; Brochures could be distributed through Washington Tourism Council • Photos of the corridor, including scenic travel agencies, tour organizations, vistas; Island Transit, chambers of commerce, • Historic features and related and other locations. interpretive stories and themes; • Parks, forests, and other public lands; The brand identity of the Whidbey Scenic Isle Way should be reinforced by using • Trailing, camping, hiking, fishing, the byway’s name, logo, and familiar biking, and other recreational themes and story lines. More opportunities; information on creating and reinforcing • Interpretive centers and information “Brand Identity” is discussed later in sites; this section. • Scenic viewpoints, pullouts, and public restroom facilities; and Media Outreach • Cultural events and information. Involving the media is a very cost- effective way to get the word out to the

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public. The media program should Traveling Display include the following elements: A freestanding traveling display • Develop media contacts: list of provides information to a wide variety of newspapers, TV, and radio stations. people at a relatively low cost. A display • Develop calendar of established special could include a byway map, photographs events and invite media to all events. of the byway, and information about key features. • Establish new opportunities for news coverage such as ribbon-cuttings, Tailor the design of the display to fit ground-breaking ceremonies, and your target audience, as different groups special byway tours (invite media and will be interested in different public and all involved groups). information. • Write and distribute press releases to media list at project milestones; also be A community-targeted display should sure to distribute newsletters and other feature contact information and ideas project information to the media. about how to get involved and support • Encourage local newspapers to do a the program and some enticing pictures story on the byway or write a regular showing how fun it is to be a part of the column on the byway and related byway partnership! This display could heritage issues. be set up at local retail shops, libraries, schools, community centers, chamber • Develop a press kit that contains the offices, and other public buildings byway name, logo, themes, story lines, throughout the island. www.whidbeykites.org and color photos of spectacular features – make the reporter’s or columnist’s job A marketing and promotional display for easier by giving him or her everything a tourism audience would need to he or she needs. highlight the main attractions of the • Put notices of meetings and activities on region. This type of display should invite local radio and television community and entice visitors to experience the bulletin boards. byway. It may be more sophisticated in • Promote the byway’s significance to the design with video and/or audio features. region and stewardship activities with a The display could be designed for indoor locally-produced video or as a guest on as well as outdoor environments and local television talk shows or programs. then set up in a wide array of locations.

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The display could be located at visitor presentation can be given at civic groups centers, interpretive centers, and other and community meetings to promote the areas along the byway – as well as byway. The speaker’s kit should locations out of the region, including emphasize the natural beauty of the area, conferences, trade shows, airports, train the recreational opportunities available, stations, and transit terminals. and suggest ways to support the Audio Tape/CD Tour program. It should include an outline of topics to be covered in a presentation, a Audio tape and CD tours provide the slide show of key features along the benefit of “on-the-go” byway byway, and the interpretive map to be interpretation and education. Travelers distributed as a handout. This approach can pick up an audio tape or CD at one can be particularly useful in the early end of the byway, use it during their trip stages of byway promotion and when to learn more about the features they there might be specific questions from encounter along the way, and then turn the audience that need to be answered by in the tape or CD at a destination at the a “warm body.” other end of the byway. Tapes and CDs can be a fairly cost effective manner of Design and Post a Website and Place providing meaningful interpretation and Information on Other Existing Websites information to visitors on a continual Byway information and scenic basis. The main themes of the byway can photographs can be combined to create a be told throughout the island experience. website for the byway. This website “Voices” from the byway’s past and could link to the website on scenic present can be reflected in the audio, highways (“National Scenic Byways along with interesting facts and trivia Online” www.byways.org). A specific about byway features. Tribal legends, website should be designed for the island history, and cultural aspects of the Whidbey Scenic Isle Way to promote byway can also be interpreted. associated recreational, tourism, and interpretive opportunities, as well as to Speaker’s Kit educate potential visitors about sensitive Community members and supporters of resources in the corridor and the need the byway can get involved in promoting for stewardship. the byway by developing a brief slide show and presentation. This

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Links to other local visitor centers, Form a Subcommittee to Manage the chambers of commerce, and other Ongoing Marketing and Promotions tourism organizations should be included Program and Corridor Stewardship on the website. Activities Once the byway organization is Coordinate with Existing Tourism expanded and more formally structured, Promotion Programs marketing, fund-raising, and other As part of the outreach efforts in activities may begin to overlap promoting the byway, an attempt should somewhat. In order to accommodate be made to inform and coordinate with both efforts, subcommittees should be existing organizations and agencies that formed and assigned to specific tasks. A have public information components to Byway Marketing and Promotions Photo by Helen Chatfield-Weeks their organization or agency, such as: Subcommittee can help with several tasks, including overseeing • Local, regional and state tourism development of brochures, travel organizations, visitors’ bureaus, and guides, displays, media relations, chambers of commerce, promotional campaigns, and other • Washington State Parks and programs. Recreation Commission, • National Park Service, • US Fish and Wildlife Service, Other Helpful Information • Educational organizations, A great deal of helpful information and • Recreational/sports facilities, resources are available for the byway organization as it embarks upon • Environmental organizations, marketing and promoting the Whidbey • Historical societies, museums, historic Scenic Isle Way. preservation groups, and • Other relevant public agencies, Local, Regional, and State Tourism nonprofit, and private organizations. Organizations The communities along the byway have chambers of commerce. These organizations frequently do research on visitor characteristics to determine how to better attract tourists to the area.

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Many of these organizations are already contains over 300 pages of helpful advice partners in the byway and will be covering such topics as: instrumental in implementing future marketing and promotional efforts. • Moving from product development to Some of the organizations that have marketing; specifically been involved in byway • Planning Your Party – A Checklist for marketing activities to date include: Marketing Your Byway, which includes • Island County Tourism, fun and helpful advice on “What kind of party should we have? Toga? Luau?” • Greater Oak Harbor Chamber of (What is the byway story or theme?); Commerce, • Key to marketing terminology; • Central Whidbey Chamber of Commerce, • Positioning your byway through interpretation; • South Whidbey Chamber of Commerce, and • Profiling your byway; • North Cascade Highway Loop • Your Guest List (Identifying Your Target Market Through Research); In addition to local and regional tourism • Byway market planning: developing organizations, Washington State Tourism strategies for marketing your byway (http://www.tourism.wa.gov/) has (includes advertising suggestions); extensive resources and information to • Implementing marketing plans; help local communities. This website • Media relations; posts research and visitor statistics • Community awareness; and information, as well as up-to-date marketing reports. • Case studies. The full toolkit can be downloaded at the website, or is available by contacting the National Scenic Byways Program National Scenic Byways Clearinghouse A current feature of the National Scenic at 202-333-8936. Byways Program website, www.byways.org, is a section entitled Building a Consistent “Brand Identity” Branding America’s Byways, which for the Byway contains useful information about brand Building an identity for the byway and building, and, most importantly, an the byway organization is important. extensive Marketing Toolkit. The toolkit The National Scenic Byway Program

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refers to the “branding” process as an • Developing and distributing maps and opportunity to set a particular byway brochures with the byway name and apart from others. Branding is the act of logo; creating a specific impression in the • Sending out a quarterly or monthly minds of your target market. Successful newsletter with the new name and branding usually requires a combination logo; of elements, including: • Placing articles or notices in • Byway name, newspapers showing the logo; and • Byway story, • Confirming a formal name for the byway organization, such as the • Byway logo, Friends of the Whidbey Scenic Isle • Byway organization Way, or the Whidbey Isle Way • Other elements such as the byway’s Partnership, and referring to this name partnerships, visitors’ expectations and on all communications and collateral perceptions, and products offered to associated with the byway. visitors. What will Whidbey Scenic Isle Way’s The byway’s identity should continue to story and logo be? These elements be promoted and reinforced at the local, should set the byway apart from all other regional, state, national, and byways in the country. Ideas for stories international levels. Activities that will include: reinforce the corridor identity include: • The only island byway, • Using the logo for all outreach and communications materials (letterhead, • Majestic mountain vistas over postcards, bookmarks, business cards, welcoming tranquil waterways, etc.); note: letterhead that includes the The byway logo should be graphically logo and corridor name on stationary enticing and include those special would be good for official purposes, elements of Whidbey Island. The logo such as letters of support, funding could include graphics of one or more of applications, and endorsement of the following: special programs; • Distributing a poster or flyer with the • Water byway name and logo; • Wildlife

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• Historical structures • Prairie scenes • Farm scene • Mountain peaks • Festivals and events (Kite Festival)

The byway committee should work with local artists to create the byway logo. A project could include a “byway logo” competition throughout the island. Logo designs could be published in newspapers or displayed at a public gallery. Local residents could vote on their favorite logo and a “byway logo unveiling” event could take place at a location along the byway.

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How the Action Plan is • Recommended Action Items/Action implementation of the Action Plan are Organized Plan Summary Table organized into four categories: • Implementing and Updating the Action • Preserving and Enhancing the Byway The Action Plan of the Whidbey Scenic Plan Isle Way contains the following • Balancing the Needs of Users and subsections: Anticipated Benefits of the Improving Byway Safety • Enhancing the Visitor Experience • Anticipated Benefits of the Action Plan Action Plan • Promoting and Marketing the Corridor • Summary of Important Issues and The recommended action items for the Considerations byway will result in many benefits. The Each of these categories of benefits is types of benefits that would result from described below.

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Preserving and Enhancing the Byway and bicycle improvements and Identifying methods to retain and enhancements, transit improvements, sustain the byway is a primary purpose and scenic character design of byway management planning. enhancements. Recommended actions that fit into this category include elements such as Enhancing the Visitor Experience beautification plans and planting, The byway provides many wonderful promoting transit and “non-driving” experiences for visitors, as well as for experiences, signage plans, scenic people who live and work in the area. easement master plans, traffic calming This Action Plan focuses on enhancing and gateway improvements along the these existing unique experiences, as roadway. well as creating new experiences. The recommendations to create a comfort Balancing the Needs of Users and station on the byway and expand some Improving Byway Safety existing parking lots and provide additional interpretive signage will The benefits that result from projects enhance visitor experience and provide and strategies that improve byway safety educational and interpretive and operations are two-fold. Existing opportunities for visitors and residents. roadway deficiencies can be improved to better handle current traffic and Photo by Helen Chatfield Weeks operational needs, and improvements Promoting and Marketing the Byway will also help to prepare the Strategies and projects that provide transportation system for potential benefits related to promoting and increased visitation and traffic. For marketing the byway are valuable example efforts to encourage tours by because of the positive economic impact transit and use of bicycling facilities increased tourism could have on the could help to reduce tourist travel by region. Marketing recommendations cars and RVs. Multi-modal include promotional brochures about transportation also plays an important Whidbey Island and creating a media kit role in balancing the needs of the users. for the byway organization. Examples of these types of improvements include traffic calming Along with marketing and promotional measures, safety campaigns, pedestrian opportunities, there is a responsibility to

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educate visitors about the important archaeological, historic, cultural, resources and intrinsic qualities of the recreational, and scenic. byway. Promotional and marketing • The byway is already promoted as a campaigns can also help to reinforce tourism and recreational destination. important messages to byway travelers, The abundance of intrinsic qualities such as the importance of environmental and recognition as a state scenic byway stewardship, opportunities to visit the provides tremendous opportunities for island by ferry and transit, and other island residents and tourists. important information. Encouraging stewardship and conservation of these • Improvements made to the byway must minimize impacts to the intrinsic resources and qualities should be an “...publicize your efforts with an integral component of all promotional qualities of the corridor and island eye toward continuously programs related to the byway. lifestyles. expanding your base of support. • Improvements made to the byway must Celebrate the progress as well as minimize impacts to existing property the completion of the action. Summary of Important Issues owners, businesses, and land uses. Success breeds support and future and Considerations • Enhancements and improvements to success.” Several important issues and the byway and related increases in Riverwork Book considerations influenced the tourism and recreation will bring National Park Service development of the Action Plan. A positive economic benefits to the summary of these issues and surrounding communities. considerations is presented below. • There is a need for a public restroom facility and additional roadside A clear understanding of these issues pulloffs/interpretation along the byway. and considerations, as well as a thorough These should be strategically located knowledge of the existing conditions and and well planned. intrinsic qualities of the byway, and a • Better enforcement of current responsiveness to the vision statement regulations (speeding, etc.) along the and goals, helped to shape the strategies byway is needed. and projects recommended by this Action • Byway segments in urban/town center Plan. areas, such as Clinton and Oak Harbor • Intrinsic qualities are abundant. The and other areas with high byway contains qualities within all six concentrations of pedestrians, of the categories: natural, bicyclists, such as state parks,

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trailheads, etc. should be carefully Potential funding opportunities for these designed to respond to these settings. action items are summarized in the list · Byway segments that traverse through of potential funding sources in the sensitive natural, historic, and cultural appendix of the CMP, with more detailed resource areas also should be designed descriptions related to eligibility and carefully to preserve and enhance application guidelines. these characteristics. Time frame goals for implementation of Recommended Action Items / each action item are identified according Action Plan Summary Table to the following categories: Action items include strategies, •O = programs, enhancements, and Ongoing: The action/strategy would improvements that when implemented, occur continuously throughout the will help accomplish the vision and goals duration of the corridor planning and for the byway. management process •I = Byway-wide action items are listed first Immediate and Near Term: Initiate and categorized by the timeframe goal. action within 1 to 3 years Many of the recommendations relate to ongoing byway planning and •M = management will involve the future Mid Term: Initiate action within 3 to 6 byway organization. Location-specific years action items are listed second and are •F= categorized by location from north to Far Term: Initiate action within 6 to 10 south along the byway. For each action years item, information is provided under the It is important to note that these time following subheadings: frame references are goals. Actual • Action Item and Description timing of implementation will depend on • Roles and Responsibilities many factors, including the availability of funding, the ability to obtain approvals • Time Frame Goal and permits, the level of detail needed for design, and other influences. Action items identified as “Immediate” are

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those projects and strategies that can be If pursued, each action item will need achieved in a short timeframe and allow further consideration and analysis as the byway organization to continue the part of the implementation process. momentum and enthusiasm of on-going Further coordination with applicable project implementation. regulatory agencies and other In the future, once some of the stakeholders, as well as ongoing public immediate action items are participation will be necessary. Project accomplished, the list may be re- implementation will be contingent on prioritized and other action items may available funding sources and other become higher in priority. Also, with factors. Projects potentially considered ongoing planning and community for funding through capital investment involvement, additional action items will programs will be need to be further likely be added to the list in the future. prioritized as part of city, county, or state capital improvements programming. Action Plan Summary Table The follow table includes provides the Individual project sites will need to be list of action items for the Whidbey analyzed in more detail as part of future Scenic Isle Way byway. design efforts to identify land use approval requirements, determine potential sensitive areas and required Implementing and Updating the mitigation, and identify environmental Action Plan and land use permitting requirements. Geotechnical analysis, biological Identifying Potential Projects and assessments, wetland delineations, Strategies Is Only the First Step wildlife habitat analysis, and other types This Action Plan is intended to be a of studies may be required as part of guide for future byway planning, project implementation. management and implementation efforts. The recommended actions are Projects will need to be designed and based on community input and a implemented in accordance with all local, conceptual level of review of existing state, and federal standards and conditions. They are suggestions, not guidelines, including the Manual on mandates or requirements. Uniform Traffic Control Devices (MUTCD), the Washington State

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Department of Updating the Action Plan Transportation It is recognized that the priorities of the (WSDOT) Design community may change over time, and Manual and other the Action Plan should be reviewed state regulations, periodically, updated and amended as A Policy on necessary, adding new strategies and Geometric Design projects, and removing those that have of Highways and become reality. It may also be necessary Streets by the to reassign timeframe goals to the American recommended strategies. Association of State Highway and Transportation Officials (AASHTO), the Americans with Disabilities Act (ADA), applicable standards and code requirements of Island County, local jurisdictions, and other relevant development requirements. In the case where conflicts occur between these standards and guidelines, or between these and the values and purposes of this corridor management plan, further analysis and coordination with the governing agency should occur.

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Action Items - Byway Management

Action Item Description of Actions to be Accomplished and Steps to Implementation Roles and Responsibilities Goal Frame Time

Byway Management and Administration Actions:

Obtain funding for Prepare a scope of work and obtain funding to Existing steering committee, Island County I & O ongoing byway support retain administrative support for the byway services (coordinating meetings, newsletters, website development, etc.). Annual estimated funding need: $25,000. Expand existing corridor Existing steering committee to recruit more local Existing steering committee, Island County I & O organization citizens, organizations, businesses, and others to be involved in the byway organization and creates a non-profit with monetary assistance for one year. Partner with local Establish alliances with local community and Byway organization I & O agencies economic development organizations on an ongoing basis to help support byway activities. Obtain 501c3 Obtain 501c3 (non-profit) organization Existing steering committee I organization status certification/status and set up organizational structure for expanded byway organization; conduct ongoing meetings, etc. (See Section 12 of the Corridor Management Plan - CMP.) Confirm scenic byway The byway organization should meet to confirm Existing steering committee/expanded I "brand identity" and appropriate themes and graphic imagery for the byway organization develop scenic byway byway's "brand identity" and then could hold an logo island-wide competition for the creation of a scenic byway logo. Reach final decision on Through ongoing meetings with the byway Byway organization, RTPO I pursuing national scenic organization, as well as public involvement and byway designation outreach, determine whether or not the byway will pursue national scenic byway designation. Implement ongoing Coordinate with and inform community Byway organization I community participation representatives, special interests, and citizens on program a regular basis. Stakeholders need to be kept informed throughout the process. (See Section 12 of the CMP.)

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Action Items - Byway Wide Action Item Description of Description Actions to be Accomplished to Steps and Implementation andRoles Responsibilities Frame Time Goal

Byway-wide Programs, Initiatives, and Projects:

Organize and conduct a Plan a kick-off event celebrating the successful plan and getting people Existing Byway Steering I "Kick-off" event – Spring involved early in the process of implementing the CMP. This event could Committee/Byway organization, 2005 Byway Birthday include roadside clean up activities, revegetation projects, and/or a “Byway Consultants, Adopt-a-Road Birthday” celebration. Try to minimize costs through volunteer donations and participants assistance from current CMP consultant contract. Create byway website Create the byway website that includes byway logo and up-to-date programs Byway organization I and projects. Approximate cost: $30,000 to $75,000. Promote the “non-driving Promote and advertise Whidbey Island as a “car-free” experience. Create a Byway organization, Island I experience” through a brochure about transit options, advertise alternative transportation on tourism Transit, Chamber of Commerce, brochure and website websites. A public relations or marketing consultant could be retained to Island County Tourism postings assist. Approximate cost: $50,000 to $150,000 depending on print quantity Touring routes brochure Create a touring route brochure with a map that includes the touring routes Byway organization, chamber of I (by car, bicycle, transit, etc.) listed in the CMP. Approximate cost: $50,000 commerce, Island County to $100,000 depending on print quantity. tourism “Walks of Whidbey” Create an island-wide map showing the “Top 20 Walks on Whidbey Island." Byway organization, Whidbey I Map/Brochure Approximate cost: $50,000 to $100,000 depending on print quantity. In Motion, Chambers, Whidbey Island Trails Council, Island County Tourism Study needed transit Complete a study and create a master plan to identify improvements needed Island Transit I facility improvements and for transit facilities (park and rides, bus stops, transit center, etc.) including develop a master plan the addition of furnishings, beautification/planting plans, etc. Approximate cost: $80,000 to $100,000 Safety campaign – speed Byway organization should work with police departments, schools, and safety Byway organization (coordinate I & limit enforcement organizations, etc. to organize a safety campaign and the importance of with Island County sheriff), O obeying the speed limit. Approximate cost: $30,000 to $50,000 for printed Washington State Patrol, local materials. jurisdictions, schools

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Maintain scenic roadway The byway organization should continue to work closely with WSDOT on the Byway organization, WSDOT, O character through evaluation of alternatives for lane widening, turning lanes and intersection Island County roadway design improvements, side slope design, curvature, and other elements with the intent to preserve the visual and scenic character of the roadway. Planting/revegetation Plant native species along the corridor and continue to coordinate with WSDOT and local community O projects (native plants) WSDOT on revegetation efforts. This is an ongoing action that is a high organizations along the roadway; master priority for the byway organization. The first step will be to create a master plan and implementation plan for locations that need revegetation; the second will be to implement revegetation projects on a location by location basis. Approximate cost: master plan could be completed as a project of the byway organization through volunteer resources; implementation could also occur through volunteer resources and donated labor/materials Expand multi-use trail Extend existing multi-use trails and create new trails through Island County. Island County – see O system and Develop trailhead improvements and access opportunities (via transit) from Transportation Comprehensive improve/enhance access the byway. This would be an ongoing action throughout the county; costs of Plan for locations of trails - with to trails implementation are analyzed by the county. the support of the Byway organization and other area agencies and organizations Media/speaker’s kit Create a media /speaker's kit that includes byway logo, information, press Byway organization O release, website information, presentation, etc. and develop an ongoing relationship with media representatives to build awareness about byway activities Enhance safety at Identify locations and make pedestrian improvements along the corridor, Byway organization, schools, O pedestrian crossings specifically in Clinton and Freeland. Approximate costs: depends on level of town representatives, WSDOT improvements, but minimal striping and signing likely could be accomplished for $20,000 to $50,000 per location Reduce and eventually Through native plantings and pest management, eliminate chemical Byway organization, WSDOT, O eliminate the use of dependence along the byway. Whidbey Island No Spray herbicides and pesticides Coalition along the byway. Develop highway Identify locations for beautification projects and work with private property Byway organization, WSDOT, M beautification plan for SR owners including businesses and industries. Approximate cost: $30,000 to private businesses, Master 20 and 525 $50,000 for developing the plan; costs per site will depends on the level of gardeners improvement needed. Sign inventory Complete a thorough sign analysis, inventorying all signs along the byway Byway organization, WSDOT, M and making recommendations for removal, consolidation, and additional sign Island County needs. This could be done through volunteer resources; or perhaps agency staff resources. Consultants could also be retained. Approximate cost: $25,000.

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Action Items - Byway Wide cont. Action Item Description of Description to be Actions Accomplished to and Steps Implementation Roles and Responsibilities FrameTime Goal Interpretive guide and This promotional brochure would highlight the intrinsic qualities, public Chambers, Island County M map services, interpretive stories, etc., providing a byway-wide perspective of tourism organizations, Byway things to do and see for residents and visitors. Approximate cost: $50,000 to organization $100,000 or more depending on print quantity. Scenic easement master Collect data and inventory site-specific information for the opportunity to Byway organization, Whidbey- M plan purchase scenic easements along the corridor. Approximate cost: $50,000 to Camano Land Trust, Nature $75,000 for the study and master plan. Conservancy, Trust for Public Lands, Ebey's Landing National Historic Reserve Informational brochures Educational and informational brochures about aspects of Whidbey Island Byway organization, Historical M including history, geology, marine life, vegetation, and cultural events. Society, Beach Watchers, Island Brochures could include maps and specific touring and transit opportunities to Transit, non-profit organizations locate the aspect – historical structures, geological features, cultural events, etc. Approximate cost: these could be smaller focused brochures and educational pieces each produced for about $30,000 to $50,000 depending on desired print quantity.

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Action Items - Location Specific (from North to South)

Action Item Description of Description to be Actions Accomplished to and Steps Implementation Roles and Responsibilities FrameTime Goal Dugualla Bay Provide a wildlife viewing platform with interpretive panels. Byway organization, Island I - Seek Funding Improvements County, Audubon Society, M - Implement Project Private property owners Oak harbor - Traffic An analysis of traffic patterns and feasibility of traffic City of Oak Harbor, WSDOT, I - Seek Funding/Study calming and wayfinding calming measures and improvements including RTPO. FHWA, Byway M to F -Implement study in Oak Harbor and wayfinding/signing improvements to strengthen connections organization recommendations subsequent improvements to downtown/waterfront, planting medians, traffic circles, reducing lane widths, etc. Hastie Lake Provide a wildlife viewing platform with interpretive panels Island County, Audubon M Improvements and a small pull-out to accommodate 5-6 cars. Society, Private property owners, Byway organization Crockett Lake Provide a wildlife viewing platform with interpretive panels. Washington State Parks, M Improvements Ebey’s Landing, Audubon, Byway organization Comfort Access feasibility of developing a comfort station at Lake Byway organization, WSDOT, I - Seek Funding Station/Improvements at Hancock with interpretive, picnic, and other facilities. Navy, Island County, others M - Implement project Lake Hancock Pull-out Traffic calming, Complete an analysis of traffic patterns, safety needs, and Island County, Clinton Forum I- Seek Funding/Study circulation and safety feasibility of traffic calming measures including planting and other Clinton M - Implement Project study in Clinton and medians, lane narrowing, signalized crosswalks, sidewalks, representatives, FHWA, subsequent improvements etc. Also consider opportunities to build identity and WSDOT, RTPO, Port of (to SR 525) character as part of transportation improvements in Clinton. South Whidbey, Byway Such opportunities could include additional landscaping, organization trees, public art, wayfinding elements/signing, and other enhancements. Upon completion of study, design and construct recommended improvements. Improvements should also include evaluation of access opportunities (pedestrian, bicycle, transit, etc.) to the Port of South Whidbey's future beach park.

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National Designation deciding to pursue it will be a difficult • Economic benefits would occur decision. through increased tourism. One of the first steps the byway • Increased recognition, public organization will need to proceed with is Pros of National Designation awareness, and opportunities to the decision about whether or not to enhance and preserve the byway would pursue national designation through the • The FHWA National Scenic Byways likely occur through national Federal Highway Administration Program and WSDOT give priority designation. (FHWA). According to public comments, funding to nationally designated there are many pros and cons to moving byways. • National Scenic Byways can apply for forward with national designation. One • National byways receive free marketing $25,000 annual “seed” grants for thing is clear - the Whidbey Island and promotion on the National Scenic ongoing byway planning, management, Byway is a unique experience - a Byway’s official website and programs. destination unto itself that possesses all (www.byways.org) and national map. • The Whidbey Island Byway could six intrinsic qualities. The byway • Increased tourism would be expected become a national model for the qualifies for national designation, but with national recognition. promotion of transit use and

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alternative transportation along the and the recommendations in this plan to entire byway. be fully achieved, a well-organized and Cons of National Designation enthusiastic group of people will need to • While increased tourism is a pro for continue to work together to coordinate some, it can also be a negative for and manage the ongoing planning and others; many are concerned that project implementation of activities increased visitation to the island will connected with the corridor. Corridor impact the quality of life for island “champions” will need to persist in residents. bringing their energy and enthusiasm toward implementation of this plan, just • The potential for increased traffic and as they have towards its creation. transportation concurrency issues would need to be further evaluated. FHWA recognized that those most “in • Increased tourism could result in touch” with the existing conditions and overuse of and impacts to the byway’s needs of a scenic byway are the local intrinsic qualities. communities surrounding it. FHWA Increased development could occur as a strongly encourages management of result of more people visiting and scenic byways by “grass roots” citizen- wanting to build seasonal and permanent based organizations. Along with citizen- homes. based management efforts, FHWA recommends building local support Becoming a national scenic byway will be through active community involvement Photo by Larry Webster a significant decision for the byway at every stage of the corridor planning organization. Additionally, ongoing and management process. public involvement will be a vital part of this decision-making process. The Whidbey Island Byway already has an excellent start with the assistance of a group of strongly committed supporters Expanding and Strengthening and partners. The resources and the the Byway Organization depth of experience of federal, state, and local agencies has helped to set the On-going management and coordination byway on a successful course. Fostering efforts associated with the corridor will of specific byway partnerships has require strong commitment by local already occurred through the community representatives. In order for development of this plan. The ability to the goals associated with the corridor

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successfully build on and strengthen • Whidbey Institute these partnerships will be a key element • Whidbey Island Conservation District in determining the future direction of • Island County Trails Council the byway. Current partners and • Countless other individuals, involved entities include: businesses, and organizations who have • Audubon Society supported the efforts to develop this • Beach Watchers Corridor Management Plan. • Cascade Loop Association It is anticipated that the core group • Central Whidbey Chamber of (existing byway steering committee) Commerce involved in ongoing corridor planning and management will grow and evolve • City of Langley over time. At the outset, it is important • City of Oak Harbor that the core group continue to include a • Clinton Community Forum diverse representation from the entire • Ebey’s Landing National Historical island. Reserve/National Park Service • Economic Development Council The primary objective of the byway organization will be to guide the work of • Friends of Freeland planning and implementing the • Greater Oak Harbor Chamber of enhancements and interpretation along Commerce the corridor. The byway organization • Island County should also sponsor special programs • Island County Historical Museum and events to promote the corridor. • Island Transit Members of the byway organization • Naval Air Station should consider the types of skills and interests most needed in the • South Whidbey Chamber of Commerce organization as it grows and evolves. • South Whidbey Historical Society Here is a suggested process for forming • Town of Coupeville and expanding the core group: http://www.oakharborchamber.org • Washington State Parks • Identify skills and interests needed • Washington Department of (i.e. newsletter writing/editing, web Transportation design, speaking, marketing, • Whidbey/Camano Land Trust stewardship, etc.);

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• Identify key community people who may be beneficial to establish have the skills and who have structure, including election of a chair, demonstrated interest in community consistent meeting agendas, meeting affairs; minutes, etc. • Develop funding commitments to • Determine the appropriate provide for supporting resources to subcommittees for the organization help the byway organization. (see suggestions later in this section). • Talk to those interested in person and • Reach a consensus about next steps – discuss the corridor, including the What should the byway organization visions, goals, future prospects, and the focus on first? importance of community involvement; • Try and reach a broader audience for Confirming the Identity of the participation. Often, those interested Corridor Organization are involved in other organizations and can only dedicate a small amount of Once the core group develops and has time; and established a regular meeting schedule, one of the first items of business will be • If the group is still too small, go to reach a consensus about the identity of directly to community organizations the byway. A somewhat concise, easy-to- and solicit participation and leadership remember name for the byway and the as needed. organization will need to be identified. “Getting your scenic byway is a big challenge. Keeping it going is another” Below is a summary of the steps involved According to public comment, most in expanding the organization and people prefer the corridor to be named Community Guide to Planning and consolidating efforts. Managing a Scenic Byway. FHWA. The Whidbey Island Byway or the • Continue to include interest and Whidbey Island Scenic Byway. This organizations from entire corridor: name should continue throughout future Deception Pass to Clinton. planning and project implementation, • Select the byway board or other helping to reinforce the “brand identity” leadership and set a regular monthly of the byway. meeting schedule (may be more The identity of the byway should be frequent for the kick-off process). It promoted and reinforced at the local, regional, state, and national levels. Activities that will reinforce the corridor

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include: date but should • Working with a local island artist to be? There may be develop a logo for all outreach and some valuable and communication materials. A local art important competition could help draw local artist partners out into the process. Residents throughout there ready and the island could vote on the best logo. waiting to help. • Distributing a poster or flyer with the Typical major name and logo. stakeholders should include: • Developing and distributing a map and brochure with the name and logo. • Property • Sending out a quarterly or monthly owners and newsletter with the name and logo. private • Writing articles for the local landowners and newspapers. land managers • Creating letterhead that includes the along the byway (identify names from name and logo on stationary used for tax records) including timber and official purposes (such as letters for agricultural industry representatives. grants applications or special • Local business people, especially those programs.) whose businesses would be affected by • Working with WSDOT and local increased tourism. communities to install byway logo signs • Agencies and interests responsible for and gateway signs and improvements. management activities in the corridor. • Local community associations, Broadening Interest - Bringing in chambers of commerce, visitors’ bureaus, and other community More Stakeholders organizations dedicated to promoting It is important to know who the business, quality of community life, or stakeholders are along the byway and to tourism. involve them in corridor planning and • American Indian tribes who may not implementation activities as much as have been represented to date. possible. Who has not been involved to • Organizations dedicated to specific intrinsic qualities of the corridor (such

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as historical societies, local museums, will benefit them; and outdoor recreational organizations, • Inviting them to join the corridor local or regional festival organizers, project and work together to achieve garden clubs, and scouting groups). commonly desired goals. These stakeholders will play an Potential Subcommittees/Focus important role in the partnership. These Groups groups can become valuable, integral partners in the byway’s future. Involve The working subcommittees of the them in the process by: corridor organization or partnership will play important roles in the future of the • Asking about their interests and corridor. These subcommittees will be concerns; the “engines” behind the overall corridor • Asking the question: What can the organization, making things happen on a Whidbey Island Byway do for you? daily basis. Subcommittees should be • Responding to their questions, fears, structured so that individuals are dreams, and anxieties without judging assigned appropriate responsibilities or taking sides; that match their special skills and • Learning about the corridor from them; interests. For example, someone with • Listening to their ideas and integrating word processing and desktop publishing them into the plan; skills would be an ideal member of a “communications” or “newsletter” • Clearly understanding what is desired subcommittee. Subcommittees should from them and what the best role is for meet independently from and possibly them; more often than the corridor leadership • Looking for common ground between board and the overall corridor their concerns and the concerns of organization, depending on their others; assignments. • Showing them how some of their needs can be met through the enhancement of Here are some of the potential subcom- the corridor; mittees that may form out of the overall • Showing them ways they can be “umbrella” corridor organization: involved and how their involvement • Communications/Media Relations (responsible for newsletters, meeting invitations, flyers, press releases, etc.)

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This is a very important subcommittee! are identified by the core group, place • Grant Writing/Fund Raising them on a mailing list. At minimum, • Marketing and Promotions obtain their name, address/phone/e-mail, • Project Implementation and organization or agency. • Maintenance and Operations To maintain the e-mail/mailing list, keep • Government/Political Liaison up with changes in the leaders of com- • Business and Industry Liaison (This munity organizations so that mailings group would meet regularly with are received by the current leaders. important industry representatives - Remove people who move or who indi- including the Navy, agricultural cate that they are not interested. interests, and other important Keep all established community organi- stakeholders.) zations on the e-mail/mailing list. Get- • Membership ting announcements, newsletters, and meeting notices out to community orga- • Community Involvement nizations is an easy way to keep inter- Other subcommittees may be needed. ested people aware of the partnership These are some of the most common ones activities and progress. An organization found in larger organizations. may want to contribute to the corridor or to a special project or program they have The Contact List read about by donating funds or provid- ing in-kind services. It is important to put someone in charge of the byway contact/mailing list. This Building a Volunteer Support person should be skilled with data base Base management so that he or she can maintain and update the list and produce To successfully build a volunteer support mailing labels. This will be one of the base for the corridor: most important tools to be maintained in • Register volunteers and record their order to keep people involved in ongoing time (volunteer time is often an eligible planning and management. Creating a in-kind matching source for grants); byway listserve or “group” e-mail is an important task as well. The e-mail list • Identify their interests, skills, and can reach a broader audience without the availability; cost associated with mailing. As people • Thoughtfully match project needs and

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volunteers; implementation of these projects. • Make the work sessions enjoyable; and • Continual outreach - regular • Build “esprit de corps” by making the communication of progress in meeting work parties fun; plan food and music corridor goals and completing action by local people; plan time for items through newsletters, possibly a socializing and making friendships. website, newspaper articles (press Productive projects, where one can see releases), or other means. the physical results when one is finished, • Sponsorship and support of activities such as building trails, planting trees, and projects that reinforce the goals for landscaping, and other activities, are the corridor, such as stewardship typically very rewarding and can help programs, community clean-up events, build a strong, active volunteer and volunteer tree-plantings. organization. • Remember to look for fun and interesting ways to keep members of Ongoing Activities the organization enthused and active – as discussed previously. Try to avoid There are various ongoing activities on adding too much complexity and which the expanded byway organization formality to operations – this might should focus on a continual basis: discourage people from getting involved and staying involved. • Coordination with agencies and jurisdictions to adopt the • The Corridor Management Plan and recommended strategies and projects Action Plan should be “living from the Corridor Management Plan. documents” - updated, modified, and Strategies and projects can be adopted expanded periodically as planning into local comprehensive plans and efforts progress and the corridor community plans of the local expands. jurisdictions and communities along the corridor, as well as Island County, Potential Funding Opportunities and into the Statewide Transportation The byway is eligible for various types of Plan, as appropriate. grants and government funding. One of • Coordination with appropriate the responsibilities of the corridor agencies to pursue funding for projects organization and leadership board will and to manage planning, design, and be to continue to investigate possible

126 WHIDBEY SCENIC ISLE WAY CORRIDOR MANAGEMENT PLAN 12. Next Steps

funding sources and to pursue funding The Importance of Ongoing for byway projects and programs on an Public Participation ongoing basis. Here are some ideas related to various funding sources and The Need for Broader Input opportunities for which Whidbey Island Byway programs and projects may be Ongoing public participation is essential eligible: to the success of future corridor planning and project implementation. The • Federal Highway Administration corridor organization will represent the Scenic Byway Grants views of local communities and interests, • Transportation Enhancement Grants but at key decision-making points and • Public Lands Highway Grants important milestones in the future there also will be a need for broader • Other federal grant programs community input and involvement. • State grant and capital funding Citizens and special interest groups Programs throughout the corridor can provide • Regional and local governmental and valuable information and input. They nonprofit organization funding are the local experts – they can describe opportunities in detail the existing conditions, • Public/private partnerships problems, and potential solutions that • Private foundations and corporate are best suited to their specific giving programs (do some internet situations. searching – there are lots of programs out there that contribute to the Tools for a Successful Public Involvement administration, programs, and projects Program of nonprofit organizations.) There are several successful tools to • Private donations and development inform and involve the public. It is projects recommended that the public • Community fund-raising – community involvement tools and corresponding clubs/organizations (i.e. Optimists, schedules be used with long-term Elks, Rotary Clubs, etc.) planning and management of the • Volunteers and in-kind resources corridor.

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Recommendations about how and when and it may be necessary to hold separate to use these public involvement tools are meetings with special interests, but the guidelines only. The ongoing program workshop setting is best for broad for the Whidbey Scenic Isle Way should community participation. be tailored to fit the preferences and needs of the byway organization and It may be necessary to hold various communities. Depending on events public meetings along the Whidbey taking place within the corridor at Island Byway corridor, given that people various times, it may be necessary to live in different communities. Workshop adjust meeting schedules and/or press announcements should be placed in local release publishing dates. If there is a and regional newspapers, and workshops period of heavy activity it may be a good should be held at convenient and idea to hold meetings more frequently or accessible locations within the to look for other ways to engage the community. Inviting the general public interest of the communities. Keep in to participate through workshops will mind that summer vacation schedules help ensure that community members may impact meeting attendance and and stakeholders are not left out of the participation levels. process.

Advantages of Public Workshops and Reaching out the Community Charettes People lead busy lives, and it is often It may be necessary to help certain difficult to attend public meetings and community groups see the points of view workshops because family and personal of other community groups or schedules take priority. Often, public stakeholders. One of the best methods to meetings and workshops are not well accomplish this is bringing all interested attended if the issues being discussed groups together for planning and design are not controversial. Time is a precious charettes workshops to discuss issues commodity and, with that in mind, and work together on resolutions. In a sometimes it may be necessary to reach “forum setting” people are able to better out to the public in other ways besides understand the concerns and meetings. Websites and e-mail lists are a perspectives of others. It is still good way to keep people informed and to important to understand and address the encourage dialogue through e-mail specific needs of each person or group, correspondence.

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A successful way to foster participation is to attend meetings that are already set-up through local chambers, tourism groups, environmental organizations, etc. This method could be successful because information can be obtained through meetings that are already attended by a group of devoted volunteers or community representatives, rather than adding another meeting to their busy schedules.

Presentations to elected officials and commissions can also provide opportunities for input and involvement in corridor activities, as well as building awareness and gathering support for needed improvements. Work sessions with senior citizens and school groups provide another opportunity for community outreach and obtaining insightful input. Byway projects could be incorporated into school projects for students or preservation projects could be a part of high school curriculum or after school activities.

There are many resources in the community including volunteers, in-kind support, gifts of materials, printing costs, etc. that can be “tapped into” as part of a strong program of community involvement and outreach.

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