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. . .... . ... ...... 5Z ANN,, ,M ZANIZQt@ LANGLEY WATERFRONT STUDY HT 168 L36 D42 1983 Dearborn/Smith Associates, Inc. with Rich Untermann, Landscape Architect Susan Heikkala, Urban Planner F LANGLEY WATERFRONT STUDY Y A REPORT TO THE U - S - DEPARTMENT OF COMMERCE NOAA CITY OF LANGLEY COASTAL SERVICES CENTER 2234 SOUTH HOBSON AVENUE CHARLESTON SC 29405-2413 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 -Z 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 Oceanagra- phic and Atmospheric Administration, as authorized by Section 306 of the Coastal Zone Management Act of 1972. TABLE OF CONTENTS Page INTRODUCTION I OVERVIEW OF EXISTING CONDITIONS 3 ISSUES AND RECOMMENDATIONS 6 Shoreline Erosion and Bluff Instability a First Street Slippage 10 Phil Simon Park/Boat Harbor 12 Sea Wall Park is Town Access is Land Use and Design 19 FUNDING AND IMPLEMENTATION 22 ILLUSTRATIONS Page Figure I VICINITY MAP I Figure 2 KEY ISSUES 7 Figure 3 FIRST AND SECOND STREET IMPROVEMENTS 10 Figure 4 FIRST STREET SLOPE DEVELOPMENT I I Figure 5 REALIGNMENT OF PHIL SIMON PARK 13 Figure 6 SEA WALL PARK CONCEPT 15 Figure 7 PARK DEVELOPMENT AT FOOT OF ANTHES STREET 16 Figure 8 TOWN ENTRY 18 INTRODUCTION Langley's history is closely tied to its waterfront. Located Preliminary recommendations to address the key issues on Saratoga Passage at the south end of Whidbey Island were then prepared in draft form, allowing for public (Figure 1), the town once functioned as an active port, review and comment. In the third phase, this final report serving the needs of local farms and logging companies. was prepared, incorporating revisions to the preliminary Langley was also a landing for the early Puget Sound ferry. recommendations based on the input received. Over time, port activity has diminished but the waterfront has continued to be the hub of the community. With its spectacular views, the town's shoreline offers a setting of outstanding scenic beauty for a variety of residential, commercial and recreational activities, and represents a natural attraction for tourism. However, significant devel- @0/ opment hazards and access limitations are associated with VMN11 AP MR/, its high bluffs and unstable slopes. OAK ARB Recognizing the special opportunities and constraints as- sociated with its shoreline', the Town of Langley initiated the Langley Waterfront Study. The study was designed to COUPEVI address a range of objectives: economic- development, resource protection, historic preservation, public access and recreation. As such, the recommendations presented in this final 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 scale of 10-1 the town. 0) 0 The Waterfront Study was undertaken in conjunction with a GLEY similar study for the Town of Coupeville, with funding by 52 the Federal Coastal Zone Management Program. It was completed in three phases: (1) Inventory and Analysis; (2) Scale: N Preliminary Recommendations; and (3) Final Report and MILES Recommendations. During the inventory phase, back- MUK7 ground information was collected and assessed, and several public meetings were held to identify significant issues. 0 1 5 10 FIGURE I F @Olz II. OVERVIEW OF EXISTING CONDITIONS Existing shoreline conditions were assessed during the first Marina, Inc. and Nichol's Bros. Boat Builders in the vicinity phase of the Waterfront Study. The inventory focused on of the town dock. The commercial zoning in this area those features having the greatest bearing on waterfront extends eastward along the shore to include the sites of use and development, highlighting assets and potential two existing houses. problems. Three working maps were prepared to illustrate these features: Generalized Land Use, Resource Assess- ment, and Shoreline Characteristics. In addition to con- The character of existing development in Langley is a ducting extensive field investigation and literature review, striking feature of the town. The historic flavor of the the project team met with elected officials, business town's architecture, particularly along First Street, is a leaders, and residents to gain an understanding of critical unifying theme which gives the town a special identity and issues affecting the town's shoreline. These meetings contributes to its small town charm. The small, human revealed an active interest and a high level of community scale of the buildings and walkways is inviting for pedest- concern relating to future use and development of the rians. These qualities represent a major attraction for shoreline. both residents and visitors to Langley. Land Use and Town Character Shoreline Features Langley's historic waterfront continues to thrive as the Most of Langley's shoreline consists of unstable, actively center of town. The ongoing bustle of activity, remodel- eroding bluffs, averaging 50 feet in height. Evidence of ing, and new business contruction along First Street de- past landslides appear up and down the coast, while no monstrate the economic vitality of this area. The inter- signs remain of roads once existing seaward of the current mixing of tourist-oriented businesses with general town shoreline. Bulkheads constructed along portions of the services, all consolidated within a relatively compact bus- shoreline, such as the Sea Wall in downtown, protect the iness zone, is an important element in its success. This toe of the slope against wave erosion and have contributed well-defined core contibutes to the town's strong sense of to bank stabilization. However, a critical landslide threat- community, and serves as the focus of cultural activities ening First Street at the eastern end of Sea Wall Park for all of south Whidbey. indicates that wave action is not the only force at play. Outside the business core, Langley's shoreline is primarily Economy devoted to residential uses, with houses dotting the high bluffs above the water. The homes are generally dispersed, Langley's economy was previously based on agriculture and often with large open areas in between them. The rural, logging, but the town now serves primarily as a service and agricultural character of the shoreline in these areas is in retail center for south Whidbey. Lacking an industrial sharp contrast to the relatively dense development of the base, the town relies heavily on visitors and people from downtown waterf ront. Commercial development on the the surrounding communities coming there -to shop. The shoreline outside the downtown is . limited to Langley 3 scenic character, small town qualities, and rural island Shoreline Access environment which attract visitors to Langley have also been an attraction for retirement housing, and retirees Langley's location on the water is recognized as a key comprise a significant percentage of the town's population. feature of the town. However, opportunities for shoreline access in Langley are limited by the town's high bluffs and unstable slopes, and the cool northern exposure of the During the 1970's, growth of the "goods and services" shore. sector of the economy, closely linked to the number of residents and tourists visiting the town, out paced all other forms of economic activity.* For the future, tourism Public access is currently provided at the boat harbor and continues to be the most promising direction for economic at Sea Wall Park. Sea Wall Park serves both - as a growth. The town's role as a retirement community also recreation area providing access to the beach and as a has potential for future growth. In spite of its location bulkhead stabilizing the downtown waterfront. Its recrea- several miles off the main island highway, Langley can tional use is somewhat limited by the park's exposure to encourage visitors by building on its scenic, small town northerly winds, coupled with lengthy periods.of shade due character, its waterfront location, and its role as a cultural to its orientation. The boat harbor offers a more protected center. Enhancing shoreline resources will clearly be an site for swimming and picnicking, and is more actively important element in any economic development strategy used. However, full use and development of this area is for the town. limited by the small amount of space available for public use and the steep and narrow access down Wharf Street. The cost of overcoming these constraints would be high and The City of Langley currently operates on a very small tax has, to date, precluded further development. base, making public improvements difficult and limiting the level of maintenance for existing property and facili- ties. For example, the town currently has a moratorium on Historical records explain why Langley was originally sited sewer extensions to serve new development because of in a location with limited natural water access. According questions about the capacity of its sewage treatment plant. to a letter written by Jacob Anthes, founder of Langley, The town's ability to finance needed improvements such as the reason is as follows: this, and to implement solutions to the problems identified in this study, will depend upon the community's ability to sustain a healthy economy. "I had plenty of time in exploring the island. Nearly every rock and corner became known to me. I found that every ridge of hills ran in such a way that the spot where Langley now stands could be reached from nearly anywhere without Preliminary Draft, Langley Comprehensive Plan, 1981. crossing any of them. I felt then, being only a young man, that sooner or later these lands must be occupied and that a town must be the result." 4 As in the early 19001s, Langley continues to be easily reached by car, with a number of roads approaching the town from the east, west, and south. However, the high bank shoreline continues to be a constraint, limiting full use and development of public access to the water. Summary Langley's waterfront represents a key asset of the town, offering recreational opportunities, dramatic views, and a focal point for the town and surrounding area. The town's rural Puget Sound setting, within reasonable proximity to Seattle, makes Langley ideal for tourists and others who are looking for scenic trips to take close to home. The small scale of the' town, its pedestrian orientation and distinctive architecture all contribute to the special char- acter which has attracted both residents and visitors. Langley will do well to capitalize on these qualities in planning for future growth and development. The analysis of existing conditions also revealed a number of problems or constraints to be addressed in achieving the town's potential. Physical characteristics of the shoreline -_ steep, high bluffs, unstable slopes, and a cool northern exposure -- make it difficult and costly to enhance public access and use of the shoreline. With a limited economic base, even basic public facilities such as sewage treatment f acilities will be dif f icult f or the town to f inance. Specific issues are discussed in the following chapter. Recommendations for addressing the identified problems are designed to build upon the recognized strengths of the town. 5 III. ISSUES AND RECOMMENDATIONS The analysis of existing conditions and meetings with town officials, residents, and businessmen identified six key issues relating to Langley's waterfront, as illustrated in Figure 2. The issues include: 1 SHORELINE EROSION AND BLUFF INSTABILITY 2 FIRST STREET SLIPPAGE 3 PHIL SIMON PARK/BOAT HARBOR 4 SEA WALL PARK 5 LAND USE AND DESIGN 6 TO\VN ACCESS In the following sections, each issue is discussed and recommendations are made. Implementation and funding strategies are discussed in the last chapter. FIGURE 2 Key Issues El 'n, rw t rev all 13 Ica co 0- C. LLJ 13 0 C3 El 16 E3 E] o 1@3 El 0 o 13 13 c:n 7 Shoreline Erosion and Bluff Instability Background Exposure to winds from the north. Shoreline erosion and bluff instability were identified as a Most of the lots along Langley's shoreline have already significant community concern affecting both existing and been developed. However, there are some vacant lots future waterfront development. Although reliable bluff remaining-and, if development pressures increase, the town retreat rates have not been calculated, historical evidence should expect that there will be new proposals for shoreline of the problem includes the loss of a road once existing development. While Island County has a review procedure along downtown Langley, seaward of Sea Wall Park, loss of for development in flood and landslide areas, Langley's a portion of Edgecliff Drive, and extensive landslide debris development codes do not include any special standards currently visible along the shoreline. The Island County relating to unstable and actively eroding shoreline areas. Shoreline Atlas designates the entire Langley shoreline as This will be of concern to the town since communities can Aunstable", except for the area protected by the Sea Wall. be considered liable for damages suffered by private prop- While there are no simple solutions to this problem, a erty owners where hazards are known to exist and approp- better understanding of the causes and extent of the riate government action has not been taken. Reasonable hazard will be critical to properly managing future shore- re-ulations developed with expert advice have generally line development and taking corrective actions to protect been considered adequate to serve this purpose. existing development. Available information on the geologic character of Lang- Ple-c-o-m-m, -endations ley's shoreline and causes of erosion/instability is presently very limited. It is generally acknowledged that the speci- A two-pronged approach is recommended in which: (1) the fic causes of instability are not uniform along the shore- town completes the basic geological mapping and analysis line, but rather by location. The main causes. of the needed to define the shoreline hazard; and then (2) in problem appear to be: hazardous areas, individual property owners are required to complete site-specific studies and incorporate' setbacks, � Wave action undercutting the toe of the slope; drainage controls, and other conditions needed to insure safe development. � Bluffs composed of older, cracked sediments which have been weakened by vertical fracturing and water intrusion; 1. The following studies are suggested to better define the � Groundwater moving laterally through the ground shoreline problem and assess corrective measures: to the bluffs, perched on an impermeable layer and fed by upland springs and/or septic tanks; (A) Basic geological mapping to identify sub'surface materials, bank conditions, evidence of drainage 0 Surface water flowing over the edge of. the high problems, slides, etc, should be completed by an bluffs, causing erosion and superficial slides. engineering geologist knowledgable in shoreline a I processes. The analysis should indicate the causes property owner seeking a variance and should demonstrate of erosion and instability along the shoreline and that the proposed structure will be safe and will not should delineate hazardous areas.* It should also. adversely impact neighboring properties. identify a range of appropriate structural and non- structural measures to use in areas with the: conditions. This information would be useful in preparing development regulations, alerting pros- Several efforts are now underway to determine an pective builders to potentially hazardous shoreline appropriate development setback standard. The State conditions, and would also provide a basis for Department of Natural Resources is working with Island Langley to evaluate proposals for new development County and several other counties to develop a reasonable on the shoreline. State Departments of Natural formula. Options being considered would base the setback Resources and Ecology staff may be able to help in on the height of the bluff, or a percentage of the height this effort. plus a standard margin of safety. The town can benefit from the state and county work in developing its standards. (B) If there are areas where shoreline instability is determined to be primarily drainage-related, it The recommended approach is intended to be flexible to may be necessary to complete a study of upland respond to variable conditions along the shoreline, while drainage. The study would examine characteristics insuring that critical bluff stabilization and human safety such as existing drainage channels, surface water issues are addressed. Developers would be alerted to patterns, groundwater flow, and underground potentially unstable conditions and could choose to either springs within basins contributing drainage into locate buildings outside the hazardous area, or employ identified problem areas. Appropriate corrective professional expertise needed to build safely close to the measures such as structural improvements, drain- shore. After further geologic analysis of the areawide age controls for new development, restrictions on problems (Recommendation I above) is completed, the septic tank use, etc. could then be identified for town should re-evaluate and refine, if necessary, the size these areas. of the shoreline area subject to its shoreline regthation and the specific standards applied to new development. 2. Langley should adopt an ordinance establishing develop- ment standards and a review process for those areas identified as potentially hazardous. At a minimum, set- backs from the edge of the bluff, bulkheading standards, and drainage controls to mitigate 'erosion and landslide impacts should be included. Because it is difficult to establish a uniform setback appropriate for all portions of the shoreline, Langley may want to provide for variances from the adopted standard based on detailed, site-specific studies. Such studies should be the responsibility of the First Street Slippage District to determine the specific causes and possible Background solutions to this problem. Slippage along First Street is of critical concern because it threatens the historic business district and the eastern Recommendations edge of First Street itself. The Sea Wall has reduced slippage caused by wave erosion in this area, but recent Exact solutions will require further geotechnical studies, landslides at the east end of the Sea Wall suggest that but could include the following: wave erosion is not the only process at work in that vicinity. Bank failure continues to plague the bluff in spite 1. First Street could be converted to a one-way street, of the bulkhead below, and may cause further loss of land thereby reducing the weight and vibrations of vehicular in that area. The bluff has retreated to within several feet traffic on the steep slope. (See Figure 3) The westbound of the road near Wharf Street, and it is clear that the City traffic would be eliminated and reroute via Second Street must act quickly if the road is to be saved. The City has looping around to First Street via Avenue. This recently begun working with the State Department of would make room for angle parking on First Street, thereby Natural Resources and Island County Soil Conservation expanding the number of parking spaces available for 10 downtown businesses. East of the businesses, the unused traffic lane could be removed and graded back to reduce OT the angle of slope, if necessary, and pedestrian access for W7 COMMer,(_1AL_ viewing could be improved. The entrance to Wharf Street could be widened to improve traffic safety. A curb on the t @4 C@ OC-4Tn AL, north side of the street could re-direct surface water away from the bluff. Improvements such as street trees, land- scaping, and curbs should be added along the circulation _-V loop to create a new town entry along Second Street and a sense of continuity throughout the downtown. Signage and +4f,44 street improvements should be added at the corner of Second and Camano, to direct and invite traffic into town along the new entry. Design standards discussed below H (Issue #5) could be applied to new development along Second Street to enhance the historic character and ped- 1@ fil- estrian orientation of the town entry. 2. Subsurface groundwater, if found to be a problem, may FIGURE 4. First Street Slope Development be relieved with drain lines installed perpendicular to the road, reducing the effect of perched water. Geotechnical studies would be necessary for evaluation and design of this option. 3. New commercial/residential structures could be step- ped down the bluff on the north side of First Street, with extensive foundations and drainage controls to counter the slippage potential. (See Figure 4) The cost of founda- tions/drainage would be high, but may be offset by the attractive location. If properly designed, such develop- ment could help stabilize the slope by controlling drainage and preventing erosion. The lower levels of the structures would face onto Sea Wall Park, taking advantage of the park's outstanding views while offering protection from the park's cold, windy exposure. This type of development would work well with the promenade concept proposed for the length of Sea Wall Park. (See Issue 4 below) 3 Phil Simon Park/Boat Harbor Background Recommendations The waterfront area at the foot of Wharf Street, including 1. Langley has already taken a significant step toward Phil Simon Park and the boat harbor, is the most heavily expanding use of the boat harbor through the development used segment of Langley's shoreline. Compared to Sea of a breakwater and 42 boat slips. Hopefully, the legal Wall Park, this site offers more protected access to the dispute involving the breakwater can be favorably and beach and water, and is thus more popular as a public quickly resolved so the boat slips can be put into use. This recreation area. Since water access is a key to tourism, small marina will facilitate weekend boat trips from Seat- there is naturally much community interest in expanding tle, or stops en-route to other Puget Sound locations. use and development of this valuable resource. 2. There has been considerable community support for the Existing improvements in the area are limited. A public possible future development of a large scale marina which dock adjacent to the boat launch is used for fishing. Forty could accomodate 300 or more boats. Due to the present two boat slips were constructed off the dock, but have state of the economy, the current market for marina been recently removed because of breakwater problems development is weak. However, this outlook should be and a resultant lawsuit. Phil Simon Park is an unimproved, expected to change as the economy as a whole improves. grassy area at the foot of the slope, separated from the Since it takes many years to get such a project underway, beach by a gravel parking lot and boat trailer maneuvering there is a long lead time bef ore such a facility can be in area. The park is not as attractive or useful as it could be, operation. Planning and analysis would need to begin well and has been reduced in size by the parking lot. The in advance, with the City of Langley and the Port of South parking area has also decreased the size of the beach at Whidbey working closely together. high tides. The public use area is further limited by private land ownerships east and west of the boat launch. The first step will be to complete a careful economic analysis to determine the project's feasibility. All of the Wharf Street access is another major constraint to use and major actions involved in such a project should be con- development of this area. Wharf Street is steep and sidered in the analysis: narrow, appearing unsafe for pedestrians, and thus there is no clear pedestrian link between downtown and the marina (A)Acquisition of neighboring residences and land for area. Vehicular traffic faces a steep, difficult intersection parking and marina; with First Street at the top of the hill. Street widening and improvements needed to remedy this problem promise (B) Construction of a sea wall and filling for parking; to be expensive due to the steepness of both uphill and downhill slopes, coupled with geologic instability. How- (C) Widening and improving Wharf Street or develop- ever, the only access alternative would be to construct a ment of alternative access, potentially including road up the hill from the park to the southeast, which stairs connecting Cascade Street to the marina for would cross a very hazardous and unstable slope and would pedestrian use; require expensive private property condemnation. 12 (D) Dredging for boat access and use; park as an exchange, and revised parking locations for adjacent residences could be designated. Such (E) Construction of marina facilities and an effective an arrangement would allow park users direct beach breakwater. access, and improve views and sun from the park. The cost could be minimal, including log curbs separating parking from the park, planting a buffer In addition to assessing economic feasibility, advance plan- between the park and easterly residents, encourag- ning for the marina should include evaluation of community ing lawn to grow in the abandoned parking spaces, iMPacts. A major marina project would be of a larger and adding benches, picnic tables, etc. Since prop- scale than development now existing in the town, and care erties east of the park have legal rights of acc-ess should be taken not to lose Langley's small town character through this area, some form of vehicular access and charm. The scale and character of the town are recognized as perhaps its most prized assets, and should be carefully safeguarded. Another significant tradeoff for the town to consider is the loss of a natural beach and RAFUZ)OR- swimming area for the town's residents. It may be difficult to accomodate swimmers in close proximity to the marina OcAr because of the level of activity and the noise and water RAN@F E:F_-A,::44 quality impacts inherent in such a project. 3. Because of the high costs associated with a major TK concept was viewed as a long-range option for the town. In marina and the lengthy planning involved, this development the interim. a number of small scale improvements are recommended to make better use of the existing facilities LZXI 1L)r_e>> .... ''. F:354?.r C and make the area more attractive for residents and visitors: T (A) Realign Phil Simon Park to pull it away from the slope, connecting it with the beach and water. Two alternative park configurations are suggested for consideration. The first alternative, shown in Fig- ure 5a, is to realign the park to run from the STEC-f- 54-1 I< concrete bulkhead to the base of the hill on the easterly side of the town's property. Lost parking spaces could be retrieved on the westerly side of the FIGURE 5a. Realignment of Phil Simon Park 13 through the park would be necessary. "Grass-crete" is an example of a material which could be used to accommodate an occassional car or service truck, but would otherwise look like a grassy lawn. Ideally, the town could negotiate with the property owners to consolidate and improve one access route behind the houses, rather than maintaining one on the water side. 13 0 P- Another alternative park configuration is shown in Figure 5b. This alignment avoids the potential conflict over access to neighboring houses, but still 1@10AJ- provides a direct connection between the park and the beach. Again, benches, picnic tables, trash receptacles, and some landscaping could be added to make the park more attractive for recreational use. (B) A line should be striped along the water side of Wharf Street to designate a pedestrian walkway. There is insufficient width for both traffic and foot use, but tile symbolic suggestion of a pedestrian -Frms' space should slow traffic, and encourage foot use. "Watch for Pedestrian" signs could be added, and speed bumps insta:lled at the top, bottom and mid points. (C) The existing pedestrian walkway on Cascade Avenue above the marina should be improved to capitalize on panoramic views of the marina, Puget Sound, and the Cascades. Improvements could include land- 5rf_@ar- 15 A @A r-- scaping, street lighting, and additional benches. En- hancing this area for viewing would create a tourist attraction and would also be an asset for the elder- FIGURE 5b' Alternative Park. Realignment ly, who could stroll along the bluff and enjoy the views without making the difficult descent to the marina. iz 14 Sea Wall Park Background Built atop a cement bulkhead, Sea Wall Park has made a major contribution to bluff stability by eliminating wave- PON CF as a - @7 cutting erosion at the toe of the slope. It also serves as a TREE(-- recreational area affording public access to the water. While the park is beginning to look lived in -- with some vegetation and park furniture -- it is not yet a fully comfortable and useful place. Due to the park's northern T 7 exposure, it is shaded during most of the day. Combined with prevailing winds from the northwest, the park is often cold and windy. Limited public ownership, including a ten foot strip along the bulkhead, the Anthes Street end, and one parcel at eastern edge of park, limits opportunities for W6ETATIO@4 constructing public improvements within the park. 5T RE-r--T FIGURE 6. -Sea Wall Park Concept Recommendations The restricted right of public access and the northern orientation of the park suggest minimal development along its length, with more extensive development at the foot of Anthes Street as follows: 1. Plant a row of trees at the back side of the public lands along the length of the park. These could be Purple Leaf ef Plums, duplicating their use throughout town, or a pine tree capable of living in salt-rich places. The trees would Z create a formal, park-like feeling at minimal cost, offer some wind diversion, and be visible from passing boats. (See Figure 6) Oman= Sea Wall Park--Looking West from Anthes Street End 15 2. Develop a more substantial park in the road right-of- way at the foot of Anthes Street. The area is wide, and easily accessible, has pleasant views, and is a logical location for more extensive, but compact development. The park could include a paved walking area, a small lawn, formal seating, wind protection, various level changes and planting. Limiting development to the Anthes Street area will limit the costs of the park maintenance and improve- ments as well as being easily accessible and somewhat in keeping with the small scale of Langley. (See Figures. 7a and 7b) FIGURE 7b. Park Development-- View from Below Odors from the sewage treatment plant were noted as a potential problem for the park at Anthes. Since the town is in the process of considering options for sewage treat- ment plant expansion, it is recommended that the engin- eering studies took at possible ways to screen the park from odor. The problem would occur only during winds from certain directions, suggesting that a wind screen or chimney could possibly be designed to catch and deflect the winds up and over the park. Other alternative sites along Sea Wall Park were examined to avoid the odor problem, but none offered the same ease of access and maintenance as the Anthes Street end. FIGURE 7a. Park Development View from Above 16 I Encourage the existing buildings on First Street to expand down the slope to Seawall Park, as discussed above. (See Figure 4) In addition to stabilizing the bank, it would attract people down to the park, and would be in keeping with the concept of the park as a lineal promenade. Property ownersbuilding down to the park could be encour- aged to provicle park landscaping and other improvements on an individual basis to enhance their development and the park. (S--e Figure 4 above) 17 5 Town Access Background Recommendation "Welcome to Langley" signs and clusters of plum trees Directing traffic along Third Stree until motorists reach create distinctive entrances to the town on both the north Anthes Street, then down Anthes to the waterfront, would and south ends. However, access to the Langley water- create a more clear and direct entry to the town. (See front from the north is confused by several "SCENIC Figure 8) This would require removal of the Scenic Drive DRIVE" signs, which create an unclear sense of where the signs at Third and DeBruyn Streets, removal of the stop town is and how to approach it. sign at Park Street and addition of a directional sign at Third and Anthes. Motorists could then drive uninterrupted to Anthes Street, turn left and be in town. The totem pole at the end of Anthes would provide a clear focal point and symbol of arrival in the downtown. FIGURE 8. Town Entry 18 Land Use and Design 6 Background Recommendations The distinctive character of development in downtown The compatibility of new development with the existing Langley is one of the town's main attractions. Unlike many town character should be a consideration in the town's small, waterfront towns, Langley's historic waterfront has development approval process. For example, it should be remained the heart of the community, bustling with bus- the town's policy to discourage any future commercial iness and cultural activity. One important reason for this rezones which would detract from the downtown core. vitality is that stores and services for tourists and towns- There is one area currently zoned commercial -- along the people are intermixed in the compact commercial core. shoreline east of the town dock -- which may warrant Commercial zoning is, for the most part, concentrated in reconsideration because it is removed from the downtown, this area rather than spread extensively about town. is currently used residentially, and is subject to the access limitations of Wharf Street. Requests for new commercial designations outside the downtown should be carefully Langley has developed slowly over the years into a hand- scrutinized. The County's Shoreline Master Program should some small town that is described by visitors as quaint, also be reviewed to determine whether its "Urban" designa- pedestrian-oriented, individualistic, comfortable, scenic, tion for the entire Langley shoreline, which allows com- quiet and diverse. The small scale of the downtown, and of mercial and industrial uses, is consistent with the town's individual structures, creates an attractive environment residential zoning and its goals for the waterfront. for the pedestrian making it possible to do business on foot rather than by car. The historic flavor of the buildings reinforces a strong sense of community identity and adds It is also critical that new downtown development be of a to the fun of window shopping along First Street. design that is compatible with the style and scale of existing buildings. Yet it is virtually impossible to estab- lish a set of rules that will guarantee continued "proper" These qualities are perhaps the town's most valuable as- development of the downtown area. There is a high degree sets, making the town an attractive place to live and to of diversity among the existing structures, and individual- visit. Over time, the people of Langley have generally ism has been a key ingredient in the town's past success. shown great care and respect for the town's special charac- Its future success will continue to be dependent on the care ter in developing and upgrading buildings in the downtown. taken by individuals. However, some common character- Although no major threats to these qualities are apparent istics of appropriate development can be identified. at present, it is important to recognize and safeguard them in the future, especially when the economy picks up and development activity increases. Land Use 0 Encourage the continued intermixing of tourist and local resident services in the "downtown core" of Langley. 44 e Continue to concentrate commercial development in FM - I 11 1, - the downtown, rather than spreading to outlying 006 HOUSE TAVE a reas or highway approaches. Encourage ground floor retail uses with apartments or offices above. Characteristic Architecture on First Street M Following is a list of characteristics which, if followed, will reinforce the existing character of the town. At present, it may be- sufficient to use them as voluntary guidelines, giving guidance to individuals building or re- modeling structures in downtown. The town may want to consider establishing a simple design review process and adopting a set of flexible design guidelines to ensure that new development is compatible with and enhances the town's character. A number of small towns in the North- P00OW-1 L J- west have implemented design review programs as a means of promoting tourism and economic revitalization. Walkway Between First and Parking Lot Behind Shope 20 Street Character Building Form � Retain and encourage interior pedestrian walkways 0 Retain streetfronted shops with minimal setbacks, between buildings, such as those connecting First build to the sidewalk if possible and avoid parking and Second Streets through the parking lots. between sidewalk and stores. 9 Increase street landscaping, * courtyards, interior Avoid steps leading into shops if possible to aid shops and offices, and planting among parking elderly or handicapped users. spaces. 0 Encourage use of display windows on the street, � Retain and strengthen the pedestrian character of awnings or overhangs for sun and rain protection, First and Anthes Streets. Add pedestrian improve- small flower boxes or gardens with flowering plants, ments on Second Street. benches, etc. to invite pedestrians and window shoppers. 0 Encourage 1-2 story buildings of narrow to medium width and varying heights to create street interest. 0 Encourage common architectural features, such as false fronts, often with stepped up edges, wood framed windows and banding or borders around windows. 0 Paint doors, corners, and trim in a contrasting color; encourage two or three tone buildings for variety. 0 Use wood siding, and small, painted signs. 0 Encourage businesses on the north side of First Street to maintain windows in back, open to the water. 21 IV. FUNDING AND IMPLEMENTATION Implementation of the recommendations contained in this 0 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. Some of the recommendations available to local governments for financing public will require changes in government policy or regulation, improvements. It is recommended that Langley and many will depend on government funding. Because include the initial phase of the First Street project government funding is extremely limited at present, a -- engineering and design of measures to address spirit of public/private cooperation will be essential. The the landslide probiern - in its 1983 Block Grant development of Sea Wall Park demonstrated the signif icant application. Other First and Second Street im- role which private interests can play in accomplishing provements could be pursued with supplemental public improvements in Langley. Many of the study funds from other sources, or in subsequent years. recommendations are low-cost, small scale improvements A special Block Grant fund allocated for "Imminent which could be spear-headed by individuals or community Threats", or emergency improvements-, should be organizations with minimal public funding. The proposed investigated in light of the critical nature of the improvements will likely need to be staged over a number landslide problem. of years as funding becomes available and the public versus private costs are shared and adjusted accordingly. 0 The Economic Development Administration (EDA) has grant funds available for projects which are Capital Improvements designed to create new jobs or prevent the loss of existing jobs. Since tourism is a key to economic Given the limited resources available today for public development in Langley, a strong case could be improvement projects, funding priorities must be carefully made for funding any of the proposed projects to evaluated. It is recommended that improvements to ad- the extent that it would enhance tourist use and dress the First Street landslide near Wharf Street should enjoyment of Langley's shoreline. To be in the best receive the highest priority for funding. This problem is. position to compete for these funds, Langley should fast becoming a critical threat to the town's main street develop and adopt an economic development strat- and, if not corrected, could seriously impact the historic egy documenting the jobs potential associated with waterf ront. Engineering design, and implementation of tourist growth in the town. measures to correct this problem are likely to be expen- sive, requiri ng outside funding. 0 The State IAC (Inter-Agency Committee) has tra- ditionally been a prime source of funds for park Although funds are limited, several sources of grant funds and recreation improvements. Although funding is or loans continue to be available. Competition for these now at a reduced level, some grant funds are still funds will be stiff, however, and careful documentation of available. The proposed improvements to Phil need will be required. It is also important that each Simon Park and Sea Wall Park would be eligible for application demonstrate "project readiness", or the town's consideration. ability to proceed quickly with a project. Potential funding sources for proposed improvements are summarized below: . 22 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 community organizations years with an interest rate of 5% at present. This could go a long way toward constructing the recommended program has funded primarily sewer and water improvements. Individual businesses could, for example, facilities in the past, but other critical public donate needed landscaping and pedestrian amenities along facilities are eligible. Second Street at the time of development or business e.xpansion. A community group could take on all or a portion of the proposed improvements at Sea Wall and Phil In addition to state and federal programs, there are Simon Parks. Langley's downtown businessmen will have several local financing mechanisms available. the primary responsibility for safeguarding and maintaining Langley could chose to utilize, following voter the historic character of the downtown waterfront. To approval, general obligation bonds for proposed date, it has been solely due to the care taken by private projects such as park improvements which. would individuals that the town has retained its charm and benefit the whole town. Another option is to form character. Their continued commitment will be critical in an L.I.D. (Local Improvement District) to assess the town's effort to preserve and enhance its shoreline. specific properties for projects which will benefit them. An L.I.D. may be appropriate for the proposed improvements to Second Street, which Policy/Regulatory Actions would make the street more attractive for pedest- rians and as a vehicular entry to the town. Several recommended actions involve City Council adop- tion of policies and development regulations rather than, or in conjunction with, the construction of physical improve- Community redevelopment financing is a further ments. These actions include: adoption of development option which has been developed by the State regulations to insure safe building in the shoreline zone, Legislature. If this measure is approved by the land use policies to concentrate commercial development voters of the state this fall, Langley would be able in downtown Langley, voluntary or required design guide- to sell bonds in the amount of projected property lines to preserve the historic character of development in tax increases associated with capital improve- downtown, a plan for redirecting traffic flow to one-way ments. As the increased taxes accrued, they would on First Street, and an economic development strategy to then be reserved for paying off the bonds. This strengthen the town's eligibility for EDA funds. option might be a useful one to consider for the proposed downtown improvements. In sum, many of the recommended actions can be under- taken immediately within the existing resources of the 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 depend above all on the active concern and continued commitment of the people of Langley. 23 PR,':7ED U SA GAYLORD No. 2333 millilli@l 11110 3 6668 14107 3876