FINAL REPORT August 2013 City of Seattle Department of Planning & Development IMPLEMENTING TRANSIT ORIENTED DEVELOPMENT IN SEATTLE: ASSESSMENT AND RECOMMENDATIONS FOR ACTION TABLE OF CONTENTS EXECUTIVE SUMMARY i WHAT CAN SEATTLE DO TO HELP TOD MOVE FORWARD? II MODELS OF SUCCESSFUL CITY TOD IMPLEMENTATION III A CITYWIDE OPPORTUNITY FOR PROACTIVE TOD SUPPORT IV ADVANCING SEATTLE TOWARD SUCCESSFUL TOD IMPLEMENTATION V REPORT 1 1.0 INTRODUCTION: VISION AND PROBLEM DEFINITION 1 2.0 SEATTLE’S ELEMENTS OF SUCCESS 5 3.0 TOD ORGANIZATIONAL MODELS AND PRACTICES IN OTHER CITIES 11 4.0 THE TOOLBOX FOR IMPLEMENTING TOD: AVAILABLE TOOLS IN WASHINGTON 19 5.0 ASSESSMENT OF TOD CHALLENGES AND OPPORTUNITIES AT THREE STATION AREAS 26 6.0 FINDINGS AND RECOMMENDATIONS 48 EXECUTIVE SUMMARY THE STATE OF CITY TOD SUPPORT In recent years the Seattle region has made significant investments in a regional transit system. To leverage this investment, Seattle has focused on developing planning policies to set the stage for transit-oriented development (TOD) across the city. However, the City’s approach to TOD supportive investments has been more reactive and targeted to market feasible areas rather than proactive and coordinated. WHY FOCUS CITY STRATEGY ON TOD? How can the City play a meaningful TOD near stations can create important community, environmental, and role in making TOD happen in a economic benefits by providing new job and housing opportunities; efficient equitable way? land use; and lower energy consumption, particularly in underserved areas. City decisions around zoning changes and public investments in neighborhoods have direct affects on private development decisions that can revitalize neighborhoods. Seattle has the opportunity to deploy its resources and develop new partnerships to realize the maximum impact of TOD in key station areas. Doing this in an equitable way - supporting existing residents and businesses while welcoming new ones - will allow all people the opportunity to reach their full potential. A VISION FOR MAKING TOD HAPPEN TOD is an important tool to achieving equity. The City desires more equitable growth in alignment with its planning policies and investments. It seeks to spur development in not- quite market ready areas in support of broader City social, economic, and environmental goals. However, the City does not have an overarching strategy for leveraging TOD investments to achieve broader goals citywide, or in areas where investment and economic opportunity are most needed. Other cities and local governments have developed TOD strategies and have allocated resources to implement TOD programs. Seattle has not yet made a commitment to this opportunity. Our Vision is: A proactive strategy to catalyze equitable development in all TOD areas of the City, particularly where the market is lagging and investment and economic development are needed most. EXECUTIVE SUMMARY: IMPLEMENTING TRANSIT ORIENTED DEVELOPMENT IN SEATTLE: ASSESSMENT AND RECOMMENDATIONS FOR ACTION i WHAT CAN SEATTLE DO TO HELP TOD MOVE FORWARD? The City can provide various levels support to make TOD happen, even if places are primed for TOD. The appropriate types of actions depend on the specific local conditions and how feasible TOD might be. Understanding each sites’ challenges and opportunities will help make the most effective use of the City’s time, effort, and financial resources. CULTIVATE CATALYZE GROW Cultivating actions focus on land use Catalytic actions typically cover tax Growth actions focus on dealing with the regulations, infrastructure investments, and exemptions or the provision of specific challenges of success, such as the need developing partnerships. Public investments types of public infrastructure (i.e. plazas, to invest in the equity, infrastructure and and strong leadership are critical and can be utilities, amenities, etc.). These types of services required to support higher densities leveraged for equitable development. actions support market-making projects. of people, employees, and visitors. 120 Rainier Beach Station area faces challenges in some key areas. CULTIVATE CATALYZE GROW 100 Additional partnerships with the community, land owners/developers, 80 and regional transit partners will be necessary to move forward with the assembly and development of land. The surrounding streets 60 Feasibility and public realm need improvement to increase safety, usability, Threshold 40 and market feasibility. Lastly, zoning changes are needed to allow Rainier Beach 20 for greater density and mixed uses as envisioned in the updated Market Feasibility neighborhood plan and to support potential TOD projects. 0 120 1 3 5 7 9 11 13 15Time17 19 21 23 25 27 29 31 CULTIVATE CATALYZE GROW 100 Mount Baker Station area presents an opportunity to accelerate and Mount catalyze TOD projects, but significant challenges, especially with 80 Baker infrastructure issues, exist. Building partnerships with the community, 60 Feasibility property owners/developers, and transit providers will be important for Threshold 40 facilitating TOD at and around the station. In addition, the City has not acted on the proposed rezone of the station area that would allow 20 Market Feasibility additional density and flexibility within the land use code. 0 120 1 3 5 7 9 11 13 15Time17 19 21 23 25 27 29 31 CULTIVATE CATALYZE GROW 100 Capitol Hill Station area is in a good position for realizing TOD. In addition, partnerships built through the revitalization of the 80 station site with the community, property owners, and developers 60 Feasibility can be maintained and expanded after the station construction Threshold 40 is completed. Capitol 20 Hill Market Feasibility 0 1 3 5 7 9 11 13 15Time17 19 21 23 25 27 29 31 EXECUTIVE SUMMARY: IMPLEMENTING TRANSIT ORIENTED DEVELOPMENT IN SEATTLE: ASSESSMENT AND RECOMMENDATIONS FOR ACTION ii MODELS OF SUCCESSFUL CITY TOD IMPLEMENTATION Five elements of success from South Lake Union and Northgate City Leadership, Vision, and a Cohesive Strategy Leadership from the Mayor’s Office was critically important for both Northgate and South Lake Union, and led to pivotal City actions for both neighborhoods. Effective Coordination Across City Departments Northgate and South Lake Union had coordinated interdepartmental efforts working in sync to plan and invest resources to support growth in the areas. Early Planning and Rezoning to Make TOD Projects Feasible The City made community goals work through comprehensive and targeted land use and zoning decisions in line with the communities’ vision and market demand. City Focused and Prioritized Investment The City focused its investments in infrastructure, amenities, and community facilities to support revitalization and growth in the areas. City Fostered Strong Partnerships The City fostered strong Community Partnerships, Public-Public Partnerships, and Public- Private Partnerships in both locations to support revitalization. What are other cities doing? MINNEAPOLIS DENVER PORTLAND The City recruited and hired its first-ever City action is guided by a TOD strategic The City participates in coordinated regional dedicated TOD Manager. The TOD Manager plan. The plan focuses on specific station TOD effort with urban renewal, regional has a background as a developer and as areas and how City departments can be transit, and planning agencies to provide a a redevelopment agency staffer and helps aligned to catalyze TOD projects through suite of TOD planning and funding tools to facilitate development projects. prioritized City actions near stations. support redevelopment projects. EXECUTIVE SUMMARY: IMPLEMENTING TRANSIT ORIENTED DEVELOPMENT IN SEATTLE: ASSESSMENT AND RECOMMENDATIONS FOR ACTION iii A CITYWIDE OPPORTUNITY FOR PROACTIVE TOD SUPPORT The City now needs a TOD Implementation Initiative that will focus on making TOD happen – faster and earlier. Finding: Seattle Can Build on Previous Success. Seattle can apply lessons learned and models from its experience in catalyzing revitalization in market ready neighborhoods to create a program that will propel equitable TOD forward in other neighborhoods. Finding: Other Cities are Showing the Way. Seattle can build on models and approaches being used in other cities across the nation to develop an effective TOD program. Finding: TOD Strategic Plans Bring the Players Together. TOD Strategic Plans have been developed by several cities (Denver, Los Angeles, the Minneapolis region) to guide policy investment and interdepartmental efforts. Finding: A TOD Initiative Will be a Difference-maker. Opportunities for the City to support revitalization exist at Seattle station areas regardless of market readiness. While Seattle does not have some of TOD-specific tools that other cities around the country have, the City does have several useful tools at its disposal. Finding: Timing Matters and Early Action is Critical. Timely investment in infrastructure and other core elements of TOD project feasibility play a tremendously important role in cultivating and catalyzing revitalization. EXECUTIVE SUMMARY: IMPLEMENTING TRANSIT ORIENTED DEVELOPMENT IN SEATTLE: ASSESSMENT AND RECOMMENDATIONS FOR ACTION iv ADVANCING SEATTLE TOWARD SUCCESSFUL TOD IMPLEMENTATION Recommended Implementation Actions Action 1: Create a clear strategic action plan for TOD implementation. A clear, concise set of goals and action steps is needed to provide focus and direction. A Citywide or regional TOD implementation strategy also provides an opportunity to engage stakeholders, staff, and elected