Introduction
In 1990 the Washington State Legislature passed a series of statutes that, together, constitute the Growth Management Act (GMA). The GMA established 14 goals that cities and counties are to employ as they plan for growth. Goal 10 deals with environmental issues. The GMA left it up to cities and counties how to incorporate environmental planning as part of their comprehensive plans for growth.
This paper will review how two Washington counties (Pierce and Thurston) have incorporated environmental concerns and issues into their plans in response to the GMA. In addition, the paper will also look at the environmental plans from the two largest cities in each of these two counties: Tacoma and Lakewood in Pierce County and Olympia and Lacey in Thurston County. Both of these counties have additional planning groups authorized by state law: Pierce County Regional Council, and Thurston Regional Planning Council. The expectation is that there will be a variety of approaches as well as a range of completeness to the plans already established by city and county governments and by regional planning councils. Plans of the counties, cities, and regional councils will be compared and contrasted. The language of the GMA did not specify any requirements related to climate change, adaptation or mitigation. However, the GMA was passed 28 years ago. It is not unreasonable that cities and counties might have concerns about climate change in 2018. As a consequence, in addition to reviewing the environmental plans of these two counties, this paper will note any mention of climate change that occurs in the strategic plans.
Background of the Growth Management Act (GMA)
According to Lloyd (2000), Washington’s GMA resulted from a national movement to deal with urban sprawl and suburban growth that was affecting many fast growing regions in the U.S. Sprawl was the cause of social and environmental issues and contributed to excessive costs of infrastructure (sewer, electricity, etc.). In Washington, laws governing land use had hardly been altered since the 1920s. “Land use planning under this hodgepodge system was entirely optional” (p. 82). By the end of the 1980s, it was clear that Washington needed a better system for dealing with growth and sprawl. Public opinion supported state-level control while many locally elected official and people in more rural areas were opposed giving up local control. Developers were concerned that state control might adversely affect economic growth.
Washington’s lack of a state wide plan for managing growth caused groups to propose solutions. Two groups worked together to provide suggestions for legislation. Sixty members of the Washington City Planning Directors Association and Washington State Association of County and Regional Planning Directs met to discuss ways to manage and improve growth. Their recommendations for a growth management law included nine points:
- Establish a statewide vision of the future.
- Set goals, policies, and as appropriate, minimum standards for issues of statewide significance.
- Require that state, regional, and local plans be consistent with adopted state goals, policies, and standards, and make sure those plans are mutually consistent.
- Require that regulations and capital budgets of state agencies, regional and local governments be consistent with adopted state, regional, and local governments be consistent with adopted state, regional, and local plans.
- Recognize that regional issues (e.g., water quality, transportation) and local issues should be resolved locally.
- Establish in state law that public facilities must be synchronized with growth.
- Provide carrots as well as sticks to assure compliance with state goals, policies, and standards.
- Recognize that certain local government decisions need to be made collectively at a regional level, or at a statewide level in order to achieve regional and statewide goals.
- Include an appeals system for dispute resolution, particularly in land use and governance (Toward a Growth Strategy for Washington, 1989).
When the Washington State legislature wrote the GMA in 1990, many of these suggestions were included in the new law. The introduction to the GMA states: “The legislature finds that uncoordinated and unplanned growth, together with a lack of common goals expressing the public’s interest in the conservation and the wise use of our lands, pose a threat to the environment, sustainable economic development, and the health, safety, and high quality of life enjoyed by residents of this state. It is in the public interest that citizens, communities, local governments, and the private sector cooperate and coordinate with one another in comprehensive land use planning. Further, the legislature finds that it is in the public interest that economic development programs be shared with communities experiencing insufficient economic growth” (RCW 36.70A.010).
The GMA that was approved in 1990 was modeled after Oregon growth management law, but it gave more authority to local governments than did the Oregon law as a result of the concerns expressed by local government and developers (Lloyd, 2000).
The 14 goals of the GMA include:
- Concentrated urban growth
- Sprawl reduction
- Regional transportation
- Affordable housing
- Economic development
- Property rights
- Permit processing
- Natural resource industries
- Open space and recreation
- Environmental protection
- Early and continuous public participation
- Public facilities and services
- Historic preservation (Growth Management Act)
- Shoreline management (Shoreline Management Act)
Demographics
Pierce and Thurston are contiguous and border the southeast side of Puget Sound. Both counties are part of the I-5 corridor well known as the population center of Washington State. Populations of the counties and cities as well as area of counties appear in Table 1 below.
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City/County 2010 Population 2016 Population Percent growth Area in sq miles
Pierce Co. 795,225 861,312 08.3% 1676
Thurston Co. 252,264 275,222 09.1% 727
Tacoma 198,397 211,277 06.5% 62
Lakewood 58,163 60,665 04.3% 50
Olympia 46,478 51,302 10.4% 20
Lacey 42,393 47,688 12.5% 17
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Table 1: Population in 2010, estimated population in 2016: United States Census Bureau. Area in square miles: History Link. Org
Plans: Pierce County
Pierce County
Pierce County has a Comprehensive Plan (Title 19A: Comprehensive Plan). In Chapter 19A.60: Environmental and Critical Areas Element the following elements are outlined: air quality, water quality, terrestrial and aquatic systems, fish and wildlife, hazardous areas, wetlands, noise, light pollution, best available science and adaptive managements, and agricultural uses in legally altered critical areas. There is no mention of climate change. The Pierce County Comprehensive Plan appears to be in alignment with Washington State’s GMA.
Pierce County does have a web site that specifically mentions climate change. The web site is: “Climate Change is here” (Pierce County). This web page indicates that Pierce County needs a climate change resilience strategy. This strategy outlines specific areas where adaption to climate change effects may be needed by residents of the county. Sea levels, increased rain, higher temperatures, and ocean acidity are some of the areas mentioned. The strategies involve how the citizens and officials of Pierce County can mitigate against expected effects of climate change. However, as in the strategic plan, there is no mention of reducing GHG emissions as a way to reduce climate change itself. The Pierce County Conservation District mission is to “improve water quality, promote sustainable agriculture, create thriving habitat, and build a just and healthy food system for all, through education, community engagement, and financial and technical assistance” (Pierce County Conservation District).
Pierce County Regional Council
The Pierce County Regional Council (PCRC) helps coordinate efforts among the county, all of the cities and towns in the county, and the Port of Tacoma. Each entity provides an elected official to the board. The main mission of the PCRC is to ensure the requirements of the GMA are coordinated within the county (Pierce County Regional Council). There is no environmental section within the outline of the PCRC website. PCPC published Countywide Planning Policies (CPP) in 2014 (Countywide Planning Policies, 2014). While there is no environmental section in the CPP, there is a section on climate change that indicates the county and all municipalities “shall strive to meet State mandates on climate change and the reduction of greenhouses gases” (Countywide Planning Policies, p. 57). This section also calls for the establishment of an assessment baseline, the development of a climate action plan, carbon sequestration should be encouraged, and reduced motor traffic should be encouraged (pp. 57-59). The plan says that action is needed, but no plan for any actual action was noted. CPP outlines the purpose of VISION 2040 without specifically stating whether PCPC is part of VISION 2040. Puget Sound Regional Council published VISION 2040 which discusses a framework for the future regarding natural ecosystems, harm to humans, and restoring the environment (VISION 2040).
Tacoma
Tacoma’s Strategic Plan Chapter 6: Built and Natural Environment deals primarily with urban environmental concerns including: increasing transportation options, sustain and improve Tacoma’s natural environment, grow and enhance the vitality of the neighborhoods, and improve and maintain the streets. The strategic plan says nothing about climate change (Tacoma 2025 Shared Vision Shared Future). Tacoma does have an Environmental Action Plan. The plan uses 2015 as a base line for target reductions in several areas including: fossil fuels, electricity and water and also targets an increase in the use of solar power, an increase in walking, bicycle usage, and more electric cars. The Environmental Action Plan also details that there will likely be effects of climate change and that Tacoma needs to plan for resilience to mitigate these effects. The plan encourages communications with the community and with businesses in order to develop resilience. The long-term goals are to educate residents about climate change, understand patterns and vulnerability, and to adapt to change. Tacoma intends to complete its assessments of climate change by 2020 and then to begin to incorporate this information into formal plans (Tacoma Environmental Action Plan, 2016).
Lakewood
Lakewood’s goal is to “cherish and protect the natural environment including its lakes, woods, and natural amenities” (Lakewood Comprehensive Plan, 2014). The focus of Lakewood’s strategic plan is centered on urban issues such as: urban areas, transportation, military lands, housing, industrial areas, parks, open spaces, and shore lines. The Lakewood Comprehensive Plan (Lakewood Comprehensive Plan, 2014) does not have a chapter devoted to the environment. Under Chapter 3: Land Use, there are environmental issues mentioned including urban land use issues. Section 3.12 Environmental Quality specifically mentions: environmental critical areas, habitat protection, shorelines, flood management, wetlands protection, urban forestry, water quality, geological risk management, air quality, and noise. There is no mention of climate change or of greenhouse gas emissions.
Plans: Thurston County
Thurston County
In the Thurston Strategic plan 2014-2018 there is a section called Environment & Sustainable Resources. Priorities include: “Foster understanding of environmental issues. Minimize the environmental footprint. Protect and restore water quality, biodiversity, open space, and ecosystems. Continue efforts to reduce water quality impacts of septic systems. Maintain a high level of recycling in the environment. Protect ground and surface water resources to improve Puget Sound water quality. Support the preservation and active use of working lands” (Thurston County Strategic Plan2014-2018, 2014, p. 5).
There is a web page called Thurston Thrives and it provides for an environmental action team that works on reducing GHG emissions through various efforts including: energy efficiency, renewable energy usage, and reduced transportation (Thurston Thrives). There are climate and clean energy maps and environment strategy maps available (Thurston Thrives Action Teams). The county performed an inventory of GHG emissions in 2009 (Greenhouse Gas Inventory of Thurston County Operations). There are 29 links including: climate change, county building retrofits, green building codes, and sustainability program. Thurston County is a member of the Climate Registry and the ICLEI – Local Governments for Sustainability. The Climate and Sustainability Program has two phases. Phase 1 is government operations where a greenhouse gas inventory is conducted for all county government operations. Plans and policy changes are created using the greenhouse gas inventory. Phase 2 is Regional Sustainability where a greenhouse gas inventory is conducted for all emissions in Thurston County and then plans and policy changes are created to reduce greenhouse gas emissions (Thurston County Long Range Planning).
Thurston Regional Planning Council
Thurston Regional Planning Council (TRPC) represents 22 different jurisdictions and organizations in Thurston County including the Confederated Tribes of the Chehalis Reservation and the Nisqually Indian Tribe. Washington State Law RCW 36.70.060 authorizes regional planning councils. “TRPC’s mission is to provide visionary leadership on regional plans, policies, and issues” (Thurston Regional Planning Council). TRPC has developed “Sustainable Thurston Goals & Actions” (Sustainable Thurston Goals & Actions). Of the twelve goals, six relate directly to environmental issues: preserve environmentally sensitive lands, protect water quality, reduce waste, support a local flood system, ensure a continuous water supply, maintain air quality, and move toward a carbon-neutral community. There is a table that lists the goals, the targets, and the first action steps. The target for carbon-neutral is to become carbon-neutral by 2050. The first action step is to “Find resources to create a Thurston Region Action Plan” (Sustainable Thurston Goals & Actions: Thurston Regional Planning Council).
TRPC has produced a 101 page report called Thurston Climate Adaption Plan. It is written in everyday language that can be read and understood by most any citizen. It provides background on climate change, how it applies to Thurston County, and what citizens of Thurston County can do to reduce the causes of climate change as well as what to do to mitigate the effects of climate change. The GHG emission reduction goals are a 25% by 2020, a 45% reduction by 2015, and an 80% reduction of GHG emissions by 2050. All reductions are based on the 1990 levels of emissions. In addition to the 101 page report, there are six supplemental appendices that total 230 pages. The appendices include: science summary, vulnerability assessment, goal risk report, public engagement strategy, action risk report, and action benefit cost analysis. The report plus appendices make up quite a comprehensive document detailing the science behind climate change, how Thurston County citizens can help to reduce greenhouses gasses, and how citizens can plan for mitigation of the effects of climate change (Thurston Climate Action Plan). TRPC has a resource website created to provide for “literacy, preparedness, and planning and data resources created to enhance climate resilience in Thurston County and beyond.” It even has a Resilience Road Board Game (Resilience Toolkit, TRPC).
Olympia
Olympia’s Action Plan lists five specific action areas including one called Environmental. This section calls for clean water and air, a daily connection to nature, a toxin free community, a waste-free culture, and quality natural areas. Olympia intends to expand open space and natural areas, increasing walking and bike options (Olympia’s Action Plan). Olympia also has an Action Plan Dashboard covering five different areas including environment. The dashboard list includes: baseline, recent amount, goal, target, and status. Categories include: tons of solid waste going to landfills; compliance with drinking water standards; people walking, biking, and riding the bus; greenhouse gas emissions; and preserved green space for public use. Three of the five categories were rated good and two were rated needing improvement (Community Indicator Dashboard).
In 2017 Olympia published a draft of a plan to reduce GHG emissions by 50% below the base year of 2014. The goal is to accomplish this reduction by 2030 (City of Olympia Climate Change Planning, 2017). In 2015 the City formally signed on to the Compact of Mayors. “The Compact of Mayors is a global coalition of mayors committed to reducing GHG emissions at a local level. In 2016, the Compact expanded to become the Global Covenant of Mayors for Climate and Energy. More than 7100 cities world-wide participate. By signing on to the Global Covenant of Mayors, the City committed to the following by the end of 2018:
- Committing to significant reduction of local greenhouse gas emissions.
- Measuring and taking an inventory of community emissions;
- Setting reduction targets;
- Developing a climate action plan to meet the targets. (Olympia City Council Climate Action Plan Scoping, 2017)
Olympia has made considerable progress on items 1, 2, and 3. Ambitious reduction targets are set in the City’s Comprehensive Plan and staff completed an inventory of community-wide emissions. City Council has also passed several resolutions aimed at shifting away from fossil fuel use. The next big step is to develop a climate action plan that outlines the City’s strategy to meet community-wide emissions targets” (Olympia City Council Climate Action Plan Scoping, 2017, pp. 1-2).
Lacey
As part of its Comprehensive Plan, Lacey has a 178 page section called Environmental Element that is quite comprehensive, detailed, written in plain English, is well documented with tables, graphs, and diagrams that make this section detailed and easy to read. Main sections of the Environmental Element include: local risks (water systems, energy, salmon habitat, shorelines, urban forestry, etc.); climate policy; community resilience; carbon reduction; waste reduction; matrix of measures; and performance measurement (City of Lacey Environmental Element, 2016).
As part of its Strategic Plan, Lacey has a section called City of Lacey CR2: Strategy for Carbon Reduction and Resiliency. The plan calls for a CO2 reduction of 15% from the base year of 2005 to be reached by 2020 for both municipal operations as well as the community as a whole. The plan addresses local risks, water system, energy, salmon habitat, shorelines, urban forestry, food supply, storm water, human health, economic impacts, and climate impacts. Lacey has measures, implementation strategy, recommendations, partnerships, goals and strategies to assist in reaching the desired level of GHG emissions by 2020. Lacey will join ICLEI as a Full Member and pledges to take a leadership role in promoting sustainable practices that protect the climate and the physical environment (City of Lacey CR2: Strategy for Carbon Reduction and Resiliency, 2016). Lacey has a plan to engage the community in the carbon reduction goal. The program is called 4 Ever Green in Lacey. It is designed to engage the community in ways that will achieve the carbon reduction goals (City of Lacey CR2: Strategy for Carbon Reduction and Resiliency, 2016).
Conclusions
Washington’s Growth Management Act of 1990 outlined 14 goals that cities and counties are to incorporate in planning for growth to reduce sprawl and other issues. Goal 10 concerns the environment. This project looked at the environmental sections of the strategic plans for two counties and their regional planning councils (Pierce and Thurston Counties) as well as the two largest cities in each county (Tacoma and Lakewood in Pierce County and Olympia and Lacey in Thurston County). Seven of the eight jurisdictions had environmental sections in their strategic plans (Lakewood did not). Entities in Pierce County dealt with environmental and land use issues. Adaptation to climate change was the focus of climate change in Pierce County. Thurston County tended to have more robust environmental sections than did Pierce County. Thurston County dealt specifically with how to mitigate climate change through programs that intend to reduce greenhouse gas emissions. Thurston County has established baselines with reduction goals. A brief summary of the results appears below in Table 2.
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Environmental Issue: Environmental Climate Base Target % Reduction
City/County Planning Change Year Year
Planning
Pierce Co. Yes Yes N/A N/A N/A
PCRC No No N/A N/A N/A
Tacoma Yes Yes 2015 N/A N/A
Lakewood Yes No N/A N/A N/A
Thurston Co. Yes Yes 2009 In progress In progress
TRPC Yes Yes 1990 2020 25%
1990 2035 45%
1990 2050 80%
Olympia Yes Yes 2014 2030 50%
Lacey Yes Yes 2005 2020 15%
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Table 2: Jurisdictions with environmental planning, climate change planning, base year, target year, and reduction goal
Pierce County and Pierce County Regional Council acknowledge that climate change is a serious issue and that plans must include how to militate against the effects of climate change. However, neither agency has done much regarding dealing with the cause of climate change, GHG emissions. They mention GHG emissions but do not yet have any plans for dealing with this issue. Tacoma has included a good deal of information about dealing with climate change effects but says nothing about GHG emissions. Lakewood appears to have ignored the climate change issue completely.
Thurston County, Thurston Regional Planning Council, Olympia, and Lacey have all embraced climate change as a serious issue, have established baselines, and have set GHG emission reductions for the future. These agencies have developed reduction and mitigation goals and have established business and community programs in order to get wide-spread buy in throughout their communities. All have joined national or international groups dedicated to reducing climate change and have agreed to serve as leaders in these efforts.
However, in terms of compliance with the GM’s Goal 10: Environment, both counties have met the requirements. Thurston County has gone well beyond the GMA requirements and has comprehensive, aggressive plans to reduce GHG emissions as well as confronting the effects of climate change. Pierce County mentions climate change and indicates step will be needed. Pierce does have evidence that mitigation of the effect of climate change are important even though there is little evidence that GHG emissions will be reduced.
References
City of Lacey Environmental Element. (2016). Retrieved from:
http://www.ci.lacey.wa.us/Portals/0/docs/community_development/planning_documents/01-2017_environmental_element_and_appendices.pdf
City of Lacey CR2: Strategy for Carbon Reduction and Resiliency. (2016). Retrieved from: http://www.ci.lacey.wa.us/Portals/0/docs/community_development/planning_documents/01-2017_environmental_element_and_appendices.pdf
City of Olympia Climate Change Planning. (2017). Retrieved from: http://www.ci.lacey.wa.us/Portals/0/docs/community_development/planning_documents/ 01-2017_environmental_element_and_appendices.pdf
Community Indicator Dashboard. Retrieved from: http://olympiawa.gov/city-government/codes-plans-and-standards/action-plan/community-indicators.aspx
Countywide Planning Policies, (2014). Retrieved from: https://www.dropbox.com/sh/6ug0n0tj6ab9f7m/AACuG2UlBXT3iCVTcHwgD3qta/Apri l%2020%202017%20Meeting?dl=0&preview=OlympiaEnergyMapCarbonWedge_04- 1517_ClimateCleanEnergy.pdf
Growth Management Act. Retrieved from: RCW 36.70A.020
HistoryLink.org. The online encyclopedia of Washington State history. Retrieved from: https://web.archive.org/web/20071023071242/http://www.historylink.org/essays/output.c fm?file_id=7835
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documents/ community_development/comprehensive_plan/04′-14’_Chapters1-10_CPAs_12_17_14.pdf
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http://cms.cityoftacoma.org/Sustainability/Tacoma_EAP.pdf
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http://www.co.thurston.wa.us/PLANNING/climate/climate_gasinventory.htm
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http://www.co.thurston.wa.us/planning/climate/climate_home.htm
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http://co.thurston.wa.us/bocc/docs/strategic-plan-2014-2018.pdf
Thurston Regional Planning Council. Retrieved from: http://www.trpc.org/148/Agency-Mission
Thurston Thrives. Retrieved from: http://thurstonthrives.org/action-teams/environment/
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Title 19A: Comprehensive Plan. Retrieved from: http://www.co.pierce.wa.us/documentcenter/view/4064
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VISION 2040. Retrieved from: https://www.psrc.org/vision-2040-documents
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