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........... .. ................ COUPEIVILLE WATERFRONT STUDY Dearbom/Smith Associates, Inc. with Rich Untermann, Landscape Architect Susan Heikkala, Urban Planner COUPEVILLE WATERFRONT STUDY A REPORT TO THE TOWN OF COUPEVILLE Prepared by: The Dearborn/Smith Associates, Inc. Suite 333, Grand Central Building 216 First Avenue South Seattle, WA 98104 Nancy Fox, Project Manager with: Rich Untermann, Landscape Architect Susan Heikkala, Urban Planner The preparation of this document was financed in part through a grant from the Washington State Department of Ecology with funds obtained from the National OceAna- graphic and Atmospheric Administration, as authorized by Section 306 of the Coastal Zone Management Act of 1972. TABLE OF CONTENTS Page 1. INTRODUCTION I IT. OVERVIEW OF EXISTING CONDITIONS 2 111. ISSUES AND RECOMMENDATIONS 6 Shoreline Erosion and Bluff Instability 8 Front Street Slippage il 'Boat Launch and Sewage Treatment Plant Expansion 16 Town Park 17 Town Dock 20 Town Entry and Main Street 21 Link to Ebey's Landing and the Keystone Ferry 23 Town and Historic Commercial Centers 24 TV. FUNDING AND IMPLEMENTATION 26 ILLUSTRATIONS Page Figure I VICINITY MAP I Figure 2 KEY ISSUES 7 Figure 3 BEACH HOUSING TO REDUCE BANK SLIPPAGE 12 Figure 4 FRONT STREET PROMENADE 13 Figure 5 BOAT LAUNCH IMPROVEMENTS '16 Figure 6 TOWN PARK IMPROVEMENTS 17 Figure 7 MAIN STREET IMPROVEMENTS 22 L INTRODUCTION Situated on the south shore of Penn Cove on Whidbey public meetings were held to identify significant issues. Island, the Town of Coupeville is the hub of community Preliminary recommendations to address the key issues activity on Central Whidbey, a role it has played since the were then prepared in draft form, allowing for public late nineteenth century. (See Figure 1) With easy access review and comment. In the third phase, this final report both by water and the main highway, the small town had its was prepared, incorporating revisions to the preliminary beginning serving the needs of nearby farms, and today it recommendations based on the input received. continues to serve that function. Coupeville's growth has historically been linked to its waterfront. In addition to attracting residential and business development, the spec- tacular views and recreational opportunities of t 'he shore- line act as a natural attraction for tourism. At the same time, eroding bluffs and unstable slopes which are charac- VICINI teristic of Whidbey Island's shoreline pose significant prob- & le ms for the town. OAK ARS Recognizing the special opportunities and constraints as- sociated with its shoreline, the Town of Coupeville initia- ted the Coupeville Waterfront Study. The study was COUPE designed to address a range of objectives: economic development, resource protection, historic preservation, 'Public access and recreation. As such, the recommenda- tions presented in this report are designed to serve more than one purpose. They are aimed at preserving valuable shoreline resources, while at the same time promoting use and development which is in keeping with the goals and 0c, scale of the town. The Waterfront Study was undertaken in conjunction with a similar study for the City of Langley, with funding by the Scale- N 181111d federal Coastal Zone Management Program. It was comp- leted in three phases: (1) Inventory and Analysis; (2) MILES Preliminary Recommendations; and (3) Final Report and U Recommendations. During the inventory phase, back- EF1Jq=_== .0 1 3 10 ground information was collected and assessed, and several FIGURE 1 II. OVERVIEW OF EXISTING CONDITIONS Existing shoreline conditions were assessed during the first buildings which line Front Street were once the heart of a phase of the waterfront study. The inventory focused on bustling trade center; now they house businesses serving an those features having the greatest bearing on waterfront active tourist trade with antique stores, gift shops, rest- use and development, higblighting assets and potential aurants, a tavern, a candy store, and the,historical mu- problems. Three working maps were prepared to illustrate seum. A combination of transportation and economic these features: Generalized Land Use, Resource Assess- factors led the commercial focus to shift from Front ment, and Shoreline Characteristics. In addition to con- Street to Main Street. Today, many resident-oriented ducting extensive field investigation and literature review, business uses -- grocery, store, drug store, gas station, the project team met with elected officials, business bank, post office, and the municipal and County offices -- leaders, and residents to gain an .understanding of critical are located along Main Street, which is also the entry route issues affecting the town's shoreline. These meetings into Coupeville from Highway 20. revealed an active interest and a high level of community concern relating to future use 'and development of the shoreline. Outside the historic business district, Coupeville's shoreline is primarily residential, mixed with a few scattered farms. Near town, the lots are small and the homes are old, During these initial visits to Coupeville, it became clear -lending a turn-of-the century charm to the neighborhood. .that the. town has already taken significant steps toward Further to the east and west, the homes are more dispersed preserving and capitalizing on its shoreline resources. An and the shoreline takes on a rural, agricultural flavor. historic- district and a design review process have been Unlike other shoreline towns where the waterfront acts as established to insure that new development is compatible a magnet for all development activity, Coupeville's shore is with the town's historic character. The Festival Associa- not densely developed. and many residences are centered tion has made a substantial contribution to the attractive- around the Main Street business area and across Highway ness of the downtown waterfront through its urban design 20 in Prairie Center, rather than oriented toward the and improvement program, which is being successfully water. The location of the town park and the boat launch implemented over time. In recognition of its shoreline at either end of the downtown contribute to the open erosion problems, the town has completed preliminary character of the shoreline, as do the narrow, undeveloped, geologic maps of the shoreline and prepared a set of draft bluff edges next to the road along much of the shore. regulations to manage shoreline development. Rather than duplicate these efforts, this study was designed to build upon and add to these ongoing programs. Coupeville's quiet town character derives from its primary economic function as a service center, historically serving the surrounding farms of central Whidbey Island, and now Waterfront Character serving residents and.visitors who are attracted by these qualities. The rural Puget Sound setting, within reasonable A variety of commercial, residential and recreational act- proximity to Seattle, makes Coupeville ideal for tourists ivities take place along Coupeville's . shoreline, but the and others who are looking for recreation opportunities ,historic district is the town's focal point. Here, the old close to home. Also the town is becoming home to many 2 retirees who are drawn by the town's natural amenities and e Historic Character historic character. The old Town Dock is a striking feature of Coupe- Town Amenities ville's waterfront, and is a landmark that draws attention to Front Street. There, the concentration of the well maintained, older buildings gives Coupe- For the present, Coupeville's strongest assets are the ville a special identity and is a major attraction for natural amenities of a rural waterfront setting and a town visitors. Like other towns that had their major center with a distinctive, architectural heritage. Any growth spurt in the late 1800's, Coupeville has a additional development in Coupeville should build upon and wealth of old commercial buildings and residences in enhance these strengths: the variety of architectural styles that were pre- valent during this era. Within this variety, there is Water Orientation a pleasing unity of scale and form. Most buildings have false fronts or pitched roofs and are similar in The *downtown historic core and the residences alon .g height and bulk, and most are built of wood and Front Street are oriented toward Penn Cove and the painted in shades of brown, red, yellow, blue or pink. Recognizing this valuable heritage, the town first expansive vistas of Camano Island, the Cascades and established a historic waterfront district in 1965, Mt. Baker. Together, the gently sloping topography and later, in 1978, established an Historic Review and a street grid that is perpendicular to the water- Board to review applications for changes to specific f ront adds to the drama of the panorama. Open buildings or the char" cter of the area based upon an fields dotted by residences and farms and rimmed by a forested ridges surround Coupeville to the south, adopted set of guidelines and design criteria. . In west and east. The combination of fields, water and 1981, the town revised the boundaries of the historic forest, create a pastoral setting for the small com- district, and replaced the Historic Review Board munity. with a newly created Historic Advisory Committee. Shoreline Access Coupeville's Festival Association has been active in promoting tourism and enhancing the link between The Penn Cove shoreline is attractive for public use, the town and its waterfront. They have constructed but there are few places for public access since viewing platforms and seating areas at several loca- most waterfront land is privately owned. However, tions along Front Street as well as a view deck off two public recreation areas are located at either Grace Street between Front and Coveland. In end of Coupeville's downtown waterfront. On the addition, they are working with the Port and the west, the town park lies on a high bluff above the National Park Service to develop a distinctive ent- water, and the public boat launch adjoins the sewage rance to the old Town Dock. treatment plant at the other end of Front Street. 3 Both areas are minimally developed but could be improved to promote more public use. Views are also important, and the bluffs provide opportunities for walks and drives oVerlooking the water. .. ...... .. . Clearly Coupeville has the opportunity to actively promote its waterfront recreation potential, especially at the town park, boat launch and also at the town dock where the Port has recently installed four buoy moorages. Given its shoreline assets, Coupeville would do well to continue to develop its tourism and recreation potential and perhaps promote the town as a desirable retirement community. . ........... ... ... . ... ------- ------ --- ------ ----- ... . ... .. . ...... Saint Mary's Church Features Limiting Shoreline'Development One of the major factors constraining development along Coupeville's waterfront is the instability of the shoreline Much of the town lines the shore on medium to high bluff: s (15' or over), and the Washington Shoreline Atlas designates the high bluff areas at either end of town as unstable. Characteristic Architecture on Front Street Sloughing and erosion problems plague most. of the town's shoreline. 4 Over the years, Coupeville has had serious problems with bluff failure. Slides are apparent from the beach, old roads have disappeared in several locations, and Front Street between Main and Gould is also threatened. In some areas, private landowners have bulkheaded the toe of the slope which has apparently arrested shoreline retreat. In other areas this has not been effective, indicating other proces- ses may be at work. Various studies have been completed examining causes of the problem, and a range of opinions have been expressed. It was beyond the scope of this study to provide the answer to this problem, which is critical to future use of the waterfront. However, previous work was examined, and the issue was discussed with geology and engineerilig experts to develop a better defini- tion of the problem and determine the next steps appropri- ate for Coupeville. The limited capacities of the town's water and sewer systems have limited growth in Coupeville. Inadequate capacity, stormwater infiltration, and inadequate treat- ment have resulted in dumping raw or inadequately treated sewage into Penn Cove.' A moratorium was subsequently placed on new sewer connections and utility rates were raised to assist in making system improvements. Plans are now well underway for constructing an expanded sewage treatment plant, and it is expected to be underway late in the summer of 1982. Other factors affecting development are p rimarily econo- mic. Coupeville is a small town With limited public financial resources at a time when state and federal funds are also in extremely short supply. Thus, waterf ront improvements and other developments need to be tailored to the expected availability of local resources and private initiative. 5 III. ISSUES AND RECOMMENDATIONS The preliminary analysis and meetings with town officials, residents, and businessmen identified eight issues of pri- mary concern relating to the Coupeville waterfront, as illustrated in Figure 2. T@ie issues, include: 1 SHORELINE EROSION AND BLUFF INSTABILITY 2 FRONT STREET SLIPPAGE 3 BOAT LAUNCH AND SEWAGE TREATMENT PLANT EXPANSION 4 TOWN PARK TOWN DOCK 5 6 TOWN ENTRY AND MAIN STREET LINK TO EBEY'S LANDING AND THE KEYSTONE 7 FERRY 8 TOWN AND HISTORIC COMMERCIAL CENTERS In the following sections, each issue is discussed and recommendations are made. Implementation and funding strategies are discussed in the final chapter. 47 El [tin CO. cl E r Ta t2 C3 P cm Do 13 U. Irb CID On U tn 0 [13] a 13 12 EP Key FIG Shoreline Erosion and Bluff -Instability Background Shoreline erosion and bluff instability were identified as significant community concerns relating to both existing nd future waterfront development. Although reliable bluff retreat rates have not been calculated, historical evidence of the problem includes the loss of a portion of Front Street (in the vicinity of the boat launch) and extensive landslide /slu mpage debris visible in many loca- tions along the shoreline'. While there are no simple solutions, a better understanding of the causes and extent C, of the hazard is critical to properly managing future A shoreline development and taking corrective actions to p otect existing development. r e There are three basic factors contributing to shorelin erosion and sloughing in Coupeville: Landslide Below Front Street Bluffs comprised of older, cracked sediments which have been weakened by vertical fracturing;- Wave action undercutting the toe of the slope leading to slippage of the sediments above, and removing collapsed materials from the toe of the slope; and Surface water flowing over the edge of bluffs, causing erosion and superficial slides. Some basic geologic mapping of the Coupeville shoreline, describing subsurface materials, and evidence of slides or instability problems has been completed by a geology graduate student (Milliken report). However,. this data has not been' analyzed to determine the specific causes, and relative importance of the various causes, of instability data by an engineering geologist knowledg .able in along the shoreline or to identify corrective and protective shoreline processes. . The analysis should indicate, measures. Although the Milliken report concludes that specific causes of erosion and instability along the groundwater drainage through the fractured sediments is shoreline and should identify the actively eroding more significant than other factors, Soil Conservation shoreline areas. It should also identify a range of District and Department of Natural Resources staff be- structural and non-structural measures for develop- lieve that wave action is the dominant factor. It is agreed ment in areas having these conditions. This inform- that the specific causes of erosion and instability are not ation would be useful in preparing shoreline develop- uniform along the shoreline, but rather vary by location. ment regulations, alerting prospective builders to such shoreline conditions, and would also provide a basis for Coupeville to evaluate development propo- While Island County has a review procedure for develop- sals on the shoreline. State resource agency staff ment in flood and landslide areas, Coupeville's development may be able to help in this effort. codes do not include standards relating to unstable and actively eroding shoreline areas. This will be of concern to the town since communities can be considered liable for (B) If there are shoreline areas where instability is damages suffered by private property owners where haz- determined to be drainage-related, it may be neces- ards are known to exist and appropriate government action sary to complete a study of upland drainage. The has not been taken. Reasonable regulations developed with study would examine upland drainage characteristics expert advice have generally been considered adequate to such as existing drainage channels, surface water serve this purpose. patterns, groundwater flow, and underground springs draining into the identified problem areas. Appropr- iate corrective measures could then be identified to address these problems. Recommendations A two pronged approach is recommended in which: (1) the 2. Coupeville should adopt an ordinance establishing de- town undertakes additional studies to better define the velopment standards and a review process for those areas shoreline hazard; and then (2) in hazardous areas, individual identified as potentially hazardous. At a minimum, set- property owners are required to complete site-specific backs from the edge of the bluff, bulkheading standards, studies and incorporate setbacks, drainage controls, and and drainage controls to mitigate erosion and landslide other conditions needed to insure safe development. ts should be included. Because it is difficult to =ish a uniform setback appropriate for all portions of the shoreline, Coupeville may want to provide for vari- 1. The following studies are suggested to better define the ances from the adopted standard based on detailed, site- shoreline problem and assess corrective measures: specific engineering studies. Such studies should be the (A.) Evaluation and field verification of existing geologic responsibility of the property owner seeking a variance. 9 Several local efforts are now underway to determine an appropriate setback standard. The State Department of Natural Resources is working with Island County and several other counties to develop a reasonable formula. Options being considered would base the setback on the height of the bluff, or a percentage of the height plus a standard margin of safety. The town can benefit from the state and county work in developing its standards. The recommended approach is intended to provide flex!- blility to respond to variable conditions along the shoreline, while insuring that critical bluff stabilization and human safety issues are addressed. Developers would be alerted to potentially unstable conditions and could choose to either locate buildings outside the potentially hazardous area, or employ professional expertise needed to. build safely close to the shore. In some cases it might be efficient for property owners to arrange for joint studies addressing a number of neighboring sites subject to similar conditions to develop engineering specifications for one stretch of shoreline. After further geologic analysis of the areawide problems (Recommendation #1 above) is com- pleted, the town should re-evaluate and revise, if neces- sary, the size of the shoreline area affected by its develop- ment regulation and consider adoption of more specific development standards. 10 Front Street Slippage Background construct a large concrete bulkhead all along the toe of the slope. The City of Langley took this approach with the The downtown shoreline from Alexander to Main Street, development of Seawall Park, which has succeeded in along Front Street, appears to be stabilized by existing arresting much of the shoreline erosion. However, major structures and is secure at present. However, the bluff bulkheading is likely to be expensive, controversial, unat- along Front Street f rom Main Street to Gould Street is a tractive, and out of scale with a small town such as problem area. The bluff has retreated to within several Coupeville. f eet of the road in places, and there is evidence of continuing slippage and erosion. The road itself. shows signs of settling, especially above two drainage outfalls -Another alternative is to protect the toe of the slope using which carry surface water to the beach. These outfall more modest means. Rip-rapping has been shown to be facilities are undersized and the slopes behind the pipes effective at certain locations in the Coupeville area. have therefore been eroded. Sewer and water facilities Other low-cost devices are being evaluated as part of the under the road may be threatened if corrective actions are Shoreline Erosion Control Demonstration Project at Oak not taken. Harbor. Both sand-cement bag revetments and gabion mat. revetments appear to be ef .fective in reducing erosion with minimal structural damages. These devices still require As discussed above, there is no clear consensus on the public expenditure, are unattractive and do not enhance cause of this slippage -- wave action at the toe of the the use of the shoreline. bank, tidal saturation of the toe of the bank, subsurface drainage surfacing on the bank, aggravated by vibrations from passing vehicles, or surface runoff eroding the bank. There is evidence in places o! all causes, but it appears Recommendations that the most significant factor is wave erosion of the toe of the bank, causing undermining and slippage of the Two features are likely to characterize any solution to this overlying glacial sediments. Pinpointing the cause and problem: (1) Protection of the toe of the slope, and (2) appropriate solutions to the problem is complicated by the minimizing surface water erosion or other destabilizing variation in severity of storms and tidal action from year factors at the top of the bluff. Several options should be to year. However, the significance of wave action is considered: demonstrated by the one cottage constructed behind a small bulkhead on the beach at the base of the bluff, which is retaining the bank nicely. 1. @ A small scale solution in keeping with the town's character would be to encourage land owners to build small cottages at the back of the beach, constructed on or behind The shoreline from Main to Gould is in need of immediate small retaining walls, similar to the cottage that already attention. Several alternatives are open to Coupeville. exists. (See Figure 3) Assuming that geologic evaluation First, as a means of bank stabilization, the town could does not reveal any major problems which would restrict It is recognized that this option would represent a change ENCOURAGE in policy for the town, not only to allow but to encourage PLANTING housing on the beach. While this type of development LIMIT BUILDING would not be appropriate or necessary in most shoreline HEIGHTS TO locations, in this particular area it could offer significant PROTECT VIEWS FRONT ST. benefits to the town. Given the investments already made by the town in road improvements and utilities atop the bluff, some corrective action is needed. This option involves private property owners in the solution to the SMALL COTTAGE problems, offering them development potential at a scenic BUILT ON OR BEHIND shoreline location, but at the same time preserving views RETAININ WALL from above. Another indirect benefit to the town would be FOR BANK to increase residential population near the historic water- PROTECTION front core, strengthening the economic base for com- munity-oriented businesses and service in this area. FIGURE 3. Beach Housing to Reduce Bank Slippage This option would require close cooperation between the town and the affected property owners. If all the property owners were not interested in building on their beach lots in the near future, shoreline protection would be incom- this type of development, Coupeville could encourage hous- plete. To address this concern and provide for bluff ing on these prime beach sites. This action would require a stabilization, the town and property owners could consider change in the zoning code to allow construction on a forming a Local Improvement District (L.I.D.). Both town substandard lot size. Construction standards would need to and private money could be contributed. Waterfront be developed for the bulkheads. Adequate provision for property owners would be given a set time of, perhaps, five surface drainage and maintenance of slope vegetation years in which to build on the beach. If within that time would also be required to help stabilize the bank. Design they construct a beach cottage, a portion of L.I.D. funds guidelines would be included to limit building height in would be used toward their bulkhead. If they chose not to order to preserve views from the street, and to address build, the City would use the funds to stabilize the toe of parking needs atop the bluff. In exchange for the code the slope with rip-rap. If at a later date these owners exception to construct on a substandard lot, the town could decide to build, they would need to absorb the entire cost obtain public access along the beach in front of the of bulkhead construction. cottages. 12 It may also be possible to vacate, -sell or lease street ends mendation #3 below). Parking pockets-to serve the beach at Center, Haller, Kinney and Clapp to provide additional cottages could be developed. Construction of a. curb on the land and incentive for private development as well as north side could direct water to catchment areas - for additional funds to support the L.I.D.* In order to maintain proper overbank disposal. public access to the beach, at least one of the street ends should be retained for public use and developed as a beach 3. The stretch of Front Street between Main and Gould access. Streets could also be improved for pedestrian use, creating a more inviting link between downtown and the boat 2. If it is determined to be a significant problem, surface launch. The least expensive approach would be to paint a stripe designating the northern half of the existing street water erosion of the bluff faces could be minimized and for pedestrian use. An alternative would be to construct a vehicle weight and vibration reduced by changing Front modest,- raised concrete sidewalk, with several benches and Street to one way in the eastbound direction from' Main small, trees (placed to minimize view blockage, while Street east to Gould. Residents of the neighborhood could framing the view) to make the street more attractive for access their houses from Main Street to Front Street, with tourists viewing the Cove and beyond. a return via Ninth Street. Traffic to and from -the boat launch could be encouraged to use Ninth Street, which would remain two way, by placing a Airectional sign at the WeST&OW4P 01-4e@ \V^Y corner@of Main and Ninth Street. This would help reduce Llp@e J-P^Ve@L, a4L-Y 1@4 heavy traffic on Front Street.'Closing the west-bound lane C4NVr*?_Tr:;P EAS-ret:W-4V would eliminate the most damaging vibrations and vehicle ?eVSS_MAt4 weight, and would also allow construction of a simple view walk and. sitting area along the top of the bluff (Recom- The sale of street ends may be restricted by RCW 35.79.039 which limits a town's ability to vacate streets which abut a body of salt or fresh water unless it is for a public. purpose (including viewpoint or recreational), or the land is zoned industrial. It still may be possible to vacate and sell the properties as long as views are 1;ZHW0FP maintained, access is developed at one or more points, WALY- TO W40FE5f- and access is maintained along thebeach. If not, the town may still be able to offer a long-term (100-year) lease on these properties. The town must examine these legal questions prior to taking any action on the FIGURE 4. Front Street Promenade street ends. 13 A pedestrian promenade like that illustrated in Figu re 4, would be of a more urban scale and character than the town's existing improvements, but it would create an inviting and more clearly defined walkway, which could become a strong tourist attraction. A sign at the corner of Main and Front Streets could encourage people to stroll on the promenade. -In addition, by banking the sidewalk toward the street, additional surface water control could be realized if this is determined to be a significant factor in bluff slippage. The promenade would also be an attrac- tion to encourage beach housing below. Selling the street end lots may afford funds for this project. 4. The drainage outfall pipes which are currently causing erosion on the surface of the bank. and road settling, particularly at Gould and Clapp Streets, should be re- designed and. properly. re-installed to correct ihese local- ized erosion problems. 14 Boat Launch and Sewage Trea tment Plant Expansion Background Water access is a key to enhancing tourism, and presently most of the Coupeville shoreline is privately owned. The boat launch is one of the few existing points of public access to the water. As such, it could play an important role in providing both access to the waters of Penn Cove and a recreational beach. In addition, it offers views of Mount Baker, Camano Island and the rural countryside around Coupeville, and is a short walk from the center of town. However, the area is in need of improvement. Vehicular traffic needs to be separated from recreation use, and some beach development and landscaping would help make the area more attractive for picnicking and lounging. Expansion of the sewage treatment plant next door will consume some of the boat launch area, and should be closely monitored to minimize the plant's visual and olfactory impact on the park. The town has recently established a committee to coordinate boat launch im- V iew of Sewage Treatment Plant provements with the sewage' treatment plant expansion. Looking Toward Boat Launch This committee should provide guidance so the boat launch will benefit from the improvements to the site. parking area. Presently, plans for the sewage treatment Recommendations plant expansion include a paved access driveway to the plant. If this were eliminated, these funds could be Several actions are suggested to improve the boat launch, diverted towards developing and grading a gravel pad as a as illustrated in Figure 5, and described below: development staging site which, when the sewage treat- ment plant is completed, could be used for the boat launching and parking area. The new coordinating com 'mit- 1. Define auto maneuvering and parking areas with curbs tee should work with the contractor as construction get@; or anchored logs. The present driving. area is excessively underway this summer. large and limits pedestrian/recreation use, while cu'rbing could still allow sufficient automobile maneuvering and 6L*p6t4 L4p eeACH - &A I V. r WALA. P4P- W A z AOD OW6 MOM 11F.P. fiPISH *TOP ISLAIWA@@ OF 94P- W A@jp P#,\/b Top *to ft.4iGH SA IL@ L A" rq eqk--,PA W&J- ^PP L-064 CAA945, RV-W TO MACH wA6-mumm Folea ctm P-, TmAimet,h* -ro FvNcm-41Y oTo *44LAR06 WwAwH P-Opum Et4GIfjFOr,-p-eD L-OOV-- M-i FIGURE 6. Boat Launch Improvementa 2., Encourage development of a beach on the east side of 4. The shoreline edges of the vehicular manuevering space the spit. The existing lawn sloping towards the water is should be squared and finished. The space between the two pleasant, and could be improved by removing the concrete ramps demonstrates an attractive way to protect and finish rip rap and allowing a natural beach to develop. Some the shore edge. There, the rubble is stacked vertically and sand/small gravel fill may also be required to improve straight, and cemented with surplus concrete. All the beach quality. Wind patterns and land configuration sug- edges of the area should be finished in the same manner, gest that beach erosion is not a serious problem at this and the top surface paved so it is smooth and uniform. The point, and that the concrete/rock rip rap could be select- Port might seek state funds to complete this area properly. ively removed and added to the launch area to the north. This would result in a smoother transition between lawn and beach. Enlarging the lawn and planting a row of shrubs 5. Adjust the fence around the treatment plant to reduce next to the drive area would screen that area, and give' the the fenced area, minimize the regularity of fencing, and beach some enclosure and shelter from the west wind. integrate it with the existing land forms. Curved fence sections would help to soften the edge. Other f encing materials might also be considered while recognizing the 3. The west side of the spit has the best beach, good views need for plant security. A brown, vinyl clad chain link of the town dock, and afternoon sun, but is subject to fence would.be an improvement over steeli but a wooden direct wind and potential wave damages. Pulling back the fence might also work as an option. The sewage treatment fence at the northeast corner of the sewage treatment plant landscaping will be handled separately from project plant and rounding the edges, along with the overall construction and can be coordinated with the boat launch reorganization of parking at the launch, will provide room improvements. Initial contacts have been made with the to plant grass and shrubs and to make an additional lawn landscape architect for the sewage treatment plant indi- area. The rip rap that is now scattered haphazardly on the cate that a cooperative plan can be developed. Native beach could be restacked neatlyj and perhaps moved out an vegetation including evergreens, wild rose, and snowberry, additional 10 feet from shore. This would provide addition- should be used to create a more natural and less manicured al lawn space and easier, more convenient beach access. A look. They should be planted in informal massings to blend backhoe.and some community effort could accomplish this in with the surroundings. Even blackberry vines might be with little difficulty. allowed to "take over" the northwest or southwest corners which would screen the plant and provide a source of fruit in the summer. 17 4. Town Park Background The town park is an important community asset, serving as a major public open space in close proximity to downtown. However, visitors to Coupeville who are not familiar with the town would not know the park exists, since the only PA9.,V_ pedestrian access from downtown is along an unmarked gravel road. E3 'PIS 16W AV9 The park contains a playfield with -good sun exposure, tennis court, a picnic area, cookhouse, and an unmarked trail to the beach. In order to make better use of these resources, there is a need to enhance the connection between the park and downtown. Also, some minor site improvements in the park would help to make this public space more attractive and better exploit the park's shore- M VOOK_ UwDeRSTOR-Y line location. f, t-1 @J C_ SHP-ues To Opel"i \/IP-\,YS Recommendations FIGURE 6. Town Park Improvements 1. Several actions would help enhance pedestrian access to the park from downtown. (See Figure 6) (B) Improving the walk along Front Street would en- (A) A sign directing visitors to the park should be added hance public access into the park. Several benches at the intersection of Alexander and Front Streets. and, possibly, a walkway could be added along the Directions to the park might also be included in the road, creating a sense of continuity along the route informational display at the pocket park planned for and capitalizing on the spectacular views which are the foot of the public dock. Constructing a log already a town attraction. This action would re- .gate, or archway near the park boundary atop the @uire obtaining an easement across private property, hill would create a clear park entrance and could tie since a portion of the street is not dedicated public in with the log architecture of the Indian Canoe right-of -way. An easement could be negotiated with the property owner, purchased, or required as a Shed, the blockhouse, and wharf entry improve- condition of future development approval. (The ments. property is currently zoned commercial.) 18 2. Several actions illustrated in Figure 6 could be taken to (D) The trail connecting the park and the beach should enhance the attractiveness of the park itself, including: be marked. This is one of the few developed public access points along the Coupeville shoreline, but is (A) Some understory brush between the road and bank "lost" in the dense vegetation on the bluff. Some should be trimmed or removed to open the view of distinctive signing, both on the beach and in the Penn Cove from the park. The lower limbs of the park, will enhance the relationship between the park trees have been removed, but the shrubs block the and beach, and also create a pleasant loop walk up view. Shrubs on the edge of the bluff should be Front Street into the park with a return downtown trimmed rather than removed in order to open the via the beach. Use of this trail should be monitored view without increasing bluff erosion problems. to insure that it does not contribute to bank erosion, and that the trail is adequately maintained. (B) Through use of the park loop road should be blocked. The road provides access into the park, but it is not necessary that it run through the park. Several anchored log curbs could be used to restrict traffic, and the old road would soon return to grass, uniting the two sides of the park. A small parking area could be provided near the tennis courts and a turn- around developed near the cookhouse. This action would open up more area for recreational use and would help tie together areas of the park which are now split and disrupted by the road. (C) Consideration should be given to thinning the tall trees in the vicinity of the cookhouse. The tall evergreen trees are very attractive but make this part of the park dark and damp; $ome sensitive thinning would retain the forested feeling while making the area lighter and warmer. (The deed conveying the park is the town may contain certain restrictions on tree removal and this should be clarif ied prior to any cutting.) 19 Town Dock Background 2. Add support services for boaters, such as a small marine supply store or grocery on the also be provided on shore to attract town residents as well The town dock is an important historic landmark in Coupe dock. (This might ville and. a prominent symbol of the town's identity. It is as transients). the last remaining steamer facility of its kind in the Puget Sound region. In recognition of its significance, the Port, the National Park Service and the Festival Association are 3. Encourage the development of small scale commercial currently working on major- improvements to the wharf's uses such as a small restaurant or museum on the wharf. entry. Improvements to the dock itself are also needed to Currently, the Port is investigating the possibility of restore and maintain it. mooring the Preston, an old mosquito fleet steamer, at the foot of the wharf and converting her into a small museum. Projects such as this require both financial resources and dedicated community supporters. Coupeville could take on Recommendations the dock restoration as a major community effort, sponsor- ing events or projects to benefit the restoration as Well as The more economic uses which can be made -of the wharf seeking sources of grant funds. The Festival Association and harbor area, the more feasible will be its maintenance could spearhead these activities, in cooperation with the and preservation. Suggested options include: Historic Society and Park Service. Close coordination with the Fire Marshall will be needed to insure that any proposed development will not exceed the fire exit cap- 1. Promote the use of the buoy moorages anchored off the acity of the dock ramp. dock. Last year, the Port installed four buoy moorages to encourage use of the dock and harbor. Their success is untested because the new facilities have not been publi-m 4. Encourage the maintenance of the dock's architectural cized and this year's boating season is just getting under- integrity. Any alterations to the exterior of the wharf way. The Port should advertise the moorages in sailing structure, such as adding windows, should be limited to the magazines and local boating information clearinghouses. If northern facade, out of view from the town to preserve the the moorages prove to be popular, others can be added for historic character of the building. In addition, proposed a modest cost.* Also, buoys do not have the same intrusive improvements to the dock entry should be sensitive to the visual impact as a fixed slip marina. The moorages, would existing dock design, using similar building lines, simple help attract additional tourists into Coupeville -- which is post and rail fencing, wood construction, and a compatible a pleasant day's sail from Seattle. The fees collected for color scheme. the moorage would help offset dock maintenance costs or be directed towards the dock restoration. The four buoys were installed for approximately $3,000.00. 2.0 Town Entry and Main Street Backgroin-id' The principal, access route into Coupeville, down Main Street from. Highway 20, is important because, as the first introduction to the town, it sets a tone for visitors heading &Z N51?@ to the waterfront. However, this entry is not as attractive as other parts of the historic town, and could be improved. .... ........ Block-like public buildings such as the County Courthouse and Annex are out of scale with the traditional small lots pitched-roof building forms. Large off-street parking are inconsistent with the traditional streetscape that con- sists of sidewalk, lawn, and building with parking behind,. and the lack of sidewalks along several stretches makes walking unsafe and uncomfortable. A street that invites walking will be more attractive to tourists and more convenient for Coupeville's growing retiree population. It will also foster a better connection between the waterfront historic area and the commercial activities on Main Street. Main Street at Crest of Hill Recommendations The suggested improvements for Main Street, as shown in 2. Construct a sidewalk with deciduous street trees on the Figure 7, attempt to improve the visual entrance to west side of Main Street from 6th Avenue southward. This Coupeville and improve conditions for pedestrians along would define the street edge and help organize street and Main Street. They include: parking space, and also increase on-street parking. The sidewalk would separate the existing parking areas from Main Street, necessitating an entrance/exit from the cross 1. Develop a "Town Entry" between the Fire Station and streets, and/or a break in the sidewalk to allow one defined St. Mary's Church. Six to ten large fir trees could be entrance from Main Street. There is ample room for such nestled in the juniper bank to the west of the Fire Station. a walkway, and it is a traditional design form in small The fir trees would enclose the view driving north on Main towns to have a sidewalk and plantings which separate Street just before it dramatically opened at the crest of parking lots from the street. This would also create a the hill by the historic church, revealing an expansive, physical and visual link with the existing sidewalk and surprise view of the town,'Penn Cove and beyond. residential landscaping along Main Street between Cove- land and Sixth. F_ 21 3. Encourage construction of a walk along Main Street in front of the County Courthouse and the Post Office. The Courthouse sidewalk would be relatively simple to design becauseit would not cut through an existing parking lot. A walk in front of the Post Office would necessitate loss of several parking spaces from the existing parking lot; how- ever, most of the spaces could be recovered as parallel on- street parking. If these walks are constructed, 7th Avenue should be narrowed at the intersection with Main Street by extending the walkways into 7th Avenue. This would increase the sidewalk's continuity and give better defini- tion to the parking areas on 7th Avenue, which now appear to be an extension of the street. Sidewalks on the east side of the street have second priority over those on the west. However, in any case, large deciduous trees should be planted along the street facade of the public office build- ings to help soften their large and imposing bulk. 4. Coming into town from the west, the "Welcome to Historic Coupeville" sign on Coveland Street is often hidden by parked cars on the street. A simple measure to CONSTRUCT better mark this entrance would be to move the sign about SIDEWALK WITH 30 feet to the west, just to the west of the telephone pole. ON STREET This site would provide for better visibility. PARKING AND DRIVEWAYS ADD ADD TREES ALONG SIDEWALK SIDEWALK AND TO PARKING LOTS ADD FIR TREES ST MARY'S TO FRAME CHURCH ENTRANCE VIEW FIRE STATION FIGURE 7: Main Street Improvements 22 Link to Ebey's Landing and the Keystone Fem 7 Background be undertaken as a private concession, or possibly' by the Chamber of Commerce or Festival Association as a mea- Coupeville's proximity to Ebey's Landing and its inclusion sure to promote tourism. in the National 'Historical Reserve represent a significant asset and an opportunity for expanding tourism in the town. By enhancing this linkage, Coupeville could take better 4. Support the publication of informational/promotional advantage of the area's historical, scenic, educational, and brochures describing the attractions between Coupeville naturalresources. and Ebey's Landing, now being prepared by the National Park Service. The brochure could be designed as a self- guided tour and include a map of alternative routes to Ebey's Landing, indicate points of interest along the way, Recommendations and provide historical background on the development of The followina measures are suggested: Coupeville in relation to Ebey's Landing and Whidbey Island. Points of interest could include information about local farming (e.g., outstanding agricultural land or where to sample local produce) and natural processes (shoreline 1. Support the National Park Service efforts to improve features) as well as designated historical structures and the identified scenic route and between Coupeville and sites. Other schemes might include driving or biking Ebey's Landing. Specially designed signs to direct pedest- historical tours connecting Coupeville with Port Townsend rians, bicyclists, and motorists along the route would be or making a tour of Whidbey Island. helpful. Consideration should be given to road improve- ments which would make the route safer for bicycles and pedestrians, including signs warning drivers of bicycle use. 2. Link the Keystone Ferry, Ebey's Landing and Coupeville with bus service. On the ballot this fall will be a bond issue to support the Island County Public Transportation Board Authority. If approved, funds could perhaps be earmarked for service between these three locations,which would expand the tourism possibilities in the area. A link to historic Port Townsend via the ferry could also be promoted. 3. Encourage the operation of a bicycle rental business near the entry to the town's wharf. This enterprise could 23 Town and Historic Commercial Centers Background Recommi@n_-dations Although it was not the specific focus of this study, some Toward this end, the following measures are suggested: general characteristics of land use in downtown Coupeville were noted becaose of their potential effect on the water- front activity and development. A striking characteristic 1. Encourage town-oriented services and businesses to of the existing development pattern is the separation develop on vacant lots in downtown. Grocery stores, drug between the tour ist-oriented historic district on the water- stores and movie theaters are good examples of uses which front, and the commercial strip along Main Street which would attract more townspeople to the waterfront and provides goods and services for'the townspeople. The shift could be designed to fit in with the other historic buildings. in dominance between the two commercial areas reflects While the town cannot dictate the character of commercial historic changes in transportation patterns and local eco- uses, it can promote new uses and help to set a tone for nomic factors. Coupeville has always relied upon both future development. The Chamber of Commerce could access to waterborne transportation and a road connecting potentially assist the town by seeking out appropriate the town to Ebey's Landing for the movement of goods and businesses. Additiona 'I infilling on vacant lots near the people. In the early years, town development focused on waterfront would both add to the economic vitality of the the waterfront, but later, the car replaced steamers as the area and enhance the area's sense of community. main mode of transportation and some of the small water- front buildings and lots could no longer accommodate business needs. The center of commercial activity thus 2. Encourage some residential development near the began to shift to Main Street where accessible land was waterfront. The vacant lots currently for sale on either readily available. end of downtown are particularly critical to the future of the historic waterfront. While currently zoned commer- cial, the town may want to consider encouraging multi- Today, this separation poses a potential threat to the family housing or a mixed use development on these lots to waterfront, as evidenced by the historic area's quiet, bring more people, and therefore more economic activity, empty streets during the off-season and off-hours of the close to the waterfront. This could be done so that the day and several vacant lots and businesses. Better integra- new buildings were compatible with the scale, form and tion of tourist and town commercial activities on the material of the existing buildings in the area. Multi-family waterfront is needed to ensure the area's long-term econo- housing could also take advantage of the town's stro ng mic health and vitality. attraction for retired people. Another option for increas- ing residential development near the waterfront is to encourage housing on the beach below Front, Street, as discussed earlier. 24 3. En courage the dispersal of public offices. A number of public offices are currently concentrated in several adjoin- ing blocks on the east side of Main Street. This concentra- tion is uninviting for pedestrians because of its scale and the. lack of pedestrian improvements. (Suggested improve- ments are discussed above). Any future expansion or relocation of public offices could be encouraged to occur in the historic waterfront area. The Post Of f ice is, for example, ready for expansion, offering the opportunity to change location. This relocation would help to break up the existing complex of public offices and bring more daily and resident activity to the waterfront. Downtown parking improvements planned by the Festival Association should help to resolve any parking problems which would hamper such a move. 4. Add some finishing touches to the existing viewpoints. The Festival Association is doing an admirable job of adding design improvements to the waterfront. One minor suggestion f or "improving the improvements" is to paint the wooden fences of the existing viewpoints white, and add some flowering vines. These actions would make the viewpoints even more inviting and create some continuity between them. 25 IV. FUNDING AND IMPLEMENTATION Implementation of the recommendations contained in this The federal Community Development Block Grant report will involve public agency participation at the local, program continues to be the main source of funds state, and federal levels. Because government funding is available to local governments for financing public extremely limited at present, a spirit of public/private improvements. It is recommended that Coupeville cooperation will be critical to the success of the projects. include in its 1983 or subsequent Block Grant appli- The Festival Association has demonstra*ted the significant cations measures to address critical erosion and role which community organizations can play in accomp- bluff instability problems. Both the area-wide geo- lishing public improvements in Coupeville. The proposed logic analysis and initial steps toward solving the actions generally involve low-cost, small scale improve- specific Front Street problem could be included. A ments, many of which could be spear-headed by individuals special Block Grant fund allocated for "Imminent or community organizations with minimal public funding. Threats", or emergency .improvements, should be The proposed improvements will likely need to be sta ,ged investigated in light of @ the critical nature of the over a number of years as funding becomes available and Front Street landslide problem. In the future,,Block the public versus private costs anz shared and adjusted Grant funds might be requested for the pedestrian accordingly. promenade along Front Street or Main Street im- provements. Capital Improvements e The Economic Development Administration (EDA) Given the limited resources available today for public has grant funds available for projects which will improvement projects, funding priorities must be carefully create new jobs or prevent the loss of existing jobs. evaluated. It is recommended that improvements to ad- Since tourism is a key to economic development in dress the Front Street erosion problem between Gould and Coupeville, a strong case could be made for funding Main Streets receive the highest priority. This problem is any of the proposed projects which would enhance fast becoming a critical threat to Front Street and, if not tourist use and enjoyment of Coupeville's shoreline. corrected, could jeopardize the town's utilities, vehicular In order to be able to compete for these funds, it is access to local residences, and the opportunity to enhance important for the town to adopt an economic de@.. this route as a pedestrian link to the boat launch. velopment strategy documenting the job potential associated with tourist growth in the town. Although funds are limited, there continue to be several sources of grant funds or loans available. Competition for 9 The State IAC (Inter-Agency Committee) has tradi- these funds will be stiff, and careful documentation of tionally been a prime source of funds for park and need is required. It is also important that each application recreation improvements. Although currently fund- demonstrate "project readiness", or the town's ability to ing is at a reduced level, some grant funds are still proceed quickly with a project. Potential funding sources available. The proposed improvements to the boat for proposed improvements are summarized below: launch and the town park access would be eligible for, consideration. 26 9 Farmers Home Administration (FmHA) offers long Private /Community Organization Efforts term, low interest loans for community facilities in rural areas. The maximum term of the loans is 40 Contributions by individuals and the efforts of community years with an interest rate of 5% at present. This organization could go a long way toward constructing the program has funded primarily sewer and water facil- recommended waterfront improvements in Coupeville. ities in the past, but other critical public facilities Proposed improvements at the town park and boat launch are eligible. would be suitable projects for a community group to undertake. Similarly, contributions of landscaping and 9 In *addition to state and federal grant and loan pedestrian improvements along Main Street could be made programs, there are several local financing mechan- by individual businesses. isms available. Coupeville or the Port District could request voter approval to issue general obliga- Policy /Regulatory Actions tion bonds for proposed projects such as improve- ments to the Wharf which would benefit the whole Several recommended actions involve Town Council actions town or port district. Another option is to form an and policy rather than construction of physical improve- L.I.D. (Local Improvement District) to assess cer- ments. These actions include: development regulations to tain properties for projects benefitting them. An insure safe building in the shoreline zone, policies to. allow L.I.D. is suggested as an option for addressing the and encourage beach housing needed to protect Front Front Street sloughing problems and could also be Street, an economic development strategy to strengthen utilized to finance Main Street improvements. the town's eligibility for EDA funds, and land use policies to encourage. residential development and town-oriented * Community redevelopment financing is a further businesses in or near the historic waterfront. option which has been developed by the State Legis- lature. If approved by the voters of the state this fall, Coupeville would be able to sell bonds in the amount of projected- property tax increases assoc- In sum many of the recommended actions can be under- iated with capital improvements. As they accrued, the increased taxes would then be reserved specific- taken immediately within the existing resources of the ally to pay off the bonds. town. Other improvements will require outside funding and will need to be staged over a number of years. As in the past, the future character and use of the shoreline will Another option which should be investigated for improve- depend above all on the active concern and continued ments to the Wharf is the Maritime Preservation Grant commitment of the people of Coupeville. Program of the National Trust for Historic Preservation. 27 NOAA COASTAL SERVICES CTR LIBRARY 3 6668 -14112790 -4