CHAPTER 1: INTRODUCTORY ELEMENT

FERNDALE COMPREHENSIVE PLAN

TABLE OF CONTENTS

COMMUNITY VISION STATEMENT

INTRODUCTION TO THE PLAN

WHAT IS A COMPREHENSIVE PLAN

CONTENTS OF THE PLAN

RELATIONSHIP TO OTHER POLICIES

WHY DO WE PLAN

HISTORY OF PLANNING IN FERNDALE

OTHER DOCUMENTS

COMMUNITY VISION STATEMENT:

Ferndale seeks to promote a high quality of life;

..to preserve and enhance the unique and diverse character of the City.
..to do so by protecting open space and natural resources, and providing
recreational opportunities
..to ensure an efficient and safe transportation network, desirable economic
development, and safe and affordable City services.
..to be accountable to the citizens of Ferndale through active public
participation, stewardship of public funds, and intergovernmental cooperation.
In doing so, the City that is given to the next generations will be greater and
more prosperous than the City that currently exists.

INTRODUCTION TO THE PLAN:

Over the next twenty years, Ferndale is forecast to grow more rapidly than any community in Northwest
Washington, adding nearly 7,000 people and up to 4,000 jobs. The Ferndale Market Area, which includes
the City limits, the Ferndale School District, the Lummi Nation, and the Cherry Point Industrial Area, will

City of Ferndale – Comprehensive Plan Introduction – Chapter I

Adopted June 2016 Page 1
CHAPTER 1: INTRODUCTORY ELEMENT
FERNDALE COMPREHENSIVE PLAN
provide new and varied economic growth, creating jobs and retail opportunities we can’t even imagine
in 2016.

To help chart our course through this period of rapid change, we have produced this Comprehensive
Plan. This is not the first, nor will it be the last Comprehensive Plan for the City. The first was completed
in 1968 and updated periodically through the 1980’s. The Washington State Growth Management Act,
or GMA, was adopted in the early 1990’s and requires that jurisdictions create plans such as this to
ensure cities evaluate their capacity to provide adequate services such as water, sewer, and roads; plan
for system-wide transportation improvements like the Thornton Connector; and identify land uses and
the land areas necessary to serve both new and existing development. The City’s first comprehensive
plan under GMA was completed in 1997 and updated in 2005.

The growth forecast for Ferndale, in combination with uncertain environmental changes, competing
demands for scarce resources, and a desire to preserve and enhance Ferndale’s unique sense of place,
will at times test our community’s ability to adapt. As such, this plan anticipates some of the difficult and
costly decisions we will all face, and seeks to provide guidance for future decision-makers and
community members, without limiting those groups or an individual’s ability to make the right decision
at the right time to meet their needs.

In recognition of the fact that Comprehensive Plans play a supporting role in daily life, this 2016 update
also will endeavor to reach our community through mediums non-technical readers are more
comfortable and familiar with. The plan is written and organized for electronic viewing, and features
illustrations, links to other resources, and a companion multi-media presentation for each element. The
plan and the multimedia presentations will be available in both a traditional print format and via the
City’s official website, but also via social media and entertainment websites.

To help every reader understand even the most complex aspects of this plan, the majority of maps are
interactive and provide vast amounts of information. The maps are designed to be utilized by the
community as well as decision-makers to understand growth projections, planned projects, and other
statistics. Some maps, particularly the Capital Facilities Map, are powerful planning tools that may be
used to consolidate future public projects, thus saving public money and time.

Lastly, this comprehensive plan reflects Ferndale’s spirit by challenging the status quo in adopting
innovative approaches to complex issues – by planning for growth beyond the required twenty year
period, adopting essential housing values that will apply to all citizens, integrating its capital project
planning and working with private and public utilities for the greater good.

This plan, like Ferndale itself, does not shy away from asking difficult questions: What if new
technologies are employed? What if major industries cease to exist? What if climate change happens
more rapidly or dramatically than is expected? What if this plan, or some of the assumptions within it –
is wrong? By asking these questions, and by planning for the results, this plan will place our community
and its decision makers in a better position to tackle the changes that may lie ahead, and to preserve
opportunities for this generation and all subsequent generations.

So turn the page, or click your mouse, and take a peak at our future…

City of Ferndale – Comprehensive Plan Introduction – Chapter I

Adopted June 2016 Page 2
CHAPTER 1: INTRODUCTORY ELEMENT
FERNDALE COMPREHENSIVE PLAN

WHAT IS A COMPREHENSIVE PLAN?

The Comprehensive Plan identifies long-range plans and policies that will guide the City in its day-to-day
actions. From these policy documents, the City establishes a number of regulations and policies
intended to implement the Comprehensive Plan. Figures IE1 and IE2, below, illustrate contents and
requirements of the Comprehensive Plan, and its relationship to other City regulations and policies.

Figure IE1: What is a Comprehensive Plan?

City of Ferndale – Comprehensive Plan Introduction – Chapter I

Adopted June 2016 Page 3
CHAPTER 1: INTRODUCTORY ELEMENT
FERNDALE COMPREHENSIVE PLAN

CONTENTS OF THE PLAN

This Comprehensive Plan is divided into seven chapters, as well as appendices and hyperlinks to
information relative to the Whatcom County-wide Planning Policies, the adopted six-year Transportation
Improvement Program (TIP), the adopted six-year Capital Facilities Improvement Plan (CIP), the Essential
Public Facilities Ordinance, the Municipal Building Long-Range Plan, the Annexation Blueprint/Phasing
Plan, the Comprehensive Water and Sewer Plans, the Main Street Master Plan and the Parks, Recreation
and Trails Master Plan. Future updates to this Plan may include additional elements that the citizens
believe are important to the community’s future.

The Elements contained in this plan are:

Chapter I – Introduction

The Introduction provides information about the purpose and intent of the Plan, the process through
which it was prepared, and the Plan’s relationship to other plans the City, county and other agencies
have prepared and adopted that influence the development of this Plan.

Chapter II – Land Use Element

The Land Use Element establishes the pattern and intensity of land development within Ferndale and its
urban growth area (UGA). It, like the other chapters of the Plan, takes a 20-year view, setting strategies
that are more long-term in nature and anticipates evolutionary changes in the community’s form, size
and function. The Land Use Element is designed to set the stage today for the type of future growth and
development that will compliment the community’s overall vision.

Chapter III – Housing Element

The Growth Management Act requires that comprehensive plans include housing elements to assess
housing affordability and condition and to outline public policies to make safe and decent housing as
accessible as practicable to residents of the community. This chapter provides generalized economic
information on Ferndale’s households, population growth, population density and housing affordability.
The chapter also contains goals and policies designed to make housing more accessible to all residents
of the community.

City of Ferndale – Comprehensive Plan Introduction – Chapter I

Adopted June 2016 Page 4
CHAPTER 1: INTRODUCTORY ELEMENT
FERNDALE COMPREHENSIVE PLAN
Figure IE2: Comprehensive Plan Organizational Structure

Chapter IV – Transportation Element

The Transportation Element helps to define a system of highways, roads, trails and paths that will
provide access to the community and that is compatible with the overall expressed desires of its
residents. The Transportation Element must reconcile the potentially conflicting demands of freight
mobility and pedestrian access, of tourist traffic and local traffic, and of highway and trail
improvements. Many transportation systems emphasize automobile travel, and Ferndale, with limited
access to public transit opportunities, is no exception. However, this chapter strives to elevate the
importance of pedestrian and bicycle travel by creating a network of transportation-related
improvements and crafting policies that will ensure that high speed travel can co-exist with the
community’s need for a safe and comfortable non-motorized travel environment. This chapter also
identifies and prioritizes transportation improvements that are necessary to accommodate the future
growth and development anticipated over the 20-year lifespan of the Plan.

City of Ferndale – Comprehensive Plan Introduction – Chapter I

Adopted June 2016 Page 5
CHAPTER 1: INTRODUCTORY ELEMENT
FERNDALE COMPREHENSIVE PLAN
Chapter V – Utilities Element
“PLANNING LEVEL” COST ESTIMATES
The Utilities Element has been developed to address utility and
public services in the City of Ferndale. It specifically considers the
general location, proposed location, and capacity or all existing The Comprehensive Plan is a long-range
and proposed utilities and related service facilities, including planning document that is tasked in part
public structures and major utility lines. It also discusses levels of with projecting the City’s ability to pay for
services for current and future residents and businesses. The needed improvements as much as twenty
discussion in this section is related to components of other Plan years or more before they are built.
elements including Transportation and Capital Facilities financing.
As is discussed in greater detail in the
Chapter VI – Capital Facilities Element Capital Facilities and Transportation
elements, the City has a variety of ways to
The Growth Management Act requires capital facilities planning as
fund these improvements, ranging from
part of the Comprehensive Plan to ensure:
direct municipal funding to grants and
 The provision of public services for land development bonds that are paid off over time.
envisioned by the Land Use Element;
Since the specific projects described in this
 Maintenance of the quality of life for existing and future plan are identified well before they are
development by establishing and maintaining level of designed and built, the City and its
service standards for existing and future facilities; consultants must use “planning level” costs
to estimate the approximate cost of these
 Coordination and the provision of consistency among the improvements. These estimates are based
many plans for public service improvements, including on the best available information, and are
other elements of the Comprehensive Plan, plans of usually general in nature, based on current
adjacent jurisdictions, plans of state or regional (2016) values for similar projects. The
significance, and plans of special districts; actual cost of individual projects may vary
 Ensurance of the timely provision of adequate facilities substantially from these planning level
required by GMA; costs, and will fluctuate based on a number
of factors over time (inflation, availability of
 Documentation of all improvement projects and their materials, complexity of site conditions,
financing; etc.).
 Facility improvement and development carried out prior The 6-Year Capital Improvement Plan (CIP)
to or concurrent with the impacts associated with new and Transportation Improvement Plan (TIP)
development. revise these estimates for those projects
that are planned within the near future, and
This chapter describes each of the public facilities and services
project-specific (ready-to-build) designs
serving Ferndale, the level at which those services are provided
further clarify these costs. Ultimately, the
and the type and extent of improvements needed to
“bid award” to one or more contractors to
accommodate forecasted growth and development. It estimates
actually construct the project will determine
likely funding for the various improvements outlined within the
the actual cost, and the City Council has the
chapter, and then prioritizes them based on their relative
final authority to determine if the project
importance to the community.
will proceed, based on these numbers.

City of Ferndale – Comprehensive Plan Introduction – Chapter I

Adopted June 2016 Page 6
CHAPTER 1: INTRODUCTORY ELEMENT
FERNDALE COMPREHENSIVE PLAN
This chapter also includes a section on Essential Public Facilities. These are defined as public facilities
that are regional in nature, are difficult to site, but that each local jurisdiction must accommodate to
help meet a regional obligation to accommodate these types of facilities. Essential public facilities
include things like hospitals, jails, airports, flood control infrastructure, and highways of statewide
significance.

Chapter VII – Economic Development Element

This chapter analyzes the City’s economy, including the “Ferndale Market Area” which includes not only
the city limits and Urban Growth Area, but the entire Ferndale School District. The chapter is intended
to promote increased commerce within this area, and to identify Ferndale as the major location for
shopping, recreation, education, and housing within the area.

The chapter also lists relative strengths and weaknesses of the local economy and identifies general
concepts that are intended to further strengthen the economy as time goes on.

RELATIONSHIP TO OTHER POLICIES

The Ferndale Comprehensive Plan must be internally consistent – the various elements cannot
contradict each other – and must also reflect Washington State law and the Whatcom County County-
wide Policies. In turn, the implementation regulations adopted by the City must be consistent with this
plan. Figure IE-3 shows these relationships.

Figure IE-3

City of Ferndale – Comprehensive Plan Introduction – Chapter I

Adopted June 2016 Page 7
CHAPTER 1: INTRODUCTORY ELEMENT
FERNDALE COMPREHENSIVE PLAN

WHY DO WE PLAN

The Comprehensive Plan is intended in part to describe the vision of the officials and citizens of Ferndale
for its future. We plan for the future because it
will be different from the present – as a result of A COMMUNITY UNITED
new technologies, climate change, growth,
changing demographics, and more. Change will Perhaps more than any Northwest Washington City,
come regardless of whether this plan exists or Ferndale has been tested by loss and change. The
not. But ultimately we plan because we believe community has persevered in part through the common
that well-planned and managed growth will have bonds that tie it together. Ferndale residents are proud
a net positive benefit on our community. We to be from Ferndale and show this pride in thousands of
different ways. This Comprehensive Plan depends on
plan because we recognize that poorly planned or
this generous spirit.
managed growth will have a negative impact.

And ultimately in absence of a plan the City is - The community has benefited from the thousands of
placed in the position of simply reacting. individuals and businesses who have contributed to its
infrastructure. From large anonymous donors who
supported the Ferndale Public Library to hundreds of
families who contributed money and time to build Star
Park. From businesses who have funded crosswalks and
other public safety items, to volunteer organizations
who celebrate and remember the United States and her
veterans. From the pedestrian who cleans trash from
the sidewalks to community clean up days. From
community meals to church and school fundraising
efforts - and so much more.

- A united community does not necessarily mean a

community without disagreements. In fact the opposite
is true. Ferndale is comprised of an increasingly
complex number of individuals, businesses,
backgrounds and cultures - and they will disagree from
time to time. In order for this comprehensive plan to
succeed, thoughtful public debate should be
encouraged - not stifled. The City is committed to
participating in robust community conversations
through both formal processes (such as City Council
meetings) and informal ones, such as through all forms
of social media. The City will take part in other
community conversations as well - and will remain
involved in School and Fire District plans, regional
planning, and a close relationship with the City of
Bellingham, Whatcom County and the Lummi Nation.

City of Ferndale – Comprehensive Plan Introduction – Chapter I

Adopted June 2016 Page 8
CHAPTER 1: INTRODUCTORY ELEMENT
FERNDALE COMPREHENSIVE PLAN

HISTORY OF PLANNING IN FERNDALE

The history of Ferndale’s planning is characterized by “bottom-up” development – unlike some west-
coast cities that were built under the guidance of the United States military (as a result of forts or bases
established in the Washington Territory), by or in support of one or more major industries (such as
logging, fishing, the railroad or as a seaport), or based on long-term settlement, Ferndale was
established incrementally over several decades, and did not incorporate as a town for nearly a half
century.

Even after incorporation in 1907, the City did not pursue substantial public works projects until the
1950’s, when the significant growth triggered by new refineries at Cherry Point as well as the impending
construction of Interstate Five demonstrated the need for a coordinated municipal plan. Until that time,
Ferndale had grown relatively slowly, and its compact downtown core served the agricultural
community that surrounded it. Like many small towns, Ferndale immediately after World War II was a
relatively isolated, relatively self-sufficient rural community.

The industrial growth from the 1950’s to the 1970’s swelled the City’s population, and the interstate
highway linked Ferndale to Bellingham in a manner that encouraged inter-city commuting for work,
shopping, and entertainment. Until the mid-1990’s, the population increase was not mirrored by a
similar increase in new businesses or shopping opportunities – and Ferndale emerged as a bedroom
community to Bellingham and the Cherry Point Industrial Area.

Ferndale’s long-range and development plans focused primarily on responding to residential growth
while attempting to protect the Downtown core from further erosion. And while the first Growth
Management Act-compliant comprehensive plan was developed in the early 1990’s, it was not until the
early 2000’s that the City began to establish plans that would protect downtown and other important
assets, while at the same time welcoming new commercial and industrial growth to the City.

More-recent short and long-range planning approaches have also sought to clarify the timing and
pattern of future growth, and to better-coordinate that growth with infrastructure plans. The City has
also sought to emerge from land-use specific zoning regulations to regulations that focus more on
overall impact and design. These efforts are expected to result in a more vibrant community that is
larger and more diverse than the pre-war Ferndale, but which combines a mix of uses that may
resemble those found in Ferndale those many decades ago.

An illustrative history of several of the significant points in Ferndale’s planning history are shown in
Figure IE-4, on the next page.

City of Ferndale – Comprehensive Plan Introduction – Chapter I

Adopted June 2016 Page 9
CHAPTER 1: INTRODUCTORY ELEMENT
FERNDALE COMPREHENSIVE PLAN

Figure IE-4

City of Ferndale – Comprehensive Plan Introduction – Chapter I

Adopted June 2016 Page 10
CHAPTER 1: INTRODUCTORY ELEMENT
FERNDALE COMPREHENSIVE PLAN
OTHER DOCUMENTS

Washington State Growth Management Act

2014 Department of Ecology Stormwater Manual for Western Washington

Main Street Master Plan

Gateway Stormwater Plan

Whatcom County Comprehensive Plan

Whatcom County Draft Environmental Impact Statement

Ferndale Annexation Phasing Plan

Ferndale Parks, Recreation and Trails Master Plan

Water System Plan

Sewer System Plan

Regional Transportation System Plan

Whatcom County Fire District 7 Capital Facilities Plan

Countywide Planning Goals

City of Ferndale – Comprehensive Plan Introduction – Chapter I

Adopted June 2016 Page 11
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

Chapter II — Land Use

Contents
Purpose of the Land Use Element
Existing Land Use Patterns
Summary of Future Growth Projections LAND USE ELEMENT AT A GLANCE:
Introduction SUMMARY OF CONCLUSIONS
Background
Land Use Distribution in the Ferndale Urban
Growth Area • Ferndale is projected to grow by 6,833 people
Future Land Use Needs and 4,000 employees between 2013 and 2036.
Land Use Under the Comprehensive Plan • Residential densities within the City of Ferndale
Existing Zoning will increase above historic levels
Existing and Projected Deficiencies in Land Use • Lot clustering, multifamily development and
Patterns “infill” development will become more common
Environmental Challenges
District Planning Areas • Single family residential construction will
Land Use Goals and Policies, State Requirements continue to be the primary type of residential
construction in Ferndale.
PURPOSE OF THE LAND USE ELEMENT • The majority of single family growth will occur
within the northwest portions of the City, with
additional clusters of residential growth along
The Land Use Element is the heart of the city’s Portal Way and LaBounty Drive.
Comprehensive Plan. The Washington State Growth
Management Act states that the entire Comprehensive • Downtown Ferndale and the surrounding area
Plan shall be internally consistent, and that all elements will be the center of multifamily and mixed-use
shall be consistent with the Land Use Map. Additionally, development in the City, likely in the form of multi-
story buildings.
the GMA requires that planning efforts for regional
growth centers be consistent with the • Downtown Ferndale’s success will depend upon
Comprehensive Plan. Therefore, the GMA a combination of dense residential development,
puts the Land Use Element in the central role an attractive and pedestrian friendly environment,
of defining the direction of the Comprehensive a mix of business uses, cultural and civic
attractions or events.
Plan, and thereby defining the vision of the
community. • Commercial and retail development intended to
serve not only local residents but the surrounding
area will establish themselves in Ferndale, likely
Land is a vital and finite resource. Land drives
at and around freeway interchanges.
the economy of a city, and its use determines the city’s
character. Growth and land development carry • Non-retail development on surface streets
significant costs, not only to the developer or builder, but paralleling the interstate will continue to occur.
also to neighboring land users and the community as a
• Protection of the environment and sensitive
whole. Developed land is an ongoing financial
areas will reduce the development potential of
responsibility for the taxpaying public. Roads, water and certain properties within the city.
sewer, police, fire protection, and other services have

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 1
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
costs that must be considered when designating land for development. Because fiscal
resources, both public and private, are limited, it is important to consider the long-term
effects of land use. With careful planning, the substantial investment that is often
necessary to serve land is better secured and protected. LUE 1 illustrates the variety of
inputs that influence (and are influenced by) the Land Use Element. These inputs are
described within this Comprehensive Plan, either in this element or in other elements and
chapters.

The Land Use Element describes existing and historical land use decisions and
policies but focuses primarily on future growth and the land use policies and
decisions necessary to accommodate this growth. The Land Use Element of the
Comprehensive Plan provides a detailed overview of land uses in the City, identifies
appropriate and beneficial land uses, and establishes goals and policies related to land
use. It includes a map identifying the Urban Growth Area (UGA) showing land use
designations throughout
LUE 1: INPUTS TO LAND USE ELEMENT the UGA. The Urban
Growth Area includes
land both with the City
limits (the incorporated
UGA), and outside the
city limits (the
unincorporated UGA).

The Land Use Element

provides the means
for achieving and
maintaining a
desirable balance of
the use of land over a
long period of time.
Land use patterns
determine the character
of the City and the type
and location of future development. They determine where people will live, shop, work
and play, and contribute to the relative success or failure of these endeavors. They
determine traffic patterns and the ability to alter those patterns. They also affect the
natural environment and may have positive or negative consequences that are not
immediately evident. In short, the Land Use Element can direct and define the quality of
life in the City of Ferndale.

The Land Use Element focuses on long-term goals but remains flexible in order to
adapt to changes over time. While the City’s ability to directly influence changes is
substantial, other influences (State and Federal regulations, the overall economy, climate
change, demographic and market shifts) will also dictate future changes. A successful

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 2
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Land Use Element must balance and maintain reasonable goals and objectives while
remaining flexible enough to react to unanticipated changes or opportunities.

EXISTING LAND USE PATTERNS

The existing land use patterns in the City of Ferndale and surrounding area are greatly
influenced by the physical features that provide both opportunities and constraints for the
development of the area. The Nooksack River flows through the city dividing it along a
north-south orientation. Manmade features such as the Burlington Northern Santa Fe
Railroad and Interstate 5 further divide the city along a similar axis.

SUMMARY OF FUTURE GROWTH PROJECTIONS

Within the lengthy and multiple discussions contained in this element and the remainder
of the Comprehensive Plan, the essential issues to be addressed arise from the following
question:

In what way does the City intend to manage the new and existing population and employment that
will take place between now and 2036, and beyond?
The City of Ferndale and its Urban Growth Area are expected to grow from a 2013
population of 12,758 to 19,591 by 2036. This
LUE 2:
represents an increase of 6,833, or nearly 54% -
POPULATION GROWTH PROJECTIONS
and reflects an average annual growth rate of
approximately 1.9%.

Ferndale’s employment (including the

unincorporated Urban Growth Area) is expected
to grow from a 2013 total of 5,372 jobs to a 2036
total of up to 9,372 jobs, an annual growth rate of
3.2% that would increase the ratio of population to
employment from .42 jobs for every resident to .48
jobs for every resident.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 3
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

INTRODUCTION

Unlike a building project which has both a beginning and an end, a community is always
“in process” and never completed. In addition, those elected individuals who serve the
City and who are responsible for providing direction, are themselves constantly in change.
The primary function of the Comprehensive Plan in general, and the Land Use Element
in particular is to provide a measure of consistency to the constantly changing conditions
within the community.

In 1954, the U.S. Supreme Court, in an attempt to help clarify the appropriate role of local
government with respect to community planning noted:
"The values a community represents are spiritual as well as physical, aesthetic as
well as monetary. It is within the power of the legislature to determine that the
community be beautiful as well as healthy,
spacious as well as clean, well balanced as well Unlike a building project
as carefully patrolled." (Berman vs. Parker -
1954) which has both a beginning
Since the 1990 Washington State Growth Management and an end, a community is
Act, subsequent court decisions and an increasingly
complex society have expanded on these basic land always “in process” and
use concepts – and the role of local government in
general. As Figure 1 demonstrates, the mix of inputs
never completed.
into a successful land use strategy can sometimes be
daunting for a small jurisdiction. However, by carefully
crafting the comprehensive plan to consider these and other elements, the community
can have confidence that future land use – and the growth that it brings – will add to the
unique sense of place of the community.

These are the types of issues that are at the core of the current effort to update and
implement the Land Use Element of the City of Ferndale Comprehensive Plan.

Defining appropriate uses of land within the City of Ferndale UGA will facilitate long-term
decisions by individuals and businesses. Clear land use definitions minimize costs
associated with public services and preserve the qualities of life that make the area
special to its citizens.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 4
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

BACKGROUND

Continued growth and development is expected to profoundly alter the shape of the City
of Ferndale. When the 1996 Comprehensive Plan was drafted, the population of Ferndale
was approximately 6,830, and there were 2,514 housing units. In 2016, the population
had increased to 12,710, and there were 5,002 housing units. The population of the City
of Ferndale is expected to grow by 6,883 additional people, and up to 2,500 new housing
units will be added to the City’s inventory over the next 20 years, based on current
household size
LUE 3: URBAN GROWTH AREA TIMELINE
(approximately 2.58 persons
per household). This growth
is expected to occur within
the land area encompassed
by the City’s Urban Growth
Area, which is approximately
50% of the size of the original
UGA that was established in
1996.

The City’s future growth will

be denser than its historic
growth, and denser than what
was planned for in either the
1996 or 2005 Comprehensive
Plans. Future growth will be
located based on the City’s
Land Use Designations which
are defined by this element
and reflected in the
Comprehensive Land Use
Map of the City of Ferndale

The land use designations,

which define allowable uses
for each area of the City and
limits on the density of
development, are
implemented through the

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 5
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
City’s Zoning Ordinance, which is contained within the Ferndale Municipal Code. Zoning
classifications are more specific than land use designations, defining not only allowable
uses and densities, but also such physical restrictions as building height limits, setback
requirements and the process through which these requirements are reviewed and can
be achieved.

The Land Use element recognizes that growth provides both opportunities and
challenges, and that a balance must be struck where growth is directed to those areas
that cannot only support growth, but can flourish with it. Additionally, the expansion of
infrastructure must be balanced and well-planned in order to responsibly manage
taxpayer funds.

The Washington State Growth Management Act (GMA) requires that jurisdictions
establish comprehensive plans plan for growth within the next twenty years – in this case
to 2036. The majority of cities, including Ferndale, also adopt six-year capital facilities
plans which provide greater focus to projects and assumptions within the first few years
of the overall comprehensive plan.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 6
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

LAND USE DISTRIBUTION IN THE FERNDALE PLANNING AREA

Gross Land Area

In 2016, the City of Ferndale covered approximately 3,727 acres1, or 5.8 square miles;
an increase of 32% between 2005 and 2016. Unincorporated portions of the UGA contain
approximately 1,313 acres, or 2.0 square miles. The total amount of land in the Ferndale
Planning Area is 5,040 acres, or 7.9 square miles. Approximately 90% of the UGA abuts
the city to the west and northwest. Exhibit LUE-1 illustrates the relationship between the
incorporated city limits and the Ferndale Urban Growth Area. These lands, in addition to
vacant lands located within the existing city limits, are anticipated to provide adequate
area to accommodate anticipated future growth in the City over the 20-year planning
period of the Comprehensive Plan.

Exhibit LUE-4 illustrates the gross land supply contained within the Ferndale city limits
and the Ferndale UGA.

1
For the purposes of this discussion, this plan utilizes acreage estimates provided by Whatcom County through its
Land Capacity Analysis (LCA); these acreage estimates do not include existing right of way, the Nooksack River, or
Interstate Five, and therefore result in a reduced overall size assumption, compared to a calculation of the overall
geographic area of the Urban Growth Area.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 7
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
LUE 4: Gross and Buildable Land Supply2

2016 2016 2016 2005 2005 Analysis

City Unincorporated Total Analysis (Unincorporated
Limits Area (City) Area)

Gross Acres 3,727 1,313 5,040 3,447 3,238 acres

acres
5.8 2.0 miles2 7.9 5.1 miles2
miles2 miles2 5.4 miles2

Developed (2,302) (302) (2,604) -- --

Acres
Deduction

Critical (867) (590) (1,457) -- --

Areas and
Other
Deductions

Net 558 421 979 1,201 1,670

Developable
Acres

Percentage 15% 32% 19% 35% 52%

of
Developable (Overall 43%)
Acres

2
Source: Whatcom County Land Capacity Analysis (2016), City of Ferndale Comprehensive Plan 2005 Update
(2007).

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 8
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
LUE-5 FERNDALE CITY LIMITS AND UGA

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 9
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Buildable Land Area

The Land Capacity Analysis for Ferndale (June 2016) indicates that a total of 558 acres
within the incorporated city and 421 acres within the unincorporated UGA are available
for development. Overall, approximately 19% of land within the Ferndale UGA remains
buildable, with 32% of land within the unincorporated Urban Growth Area also considered
available for development. Exhibit LUE-6 illustrates, according to land use, the amount
of land available for development within the Ferndale city cimits and UGA. the amount of
land by land use designation that is available for development within the Ferndale city
limits and the UGA.

Since 2005, developable area and percentage of developable land has significantly
decreased. In 2005, it was estimated that approximately 35% of the land within the City
limits and 43% of the overall UGA could be developed. Those ratios have since been
reduced by more than half.

While the methodologies used in determining buildable land have been modified, both the
Buildable Lands Inventory in 2005 and the Land Capacity Analysis in 2016 were intended
to achieve similar objectives. Over the ten-year period between reviews, the City has
experienced significant development that has resulted in a decrease of developable land.
Meanwhile, the reduction of the UGA by Whatcom County eliminated hundreds of acres
that could have been developed.

Overall, the 2016 analysis still suggests that Ferndale’s UGA is sufficient to support
future growth projections over the 20-year planning period – and this is the deciding
factor in establishing growth boundaries. This determination is made through an analysis
of each land use classification, in order to determine overall capacity (land supply).

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 10
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Land Supply Analysis

An essential element of any land use planning program is an analysis of existing land
supply and a determination of future land use requirements. This information is
necessary to adequately assess the extent and direction of community growth and as an
aid in establishing utility construction and annexation policies.

LUE-6: LAND USE COMPOSITION The projection of future land use needs is
generally a function of
three factors: the
Land Use Composition*: City Limits number of new
1,400 residents, the density
1,200 at which new
Gross Acres

1,000 residential
800 development will
600
occur, and the extent
400
200 and projected type of
0 nonresidential
development. The
primary purpose of a
land use plan is to
show in a general way
the most appropriate
use of the land (i.e.,
housing, commerce,
industry, open space)
Land Use Composition*: and, in the instance of
residential use areas,
Unincorporated an indication of the
density (typically
900
800 expressed in dwelling
700 units per acre)
600 proposed for the area.
500
400
300
200
100
0
Commercial Industrial High Density Medium Low Density
Residential Density Residential
Residential

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 11
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Uncertainty with economic conditions, changes in housing or
shopping trends and other factors which affect growth make WHAT IF?
accurate projections of future population for the City
difficult. The City is required to establish
plans, including capital facilities and
However, despite the potential inaccuracy, such related infrastructure, which are
projections are necessary to provide a basis for necessary to support the future
future planning of such items as water growth that has been allocated by
supplies, sewer treatment capacity, parks, Whatcom County. In some cases,
streets, fire equipment, public buildings and significant infrastructure needs –
facilities, and similar activities that require new roads, an expanded sewer
significant lead times. Two primary sources of system, parks, and more – become
information utilized in this Comprehensive Plan necessary as a result of growth that
update are the population projections supplied by the is slightly more than what was
Washington State Office of Financial Management to each anticipated. In other situations,
county, which in turn allocates population growth to each city individual properties or districts may
within the county, and the Land Capacity Analysis, prepared develop at a more intensive level
for the City of Ferndale. The Land Use Element also needs than what was anticipated.
to consider and implement measures to ensure that the
quality of life is maintained and enhanced through a quality For example, the City’s projections
built environment, protection of the natural environment, and may anticipate that the average
accommodation of desired and appropriate uses, facilities development in the Downtown core
and services. will be three stories, even if taller
structures are allowed. If a six-
story residential structure was to be
built, it could effectively double the
population of that project – and
could trigger additional
requirements.

This plan seeks to proactively

address these additional growth
possibilities by assuming slightly
higher growth than was allocated
by Whatcom County. This
approach will allow the City to
forecast impacts and identify
projects in order to prevent or
reduce reactive modifications in the
future.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 12
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
FUTURE LAND USE NEEDS

Residential Lands

Residential land use consists of single-family and multifamily dwellings, including

condominiums, manufactured housing, foster care facilities, group quarters and
cooperative housing. Other land uses found within areas designated for residential use
include roadways, churches, parks and open space, planned unit developments and
undeveloped platted lands.
LUE -7 LAND CAPACITY ANALYSIS
PROCESS

Residential Land Supply

In order to estimate the amount of residential land

that will be necessary to support future growth, the
City and County first sought to determine a baseline
measurement, based on previous (achieved)
development. This baseline was arrived at through
completion of a Land Capacity Analysis (LCA),
which was used by Ferndale, Whatcom County,
and the other local jurisdictions.

While historic development trends in Ferndale

reflected low-density suburban development, the
Land Capacity Analysis was more forward-focused,
analyzing development data from the previous
decade to anticipate future development trends.

The LCA is a complete inventory of all lands

classified by zone, located both within the
incorporated city limits and within the
unincorporated Urban Growth Area. The zoning
data is then transferred to the respective land use
categories. Exhibit LUE-6 on page 10 illustrates the
amount of buildable land by land use category.

The LCA follows a process described by the

Washington State Department of Commerce,
where undevelopable or already-developed land is
removed from the gross land inventory, resulting in
a calculation of “developable” acres. LUE-7
illustrates this process.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 13
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 14
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
As with any future analysis, a number of assumptions are included in the LCA. For the
most part, these assumptions are based upon existing data contained within official City
maps (wetlands, critical areas), or relevant comprehensive plan chapters (Parks, Capital
Facilities, School District plans). After the combined area of vacant, underdeveloped and
redevelopable land in the UGA was calculated, the critical areas were deducted from that
total. As noted, the LCA concluded that approximately 19% of all land within the
UGA is considered buildable. More specifically, approximately 15% of the land
within the city limits is buildable, and 32% of the land located in the unincorporated
UGA is considered buildable.

Based on projected growth rates provided by the Washington State Office of Financial
Management (OFM), the population of Ferndale is expected to grow by 6,833 over the
next 20 years, and up to 2,500 additional housing units will be added to the city’s housing
inventory. All residential lands within the unincorporated Ferndale UGA are currently
identified for low density development. Within the City itself, approximately 45% of all
residential lands are identified for medium and high density residential development
(seven units or more per acre). Based on development at densities identified above, the
projected residential housing capacity of the buildable residential land within the Ferndale
city limits was estimated, and is shown Exhibit LUE-8.

Exhibit LUE-8
Residential Housing Capacity, Ferndale City Limits

Residential Land Net Developable Yield: Population Typical Dwelling Assumed Yield: Total
Category Acres Unit Type Population Per Dwelling Units
Unit
Low Density 22 251 Single Family 2.85 88
Residential (Four Detached
Units/Acre)
Medium Density 130 2,223 Single Family 2.85 780
Residential (6 Detached
Units/Acre)
High Density 35 970 Multifamily 2.31 420
Residential
(Twelve
Units/Acre)
TOTAL: 187 3,444 -- --- 1418
Source: Whatcom County Land Capacity Analysis 2016. The calculations within the LCA have been simplified and in some cases
combined for this chart.

Within the Ferndale city limits, the Land Capacity Analysis calculates that there is enough
capacity to accommodate over half (50.4%) of the projected 20-year housing demand.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 15
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Based on development at densities identified above, the projected residential housing
capacity of the buildable residential land within the unincorporated Ferndale UGA was
estimated, and is shown in Exhibit LUE-9.

Exhibit LUE-9
Residential Housing Capacity, Ferndale UGA

Residential Land Category Net Developable Yield: Typical Dwelling Unit Assumed Yield: Total
Acres Population Type Population Dwelling Units
Per Unit
Low Density Residential (Four 298 3,397 Single Family Detached 2.85 1192
Units/Acre)
TOTAL: 287 3,397 Single Family Detached 2.85 1192
Source: Whatcom County Land Capacity Analysis 2016. The calculations within the LCA have been simplified and in some cases
combined for this chart.

The capacity estimates support the conclusion that Ferndale has enough residential land
in its UGA to accommodate projected population growth over the next 20 years. With
non-conforming units deducted, the City and the unincorporated UGA have a combined
growth capacity of 6,542, or 291 people less than Whatcom County’s overall population
allocation for Ferndale.

The City does not expect that this small theoretical land deficit will actually occur during
the planning period, as this 2016 update to the comprehensive plan, together with recent
changes to the Ferndale Municipal Code create the potential for additional infill activities
and additional density in certain locations. Should the effect of these regulatory changes
not materialize through subsequent development, this land use element will be re-
evaluated.

While the previous section analyzed the City’s theoretical land capacity at a city-wide
level, the impacts of future growth will be experienced most directly on a much smaller
scale. The majority of future growth within the existing City limits will not be on the
periphery of the City, but rather on lands adjacent to existing development – and
sometimes on properties that have already been partially developed. In addition,
properties that may not have previously been considered for development due to site
constraints, development costs, or owner choice may return to the market.

The distribution of residential growth is particularly important, as that distribution will

inform decisions on where to locate attendance boundaries, recreational activities,
infrastructure and roads, businesses, and more.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 16
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Land Use Exhibit 10 reflects the City’s projections for future growth, by district. It is
important to note that the potential employment growth shown in this exhibit reflects the
growth identified within the Main Street Master Plan, a planning document that has been
adopted by the City which projects the maximum buildout of District 7. The City has
elected to run scenario tests on future growth in order to determine if certain transportation
or capital facilities projects become necessary due to more intensive or more rapid growth
than what has been allocated by Whatcom County, but this analysis should not be
misconstrued as an effort to plan for more growth than has been allocated.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 17
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

EXISTING AND POTENTIAL FUTURE LAND USE BY DISTRICT

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 18
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
also consists of a number of employment types (part-time employment, temporary
employment, shift work, etc.).

The County’s allocation of 4,000 new employees compared to 6,833 new people equates
to a jobs-to-population ratio of .48, which is above the existing ratio of .41. This ratio is
an important indicator of the City’s ability to sustain itself and has significant implications
for quality of life, cost of living and numerous
BEHIND THE NUMBERS
other factors. Figure Y compares Ferndale’s
While jobs-to-population ratios provide some jobs-to-population ratio to that in nearby cities.
indication of intra-city dynamics, they do not While the City’s existing jobs-to-population ratio
tell the full story. A retail-oriented city may is not extreme, it is significantly lower than
have a very high jobs to population ratio by many other jurisdictions and reflects a
virtue of a large number of relatively low- community which loses potential
paying jobs. In contrast, a city with a employees to other areas. It is
concentration of high-paying jobs in a important to note that
approximately 30% of Ferndale’s
corporate campus setting may feel virtually
population is above retirement
deserted on evenings and weekends. age (approximately 10% older
than 70), or has not yet entered the
Ferndale’s task is to ensure not only that there workforce (approximately 20% of the
is adequate physical space for the projected City’s 2013 population is less than 17
employment allocation, but that the City has years old). When these populations are
planned for a mix of employment types. This removed from the total calculation, the City has
analysis begins with Commercial Land Uses. an existing jobs-to-population ratio of .59. Even
when normal unemployment and at-home
residents are factored in, Ferndale does not
currently provide sufficient employment
opportunities for its population.

Unlike residential growth, where future overall densities can be projected with a relatively
high degree of accuracy based on land use and zoning allowances, employment growth
may vary significantly based on the type and intensity of development. For that reason,
the City has analyzed future impacts based on both Whatcom County’s allocation of 4,000
new employees, but has also analyzed significantly more intense growth in a variety of
areas. This additional analysis provides the City with the ability to project growth beyond
the twenty-year period (up to near maximum build-out), and to determine those capital
facilities projects that may be necessary, should growth occur more rapidly than is
anticipated.

Commercial Lands

Commercial land uses support the daily retail and service needs of the region and
community and can provide a basis for local employment. There are several commercial
land use zones that have been designated to accommodate various commercial uses

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 19
 CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
and districts. These zones are consistent with the Commercial Comprehensive Plan
designation and are located on the Official Zoning Map available at City Hall in Title 18 of
the Ferndale Municipal Code, and on the City’s website.

While the decision to locate a specific business is in the hands of the private sector,
the City plays a vital role in establishing the infrastructure, use and design
requirements to ensure the widest benefit.

For example, some commercial uses may depend on convenience to transportation

corridors and consumer traffic (motorized and/or pedestrian), while others depend on
relative isolation. Some may flourish in a mixed-use setting in close proximity to
residential areas while others may wish to co-locate with similar uses. Still other uses
may combine both industrial and commercial uses at one location.

Beyond identifying geographic areas in which commercial uses may be established, it is

also important to recognize the land needs of these developments, which may also vary
significantly. Commercial uses, particularly office space and dining, generally utilize land

S more densely than industrial uses employing the same number of people. As a result
there is the potential for commercial uses to employ more people than industrial

uses while taking up less space. By strategically locating these commercial areas
throughout the City, it is much more likely that the overall supply of different commercial
use properties will match up with the demand.

Industrial Lands

The City's proximity to the major transportation routes of Interstate 5 and the Burlington
Northern Santa Fe Railroad, the international border, Cherry Point Industrial area and
Bellingham International Airport, as well as the affordability and availability of
undeveloped land makes Ferndale a convenient location for industrial uses. Industrial
uses often include the manufacture or conversion of products prior to sale to the public
or other processors. In some cases, industrial users may accept those products at the
end of their useful life for recycling or disposal. Frequently businesses may consolidate
a variety of industrial and commercial functions at one location.

As of 2016, there were an estimated 372 acres of developable commercial or

industrial land within the City Limits and an additional 123 acres of developable
land within the unincorporated Urban Growth Area. It should be noted that both of
these totals aggregate all developable land into one calculation, and that in some cases
land identified as developable is constrained by other environmental factors onsite.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 20
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Commercial and Industrial Land Supply

The Growth Management Act mandates that cities and counties look at future population
growth to determine the need for land to accommodate future growth and development.
Primarily, that focus is on determining residential land supply since it can be directly
related to the increase in population.

It is also necessary for cities to have adequate lands to accommodate commercial and
industrial growth. Unfortunately, estimating how much commercial and industrial land a
community needs is not as clear-cut as residential land analysis.

In general, commercial land uses tend to gravitate towards one another, often creating
commercial centers that draw customers from a wider geographic region. The presence
or absence of a commercial center may dictate the amount of land necessary to serve
future commercial growth – and may vary substantially between cities of equal size.

Both the 1996 and 2005 Comprehensive Plans suggested that the City’s inventory of
commercial and industrial land was inadequate. Since that time the City’s inventory of
land has been further reduced due to development, the removal of lands from the UGA,
and more-restrictive environmental protections. These factors, in addition to the
acquisition of land for development purposes by the Lummi Nation south of Slater Road,
resulted in the expansion of the Urban Growth Area at
In order to plan for the next twenty the northeast quadrant of Slater Road and Interstate
years the 2016 plan cannot rely Five.
exclusively on current or historic
trends to project development in As described above, the amount of land necessary for
2036. future industrial and commercial development can vary
substantially, and the City cannot rely on historic trends
to dictate the magnitude or type of future development. For example, the 1996
Comprehensive Plan Update was written in an era when regional malls were beginning
to be supplanted by large-format retail stores, or “big box” stores. The 2005 plan was
written prior to the 2008-2010 economic recession, and prior to the decline of some brick
and mortar stores, or the dramatic increase in internet sales. If each of the two preceding
plans were written to reflect current development trends, they were both outdated within
five years of their adoption.

A growth projection based only on historic shares of commercial and industrial growth
would indicate that Ferndale will not need additional commercial or industrial lands within
the twenty-year planning period. However, in order to plan for the next twenty years the
2016 plan cannot rely exclusively on current or historic trends to project development in
2036. Instead, the City must look to the supply of desirable land in other jurisdictions
(and Canada), the relative costs of land and development in Ferndale compared to other
jurisdictions, the fact that Ferndale’s growth may make it capable of supporting larger or
different business types, and more. These trends are discussed in more depth within the
Economic Development Element of this plan. In addition, the plan cannot rely simply on

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 21
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
internal mathematical calculations to determine the location of future growth as trends
experienced or initiated by other agencies may play a primary role in not only the size but
the location of future growth within the City.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 22
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

LAND USE UNDER THE COMPREHENSIVE PLAN

As noted previously, the Land Use Element is required to not only address size
requirements for future population and employment growth (which is ultimately the role of
Whatcom County), but to determine the appropriate location for that growth within cities
– which is the role of the cities themselves. Beyond simple mathematical calculations to
determine capacity, the Land Use Element also seeks to ensure that land uses are
oriented in a manner that promotes physical activity, protects sensitive areas and the
environment, fosters economic development, results in a logical extension of services,
promotes historic preservation, enlivens art and culture, and protects public safety.

The traditional approach to land use regulation that was limited to the segregation of uses
does not address many of these elements: comprehensive plans that separate uses from
one another force residents to use cars to get from one place to another, thereby reducing
physical activity; plans that eliminate residential uses from Downtown cores tend to
inadvertently eliminate arts, culture, dining and entertainment from those areas as well.
However, this does not mean that each part of the City should include a wide range of
uses: a homogeneous community is just as unsustainable as a community that splits
uses into rigid categories.

Land Use Exhibit 13 is the official land use map of the City of Ferndale.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 23
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

LUE 13: FERNDALE COMPREHENSIVE PLAN LAND USE MAP

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 24
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Land Use Distribution: Land use designations identified in the Plan are as follows, and
as shown LUE 14:

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 25
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

 Commercial —This category includes a variety of retail, wholesale and office

uses. Depending on the specific district in which this designation is applied, the
Commercial land use designation may also be combined with residential or
industrial uses to establish “mixed-use” zones. The scale, form, and type of uses
allowed in this designation will also vary by district and zone.

 Industrial — This category includes a variety of light and heavy industrial,

assembly, warehousing, distribution and manufacturing land uses. It also includes
uses devoted to the sale of retail and wholesale products manufactured on the
site.

 Low Density Residential — The low density residential category includes single-
family residential uses that range in density from three to seven dwelling units per
net acre, with an average density of 4 units per net acre. The low density
residential designation is further delineated into several zoning districts which
provide the ability to develop at a wide range of densities and maintain a suitable
living environment for low density single family residential uses.

LUE 15: PROJECTED RESIDENTIAL DENSITY RANGES

RESIDENTIAL DENSITY ASSUMED PRIMARY

LAND USE RANGE PER AVERAGE HOUSING
DESIGNATION NET ACRE DENSITY PER NET TYPES
(UNITS) ACRE (UNITS)

LOW DENSITY 3-7 4 SINGLE FAMILY

DETACHED

MEDIUM 4-9 7 SINGLE FAMILY

DENSITY DETACHED,
RANGING TO
MIXED-DENSITIES
AND LIMITED
MULTI-FAMILY

HIGH DENSITY 8 OR MORE 12 MULTI-FAMILY

 Medium Density Residential — The medium density residential category

includes single-family and multi-family residential uses that range in density from
four to nine dwelling units per net acre. Land consumption calculations utilized in
this document assume development at an average density of 7 units per gross
acre. The medium density designation is intended to provide for multi-family living
to ensure that opportunities to obtain reasonable-cost housing exist for community
residents. Primary uses include multi-family housing of various types including

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 26
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
duplexes, townhouses, condominiums, apartments, etc. Secondary uses can
include single-family dwellings, adult family homes, day care, private educational
facilities, utilities subject to compatibility criteria, churches and religious
institutions, convalescent care and rest homes, limited office/professional
buildings, and manufactured home subdivisions.

 High Density Residential — The high density residential category includes single
and multi-family residential uses that exceed twelve dwelling units per gross acre.
Land consumption calculations utilized in this document assume development at
an average density of 12 units per gross acre. This land use category is
designed to provide a wide range of housing choices in areas with existing and
planned infrastructure, and to allow for infill development and the reduction of
sprawl. Primary uses include multi-family housing of various and moderate density
residential developments, with adult family homes, churches and religious
institutions, convalescent care and rest homes, day care, and private educational
facilities possible in the area, subject to additional compatibility criteria.

 Flood Reserve Area — This category includes certain lands subject to frequent
inundation by flooding and includes lands that are designated as “floodway” by the
Federal Emergency Management Agency (FEMA) and such contiguous areas
found by the City Council to warrant protection from habitable development.

 Public Use – This category includes public or quasi-public land uses that provide
essential services and recreation opportunities to the general public. . The Public
land use designation applies to public facilities such as schools, municipal
buildings, infrastructure such as regional stormwater ponds or wetland mitigation
areas, parks, trails, and a variety of other publicly-owned structures or
developments.

 Public Facilities – includes existing or planned public or quasi-public land

uses

EXISTING ZONING

The city zoning regulations have established and expanded land use trends in the
community. Zoning regulations are established based on the broader requirements of
the Comprehensive Plan, and must be consistent with the Comprehensive Plan. Title 18
of the Ferndale Municipal Code includes the text of all zoning within the City, and the
Official Zoning Map shows the location of these zoning designations. In some cases, the
City may add additional zoning overlays or design standards to further modify zoning
regulations in different subareas. These regulations, in combination with the City’s
environmental standards (Ferndale Municipal Code Title 16 as well as the Shoreline
Master Program) are the City’s primary land use controls.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 27
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Within the Ferndale Urban Growth Area

 The Annexation Blueprint, or phasing plan, describes key features of the

unincorporated Urban Growth Area and is adopted by reference to this element.
The Whatcom County Comprehensive Plan and Official Zoning Map is another
resource for additional information.

EXISTING AND PROJECTED DEFICIENCIES IN LAND USE PATTERNS

No existing deficiencies in land use patterns were identified because the City of Ferndale
has adequate capacity to accommodate projected growth within the existing UGA. Land
use goals and policies in the Comprehensive Plan will help reduce the potential for impact
from changes in the City’s land use and development pattern.

This does not mean that future growth in Ferndale will not have its difficulties. Access to
resources such as water (via water rights) will become limited in the future. The
availability of prime building sites that do not have environmental constraints will also be
reduced.

The demographics of the City will also change. Citizens of Ferndale will live longer and
the elderly will require places to live and services to support them. More citizens will live
in multi-family developments or non-traditional dwelling units – and these changes will
alter the manner in which services are delivered.

Climate fluctuations, either as part of overall climate change or pronounced seasonal

shifts will also inform future land use decisions. New technologies may shift the way that
citizens live, shop, work, and travel.

Ultimately, the Comprehensive Plan and this Land Use Element specifically are simply
the City’s best guesses for the future. This element has been designed to clarify the
City’s perspective at the time of adoption without constraining the ability of future decision
makers to make the best long-range decisions possible, based on the information
available at that time.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 28
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
ENVIRONMENTAL CHALLENGES

The physical characteristics of the

area provide both opportunities and
constraints to development.
Ferndale’s geography is very diverse
and significantly influences the value
(and cost) of development of all
kinds. The Growth Management
Act’s emphasis on infill development
and the establishment of urban
densities results in the development
of parcels that may have
environmental constraints.
Meanwhile, the GMA requires that
many of these environmentally
sensitive areas are preserved,
protected – or that unavoidable
impacts are mitigated.

Added to these environmental and economic pressures is a social component: natural

areas are an important part of communities. Successful cities do not isolate themselves
from the natural environment, but rather integrate natural processes into the built
environment.

One of the first growth management planning activities undertaken by the City was an
inventory of critical areas and the constraints they place on development. The constraints
to development identified were classified as wetlands, flood plains, stream corridors,
aquifer recharge areas, seismic areas, and areas of landslide hazards. Exhibits LUE 10
thru LUE 16 identify generalized locations of these areas that are presently known.

Growth and development activities impact the environment. Population and employment
will increase over time, and additional population growth will increase the demand for
housing. Secondary indirect impacts of growth would likely include potential
encroachment near natural environmental resources, increases in demand for facilities,
infrastructure, and cause other effects. The level of environmental analysis is
programmatic in nature, focusing on potential impact resulting from Plan implementation.
Additional environmental review of future development activities will be handled project-
by-project as the City receives development applications.

Some measures taken by the City of Ferndale to address environmental issues are briefly
described, below.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 29
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Critical Areas

The City’s Critical Areas Ordinance (Title 16 of the Ferndale Municipal Code) contains
standards, guidelines, criteria and requirements used to identify,
analyze and mitigate probable impacts on the City’s critical BEHIND THE NUMBERS
areas, and to enhance and restore those areas when
possible for the purpose of maintaining and enhancing Many of these environmental
the area’s ecological functions in appropriate constraints are relatively static
circumstances, impacts on critical areas resulting and not subject to significant
from regulated activities may be minimized, deviation; wetlands are
rectified, reduced, or compensated for, somewhat different. The City
consistent with the requirements of the ordinance. retains probable wetlands areas
that are approximately 10 years
As part of these regulatory requirements the City old. In 2013, the City re-
has also identified several locations within the City
evaluated the areas with its
where ecological functions have been degraded –
wetland consultant and
resulting in the loss of important habitats or habitat connections.
In certain circumstances, the City seeks to restore and enhance determined that the areas
these areas by using private and public funding sources, re- identified as probable in 2005
directing off-site mitigation to these areas, and combining have not changed dramatically.
wetland enhancement with low-impact stormwater mitigation and park/trail space.
Enhancement areas include the Schell Marsh area southwest of Downtown Ferndale
(District 6), the Schell Creek corridor within District 5, California Creek (District 1), the
Nooksack River Shoreline (District 7), and Tennant Lake wetland areas associated with
District 8.

Shoreline Management
The Shoreline Management Act requires the development of a Shoreline Master Plan
(SMP) and gives local government primary authority over shoreline development within
their jurisdiction. The primary purpose of the Ferndale Shoreline Management Program
(Title 3) is to protect and sustain the limited shoreline resources for the enjoyment of
Ferndale citizens and visitors.
The SMP establishes additional regulations beyond those found in the Ferndale Municipal
Code. Typically, these regulations limit the type or extent of land uses that are allowed
within the shoreline jurisdiction and add an additional regulatory review that provides for
the ability for the public and other agencies to comment on proposed actions.
Fish and Wildlife Habitat Conservation Areas
The City takes its obligations to plan for, and to protect fish and wildlife habitat
conservation areas seriously. The City’s Critical Areas Ordinance is intended as a tool to
ensure that habitat is identified and protected as appropriate. However, as habitat is not
constrained to artificial political boundaries such as the city limits, it is necessary for the

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 30
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
City to work with a variety of other agencies – state, local, tribal, federal – to identify
existing, potential, and historic habitat areas and corridors, and identify solutions to
protect them.
In addition, the City has the continuing obligation to ensure that new development does
not further constrain habitat and fish corridors. The maintenance of existing infrastructure
must also continue, in order to avoid inadvertent blockages of fish and other habitat
passages.
Finally, the City does not seek to protect the habitat of certain invasive species, especially
when those species tend to overwhelm other species, or expand territory in a manner that
prevents the reasonable use of existing properties.

Stormwater Runoff and Erosion Control

Stormwater is water that originates from precipitation (rain or snow). While the majority
of stormwater on undeveloped sites infiltrates (soaks) into the soil, in developed areas
or after periods of higher-than-normal precipitation, stormwater runoff can occur.
Stormwater runoff may result in erosion to properties and may contribute to property or
environmental damage. In developed areas, stormwater often mixes with exposed
soils, oil, gas, or other pollutants left on roads or driveways, and may contaminate
surface waters such as lakes and streams – resulting in serious environmental damage.

The Washington State Department of Ecology is responsible for regulating stormwater

runoff and the state has developed regulations wherein local jurisdictions are
responsible for the day-to-day administration of these regulations.

The City of Ferndale manages stormwater runoff and erosion control through the
Department of Ecology’s Western Washington Phase II Municipal Stormwater Permit.
The Permit mandates that City staff update the Stormwater Management Program
annually and enforce water quality (Water Quality – Prohibited Discharges, FMC 13.35)
and stormwater drainage (Stormwater Control Ordinance, FMC 13.34) regulations. The
City of Ferndale has adopted the Department of Ecology’s Stormwater Management
Manual for Western Washington and the Puget Sound Partnerships Low Impact
Development Technical Guidance Manual as the technical manuals with which
development must comply. Stormwater infrastructure is addressed within Chapter VI,
the Capital Facilities Element.

Floodplain Management
Portions of the City of Ferndale are within the 100-Year Floodplain of the Nooksack River,
including significant portions of Downtown Ferndale. Although properties within the
floodplain are still permitted to develop, costs associated with raising or flood-proofing
structures may in some cases reduce the overall development potential.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 31
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
The City has established policies to protect both property and endangered species within
the floodplain in accordance with a Biological Opinion issued by the National Marine
Fisheries Service. Ferndale further recognizes the importance of expanding its outreach
beyond minimum regulatory standards and in 2014 joined the Community Rating System
(CRS), thereby reducing flood insurance premiums within the floodplain.
Uncertainties related to floodplain modeling, the natural changes to the Nooksack River
basin, the impact of climate change, the consequences of upstream development and
more will all have impacts on floodplain management over the next twenty years and
beyond. As a result, new development within the established floodplain will be required
to adhere to more-restrictive standards in order to protect the community and promote
environmental consciousness. These changes may influence the Land Use Element by
placing greater emphasis on development which expands the Downtown core to the north
and west, away from flood-related impacts.

Environmental Inventory
The Growth Management Act requires that the City conduct an inventory of a series of
environmental elements that must be considered both when reviewing individual
development proposals as well as establishing long-range planning policies. These
elements range from a general inventory of wetland locations that are used to inform
overall growth capacity as well as the application of the Critical Areas Ordinance to
consideration of the potential impacts of tsunami floodwaters and protected aquifers.
These maps are provided below and are incorporated into the City’s online Geographic
Information Systems (GIS) database. These maps are intended only to provide a general
depiction of environmental elements and should not be used in place of site-specific
analysis.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 32
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

City of Ferndale

Comprehensive Plan
June 2016 Update
City of Ferndale – Comprehensive Plan Land Use – Chapter II
June, 2016 Page 33
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

City of Ferndale

City of Ferndale – Comprehensive Plan Land UsePlan

Comprehensive – Chapter II
June, 2016 June 2016 Update Page 34
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 35
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 36
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

City of Ferndale

Exhibit LUE 20
-
Comprehensive Plan
June 2016 Update

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 37
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

City of Ferndale

Comprehensive Plan
June 2016 Update

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 38
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

City of Ferndale

Comprehensive Plan
June 2016 Update

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 39
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
District Planning Areas

The district, or sub-area planning process, is an integral part of Growth Management Act
(GMA) planning. A sub-area plan is a special study of an area within a larger planning
jurisdiction. The sub-area is usually a district, an unincorporated urban area, or some
other area that has special needs due to growth pressures. A sub-area plan is usually
part of the comprehensive plan of a jurisdiction. It could also be a plan adopted by
multiple jurisdictions as a guide for dealing with future growth in the sub-area. Sub-area
plans provide details on types and locations of land uses planned for district areas and
urban centers, provide opportunities for a variety of residential densities, coordinate
infrastructure improvements with planned uses and centers, and identify and preserve
natural features, open space and critical areas.

Ferndale has identified eight districts within the City limits and unincorporated
Urban Growth Area. Each district may contain several sub-districts and/or a mix of uses.
Due in part to Ferndale's relatively small size as well as school boundaries that have
changed substantially over time, it is somewhat impractical to split the City into traditional
neighborhoods with markedly different characteristics, for planning purposes. This does
not suggest that these neighborhoods cannot establish themselves or that community-
based planning cannot continue to thrive in Ferndale - and a number of goals and policies
have been established to support these efforts.

The absence of traditional neighborhood boundaries may actually provide several

advantages to community planning in Ferndale. This comprehensive plan does not intend
to suggest that the districts identified in the plan are the only - or even necessarily the
most meaningful - way of defining districts. Instead, this plan seeks to explore the
elements that tie these districts together as well as the elements that may link multiple
districts - environmentally, socially, historically, and through shared infrastructure.

The following images depict existing and projected future population and employment
density in each district, followed by an area-by-area description of each district.
Population growth is generally shown based on future single family residential growth
densities (persons per household) of 2.48 persons per household, which is generally less
than existing single family populations, but greater than multifamily or hybrid single family
development.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 40
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 41
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

District 1 (Grandview):
Location and General Description: District 1 is the northernmost of the eight planning
districts and includes properties on both the north and south sides of Grandview Road.
While there are a number of existing single family residences that would not be allowed
under current zoning, future development will be predominantly commercial and
industrial, and employment is expected to increase from a 2016 employment population
of approximately 600 to a 2036 employment population of over 1,100. The area’s
proximity to Interstate Five, the Burlington Northern Railroad and the Cherry Point
Industrial area – as well as existing industrial development – make it an ideal location for
development that depends on access to transportation and shipping. Large properties
directly adjacent to Interstate Five may support significant commercial and retail
development, while surrounding properties are more likely to support industrial and
business uses.

District Area Size: 768.27 Acres

Subareas Within District: See City of Ferndale Annexation Phasing Plan

Additional Reference Documents: City of Ferndale Annexation Blueprint/ Phasing Plan

History and Additional Notes: The history of development within District 1 is closely
connected to the history of Interstate 5. The Grandview Business Center, bordered by
Portal Way and I-5, was originally utilized as fill extraction pits and sand supply for road
base materials during the construction of Interstate Five. The Grandview Business
Center was first established with one 10,000 square foot building in 1993, and has since

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 42
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
expanded to over 250,000 square feet in 21 buildings. Located on the opposite side of
Portal way, is the Grandview Light Industrial Park (established in 1992). Similar to
surrounding areas, this area was historically composed of a mixture of single family
residential, agricultural, and vacant uses until construction of Interstate Five, and later,
the construction of heavy industries at Cherry Point. In 1979, the Northeast Grandview
subarea was zoned by Whatcom County as a Contract Zone District, which allowed for
large-scale commercial/ industrial development projects.

The area North of Grandview Road and East of I-5 was included in the first Ferndale
Urban Growth Area established by Whatcom County in 1997. At that time, the properties
were vacant fields that were used for hay, rather than agricultural purposes. In 2004, the
I-5 Industrial Park General and Specific Binding Site Plan was recorded, and subsequent
commercial/light industrial development has followed. Just south of this area is the
Southwest Grandview annexation area which was historically used for farming and
agriculture. In 1971 the Fairfield Mobile Home Park was established, however many
barns and farm structures still remain in the area.

The Southeast Grandview annexation area was originally composed of single family
residences and farm land. After being zoned for light industrial uses, the area has seen
the development of several buildings, but still maintains significant horse pasture.

Properties located in the Delta Line Annexation area, located east of Delta Line Road,
have historically been associated with agricultural uses prevalent in the Custer Valley.
The hedgerows at and around drainage lines and California Creek bear evidence of these
historic uses. In 2004 the Delta Tech Industrial Park Binding Site Plan was approved,
establishing twenty-four lots as well as onsite septic, stormwater, and a private well. Since
that time approximately 1/3 of the lots have been further developed.

Current Land Use Designations: Industrial, Commercial

Natural Features: There are several mid to large probable wetland areas North of
Interstate Five and Grandview Road. A stream runs through the district between Vista
Drive and Interstate Five. District 1 is generally very flat with no notable areas that
exceed a slope greater than 20%.

Watershed: The area represents the eastern headwaters of California Creek, which
ultimately drains to Drayton Harbor, a protected shellfish area. Portions of California
Creek have historically been used by native salmonoid species.

Existing Utilities: As of 2016, facilities (water, sewer, storm) have not been extended to
the area and will likely be necessary in order for major new development to occur. The
City’s Capital Facilities Element includes plans to extend infrastructure to this area.

Stormwater Basin: California Creek Basin

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 43
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Bus Routes: (and roads) Notable roads running through District 1 are Portal Way and
Interstate 5, as well as State Route 548 which runs East to West through the district.
There are 4 transit strops in the district which are all along the 70X route. The 70X route
is a weekday commute-hour-only route from Blaine to downtown Bellingham, with
Ferndale as an important stop. The 70X runs up Enterprise Road to Grandview, with
three stops off of State Route 548 and continues north up Interstate 5.

Publicly Owned Parcels: There are no publically owned parcels in District 1.

Growth Forecast

Current Population Forecast Current Forecast

Population Employment Employment
(Growth)
(Growth)

356 383 (27) 746 1,833 (1,087)

Anticipated Type/ Scale of Uses: Commercial and Industrial, with the ability to serve
both local and regional demand.

Obstacles/ Improvements Necessary to Accommodate Future Development:

The extension of public utilities, including water, sewer and adequate fire flow is a
prerequisite for significant additional development within this district. City services are a
significant distance from the Grandview area, and owners of properties that have already
been developed have not expressed substantial desire in participating in costs to extend
services.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 44
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

District 2 (Mountain View):

District 2 includes properties outside of the City limits, with the majority of land within the
City’s Urban Growth Area Reserve. These properties are expected to be developed with
residential uses. A more comprehensive analysis of these properties is contained within
the City’s Annexation Blueprint. As many of the properties will not be annexed into the
City by 2036, only a moderate increase in households is expected during the planning
period. Unlike the other districts identified in the City, properties in District 2 are not
contiguous to one another. This District is included in this plan for informational purposes
only, as the City is not under obligation to plan for future growth in this area until it is
converted from Reserve to Urban Growth Area status.

District Area Size: 235.55 Acres

Subareas Within District: See City of Ferndale Annexation Phasing Plan

Additional Reference Documents: City of Ferndale Annexation Blueprint/ Phasing Plan

History and Additional Notes: The Mountain View subarea had previously been
included within the City’s Urban Growth Area until it was removed by Whatcom County in
2011. Located at the North end of Storr Road is the Nubgaard Road annexation area,
located within the City’s Urban Growth Area. The Nubgaard neighborhood was
established in the early 1970’s, and is composed of relatively large-lot single family
residences. Properties within the area east of Storr Road have been developed to a much
greater extent than properties to the west.

Current Land Use Designations: Low Density Residential

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 45
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Natural Features: Probable wetland areas are scattered throughout District 2, north of
Mountain View Road. These areas are small in size with low connectivity. Probable
wetlands are also located immediately north of Douglas Road, but none have been
identified immediately south of Main Street. Topography is varied with some slopes
steeper than 20% located in the upper portion of District 2 that is north of Mountain View
Road, and some slopes that are steeper than 20% located in the central portion of District
2 south of Main Street. A small stream runs through the northern portion of District 2,
north of Mountain View Road.

Watershed: Nooksack River-Frontal Bellingham Bay

Existing Utilities: No City utilities are currently available in the area, and will not become
available until annexation occurs.

Stormwater Basin: Nubgaard Basin

Bus Routes: Mountain View Road runs through District 2 and separates the northern
and southern portions of the district. Though there is no bus route that directly serves the
district, Route 27 has a transit stop near the junction of Main Street and Church Road,
which is near the northeast corner of the lower portion of District 2. Route 27 is the primary
route connecting Ferndale and Bellingham (Cordata Station). It operates once an hour
weekdays and Saturdays and serves the WTA park & ride along with downtown Ferndale,
Church Road, Thornton Road and Vista Drive.

Publicly Owned Parcels: There are no publically owned parcels located in District 2.

Growth Forecast

Current Population Forecast Current Forecast

Population Employment Employment
(Growth)
(Growth)

302 375 (73) 51 51 (0)

Anticipated Type/ Scale of Uses: Low to mid density single family residential (Nubgaard
Road and mid-Church Road areas only).

Obstacles/ Improvements Necessary to Accommodate Future Development:

The extension of public utilities, including water, sewer and adequate fire flow is a
prerequisite for significant additional development within this district. Due to the fact that

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 46
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
those areas of District 2 that are within the Urban Growth Area are separated from one
another and are adjacent to larger areas of land that are not subject to the City’s twenty-
year plan, future development and annexation may have additional challenges.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 47
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

District 3 (Brown Road):

District 3 represents the majority of the City’s residential unincorporated Urban Growth
Area and UGA Reserve. District 3 is assumed to provide the majority of new single family
residential development in the City once the inventory of existing single family residential
land within the existing city limits is diminished. The district is expected to grow by nearly
200 households (500 people) by 2036, but will likely not be fully developed by the end of
the planning period. That area within the Urban Growth Area Reserve is not subject to
City regulations, and no City growth is anticipated in this area prior to 2036.

With a potential for over 10,000 combined people (new growth plus existing) in this district
and District 5, to the
south, it may be
appropriate to increase
the variety of land uses in
this area in order to create
distinct centers of activity
within the district. As per
the City’s Parks,
Recreation and Trails
Plan, a Community Park
will be established within
the center of District 3
within the next twenty
years. It may be
appropriate to combine
commercial uses serving the surrounding district with this park area.

District Area Size: 789.46 Acres

Subareas Within District: See City of Ferndale Annexation Phasing Plan

Additional Reference Documents: City of Ferndale Annexation Blueprint/ Phasing Plan

History and Additional Notes: Properties along Malloy Road had historically remained
undeveloped until existing residences were established. Along Vista Drive, several
properties were utilized as small-scale farm operations. Relatively substantial residential
development occurred in the 1980’s and 1990’s, but slowed significantly following the
establishment of the Urban Growth Area in the late 1990’s.

The North Malloy Annexation area, north of the intersection of Brown Road and Malloy,
has gradually become more developed over time, but due to limitations on development
within the Urban Growth Area, the annexation area has now likely been fully developed.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 48
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
The Central Malloy Annexation area was originally zoned as Suburban Five Acre
Farming. The creation of the Ferndale Urban Growth Area in the mid-1990s preserved
this intent by establishing one unit per five acre allowances without public water and
sewer. These provisions have resulted in the further parcelization of the area, although
historically only the northern sections were utilized for agricultural purposes.

Current Land Use Designations: Low Density Residential

Natural Features: A small stream runs parallel to Brown Road and Aldergrove Road in
the center of District 3. Another stream is located in the Southern Portion of District 3.
Probable wetlands are scattered throughout the district, most are small with little
connectivity, and the largest of these are located in the southern portion of the district
along the streams. Terrain in District 3 is somewhat varied but in general is comprised of
low rolling hills and fields. The southern and northern portions of district 3 have some
areas with slopes greater than 20%.

Watershed: Wiser Lake Creek-Nooksack River, Dakota Creek-Frontal Drayton Harbor

Existing Utilities: No City utilities are currently available in the area, and will not become
available until annexation occurs.

Stormwater Basin: California Creek, North Whiskey Creek, South Whiskey Creek, and
Cedar Creek Basins.

Bus Routes: Notable roads that run east-west through district 3 are Brown Road, and
Aldergrove Road. Vista Drive runs north-south through the district. The district’s western
boundary is defined by Church Road, and its eastern boundary is defined by Malloy Road
and Portal Way. There are no bus routes that serve district 3.

Publicly Owned Parcels: There are no publically owned parcels in district 3.

Growth Forecast

Current Population Forecast Current Forecast

Population Employment Employment
(Growth)
(Growth)

698 1,134 (436) 11 12 (1)

Anticipated Type/ Scale of Uses: Low to High Density Residential Development,

potential neighborhood commercial development.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 49
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Obstacles/ Improvements Necessary to Accommodate Future Development: The
Brown Road area within the Urban Growth Area has few significant obstacles to future
development, beyond the relatively small average parcel size and the potential for
opposition to initial annexation of the area in accordance with the City’s Annexation
Phasing Plan.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 50
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

District 4 (Portal Way):

District 4 consists of several sub areas, the majority of which are influenced by Portal Way
and the Second Avenue Roundabout. The residential population of the district is
expected to grow significantly by 2036, generally in the form of multifamily development.
In total, an estimated 625 new housing units and over 1,600 new people are expected by
2036, including population growth from 2010-2016. Up to 330 new jobs are expected in
this area during the same time period.

To the west, Malloy Road north of Thornton Street is developed with a mix of industrial
and residential uses. The northern limits of Malloy Road include conforming and non-
conforming single family residences on large lots. City water and sewer has not yet been
extended to the area, and development has been significantly constrained as a result.
This area’s location in close proximity to Interstate Five and the BNSF railway provides
opportunities for a variety of light industrial and business uses.

The southern portion of the district located south and west of Interstate Five is the
Griffintown neighborhood, consisting of a mix of single family and multifamily
development, as well as commercial development along primary roadways. Land use
controls in place anticipate that new multifamily development will gradually replace many
single family uses, and that mixed-use development along Second Avenue will serve the
surrounding area. Griffintown Park has been established as a buffer and open space
between these uses and the BNSF railway. To the north, commercial properties prepared
for development as part of the Second Avenue extension will continue to be developed.

In time these properties will likely serve traffic associated with the planned Thornton
Street extension. The Thornton Street extension is expected to provide primary access
from the interstate to residential development in portions of District Five and the majority
of District 3.

To the northeast, properties to the west of Portal Way are planned for a range of business
and light industrial uses. Visibility from the freeway, access to truck routes, as well as
relatively large properties are expected to increase employment in this area significantly.
While City utilities are available for the majority of properties along this corridor, Portal
Way itself will require improvements to establish curbs, gutters and sidewalks as well as
attractive street landscaping that will tie the area together.

The City has established land use controls necessary to promote commercial
development along Portal Way’s eastern boundary. These commercial areas are
intended to provide services and shopping to the adjacent business/industrial and
residential areas, and to act as a buffer between the residential and industrial areas.

The eastern portion of District 4 is planned for multifamily residential development and
includes several large single family neighborhoods to the north that were established prior
to the adoption of new land use controls in the mid 2000’s. The linear nature of this

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 51
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
residential area limits the potential for central features such as parks. However, a
bicycle/trail corridor is planned through this residential area, and may connect with City
parks to the south as well as a regional trail system along the west bank of the Nooksack
River.

District Area Size: 905.67 Acres

Subareas Within District: North Malloy

Avenue, South Malloy Avenue, Griffintown,
West Portal Way business area, Portal Way
Gateway area, Whiskey Creek, Trigg Road

Additional Reference Documents:

History and Additional Notes: In the 1980s,

land in and around Portal Way became a part
of the City of Ferndale. This was the single
largest annexation (in terms of land area) in the
City’s history. The annexation included a
combination of manufacturing, commercial,
and both single family and multi-family zoned
properties.

Current Land Use Designations:

Commercial, High Density Residential, Low Density Residential, Medium Density
Residential, and Floodway

Natural Features: Probable wetland areas are located throughout the Portal Way
district, mostly along waterways. In the Southern portion of the district, probable wetlands
lie just north of the Nooksack River, as well as just west of I-5 near the Portal Way
roundabout. Probable wetlands also run through the central part of the Portal way district
between Kaas road and Newkirk road near the stream that runs through this area. Small
streams are also located between I-5 and Malloy Ave in the central part of the district. In
the northern portion of the district probable wetlands are located on either side of I-5. In
the Southern Portion of the district, Conservancy Shoreline Plan Land Use designation
has been established for land immediately north of the Nooksack River. On the west side
of I-5, this designation proceeds to residential, and on the east side it proceeds to rural.
There is another residential Shoreline Land use designation located east of Portal way
and north of Newkirk road. This district is primarily flat, with some slopes exceeding 20%
located between Malloy and I-5.

Watershed: Wiser Lake Creek-Nooksack River, Nooksack River-Frontal Bellingham

Bay

Existing Utilities: Water, Sewer, Storm

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 52
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Stormwater Basin: Portal Way, Glacierview, and Schell Ditch Basins.

Bus Routes: Portal Way is the defining road in district 4 along with 2nd AVE. Interstate 5
also runs north-south through the district. The Portal Way district is serviced by the 70X
bus route which has several stops along Portal Way including at the junction of Portal
Way and Trigg Road, Portal Way and Kaas Road, and at the junction of 2nd Ave and
Portal Way to the East of I-5. Route 70X is a weekday commute-hour-only route from
Blaine to downtown Bellingham. Route 55 serves Portal Way as well. Route 55 is a
midday local route that connects Blaine, Birch Bay, Ferndale and Bellingham (Cordata
Station) with two trips on weekdays and Saturdays. In addition, there are also several
school bus stops along Portal Way.

Publicly Owned Parcels: There are several public parks located within the Portal Way
District. Oxford Park is located just north of Thornton St and just east of Malloy Ave.
Vanderyacht Park is located in the southern portion of the Portal Way District along the
western bank of the Nooksack River and continues on into the Downtown District.
Griffintown Park has been established along 2nd AVE to serve as a buffer to the BNSF
railway and open space for the Griffintown sub-district. Though there are no schools
within the Portal Way District, Ferndale High School is located just southeast of the Portal
way roundabout.

Current Population Forecast Current Forecast

Population Employment Employment
(Growth)
(Growth)

1,647 2,870 (1,223) 295 1,524 (1,229)

Anticipated Type/ Scale of Uses: Multifamily residential, commercial/retail, general

business.

Obstacles/ Improvements Necessary to Accommodate Future Development: With

the exception of that area of District 4 adjacent to Malloy Road (which is not currently
serviced), the Portal Way area has few obstacles to development. Future improvement
of Portal Way with curbs, gutter and sidewalk will be necessary to establish a more-
cohesive subarea.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 53
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

District 5 (Hillside):
Representing the City’s historic population center, District 5 includes the majority of land
designated for residential purposes. District 5 also includes five (including Mountain View
School) of the six elementary schools within the City limits as well as both middle schools
and Ferndale High School. A variety of parks and trails have also been established in the
area, and views of Mount Baker and the San Juan Islands are available for many
properties.

While District 5 has been substantially developed, it will remain attractive for additional
growth throughout the planning period and beyond. Almost 1,200 new households
(approximately 3,000 people) are projected in this district, and while the majority of this
development will be in the form of single family housing, multifamily development to the
south and infill development throughout (Accessory Dwelling Units, duplexes, attached
housing and Planned Unit Developments) is included in these assumptions.

With few exceptions, this additional growth will likely be accommodated on undeveloped
or under-developed properties. The
majority of fully developed existing
subdivisions are not expected to
accommodate a significant amount of
additional development.

District Area Size: 1,884.73 Acres

Subareas Within District: See City of Ferndale Annexation Phasing Plan

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 54
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Additional Reference Documents: City of Ferndale Annexation Blueprint/ Phasing Plan

History and Additional Notes: In the 1970s, the City annexed several areas in the
northwestern portion of the City in the vicinity of Thornton Street. The City then annexed
several more areas surrounding Thornton Street in the 1990s. The majority of properties
located in the annexation area of Thornton North (“Friberg Farm” Subarea 1), are owned
by the Friberg Family. The Friberg Farm was operated as a private farm for many years
until the 1990’s when the parcel was subdivided into its current configuration.

The Erickson family has maintained ownership of the area west of Church Road for
several generations. Properties within annexation subarea 5, the “school district”
annexation area, were previously part of the Erickson Farm, and continue to be used for
agricultural purposes (livestock grazing and field hay). This area is just north of Cascadia
Elementary. Approximately thirty acres in this subarea are owned by the Ferndale School
District and are intended for future school facilities.

The North Church, “Erickson Farm”, annexation subarea 6, has been utilized for the
raising of dairy cattle. The area is bordered on the east by Church Road, to the north by
Aldergrove Road and residential properties outside of the Ferndale Urban Growth Area.
Properties on the east side of Church Road were utilized for large lot single family
residences and agricultural properties.

Current Land Use Designations: Low Density Residential, Medium Density Residential,
High Density Residential, Public, Commercial

Natural Features: A few streams run through district 5, one to the north, one to the west,
and one in the center. These streams are bordered by small areas of probable wetlands.
Areas around these streams generally have slopes steeper than 20%. Some larger
probable wetlands are located in and around Bender Park, and other small tracts of
wetlands have been incorporated as open space in some of the residential areas in the
south east portion of the district.

Watershed: Terrell Creek-Frontal Birch Bay, Wiser Lake Creek-Nooksack River,

Nooksack River-Frontal Bellingham Bay

Existing Utilities: Water, Sewer, Storm

Stormwater Basin: Schell Creek, Ferndale Terrace, Schell Ditch, Schell Marsh,
Nubguard, Cedar Creek, Glacierview, North Whiskey Creek, and South Whiskey Creek
Basins.

Bus Routes: District 5 is serviced by the 27 Route bus. Route 27 is the primary route
connecting Ferndale and Bellingham (Cordata Station). It operates once an hour
weekdays and Saturdays and serves the WTA park & ride along with downtown Ferndale,
Church Road, Thornton Road and Vista Drive. Within District 5, Route 27 has three stops

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 55
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
along Vista Drive, three stops along Thornton Road, three stops along Church Road,
three stops along Main Street, and three stops along Washington Street.

Publicly Owned Parcels: District 5 contains five elementary schools, two middle
schools, Ferndale High School, and Clearview Alternative High School. This district has
a variety of parks and trails. Seven city parks are located in district 5 including Bender
Park, Cedar Creek Park, and Vista ride Park.

Growth Forecast

Current Population Forecast Current Forecast

Population Employment Employment
(Growth)
(Growth)

7,188 10,769 (3,581) 955 1,194 (239)

Anticipated Type/ Scale of Uses: Low to High Density Residential Development.

Obstacles/ Improvements Necessary to Accommodate Future Development: The

developed nature of much of the Hillside neighborhood means that a substantial
percentage of future growth will be in the form of infill development that may alter the
sense of place of existing neighborhoods. As a result, there is an increased potential that
existing residents will be uncomfortable with these changes.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 56
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

District 6 (Downtown):
Ferndale’s Downtown, constrained by Washington Avenue to the north and west, the
Nooksack River to the east and the City limits to the south, is included in District 6. The
Downtown district is characterized by structures dating from the early twentieth century,
mixed together with multi-family and mixed-use development as well as the City’s civic
campus consisting of City Hall, the Ferndale Public Library and Ferndale Post Office. The
area also includes the City’s two largest parks – Pioneer Park and Vanderyacht Park.

Ferndale’s Downtown has transitioned from the city’s primary shopping district to an area
that experienced dramatic declines in the 1980’s and 1990’s as a result of new shopping
trends. It is unlikely that Ferndale’s downtown will thrive based only as a retail district:
the configuration of existing infrastructure and Main Street’s primary use as a
transportation corridor through downtown limit the ability of the district to compete with
shopping districts that are built around the automobile and overall convenience.

Instead, the future success of Downtown Ferndale will depend on the re-introduction of
dense residential development within walking distance of a diverse and appealing district
of relatively small shops, dining, service and entertainment or recreation options. A
substantial percentage of the core
business of Downtown Ferndale will be
in service to residents who live within the
Downtown or within walking distance of
the City core.

Much of Districts 4 and 5 (including the

majority of the multifamily development
within those districts) is within a ten-
minute walk of Downtown, and
trail/sidewalk corridors exist or are
proposed to connect those districts to the core. In addition to this adjacent development,
approximately 450 new housing units are expected within the core itself, adding nearly
1,200 residents to the heart of the City. This population growth will be supplemented by
at least 100 new employees, a number that may vary substantially depending upon the
nature of businesses that choose to locate in Downtown Ferndale.

In order for these changes to occur, a significant portion of the inventory of existing single
family residences will be replaced by new development and infrastructure must be
designed to accommodate future growth.

District Area Size: 446.67 Acres

Subareas Within District: None.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 57
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Additional Reference Documents: Ferndale Municipal Code (Downtown Architectural
and Design Standards)

History and Additional Notes: Prior to World War II, the Ferndale City limits were
located primarily west of the Nooksack River, extending from Pioneer Park north to Cedar
Street, and west to the intersection of Washington and Main. A large annexation
immediately following WWII expanded the residential area of the City north to Thornton
Street and west to Imhoff Road. Minor residential annexations occurred in the 1950’s and
1960’s, generally west of the City core. Then in the 1990’s Ferndale expanded the City’s
territory west along Thornton and Main Streets, and Douglas Road. These annexations
were primarily residential in nature, but did include school district property at Thornton
Street. Additional annexations took place in the northern area of Ferndale along Vista
Drive and Malloy, and included a significant residential/industrial annexation along Malloy
Road. The City also annexed territory west of Ferndale Road that would later become the
Conoco Phillips Ballfields. Land was also added to the City in the vicinity of Smith Road,
with residential area added north of Smith and commercial/industrial land to the south.

Current Land Use Designations: High Density Residential, Medium Density

Residential, Unspecified Residential, Commercial, Public

Natural Features: The Nooksack River comprises the Downtown District’s eastern
border. South of Main Street, the west bank of the Nooksack has an Urban Shoreline
Plan Land Use Designation, while north of Main Street the shoreline is
Conservation/Residential. Schell Marsh is a large wetland conservation area located in
the southwest corner of the downtown district. The northern border of this wetland is
located just behind the Ferndale Public Library and provides a vista towards Lummi
Island. This area includes much of the drainage basin of Schell Creek, which drains much
of the central area of the City of Ferndale. Over the past several decades, drainage to
this area has increased, agricultural uses once present in the area have been abandoned,
and wetland areas have established themselves.

Watershed: Nooksack River-Frontal Bellingham Bay

Existing Utilities: Water, Sewer, Storm

Stormwater Basin: Schell Marsh and Schell Ditch Basins.

Bus Routes: Main Street is the primary road running through the Downtown District.
Washington Street and Pacific Road comprise the northern and western boundaries of
the district. Route 27 services Ferndale’s downtown and is the primary route connecting
Ferndale and Bellingham (Cordata Station). It operates once per hour on weekdays and
Saturdays and serves the WTA park & ride along with downtown Ferndale, Church Road,
Thornton Road and Vista Drive. Lummi Transit’s Route B also serves part of the
Downtown District, connecting it to the Ferndale Park and ride and also continuing down

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 58
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Douglas Road. Route B operates Thursday through Monday and services stops three
times a day.

Publicly Owned Parcels: The Downtown District includes two large parks, Vanderyacht
Park and Pioneer Park, including Star Park, as well as the smaller Flair Park. A walking
trail also runs along the west bank of the Nooksack River connecting Main Street to Front
Ave near Pioneer Park. Central Elementary School is located within the Downtown
District.

Growth Forecast

Current Population Forecast Current Forecast

Population Employment Employment
(Growth)
(Growth)

1,314 2,621 (1,307) 660 952 (298)

Anticipated Type/ Scale of Uses: High-density mixed-use commercial and residential

along Main Street, primarily residential development within the southern portions of the
district.

Obstacles/ Improvements Necessary to Accommodate Future Development:

Existing City streets and previously-developed parcels may constrain the ability of new
development to be built in a manner reflecting market demand. Real or perceived traffic
congestion may also limit the desirability for new development which depends on high
turnover of customers, though this impact may be reduced with increased bike and
pedestrian volumes.

South of Alder Street, the 100-Year Floodplain of the Nooksack River will require that new
development be built above the Base Flood Elevation (BFE). In the early portion of the
planning period this may raise development costs above market value for certain lots.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 59
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

District 7 (East Main):

District 7 represents the City of Ferndale’s primary retail shopping area, and streets in
this area have the highest traffic volumes in the City. Over 800 new employees are
expected in this area by 2036, with full buildout of the area estimated to be nearly twice
that amount. Recognizing the potential for high growth in the area, in 2011 the City
adopted the Main Street Master Plan and Planned Action Ordinance (link) which included
the majority of District 7. These plans establish a framework for future development as
well as the infrastructure necessary to sustain the development.

In addition to employment growth, nearly 120 housing units may be established in the
area, representing population growth of over 300 people. The northwestern portion of
District 7 is a former nine-hole golf course within the 100-Year Floodplain of the Nooksack
River. Due to frequent flooding in portions of this area, traditional development
techniques may be challenging, and the area may be redeveloped for regional recreation
opportunities.

The District’s location in close proximity to a freeway interchange and along Ferndale’s
primary transportation corridor (Main Street) will tend to increase the potential impacts of
new traffic to the transportation network. As a result the City has identified several
transportation projects through its Transportation Element and the Planned Action. These
projects are expected to be constructed as growth occurs.

District Area Size: 896.63 Acres

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 60
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Subareas Within District: Main Street Master Plan/ Planned Action Area

Additional Reference Documents: Main Street Master Plan and Planned Action

History and Additional Notes: In the 1970’s, following the construction of Interstate
Five, the City annexed significant commercial and industrially-zoned properties east of
the Nooksack River, including land in the vicinity of Barrett Road and LaBounty Drive.
Moderate growth occurred during the 1980’s, but accelerated in the late 1990’s through
2016.

In 2005, a major regional retail development (Pioneer Plaza) was proposed in the
southeast portion of the district, however the project was later abandoned prior to
development due to cost increases and the changing economy. From 2010-2012 the City
developed a master plan in order to determine the maximum buildout of the area, and the
mitigation measures (primarily transportation) necessary to serve that development.

Current Land Use Designations: Commercial, High Density Residential, Medium

Density Residential, Low Density Residential

Natural Features: There are large expanses of wetlands in the south and eastern
portions of the district. The southwestern wetland is designated General Commercial
Conservancy, and part of the wetland in the eastern portion of the district is designated
as urban under the Shoreline Land Use Plan. There are also wetland areas at the northern
boundary of the district around Barrett Lake. The land surrounding the Barrett Lake
waterway is within the shoreline jurisdiction line and has some conservation areas, as
well as residential and urban designations. The Nooksack River forms part of the western
boarder of the district and much of the land to the east of the river is designated
conservancy. The district is by and large very flat, with northern portions located in the
100 year floodplain of the Nooksack.

Watershed: Tenmile Creek, Nooksack River-Frontal Bellingham Bay, Silver Creek

Existing Utilities: Water, Sewer, Storm

Stormwater Basin: Tenmile & Deer Creek, Creighton, Riverside Drive, Riverside Golf,
Tennant, Haggen, and Pacific Highway Basins.

Bus Routes: District 7 is a primary transportation corridor and contains WTA's Ferndale
Station. This facility provides parking spaces for 131 cars and is served by
routes 27, 55 and 70X, as well as Lummi Transit’s Route B. Route 27 makes several
stops within district 7 along Axton Road. Route 27 is the primary route connecting
Ferndale and Bellingham (Cordata Station). It operates once an hour weekdays and
Saturdays and serves the WTA park & ride along with downtown Ferndale, Church Road,
Thornton Road and Vista Drive. Route 70X is a weekday commute-hour-only route from
Blaine to downtown Bellingham. Route 55 is a midday local route that connects Blaine,

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 61
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Birch Bay, Ferndale and Bellingham (Cordata Station) with two trips on weekdays and
Saturdays.

Publicly Owned Parcels: This district contains two parks, Hastings Park, located on the
east bank of the Nooksack River, and Michael Moore Park, located north of Smith Road.
Windward High School is located on the West Side of I-5 just north of Smith Road.

Growth Forecast

Current Population Forecast Current Forecast

Population Employment Employment
(Growth)
(Growth)

542 921 (379) 1,641 3,772 (2,131)

Anticipated Type/ Scale of Uses: The district will be characterized primarily by

commercial (retail, service, and office) uses ranging from those intended to serve the
surrounding area to regional retail development. Mixed-use residential development may
also occupy some of the land area, per the Main Street Master Plan.

Obstacles/ Improvements Necessary to Accommodate Future Development: As

noted in the Main Street Master Plan, traffic congestion represents the most significant
challenge to future development. The Main Street Master Plan identifies those projects
necessary to meet City Level of Service standards, and corresponding development
impact fees are intended to pay for development’s share of cost. East of the interstate,
periodic flooding of low-lying areas (especially north of Main Street) may limit future
development.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 62
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

District 8 (South Ferndale):

South of Smith Road, the City’s southern-most district is also one of its most diverse. It
includes a variety of residential, industrial, manufacturing and commercial and
public/institutional land uses. The United States government holds the majority of land
south of Slater Road in trust for the Lummi Nation, which plans a major commercial/ retail
development in that area. To the northwest of this location is the City’s primary
manufacturing area which includes several large industrial businesses specializing in
waste transfer, recycling, and similar activities.

Whatcom County has identified approximately forty acres in the center of District 8 for the
Whatcom County Correctional Facility and Sheriff’s Headquarters and the United States
Border Patrol offices are approximately 1,000 feet to the southeast. North of these uses
are several single family subdivisions. Future residential use will be in the form of
multifamily development.

Properties to the northwest are reserved for industrial uses, but the encroachment of
wetlands associated with Tennant Lake (to the west) will likely make development of this
area more challenging and expensive. On the east side of Interstate Five, the Pacific
Industrial Park and associated lands are one of the fastest growing business and
industrial areas of the City. To the southeast are lands previously included in the City’s
UGA Reserve that were added to the City’s UGA in 2016. These lands are intended for
employment purposes and have been given a Commercial Land Use Designation.

While the Whatcom County correctional facility campus has been designed to limit or
mitigate physical and aesthetic impacts to surrounding properties, the development may
influence future land use decisions in the immediate area. Current land use controls allow
for a variety of residential and/or commercial (mixed-use) development, and the City will
monitor progress in this area to determine whether or not land use or zoning controls
should be modified as a result of the Whatcom County Jail.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 63
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
District Area Size: 785.11 Acres

Subareas Within District: None.

Additional Reference Documents: City of Ferndale Annexation Blueprint/ Phasing Plan

History and Additional Notes: Industrial and commercial areas North of Slater Road
were annexed by the City of Ferndale beginning in the 1980s. These annexations
included two major regional transfer stations north of Slater Road. Following annexation
of those area south of Slater Road between 2008 and 2010, the Lummi Nation acquired
the majority of land south of Slater Road within the City of Ferndale, as well as additional
land within the Bellingham Urban Growth Area. The land was subsequently converted to
trust land, and is no longer subject to City of Ferndale regulations. Roundabouts were
completed at this interchange in 2014.

Current Land Use Designations: Industrial, Commercial, Medium Density Residential,

Natural Features: South Ferndale is largely flat. The Northwest Portion of the district
contains wetland areas associated with nearby Tennant Lake. There is more
topographical variation in the southern portion of the district where several small
waterways run. Small areas of probable wetlands are also scattered throughout the
southern portion of the district.

Watershed: Silver Creek

Existing Utilities: Water, Sewer, Storm

Stormwater Basin: Creighton, Pacific Highway, and Silver Creek Basins.

Bus Routes: District 8 is serviced by Lummi Transit’s Route B. This route has one stop
at the Lummi Gateway Center with connections to the Ferndale Park and Ride and
Downtown Ferndale. Notable roads in this district include Interstate 5, Slater Road, Smith
Road, and Labounty Drive.

Publicly Owned Parcels: Though there are no public parks immediately within South
Ferndale, Tenant Lake Park is located just outside city limits to the west of the district.
Tenant Lake Park offers an interpretive center, viewing tower, walking trails, and a
fragrance garden.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 64
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Growth Forecast

Current Population Forecast Current Forecast

Population Employment Employment
(Growth)
(Growth)

379 534 (155) 1393 1921 (528)

Anticipated Type/ Scale of Uses: Various, ranging from multifamily residential

development to public/institutional zoning (law enforcement uses), industrial and
manufacturing development – and regional retail/ service uses.

Obstacles/ Improvements Necessary to Accommodate Future Development:

Should major commercial development occur at or around this interchange, major
transportation improvement will likely be necessary. The Slater corridor is owned or
influenced by a number of public agencies which makes future decisionmaking complex.
In addition, while lands owned by the Lummi Nation are not subject to City review or
approval, it is expected that access to future development will be through City streets,
and that water and sewer service will be provided by the City.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 65
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

A DIFFERENT LANGUAGE? TRANSLATING JARGON USED IN THIS DOCUMENT

Despite efforts to make this document more readable for the layperson, a discussion of future growth projections and
the applicable laws and regulations associated with comprehensive plans requires the use of words and jargon that
may be unfamiliar. The following is a translation of various words and terms used in this element.

 Comprehensive Plan: The long range planning document for the City of Ferndale which anticipates future growth
through the year 2036. The plan includes a variety of sub-elements such as Land Use, Housing, Transportation, Capital
Facilities, Utilities and Economic Development. All City regulations must be consistent with this comprehensive plan.

 UGA (Urban Growth Area): the area, including the existing City limits, in which the City may expand over the twenty-
year planning period of the comprehensive plan. Often the UGA is used in reference only to the area outside of the City that
could be annexed. The City is obligated to plan for growth within the entire UGA, including plans to serve the UGA with
water, sewer, and roads.

 Unit (Housing): A residence with full living, sleeping and cooking facilities. The term does not imply a specific type of
residence (single family, apartment, etc.) – but rather the number of overall residences within a geographic area or the City
in general.

 Comprehensive Plan Designation: The type of developments or land uses that may be established within a geographic
area. The Comprehensive Plan splits land uses into three broad categories: residential, commercial, and industrial. The
Ferndale Municipal Code then establishes a variety of zones based on these broad designations that provide more specific
regulations for development.

 Zoning: Geographic areas that are established for the purpose of identifying requires for new or existing development,
including maximum height limits, types of land uses allowed, parking requirements, design or appearance standards, and
more. Zoning must be consistent with the Comprehensive Plan Designation.

 Critical Area: Properties or portions of properties that contain sensitive areas such as wetlands, animal habitat, unstable
soils, steep slopes or other elements that must be protected or that may restrict the ability to develop.

 Stormwater: Surface water that results from precipitation (snow or rain) that has not soaked into the ground. The
resulting stormwater runoff may contribute to erosion, and may become mixed with mud, oils and other chemicals that
result in negative impacts to the environment.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 66
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

 Watershed: A geographic area defined by hills or ridges which separates waters flowing to different rivers,
basins, or oceans. While all waters in Ferndale ultimately flow to the Salish Sea and the Pacific Ocean, they
enter these larger water bodies at different locations.

 Land Capacity Analysis: Also referred to as the “LCA,” the analysis is the result of a collaborative effort
between Whatcom County and the seven cities within the County. The LCA is intended to identify the land
area available for development in each jurisdiction and its UGA, and to determine if additional land is needed
to support the growth projected for the future.

 Urban Reserve: That area in which the City may expand once the Urban Growth Area is developed and/or
when actual growth exceeds projections.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 67
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
STATE AND LOCAL REQUIREMENTS

Requirements of the Growth Management Act

When the State Legislature adopted the Growth Management Act (GMA), they found that
"…a lack of common goals expressing the public's interest in the conservation and the
wise use of our lands pose a threat to the environment, sustainable economic
development, and the health, safety and high quality of life enjoyed by residents of this
state. It is in the public interest that citizens, communities, local governments, and the
private sector cooperate and coordinate with one another in comprehensive land use
planning.” [RCW 36.70A.010] This finding, which summarizes the intent of the GMA,
emphasizes the central role of the Land Use Element.

The Act requires the Land Use Element to designate the general distribution, location,
and extent of land for various land uses, including resource lands, housing, commerce,
industry, parks and open space, and public facilities. This element considers all these
land uses, with the exception of public facilities and housing, which are considered in
detail within the Capital Facilities Element and Housing elements, respectively. The Land
Use Element also considers population densities, building densities, and estimates of
future population growth. It also shall provide for protection of the quality and quantity of
groundwater used for public water supplies, and consider and mitigate the impacts of
storm water runoff both in the immediate area and in surrounding jurisdictions.

The Land Use Element contains a variety of facts, analysis and other valuable information
that together result in the primary policy outputs of the element as well as the Land Use
Map- The goals and policies found in the Land Use Element are the product of both
existing conditions and plans and policies which have previously been adopted.

Whatcom County-wide Planning Policies

The Whatcom County County-Wide Planning Policies are a further refinement of policy
direction contained in the Growth Management Act, and are a result of a collaborative
process between Whatcom County and the cities within the county. Ferndale’s policies
are consistent with the County-wide policies, and vice-versa.

The Whatcom County County-Wide Planning Policies provide a framework for both the
county and its respective cities. Adherence to these policies ensures that plans within
the county are consistent with one another. These policies address such issues as the
designation of urban growth areas, land use, affordable housing, provision of urban
services for future development, transportation, and contiguous and orderly development.
The Policies have the most direct impact on land use policies in this chapter.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 68
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

LAND USE GOALS AND POLICIES

Overall Land Use Goal:
The City of Ferndale strives to provide a healthy balance of residential, commercial, and
industrial land uses to ensure the sustainability, financial well-being and quality of life
enjoyed by the residents of Ferndale.

Commercial Land Use Goal

I. The City will promote commercial growth and revitalization that serves
residents and strengthens and expands the tax base.

Rationale: Ferndale collects less sales tax per capita than any jurisdiction in
Whatcom County. Lack of retail sales tax places more pressure on citizens to pay
for necessary services. As additional shopping options expand in the City,
Ferndale residents will become less dependent on other jurisdictions and will begin
to identify more with Ferndale as their home. The nature of new retail development
will vary significantly depending on its location within the City.

Commercial Land Use Policies

i. Establish commercial and industrial zoning and design regulations
that are sufficiently from one another so as to maintain distinct
subareas within the City.
ii. Develop policies to encourage public improvements such as street
lighting, landscaping, park benches, and similar facilities in the
downtown area that are compatible with the efforts of other civic
groups.

B. Create opportunities to enhance the Downtown core that do not place it in

direct competition with other areas of the City.
i. Maintain unique Downtown zoning and design regulations intended
to enhance the unique sense of place of the Downtown core,
capitalizing on recreational, environmental, residential, commercial,
and cultural attractions within the core.
ii. Establish incentives for targeted development types to ensure that
development costs in the core area remain competitive.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 69
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
C. Encourage the development of retail businesses that cater to the traveling
public in locations that are a convenient distance from Interstate 5 and are
located within or adjacent to established commercial areas.
i. Provide for more flexibility in commercial zones by emphasizing form
and impact, with a reduced emphasis on strict land use separation.
ii. Standards for commercial development should ensure that new
commercial development is attractive. Standards should consider
elements such as appropriate building scale, type of construction
materials, landscaping, signing, and appropriate limitations on
outdoor storage.
iii. Plan for the development of the Portal Way interchange and Thornton
Extension as a transportation and commercial hub linking the Downtown,
Portal Way and Hillside neighborhoods.

D. Maintain a commercial land supply that is sufficiently large enough to meet

the varied needs of commercial land users.

E. Discourage non-compatible (particularly residential uses) land uses from

locating in areas that are suitable and desirable for commercial or industrial
uses, especially when land available for those uses is limited.

i. The City will consistently re-evaluate zoning and land use requirements to
ensure that City policies address future demand and do not reflect
outdated expectations.

ii. In some situations it may be both reasonable and desirable to allow

residential uses as a sub-component of primary commercial or even light
industrial uses, to establish a more-vibrant development.

F. The City should encourage mixed use developments in appropriate areas.

i. The City may consider establishing pilot programs or allowing additional

flexibility in certain areas in order to allow a limited number of specific uses
within a particular area, or to encourage development that serves as a
transition between previously non-conforming uses and those uses or
architectural concepts that are contemplated for the future.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 70
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Industrial Land Use Goal
II. Encourage the development of new industries that provide living wage jobs
for area residents.

Rationale: Industrial and general business jobs often attract high-skill employees
and offer higher wages than many retail or service jobs. These businesses may
also support or be supported by other industries within the Ferndale Market Area.

Industrial Land Use Policies

A. Maintain an industrial land supply that is sufficient in size to meet the varied
needs of industrial land users.
B. Capitalize on the assets the City has to offer to industrial land users, such
as access to Interstate 5 (at Slater Road and Grandview Road
interchanges), the proximity to the Burlington Northern Railroad and Cherry
Point industries, and the availability of city utility services.

C. Plan for adequate road and utility infrastructure to meet the varied needs of
industrial users at the time of development.

D. Discourage non-compatible (particularly residential uses) land uses from

locating in areas that are suitable and desirable for industrial uses, while
providing flexibility for mixed industrial-commercial and even light
industrial/residential “make/live” developments.

E. Encourage the development of industrial parks that provide more flexibility

and options for development of industrial uses as well as provide for a mix
of industrial and commercial uses.
i. Industrial parks have the advantage of bringing fully improved
industrial land to the market while still providing maximum flexibility
in lot configuration and development approval procedures.

F. Encourage industrial businesses to limit pollution through responsible

design, new technologies, and City nuisance and odor regulations.

G. Reduce the segregation of industrial and commercial uses, when the

impacts to the environment, surrounding uses, and City infrastructure are
shown to be similar or less than other, existing uses.

H. Remove obstacles and increase certainty for industrial users by

establishing clear regulations based on performance and design.

I. Maintain development regulations ensure that industrial users pay no more

than their equivalent share of City costs and impacts.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 71
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN

Residential Land Use Goal

III. Encourage the development of a wide range of housing types and densities
to meet the differing housing needs of Ferndale residents.

Rationale
The residential needs of the community are varied. The City needs to provide
housing opportunities for a full range of densities and housing types that recognize
environmental constraints, land use patterns and offer appropriate protection to
established neighborhoods.

Residential Land Use Policies

A. The City will support a land use strategy that maintains the quality and
essential character of existing neighborhoods and that encourages cost-
effective development.

B. The City will encourage new development consisting of a variety of land

uses adjacent to existing development which will take advantage of the
existing infrastructure network.

C. The City will encourage residential development patterns that reflect an

orderly outward progression from the existing built environment.

D. The City will pursue strategies to allow existing residential neighborhoods

to evolve through a variety of infill or redevelopment options.

E. Provide for clustering of residential development through a planned unit

development procedure that allows for increased density within or adjacent
to low-density neighborhoods, when such projects can demonstrate that
adequate buffers and/or project design features will result in no detrimental
impacts to existing residential neighborhoods and will protect
environmentally sensitive areas.

F. Provide opportunities for park and trail development to create a feeling of

community spirit. Trails and other recreational facilities should connect
neighborhood commercial nodes, schools, parks, and other local services
to provide recreational activities and increase opportunities for physical
activities for citizens of all ages.

G. Encourage connections to trails and open space corridors through

developments to facilitate access to the trail and park system.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 72
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
H. Recognize that housing needs and expectations may vary greatly amongst
demographic groups.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 73
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
Environmental Land Use Goal
IV. Encourage environmentally sensitive areas to be left in a natural state.

Rationale
Environmental constraints need to be considered in all development projects. The City
should first consider the protection of the environmentally sensitive areas and second
consider alternatives to allow development of the adjacent non-sensitive areas in a
manner that provides property owners with a reasonable use of their land.

Environmental Land Use Policies

A. Provide for adequate buffers surrounding stream and wildlife corridors, and
ensure the perpetual protection of such corridors.
i. Preserve development regulations that allow the clustering of
residential development away from sensitive areas without reducing
the number of units that would otherwise be allowed.
ii. Recognize the need to protect sensitive areas, wildlife, fish corridors,
and habitat. Continue to insure mechanisms for protection that do
not unnecessarily burden HOA’s or the City through property
acquisition.

B. Seek to encourage that impacts to sensitive areas with important ecological

or habitat value are avoided. In those cases where such impacts cannot be
avoided, seek to require no net loss of ecological function.

C. Explore the use of innovative and environmentally sensitive techniques to

enhance sensitive areas and corridors through the use of targeted offsite
wetland mitigation.

D. Protect aquifer recharge areas through the enforcement of water quality

standards on all new development projects.

E. Preserve flood storage capacity in those portions of the floodplain that are
not protected by dikes.

F. Prohibit development in identified geologically hazardous areas unless

hazards can be adequately mitigated through measures identified by
qualified technical experts.
i. Maintain the City of Ferndale in good standing with the FEMA
Community Rating System (CRS) for floodplains and floodplain
management. .

G.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 74
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
H. In cooperation with appropriate agencies, the City will identify and regulate the
use of wetlands, essential habitat areas, and other critical lands within the
Urban Growth Area.

I. The City will continue to evaluate long-range growth policies in light of

changing environmental conditions and will seek to maintain goals and
policies that balance environmental protection and responsible growth.

Urban Growth Area/Annexation Goal

V. Provide for the orderly expansion and development of the city as required
to meet the growth needs of the community.

Rationale
The development of the unincorporated portions of the City’s urban growth area is a key
to the success of the comprehensive plan. If development occurs outside the City in a
manner that is inconsistent with the plan, future opportunities for expansion of the city may
be lost, or result in inefficient public services or conflicting land use patterns. Compliance
with the City’s Annexation Blueprint/Phasing Plan is still vital.

Urban Growth Area/Annexation Policies

A. Annexations to the City shall be comprised of logical boundaries that to the
greatest degree practical:
i. Create regular boundaries;
ii. Follow topographic features or other physical features, such as
streams, railroad rights-or-way or freeway rights-of-way;
iii. Provide for services to both sides of a city street;
iv. Avoid the creation of unincorporated “islands;”
v. Avoid “panhandle” annexations.

B. Annexations to the City shall avoid conversion of active resource lands

whenever possible.
i. Active agricultural lands of over 10 acres in size shall not be annexed
into the City unless the property owner consents to the annexation
and commits to converting the agricultural property into urban land
uses within 18 months following the annexation.

C. Annexation requests shall be reviewed by the City Planning Commission

prior to completion so that appropriate zoning of the properties to be
annexed can be established in conformance with this Comprehensive Plan.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 75
CHAPTER 2: LAND USE ELEMENT
FERNDALE COMPREHENSIVE PLAN
D. The City shall conduct a cost/benefit study for all annexations over 20 acres
in size or $1,000,000 in total assessed valuation. Such study shall consider
the following:
i. Projected costs of providing services to the area to be annexed,
including street maintenance, storm water runoff system
maintenance, police protection, parks and recreation, general
governmental services.
ii. Estimated costs to extend city utility services and upgrade
substandard infrastructure including streets, storm water runoff
systems, parks, and street lighting.
iii. Assessment of impact to any special districts, such as a fire district
or cemetery district.
iv. The tax revenues that would likely be received by the city resulting
from the annexation.
v. The tax revenues that would likely be generated in the annexed area
as a result of development that would take place following the
annexation.
vi. Any sharing of tax revenues or payment of existing capital
improvements that may be present in the area to be annexed that
may be required by Whatcom County as a condition of annexation.

E. For annexations over 20 acres in size or $1,000,000 in total assessed

valuation, the City may enter into a development agreement with the
proponents of the annexation that would commit the City and the
proponents to installing specific improvements and approving specific
development plans.

F. The City shall work with Whatcom County to develop an interlocal

agreement that deals with issues related to annexation and development
within the unincorporated portions of the urban growth area.

G. The City’s long-range annexation plan is found within the Annexation Phasing
Plan/ Annexation Blueprint, which is adopted by reference to this plan.

City of Ferndale – Comprehensive Plan Land Use – Chapter II

June, 2016 Page 76
 Exhibit D
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Chapter III: Housing HOUSING ELEMENT AT A GLANCE:

Element SUMMARY OF CONCLUSIONS

CONTENTS • The average number of people per

household will continue to decrease
Executive Summary through 2036.
Introduction
• The plan projects that 2,884 new
Purpose and Scope
housing units will be built in Ferndale by
Adequate Land
2036.
Capacity
Single Family Detached • There will be an increased demand for
Demographic Trends elderly housing that promotes
Summary of Future Housing Needs independent lifestyles.
Flexibility • Single family residential development
Infill Development will remain the predominant form of
New Development housing, though multifamily and
New Development – Transition Area variations of multifamily development will
Downtown Core increase.
Housing Choice
Active Living Environments • Strong residential neighborhoods will
Maintenance of the Housing Element remain the essential ingredient for a
Housing Goals and Policies vibrant community.
• A greater percentage of residents in
Ferndale live below the poverty line than
the Washington State average, but a
smaller percent live in poverty in Ferndale
EXECUTIVE SUMMARY than the Whatcom County average.
• The lack of access to amenities,
The demand for housing in the future will be recreation, schools, employment, or
accommodated by the adequate supply of land opportunities to practice sustainable urban
contained within the City’s Urban Growth Area. agriculture impacts low-income
No immediate deficiency will result from an households most dramatically.
increased demand for housing.
• Nearly 1/5 of the City’s existing housing
In addition to ensuring that adequate land stock will be seventy years or older by
capacity will be available to accommodate the 2036.
expected growth in households, the City must
do what it can to ensure diverse housing
City of Ferndale – Comprehensive Plan Housing – Chapter III
November 2022 Page 1
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

opportunities for all income groups. Although no city can guarantee that the housing built
will be affordable to all income groups, cities can plan for and accommodate housing that
is more affordable using factors it does control, such as land use regulations. For
instance, the City can ensure that it has an adequate amount of land zoned to facilitate
the development of affordable housing opportunities, such as smaller lot sizes,
townhouses, cottage housing, cluster housing, accessory dwelling units, duplexes,
triplexes, small-scale apartments, senior apartments, and single-room-occupancy
housing.
In this regard, the City is actively taking steps to increase its capacity to eliminate potential
future housing deficits.

Though not a requirement of the Growth Management Act, this element also seeks to
identify issues that may affect the quality of life of Ferndale residents, such as access to
recreational opportunities, how housing design may impact crime, and the ability to grow
food or experience the environment in close proximity to housing.
Finally, this element also maintains the goal of preserving and promoting strong
neighborhoods in which residents care about and invest in their community, participate in
community affairs, and engage with one another. These strong neighborhoods represent
the essential character and identity of Ferndale. These neighborhoods are and will
continue to be the central focus of daily life for Ferndale citizens – and are the vital
ingredient in making Ferndale “home.”

INTRODUCTION

The Housing Element is perhaps the most personal component of the Comprehensive
Plan, as it concerns the immediate environment in which residents live and raise their
families. The primary goal of the Housing Element is to meet the current and future needs
for housing for Ferndale residents. The ability to obtain affordable housing is essential to
a stable, healthy and thriving community. Most housing is not built by cities, but by the
private sector. However, cities and other entities, such as lending institutions have a
significant role in the supply and affordability of housing. This element focuses on the
housing supply and affordability factors that the City can either control or influence.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 2
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

PURPOSE AND SCOPE

Current (2022) Population: 15,970 Projected (2036) Population: 19,591

Residential Units: 5,966 Residential Units: 7,886
Persons Per Unit: 2.68 Persons Per Unit: 2.48

FIGURE 1

The Housing Element is designed to help ensure that sufficient land remains available to
allow the private marketplace to develop housing at a level that meets consumer demand
and is accessible to all income segments of the population. Over the next 14-year
planning period, Ferndale is projected to experience a 1.6 percent average annual
increase in population.

In many ways, the City’s housing needs in 2036 will differ from the housing needs of the
past. A combination of changing planning and legislative requirements, rising housing
costs, an aging population, changing housing expectations for younger generations,
smaller (on average) household sizes and the overall densification of the community all
mean that housing issues in Ferndale will not be resolved by calculating whether sufficient
land is available for housing. Instead of simply calculating overall land area, the Housing
Element seeks to establish measurable goals and policies to ensure that housing in
Ferndale meets the needs of the people who live there.

The Housing Element is designed on the following values, which are integrated within the
various issues discussed in the element:

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 3
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

FIGURE 2

The Housing Element of the Comprehensive Plan is used by the City of Ferndale to
establish policies and identify appropriate land areas to ensure that housing opportunities
in the City are not only sufficient to meet demand at all economic levels, but to support
Ferndale residents in their efforts to enjoy a high quality of life. In meeting these
objectives, the element is also intended to implement the requirements of the Growth
Management Act.

The City has determined that the following elements represent an integral part of the
planning process for future housing in Ferndale:

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 4
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Relationship to Plan Elements

The Housing Element is closely linked to the Land Use, Transportation, Capital Facilities
and Utilities Elements of the Comprehensive Plan. The Housing Element goes beyond
the number of housing units needed to meet population growth projections. These linked
Plan Elements contain important factors to be considered when planning for affordable
housing, both to the citizen and in consideration of long-term costs to the community for
streets utilities and services. This relationship is illustrated in Figure 3, below:

FIGURE 3

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 5
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

ADEQUATE LAND

Per the City’s Land Use Element, the City and its Urban Growth Area are
sufficient to support future housing needs.

A series of land use changes intended to permit higher densities and a range of
housing options preceded the 2016 Comprehensive Plan Update, and the City does not
believe a deficit is likely during the planning period. Should growth not meet these
density expectations, or should it exceed capacity, modifications in Urban Growth Area
boundaries or land use controls will be necessary in the future.

CAPACITY

Based on the Capital Facilities and Utilities Elements and the completion
of projects listed in adopted long-range capital improvement plans, no
deficiencies are projected that would reduce or limit the overall housing
capacity of the City.

Housing conditions and housing demand will change between 2022 and
2036. This section seeks to identify some of the major themes that are
expected to present themselves during the twenty-year planning period.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 6
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

SINGLE FAMILY DETACHED

The Land Use Element includes a capacity estimate of overall housing

within the City and UGA, projecting that up to 2,392 more single family
units and 1,918 multifamily units could be constructed by 2036. The City
requires significantly higher densities in certain areas of the City. The
estimate also does not attempt to project the variations of residential
development discussed later in this element, which may blur the lines between single and
multi-family development. As of 2022, the City has the capacity to accommodate another
2,392 single-family units and 1,918 multi-family housing units.

DEMOGRAPHIC TRENDS (INVENTORY AND ANALYSIS)

This section includes an inventory of housing types within the City as well
as future growth projections and needs within the twenty-year planning
period. Where applicable, additional analysis is provided.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 7
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Existing Conditions and Anticipated Housing Trends

The current (2022) population

FIGURE 4
of Ferndale is 15,790. As
shown in the Housing
Snapshot to the left, there are
5,966 dwelling units in the City.

The City has been remarkably

consistent in terms of
household population,
maintaining an average
population of between 2.49
and 2.78 persons per
household since 1980.

This plan anticipates a slight

decrease to 2.48 persons per
household by 2036. A total of
1,211 new residential units,
with ninety percent of these
units built as traditional single
family detached houses, are
expected by 2036– resulting in
a total population increase of
3,661.

One purpose of the Housing Element is to establish policy directives for the future of
housing in Ferndale. In order to develop these policies, at least a basic understanding
of future growth and demographic trends is required:

● Ferndale's population will continue to increase, and will require housing accessible
at all income levels.
● Ferndale’s population is aging and will demand a new supply of appropriate and
affordable housing, ranging from multifamily units to group quarters that facilitate
aging in place.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 8
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

● Following major shifts in the housing

market since the 2016 WHAT IF: BETTER NEIGHBORHOODS
Comprehensive Plan update,
affordable home ownership
opportunities are limited, especially At its most basic level, this element seeks to
for households earning less than ensure that future housing in Ferndale will
160% of median income. serve the needs of future Ferndale
● Low rental vacancy rates County- residents, allowing them to pursue their
wide have contributed to rising individual dreams and lead their lives
rental costs in the City. About 57% based on their own terms.
of Ferndale renter households are
housing cost burdened, meaning The City has an important role to play, by
rent and utilities require more than ensuring that neighborhoods have access
30% of household income. to transportation, recreation, schools, and
● Sidewalks and other urban jobs. The City is also responsible for
amenities that have come to be providing police and fire services, as well
expected in many areas are not as water and sewer.
available in all neighborhoods.
● The City is focused on closing gaps The Developer is also responsible for
between housing along Portal Way ensuring that the housing they create does
and LaBounty Drive and other not prevent future residents from achieving
community assets, such as trails, their goals. This can be accomplished by
parks, or schools. creating sufficient open space, adequate
● Housing within the Downtown core parking, and safe, attractive and efficient
is often separated from adequate building designs.
parking facilities.
The Resident has the most important job,
● While the majority of Ferndale’s
population is in close proximity to by maintaining their home and property,
schools and parks, several of as well as taking part in community events
Ferndale’s fastest-growing and holding their elected officials
neighborhoods (Douglas Road, accountable.
Portal Way, Smith Road) are not
within walking distance. This Comprehensive Plan seeks, in part, to
make these connections more possible.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 9
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Exhibit HE-1
Population and Age Distribution by Percent

18
16
Percentage of Population

14
12
10
8
6
4
2
0
0 to 9 10 to 19 20 to 29 30 to 39 40 to 49 50 to 59 60 to 69 70 to 79 80 years
years years years years years years years years and over

Ferndale 2022 Ferndale 2010

Source: Esri Updated Demographics, 2022

Projected Demographic Shifts.

Demographic changes in Ferndale will have major implications for future housing needs.

Aging population: Like most cities in Whatcom County, Ferndale’s median age is
gradually increasing. Improved health awareness and technological advances in health
care are allowing people to live longer today than in the past. As the aging population
moves through retirement, there will be an increased need for assisted living facilities. An
increase in “active retirees” who favor smaller homes while still preserving their
independence is also expected.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 10
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

According to the U.S. Census Bureau, the median age of Ferndale residents is 38.1, an
increase of 5.1 years from 2005 levels. The median age of Ferndale residents is younger
than Whatcom County (38.7) and the United States (38.8). The average household size
in Ferndale contains 2.68 members. This is greater than both the average Whatcom
County household size (2.45) and that of Washington State (2.54). The percentage of
population by age for Ferndale, Whatcom County and the State of Washington is shown
in Exhibit HE-1.

Generational Preference: Younger generations have increasingly favored smaller

homes and even multi-family residences not only as an affordable alternative to traditional
single family development but in some cases as the preferred alternative to a single family
lifestyle. Often, the housing choices of the younger generations may overlap with the
choices of older generations, prioritizing close proximity of residential housing to dining,
shopping, and work. A robust Downtown or mixed use environment is expected to act as
a draw for many of these residents.

Household Trends: Nationwide, it is projected that over the next four decades the
number of one-person households will increase substantially. These one-person
households may vary significantly from one another, and will feature individuals across
many demographic groups. The land use needs for these households will also vary
substantially, but in general the overall building or unit size may decrease from existing
levels.

Regional Inventory: Ferndale’s housing market is significantly influenced by the housing

trends and inventory in Bellingham and surrounding cities. If the inventory of affordable
single family lots in Bellingham is diminished, it is likely that Ferndale will experience
increased demand – and vice versa.

This is evidenced by the fact that when the inventory of single family residences
diminishes in Bellingham, Ferndale often experiences an increase in single family
applications. For multi-family development, scarce availability of multifamily residential
units in Bellingham tends to increase the rental rates of multifamily development in
Ferndale.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 11
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

COST OF LIVING:

Affordable housing and the cost of living are closely related issues. The percentage of income devoted to
housing costs is generally higher than the national average, which creates potential risk to low and even
moderate-income households. Traditional housing cost analysis focuses on rent or mortgage payments,
but a more accurate measurement considers grocery, utility, transportation and health care costs.

Put simply, if more efficient, more durable fixtures, heating units, insulation, and other methods of
construction are integrated into new structures at the time of development, the cost of living for residents
through the life of the structure will be reduced. While this may result in moderately higher costs initially,
the net benefit to tenants could be significant. In order to reduce the economic strain on residents, the
city can look to methods of easing these costs by reducing the overall cost of housing, in the following
areas:

- Grocery: Community organizations such as the Ferndale Food Bank provide free or low-cost groceries.
Grocery purchases represent a private transaction with little City control or oversight, beyond
establishing land use controls that permit and encourage competition. Maintaining a vegetable garden
can reduce household food expenses. The City recognizes this absolute right and permits its use.
- Health: The City does not have direct control over health care, but the promotion of active lifestyles,
creation of trails and open spaces, establishment of bicycle lanes, and utilizing Well-City and other
programs may reduce these costs.
- Transportation: The City may seek to reduce transportation expenses to households by meeting the
transit needs of existing development and encouraging the location of new housing in transit corridors.
- Utility Costs: The City does not have direct control of utility billing for private service providers, but may
seek to emphasize or require high efficiency construction that will reduce utility costs, such as:
• Building Methods: The City may consider adopting additional or alternative building and
development codes that emphasize high-efficiency development, either as a method to remove
obstacles to those applicants who wish to pursue these options, or to raise the bar for all applicants
by requiring a higher minimum efficiency level. Building with more affordable materials and
methods of construction can also help to produce structures at an overall lower cost; however, this
should not compromise lasting quality or energy efficiency.
• Energy efficient fixtures: Building and retrofitting dwellings to improve energy efficiency can
significantly reduce water and electric bills. The upfront costs of investing in efficient heating and
cooling systems, low flow bath fixtures, and even solar panels can be recouped in a matter of years.
Furthermore, Puget Sound energy and Cascade Natural Gas offer rebate programs for the
installation of higher efficiency heating systems depending on a home’s current heating and energy
sources.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 12
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Housing Affordability

According to Esri’s Updated Demographics (based on US Census Bureau data), the

median house value in Ferndale in 2022 is $454,651. This value is significantly higher
than that of the United States ($369,919), but lower than the median Whatcom County
house value ($528,685) and that of Washington State ($550,561). Exhibit HE-2 illustrates
the value of housing in Ferndale compared with housing costs in Whatcom County and
in the State of Washington.

Exhibit HE-2
2022 Housing Value by Percent
Home Value Ferndale Whatcom County Washington
Less than $50,000 1.81 2.46 2.05
$50,000 to $99,999 0.54 1.08 1.45
$100K to$149,999 2.12 0.77 1.87
$150,000 to $199,999 2.86 1.50 3.47
$200,000 to $299,999 8.82 5.60 11.24
$300,000 to $399,999 25.88 21.04 21.62
$400,000 to $499,999 26.32 27.16 16.44
$500,000 to $749,999 28.49 27.48 22.41
$750,000 to $999,999 1.51 8.00 10.91
$1,000,000 or more 1.66 4.91 8.53
Source: Esri Updated Demographics, 2022

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 13
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Exhibit HE-3
Housing Costs – Single Family

Housing values in the Ferndale area

Number of Single-Family Homes Sold
have rebounded since the Great
in Ferndale
Recession from 2008 through 2010. As of
2016, the average home value has 300
returned to pre-recession levels. While 250

Number of Homes
housing values have fluctuated due to
economic uncertainty, housing values in 200
Ferndale remain slightly less than 150
similarly sized development in
100
Bellingham. In addition, the available
single family housing stock in Ferndale 50
provides a range of alternatives to the
0
Bellingham market, which has become 2013 2014 2015 2016 2017 2018 2019 2020
increasingly focused on multifamily FIGURE
Year 5
development.
Source: Whatcom County Association of Realtors

Housing Costs – Multi-Family (Rental) Ferndale Median Home Sale Price

There are few multi-family vacancies in $700,000
Ferndale or in the wider Whatcom $600,000
Median Home Price

County area. The lack of available

$500,000
multifamily units reduced the countywide
vacancy rate to 1.3% in March 2018, $400,000
before dropping to 0.4% in March 2019, $300,000
and then rebounding to 1.1% by March
$200,000
2022. The low vacancy rates region-wide
have contributed to higher rental costs $100,000
($1,166 March 2022, $815 March 2014) $0
and have likely reduced cost variations
from jurisdiction to jurisdiction. While in
2000, Ferndale’s average rent was Year
approximately 95% of the average for
Whatcom County as a whole, Ferndale’s Source: Redfin Housing Market Data
rents were 87% of Whatcom County’s as
of 2020.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 14
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Ferndale Income Levels

Median income is defined as the mid-point of all reported incomes. For example, half of
all households had higher incomes and half of the households had lower incomes than
the mid-point. The median household income in Ferndale in 2022 is $84,537. This is
slightly lower than the median state income of $88,312, but is slightly higher than the
national median income of $72,132. Exhibit HE-4 illustrates the income range of Ferndale
residents compared with residents of Whatcom County and the State of Washington.

Exhibit HE-4
Distribution of HH Income as % of Households
Income in 2022 Ferndale Whatcom County Washington
Median Household
Income $84,537 $76,364 $88,312
Less than $15000 6.63 7.12 6.23
$15,000 to $24,999 3.72 7.14 5.49
$25,000 to $34,999 6.23 7.44 5.63
$35,000 to $49,999 8.06 8.32 9.21
$50,000 to $74,999 15.84 18.79 15.57
$75,000 to $99,999 20.37 16.02 13.16
$100,000 to 149,999 24.5 18.99 19.76
$150000 to $199,999 10.49 8.66 11.02
$200,000 or more 4.17 7.52 13.95
Source: Esri Updated Demographics, 2022

While Ferndale’s median household income has remained relatively consistent when
compared to state and national averages, the percentage of people earning less than
$35,000 per year (not adjusted for inflation) declined more between 2013 and 2022 in
Ferndale (-52%) compared to Whatcom County (-38.7%) or Washington State (-40%).

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 15
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Housing Equity

It is an obvious statement that different income household groups can afford different
housing prices. It is generally accepted that households that pay more than 30 percent of
their gross income in housing costs are in distress.

The U.S. Department of Housing and Urban Development (HUD) uses the following
definitions to define income levels:

Group % of Median Income Corresponding Household

Income levels in Ferndale1

Extremely low income Below 30% of median income Less than $25,361/year

Very low income Between 31% and 50% of Between $25,362 and
median income $42,268/year

Low income Between 51% and 80% of Between $42,269 and

median income $67,630/year

Moderate income Between 81% and 95% of Between $67,631 and

median income $80,310/year

Middle income Between 96% and 120% of Between $80,311 and

median income $101,444/year

1
2022 Household Income Levels are from Esri’s Updated Demographics for the City of Ferndale. These
are slightly lower than the Median Income Limits for a family of 4 for the Bellingham MSA shown in the
Summary of Future Housing Needs section.
City of Ferndale – Comprehensive Plan Housing – Chapter III
November 2022 Page 16
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Exhibit HE-5 compares local, state and national income and poverty levels:

Exhibit HE-5
A person who is making $84,537 a
COMPARISON OF 2020 INCOME year (the median family income) is
LEVELS considered to be living in
affordable housing if his/her
$120,000.00 monthly payments for housing do
$100,000.00 not exceed $2,113 per month.
$80,000.00 Many people do not make this
$60,000.00 amount of money in Ferndale. A
$40,000.00 person who is making $14.49 per
$20,000.00 hour (Washington State minimum
$- wage, 2022) and works 40 hours
PER CAPITA MEDIAN FAMILY MEDIAN per week earns approximately
INCOME INCOME HOUSEHOLD $30,100 per year, or $2,508 per
INCOME month. According to the affordable
Ferndale Washington United states housing definition, this person’s
rent and cost of utilities cannot
exceed $752 per month to be
POVERTY LEVELS considered affordable.
16.0%
In addition, based on the average
14.0%
14.4% county-wide rental rates of $1,166
12.0% 13.0%
12.8% per month an individual would
10.0%
10.2% need to earn $46,640 per year to
8.0% 9.1% sustain those rates at 30% of
6.0%
6.5% overall income. Exhibit HE-6
4.0%
shows that nearly 57% of
2.0%
Ferndale’s renting population does
0.0%
not meet these earning
% OF PEOPLE BELOW % OF FAMILIES BELOW
POVERTY LINE POVERTY LINE requirements.
Ferndale Washington United states

Source: Esri Updated Demographics, 2022

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 17
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Exhibit HE-6

Affordable Rent based on Monthly Income

$8,000

$7,000 Income: $6,672 /month 57% of Ferndale renter

households are housing
$6,000 cost burdened2
$5,000
Income: $3,887 /month
$4,000

$3,000 Income: $2,508 /month

Rent: $2,002 /month
$2,000
Rent: $1,166 /month
$1,000 Rent: $753 /month

$-
US Median Family Income Minimum Wage Amount to Afford Whatcom
County Avg Rental Rate

Monthly Income Affordable Monthly Rent

2

Historically, federal and state governments have played primary roles in meeting the
housing needs of low income households. The role of local government, especially those
cities (such as Ferndale) that, due to their size do not have full access to programs that
may reduce the cost of affordable housing, has primarily been to ensure that adequate
land is zoned for a variety of housing choices.

While small local governments may not be able to provide direct financial assistance to
low income households, they can have a significant influence in ensuring that low income
households have access to transportation, schools, recreation, shopping and jobs.
2 57% of Ferndale renters are housing cost burdened according to US Census Bureau ACS 2020
statistics, indicating that these households have existing housing costs that are above 30% of their
monthly income. Nearly 25% of total Ferndale households cannot afford the average rental cost based on
income levels (see Exhibit HE-4). Total household incomes include all households, including
homeowners, many of whom can afford well above the average rent but are not renters. Cost burdened
renter statistics also include households that may be able to afford the average rent but are paying
housing costs that are above average. This can occur for many reasons but is often related to larger
households that require larger than average rental units.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 18
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Further, local government has the ability to reduce certain housing costs by requiring that
construction methods do not lead to high utility costs for consumers.

Age of Housing/ Maintenance and Preservation

The age of housing units within an urban area is sometimes indicative of the condition of
the overall housing stock, depending on how well the homes are maintained. Whereas
well-maintained historic homes and districts can significantly increase property values,
poorly maintained older housing can depreciate property values while proving dangerous
and unsightly.

Ferndale does not have a great deal of older units. 3,262 homes in Ferndale have been
built since 1980, which is 61% of Ferndale’s existing housing stock. Ferndale’s relatively
new housing stock is quite apparent in comparison with Bellingham’s housing supply.
17% of all units in Bellingham were constructed prior to 1940. Ferndale has 571 housing
units that were constructed prior to 1940, which represents 10.65% of the city’s total
housing stock.

Exhibit HE-7 shows the age of the housing stock in Ferndale.

Exhibit HE-7:
Age of Housing in the City of Ferndale
1200
958
1000
Number of Units

780 791 821

800
571
600
431
400 302 288 294

200 126

Year Constructed

Source: U.S. Census Bureau ACS 5-Year, 2020

City of Ferndale – Comprehensive Plan Housing – Chapter III
November 2022 Page 19
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

For the most part, newer homes are located in the northwest section of Ferndale, although
new neighborhoods have been developed in the last ten years at Portal Way, Douglas
Road, Smith Road, Church Street, Thornton Street, and LaBounty Drive. The older
homes are generally located in areas near the downtown, especially the area just north
of downtown.

Approximately 44% of all housing in Ferndale was built between 1950 and 1990, the
period in which nearby Cherry Point industries were established and Ferndale’s growth
accelerated. While the majority of the residential structures built during this time were
built to a high standard, many of them will exceed their useful life within the twenty year
planning period. As a result, it is likely that there will be opportunities for additional infill
development or reconstruction on existing lots within some of these neighborhoods by
2036.

Condition of Housing

For the most part, the housing stock in Ferndale is in good condition. The City has very
little concentration of substandard housing, which is typically found in older urban areas.
However, houses in poor condition do exist in isolated areas within the City. While
significant variation exists, homes constructed between 1945 and 1980 are more likely to
see an increased need for maintenance over the course of the planning period to avoid a
decline into substandard housing.

The Whatcom County Assessor’s Office provides information related to housing

construction quality, which is a good indicator of housing condition. The Assessor’s data
indicates that the quality of the overall housing stock is average to above average
citywide. There are a few areas, however, where the condition of housing is less than
average. Two such areas of note are the area immediately north of downtown and the
central core area. There are also scattered pockets of substandard housing located along
the Portal Way corridor. The City is aware of the housing condition in these areas.
Preventing existing affordable housing stock from deteriorating is a key to retaining
existing affordable housing.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 20
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Owner/Renter Occupied Dwelling Units

As shown in Figure 5, the Figure 5

percentage of owner-
occupied housing stock has FIGURE 7
remained relatively stable
over time. The City projects
that the percentage of renter-
occupied housing will
increase by 2036.

HOUSING MIX

Single Family Dwelling

Units

There are currently 4,057

single-family residences in
the city (April 2022). Lot sizes
vary widely. Smaller lots are
generally located near the
downtown area. Larger lots
are concentrated in the
western portion of the City,
especially along Church
Road. This area in particular
is one of high real estate
value, due in part to the views
of Mt. Baker and the
surrounding countryside that
are available from that area. Since 2013, the City has changed zoning to encourage and
accommodate greater density. Strategies have included upzoning, establishing minimum
densities for certain zones, passing ordinances focused on accommodating different
housing types such as ADUs and duplexes, and establishing a mixed use commercial
City of Ferndale – Comprehensive Plan Housing – Chapter III
November 2022 Page 21
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

zone that can accommodate housing alongside other uses. This has resulted in an
increase in housing construction in Ferndale, yielding over 900 residential units from 2013
to 2022. In 2014 the City adopted “lot averaging” requirements in order to allow increased
flexibility and higher densities. These regulations have succeeded in both respects and
over time will likely reduce the variability of lot sizes throughout the City.

Multi-family Dwelling Units

The Office of Financial Management considers multi-family development to be two or

more housing units, apartments and condominiums. The bulk of the 1,499 multi-family
housing units are located near the downtown area, north of the downtown area and along
Main Street. A few units are also scattered along Portal Way, just east of the freeway.
All of these units are within walking distance of downtown Ferndale, or are near the bus
route operated by the Whatcom Transportation Authority (WTA). Most multi-family
dwelling units are located in the RM 1.5 zone.

Group Quarters Figure 6

In Ferndale, there are two group
quarters facilities: Heritage
House Assisted Living, and the
Malloy Place 2 Adult Family
Home. Together they have the
capacity to house approximately
60 residents. No additional group
quarters were built between 2016
and 2022. To facilitate
opportunities to age in place, the
City must accommodate a variety
of housing types, including more
group quarters.

Mobile Homes

There are an estimated 447

mobile homes inside the city (April 2015). All but 7 manufactured homes are located
within ten manufactured home parks or villages. Two manufactured home parks are

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 22
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

located on Douglas Road; two are located on Main Street; two on Trigg Road, and four
are located on Portal Way.

Special Needs Populations

There are many people in Ferndale who require housing that is directly linked to
supportive services and/or is designed to accommodate physical disabilities, some for a
limited time and others on a permanent basis. The private market, for the most part, does
not meet the housing and service needs of these groups, especially if they are low-
income. However, the need is independent of a person’s income; rather, it is typically
necessary due to a crisis or disabling condition. Unfortunately, many people who are
permanently disabled usually fall into the very low-income category due to the limitations
of their disability.

Subsidized Housing

Included in Ferndale’s 5,966 housing units are a limited number of subsidized housing
units. These subsidized units are typically owned by private non-profit agencies and
reserved mostly for the elderly, physically disabled, or those with other special housing
needs. In addition, several households were renting using Whatcom County Housing
Authority Section 8 vouchers. A household with a Section 8 voucher can live anywhere
in the county. The tenant pays 30 to 40 percent of their income toward the rent and HUD
pays the remainder – up to a certain limit. Tenants are encouraged to pay no more than
30 percent of their income, but are permitted to pay up to 40 percent if necessary to obtain
suitable housing.

The demand for both subsidized housing and vouchers far outstrips the housing supply.
Individuals making application for subsidized housing are typically on a waiting list for 1½
to 2 years.

In addition to subsidized rental housing, Whatcom Skagit Housing (WSH) self-help homes
have become an important part of the single-family residential community. There are
approximately 220 Self-Help Homes inside Ferndale, 145 of which were built between
2005 and 2015. In 2020, WSH built 10 homes in Ferndale Village, and bought lots to
build 41 homes in Malloy Village, of which at least 8 have been completed. Self-Help
Homes are built with assistance from the U.S. Department of Agriculture, in a co-op
method where the buyers of the homes in the area team up to help each other build the
homes, thus cutting down on construction costs. The program provides an opportunity

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 23
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

for home ownership for a segment of the population who otherwise would not be in a
position to purchase a home.

SUMMARY OF FUTURE HOUSING NEEDS

Exhibit HE-8

Ferndale Housing by Family Area Median Income

2020 2044 Projected 2044 Net

2020 2020
Income 2020 Family 2019 Permanent Permanent New
Rentership Ownership
Band Income Values3 Households Housing Housing Housing
Units Units
Supply Needed Needed
0 - 30% $0 - $26,200 1035 197 -- 197 TBD* TBD*
30 - 50% $26,200 - $42,650 1590 265 288 552 TBD* TBD*
50 - 80% $42,650 - $68,250 1890 941 389 1330 TBD* TBD*
80 - 100% $68,250 - $86,300 1655 218 671 889 TBD* TBD*
100 - 120% $86,300 - $103,560 45 629 674 TBD* TBD*
6495
120%+ $103,560+ 42 1868 1911 TBD* TBD*

Total 12665 1708 3845 5553 TBD* TBD*

*The 2044 Projected Permanent Housing Needed and 2044 Net New Housing Needed will be determined
as part of the periodic review and update of the Comprehensive Plan in 2025 using the Washington State
Department of Commerce’s Housing for All Planning Tool (HAPT). The projected permanent housing need
by income for Ferndale will be developed in close coordination with Whatcom County and the other cities
within the County.

3 2020 Family Income Values are from US Department of Housing and Urban Development’s Median
Income Limits for a family of 4 for the Bellingham MSA. These are slightly higher than the Ferndale
Household Median Income limits shown in the Housing Equity section.
City of Ferndale – Comprehensive Plan Housing – Chapter III
November 2022 Page 24
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Population Growth

Ferndale had a very small

population that saw little change Exhibit HE-9
in the early to mid-1900s. The
Year Total Population Net Percent
1950s saw an increase primarily
Population Increase Increase
due to the Conoco-Phillips
refinery that is located west of the 1910 691 - -%
city. With the completion of 1920 759 68 10%
Interstate 5 in 1976, as well as the 1930 752 -7 -10%
opening of the BP refinery at 1940 717 -35 -50%
Cherry Point and Alcoa Intalco 1950 979 262 37%
Works, Ferndale’s population saw
1960 1442 463 50%
significant growth. BP and Alcoa
1970 2164 722 33%
brought numerous jobs to the
1980 3855 1691 78%
area, creating a massive job
market. The interstate linked 1990 5398 1543 40%
Ferndale with the rest of Western 2000 8758 3360 62%
Washington, making it easier to 2010 11210 2452 28%
commute to and from Bellingham 2015 12920 1710 15%
and other nearby communities. In 2020 15048 2128 16%
the 10-year period from 1970 to 2022 15970 922 6%
1980, Ferndale’s population grew
Source: US Census, Washington State Office of
at a staggering rate of 78%. The Financial Management
population rate in the 1990s slowed
to a more sustainable rate of 38%, or 3.84% per year. From 2010 to 2020, Ferndale
was home to 14.1% of countywide population growth, and this proportion is anticipated
to remain similar in the coming decades.

Past population growth can be summarized by the following Census population

numbers for Ferndale, beginning in 1910 [Exhibit HE-9].

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 25
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

FLEXIBILITY

As has been documented in this element, the City of Ferndale anticipates

that historic housing trends will need to change in order to accommodate
future population demand. The traditional suburban single family detached
development will still remain a major element of the landscape but will be supplemented
by a variety of other housing types.

In addition to a description of the various housing types that may be developed in

Ferndale (and there are certainly more than what are listed here), this section seeks to
discuss the geographic area in which these housing types may be located, the mix of
housing choices (and in some cases land uses), and the basic design configurations of
various housing options.

There are three major strategies to accommodate future housing growth: infill
development within existing neighborhoods, development within “greenfield”
areas that have not yet been developed, and higher-density housing choices within
and around the Downtown core, which may be considered as a subset to infill
development.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 26
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

INFILL DEVELOPMENT

The concept of infill development encourages development in the interior portions of the
City, where development already exists in addition to facilitating development in other
parts of the City. Infill development is
the opposite of urban sprawl. Urban
Figure 7
sprawl spreads out across the
landscape and consumes vast
quantities of land. Instead of spreading
development along the City's periphery,
infill development focuses on keeping
the City's overall development pattern
compact using vacant and underutilized
land within the interior of the City. Infill
development can also lower the cost of
development and the cost of providing
infrastructure because it is already
provided for in the city, as shown in
Figure 7.

This Plan seeks to facilitate

development throughout the City,
while adding new development in
harmony with existing
neighborhoods.

Infill does not limit the growth of a community. Instead, the Plan focuses growth to those
locations that are desirable, where it is in the public interest to grow and where future
growth options can be exercised. This Plan seeks to facilitate development throughout
the City, while adding new development in harmony with existing neighborhoods. By
promoting infill development, the plan does not compromise public open space or
environmental protection; instead, it strengthens the form of the community while
attempting to decrease the cost of serving new and existing development.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 27
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Existing Neighborhoods: The majority of the City’s residential neighborhoods consist of

detached single-family residences, the majority of which have been constructed within
the last fifty years and are expected to remain in place throughout the planning period.
One of the most important goals of any comprehensive plan is to retain the character of
existing, sustainable neighborhoods – rather than develop plans to radically transform
those neighborhoods simply to accommodate future growth.

FIGURE 8

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 28
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

The City anticipates that

future infill development
within existing residential
neighborhoods and
subdivisions will consist of
the following: Accessory
Dwelling Units or “mother in
law suites,” the re-
subdivision of existing
developed or undeveloped
lots, the development of
remaining undeveloped lots
with single family
residences, and the
establishment of duplexes
or attached single family
residences on existing or FIGURE 9
new lots. None of these
development types are expected to depart significantly from the existing housing forms
experienced in these neighborhoods – the future of the vast majority of Ferndale’s
single family neighborhoods will not be in the form of large multi-family apartment
buildings. In fact, many of the changes within existing neighborhoods will likely be
initiated by existing older residents who take steps to age in place within their current
home.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 29
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Accessory Dwelling Units:

FIGURE 10 – ACCESSORY DWELLING

UNITS AND MOTHER IN LAW SUITES

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 30
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Zero Lot Line, Attached Single Family, Townhouses:

FIGURE 11
-

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 31
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Duplex:

FIGURE 12
-

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 32
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

NEW DEVELOPMENT

New Development – Single Family Zones: The vast majority of new growth within
established single family zones will be the development of existing vacant or lightly-
developed properties of ½ acre or larger. This development will consist primarily of single
family detached development.

While the basic future land use will

remain consistent with historic
development, future residential
subdivisions are expected to utilize
Figure 13 land more efficiently, through a
combination of smaller lots, street
widths that are comparable with
demand, integrated wetland and
stormwater elements, and more.

In 2014, the City of Ferndale

removed decades-old regulations
requiring relatively large “minimum
lot size” requirements, allowing
increased flexibility to avoid
sensitive areas while maintaining
urban densities. These changes
increased the actual development
potential of the City without
increasing the densities that were
already allowed per the City’s
existing regulations.

As part of required compliance with

Washington State stormwater regulations, the City has also sought to decrease

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 33
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

impervious surfaces by reducing required street widths, thereby returning additional land
for development or preservation purposes.

Conventional Single Family Development:

FIGURE 14
-

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 34
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Planned Unit Development:

FIGURE 15
-

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 35
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Cottage Housing:

FIGURE 16
-

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 36
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

NEW DEVELOPMENT – TRANSITION AREAS (PORTAL WAY, LABOUNTY, WEST

MAIN):

Properties along Portal Way, LaBounty

Drive and Main Street west of
Washington Avenue have been
designated for high density residential
Figure 17 uses that may be used as a buffer or
transition area between single family
and mixed use or commercial
development. In addition to duplexes,
cottage housing and mixed density
Planned Unit Developments which are
shared between single family and
transition areas, the following housing
forms will likely be the dominant type of
development in these areas (though
they may not be applicable to all
zones):

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 37
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Townhouses:

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 38
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Triplex and Fourplex:

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 39
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Live/Work:

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 40
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Courtyard Apartment:

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 41
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Midrise Apartments:

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 42
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

DOWNTOWN CORE

Many of the forms of housing development that are anticipated within the transition areas
will also be found in the Downtown core,
Figure 23 including courtyard and mid-rise apartments,
townhouses, live-work developments, and a
limited number of triplexes and fourplexes.
As the Downtown area is expected to retain
a more-compact – and vertical - urban form,
lower density development will only be
considered in certain circumstances. As
described in the Land Use Element, the
future success of Downtown Ferndale will
depend upon a critical mass of residents
within walking distance of the core; stand-
alone housing developments that do not
create additional density do not support this
long-range vision.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 43
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Mixed Use:

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 44
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

HOUSING CHOICE

This plan has described a variety of housing types that currently exist or
that may be constructed within the twenty-year planning period. These
housing types provide a variety of options for new and existing residents.
Invariably, the relative costs of these housing types will create some separation based on
wealth, age, family size or other demographic measurement – where certain housing
types may not be available to all people.

This plan seeks to limit the stratification of Ferndale’s housing environment. The different
housing options described above are not intended to act as surrogates for class or
demographic divisions. Apartments and multifamily living should support a variety of
groups, not just the young, the old, or the poor. Single family residences should be
available to individuals and families at a variety of income levels, and single family
neighborhoods should be designed to support diverse economic segments.

The City does recognize its limited ability to influence housing choices without offering
economic or development incentives, though these abilities may change by the end of the
planning period. Until that time, the City is tasked primarily with exploring alternatives,
ensuring that land use controls do not act as a barrier to housing choices across economic
sectors, and encouraging or requiring that new residential development meet or exceed
State requirements for durability, efficiency and aesthetics.

SENSE OF PLACE

The Ferndale community has expressed consistent concern that as

Ferndale grows, the essential characteristics of the Ferndale community
will change and become unrecognizable. Further, there is a concern that
new residential developments may lack distinction and that Ferndale will become an
anonymous bedroom community undistinguishable from any other North American town.

Sense of Place is an easy concept to define, but difficult to authentically achieve. Forced
creations of sense of place through themed environments tend to fail – and the City has
City of Ferndale – Comprehensive Plan Housing – Chapter III
November 2022 Page 45
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

found that the most successful human environments result by permitting flexibility in
development and encouraging or requiring innovation. The City does not intend to permit
developments that contain no differentiation between structures and no creativity in
design.

Ferndale’s sense of place will change over time. This plan is intended to allow those
changes to occur organically.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 46
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

ACTIVE LIVING ENVIRONMENTS

The City of Ferndale seeks to collaborate with private development to

promote physical activity and to ensure that all residents have access to
active living opportunities. The City recognizes that these opportunities
and activities may take a variety of different forms, and depend on a wide
variety of factors.

The City has three primary roles in providing active living environments to its residents:
through the coordinated parks and trails system and the City’s sidewalks, by establishing
land use requirements that ensure that new and existing development is in close proximity
and has access to those amenities, and by maintaining and scheduling formal recreation
activities such as youth and adult sports, fitness challenges, and more.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 47
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

MAINTENANCE OF THE HOUSING ELEMENT

The Housing Element is intended to accommodate and encourage balanced housing

growth for all economic segments of society in Ferndale. The goals, policies, objectives
and data contained herein will require on-going monitoring and periodic maintenance.
Changes will be made as warranted and as allowed under the State of Washington
Growth Management Act.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 48
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

HOUSING GOALS AND POLICIES

1. The City will work to plan for and accommodate housing affordable to all
economic segments of its population, promote a variety of residential
densities and housing types, and encourage preservation and improvement
of existing housing stock. The City will institute a variety of programs that
increase the supply of housing while maintaining the essential character of
existing neighborhoods.

Rationale: Housing access and stability is central to social and economic wellbeing.
Pride of ownership, economic resilience, and sense of community are increased when
families are given an opportunity to reach the traditional American ideal of home
ownership.

Policies:
A. Provide opportunities for a wide range of housing choices affordable to
extremely low-income (0 to 30% area median income), very low-income
(>30 to 50% area median income), low-income (>50 to 80% area median
income) and moderate-income residents (>80 to 120% area median
income).
B. Allow for alternative high-density developments in multifamily zoning that
allow for owner-occupied units, zero lot line development, duplex divisions,
triplex divisions, townhomes and more.
C. Allow owner-occupied manufactured home communities and/or
subdivisions.
D. The City will document programs and actions needed to support production
of housing for all income levels of the population, and will identify limitations
to meeting projected demand.
E. The City will encourage housing developers to provide housing that is
attractive and affordable to first-time and very low- to moderate-income
home buyers.
F. The City will seek to use federal and state grant and loan funds to develop
housing that is attractive and affordable to first-time and low- to moderate-
income home buyers.
G. The City will seek to allow a variety of infill development in all of its
residential areas.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 49
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

H. The City will explore development and enforcement regulations that ensure
affordable housing is not minimally built, improperly maintained, or blight-
threatened.
I. The City will leverage public maintenance and repair projects with the goal
of using these projects to advance larger goals related to encouraging
density, improving connectivity, and maintaining and enhancing
neighborhood quality.

2. Provide opportunities for housing that responds to the needs of changing

household demographics, such as shared housing.

Rationale: Extended families, retired persons, and adult children are segments of the
population that have housing needs other than single family detached or apartment
dwellings.

Policies:
A. Refine existing Accessory Dwelling Unit (ADU) regulations to reduce the
cost of development and remove barriers to ADU development. Revised
regulations should be clear and objective, and promote the creation of
attached and detached ADUs in single-family zones.

3. Encourage infill development and re-development in existing, older

neighborhoods within the City.

Rationale: Development of difficult, passed-over parcels of land affords a special

opportunity to provide affordable housing. Existing infrastructure can reduce
development costs. Flexibility in development standards can provide further opportunities
to provide housing that recognizes the development limitations that often exist on infill
properties. New development can bring new vitality to a declining neighborhood.

Policies:
A. Provide incentives through flexible zoning techniques, such as zero lot line
development or cluster subdivisions on small parcels, when such projects
are not incompatible with adjoining uses.
B. Provide special incentives such as increased density or reduction in parking
demand for senior housing projects near the Nooksack River, the
downtown, or the senior center where the proximity to transit routes and
City of Ferndale – Comprehensive Plan Housing – Chapter III
November 2022 Page 50
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

services likely used by senior populations would justify a reduced parking

need.
C. Provide opportunities for housing developments in areas that are
constrained by environmental factors to realize potential density
requirements through clustering, increased height limits, or other
flexibilities, while preserving critical areas.

4. Identify and implement policies and regulations to redress racially disparate

impacts, displacement and exclusion in existing and planned housing
caused by local plans, policies and actions. Commit to ongoing learning and
review to implement this goal.
Policies:
A. Ensure goals, policies and development regulations do not discriminate on
the basis of race.
B. Consider use of equity criteria to guide planning and decision making for
infrastructure investment.
C. Identify areas that may be at higher risk of displacement from market forces,
including after capital investment decisions or changes to zoning
regulations. Review capital investment decisions, changes to zoning, and
changes to development regulations to understand how market forces may
impact displacement risk. Identify and implement best practices to reduce
the risk of displacement.
D. Develop regulations to preserve low, very low, extremely low and moderate-
income housing.
E. Identify and implement incentives and initiatives that promote development
that serves all economic segments of the community.
F. Periodically review housing needs and availability data. Consider
inclusionary zoning land use controls and other programs to maintain
housing availability and achieve related goals.

5. Provide for and encourage the use of Planned Unit Developments to improve
the quality of a wide variety of housing projects.
City of Ferndale – Comprehensive Plan Housing – Chapter III
November 2022 Page 51
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

Rationale: All types of housing can benefit from flexible zoning techniques such as
Planned Unit Developments and cluster subdivisions. These techniques have the
advantage of preserving open space, wetlands and other sensitive areas; they can reduce
infrastructure costs; provide for greater opportunities to separate uses when appropriate
and provide for mixed-use development when that is appropriate.

Policies:
A. Continue to evaluate Planned Unit Development regulations to provide
increased flexibility beyond the prescriptive subdivision standards.
B. Utilize Planned Unit Development regulations to allow for limited
experimentation of new housing types, combination of uses, and pilot
developments.

6. Ensure that new housing projects do not detract from existing

neighborhoods.

Rationale: Infill projects, while offering a substantial opportunity for affordable housing,
can also adversely impact existing neighborhoods. In order to protect and preserve the
character of existing neighborhoods, a case by case review of projects based on adopted
codes – and where applicable, adopted design standards - should be completed to ensure
that appropriate project design and mitigation are provided.

Policies:
A. Public review of projects should be a requirement of any planned unit
development application.
B. Regulations for infill developments should be clear and objective to provide
consistent expectations for applicants and neighbors.

7. Require that all housing projects provide appropriate infrastructure and

mitigation to ensure that adequate provisions are made for streets, parks,
schools and other public facilities.

Rationale: Affordable housing projects should not be built at the cost of decreasing the
quality of life for existing city residents.

Policies:

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 52
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

A. Variances from development standards should not be granted in the name

of affordable housing when the City will ultimately be responsible for
maintaining and/or upgrading substandard infrastructure.
B. Roads constructed within planned unit developments may not have to meet
city street standards if appropriate provisions for private maintenance of
roads, drainage systems, and adequate emergency vehicle access are
provided.
C. The City will explore development and enforcement regulations that ensure
housing is not minimally built, improperly maintained, or blight-threatened
housing.

8. The City will seek to ensure that affordable housing is measured not only by
the initial cost of construction or rental rates, but by the actual cost of home
ownership and tenancy throughout the lifetime of the structure.

Rationale: If more efficient, more durable fixtures, heating units, insulation, and other
methods of construction are integrated into new structures at the time of development,
the cost of living for residents throughout the life of the structure will be reduced.

Policies:
A. The City will consider adopting building codes which provide alternative
methods of construction by utilizing renewable energy resources, green
building, and greater efficiency in fixtures, heating, and insulation.
B. The City will consider amending development regulations to consider the
overall cost of residential occupancy, including additional costs associated
with inefficient design, access to transportation (including transit), access to
recreational opportunities, access to schools, and access to employment
opportunities.
C. The City will evaluate the costs of maintaining private infrastructure
necessitated by Ferndale’s development standards, and shall seek to
ensure that those costs do not exceed the reasonable ability of the property
owner, Homeowner’s Association, or tenants to pay for those costs.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 53
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

9. Recognize that affordable housing projects may not yield the same return on
investment for developers as a market-rate development, and identify
incentives or other processes to encourage affordable housing.

Rationale: Projects that are geared specifically toward affordable housing can be granted
density increases beyond maximum zoning standards, when it can be demonstrated that
they are located a convenient distance to transit routes, arterial streets, schools, parks,
and will not adversely impact existing neighborhoods.

Policies:
A. Amend the Planned Unit Development ordinance to provide density
bonuses for affordable housing projects.
B. Work with Washington State legislators to improve the ability of Ferndale
and other smaller and mid-sized cities to encourage affordable housing
through incentives.
C. Aggressively pursue State or Federal grants that may provide financial
assistance for affordable housing developments.
D. Variances should never be considered that would reduce the availability of
services to residents within affordable housing developments, in the interest
of reducing development costs.

10. The City will continue to evaluate existing development, infrastructure, and
building code requirements in an effort to reduce development costs and
time delays without compromising public safety or community character.

Rationale: A small city enjoys some advantage in providing timely permit processing over
a larger jurisdiction. The city needs to strive to refine its process to ensure the shortest
possible review time in recognition that delays cost money, which in turn increases
housing costs.

Policies:
A. Provide clear, well-defined application procedures for applicants to follow.
B. Outline all developer obligations and responsibilities to potential applicants
at the earliest possible stage.
C. Encourage pre-application meetings to ensure that applicants completely
understand city standards and review procedures.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 54
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

D. Encourage applicants to hold neighborhood meetings at an early stage in

the process to ensure that public review and neighborhood concerns can
be incorporated into the design of the project.
E. Develop review procedures that can be run concurrently with state and
federal permit application procedures.
F. Avoid complicated regulatory programs that require a large amount of
administrative work (i.e., transfer of development rights).
G. Utilize technology to streamline permit applications, review, and
inspections.
H. Reduce the number of public hearings necessary for development review
while providing the public with easy and timely access to all publicly
available materials.

11. Recognize special needs, transitional or supportive and emergency housing,

and emergency shelters, as important and necessary elements of the
housing plan.

Rationale: State and federal housing laws require that local governments allow group
homes, such as adult family, residential care, and group foster homes in single family
residential neighborhoods. Beyond this mandate, the integration of smaller special needs
housing facilities within neighborhoods provides opportunities for special needs housing
to be of a higher quality, lower cost, non-institutional nature and remain compatible with
single family residential neighborhoods. Special needs housing includes permanent
supportive housing and shelters for people experiencing homelessness.

Special Needs Housing Policies:

A. Amend the provisions of the City zoning code to allow for adult family and
residential care homes in single family zoning districts.
B. Add provisions to the City zoning code to allow for larger special needs
housing facilities in appropriate location.
C. Indoor emergency shelters and indoor emergency housing shall be
permitted in any zone that allows hotels.

12. Identify the appropriate balance of responsibilities between Home Owner

Associations (HOA’s) and the City for the maintenance of infrastructure.
City of Ferndale – Comprehensive Plan Housing – Chapter III
November 2022 Page 55
CHAPTER 3: HOUSING ELEMENT
FERNDALE COMPREHENSIVE PLAN

A. Establish infrastructure requirements that do not unnecessarily burden

HOA’s with costly maintenance responsibilities.
B. Ensure that HOA’s are appropriately financed at the time of development
completion to satisfy their responsibilities for infrastructure maintenance.
C. Consider the implications of low HOA participation, especially within small
HOA’s.

13. Encourage multi-family, residential and mixed use residential-commercial

development in and around the Downtown core in order to establish an in-place
employment and customer market and to restore vibrancy to the core.
A. Seek to increase densities in and around the Downtown core.
B. Encourage the conversion of non-conforming single-family residences
within the Downtown core.
C. Identify cost reductions for code-compliant developments within the core,
provided that such reductions do not limit the City’s ability to provide
services, do not harm the environment, and do not impact adjacent or
nearby property owners.

14. Proactively address potential blight as a result of lack of maintenance of older

housing.
A. Establish and proactively enforce regulations requiring maintenance of
properties and structures.
B. Increase inter-department and inter-agency coordination to eliminate
nuisance properties associated with drug use or illegal activity.

15. Ensure that development regulations allowing a variety of housing forms are
well known to the development community and the general public.
A. Utilize illustrations and non-technical descriptions within development
regulations.
B. Establish a dedicated web presence to describe potential housing types.
C. Schedule and participate in community meetings and discussions with
industry groups to ensure knowledge of City codes.

City of Ferndale – Comprehensive Plan Housing – Chapter III

November 2022 Page 56
 Exhibit C

CITY OF FERNDALE
TRANSPORTATION ELEMENT

Adopted: September 2023

City of Ferndale
DRAFT Transportation Element June 2016

Table of Contents
INTRODUCTION ........................................................................................................................ 1
A. INVENTORY OF EXISTING TRANSPORTATION FACILITIES AND CONDITIONS ........... 3
Street and Highway Network ................................................................................................. 3
Roadway Traffic Volumes ...................................................................................................... 6
Roadway Traffic Operations .................................................................................................. 8
Roadway Traffic Safety ........................................................................................................ 15
Freight System ..................................................................................................................... 15
Pedestrian and Bicycle Facilities ......................................................................................... 17
Transit and Transportation Demand Management .............................................................. 20
B. FORECASTS, ALTERNATIVES, AND EMERGING TRANSPORTATION TRENDS .........23
Land Use Forecasts ............................................................................................................. 23
2036 Baseline and Alternatives Evaluation ......................................................................... 29
Forecast 2036 Traffic Operations with Plan Framework ..................................................... 34
Emerging Transportation Trends ......................................................................................... 35
C. TRANSPORTATION SYSTEMS PLANS ............................................................................40
Streets and Highways .......................................................................................................... 40
Non-Motorized Transportation Systems Plans .................................................................... 51
Transit and Transportation Demand Management .............................................................. 57
Transportation Improvement Projects and Programs .......................................................... 59
D. FINANCING PROGRAM .....................................................................................................66
Project and Program Costs .................................................................................................. 66
Funding Analyses with Existing Revenue Sources ............................................................. 68
Forecasted Revenue Shortfall ............................................................................................. 71
Potential Options to Balance the Plan ................................................................................. 72
Reassessment Strategy ....................................................................................................... 75
E. GOAL AND POLICIES.........................................................................................................77

i
City of Ferndale
DRAFT Transportation Element June 2016

Figures
Figure 1 Existing Highway and Street System .................................................................. 5
Figure 2 Existing (2015) PM Peak Hour Traffic Volumes .................................................. 7
Figure 3 Corridor Level of Service Segments.................................................................. 10
Figure 4 Existing (2015) PM Peak Hour Intersection Level of Service ........................... 14
Figure 5 Existing Sidewalks ............................................................................................. 19
Figure 6 Existing Transit Routes and Facilities ............................................................... 21
Figure 7 Existing & Future Land Use by District .............................................................. 28
Figure 8 Existing & 2036 PM Peak Hour Traffic Volumes ............................................... 30
Figure 9 2036 Baseline PM Peak Hour Intersection LOS ............................................... 31
Figure 10 Roadway Functional Classification .................................................................... 42
Figure 11 Roadway Federal Functional Classification ...................................................... 43
Figure 12 Transit Oriented Areas ...................................................................................... 45
Figure 13 Planned Connector Roads ................................................................................ 46
Figure 14 Truck Routes ..................................................................................................... 48
Figure 15 Bicycle Systems Plan ........................................................................................ 56
Figure 16 Transportation Improvements Projects ............................................................. 61

Tables
Table 1. Corridor Level of Service Standards ................................................................ 12
Table 2. Existing PM Peak Hour Intersection Levels of Service .................................... 13
Table 3. Highest Collision Intersections in Ferndale (2010 - 2014) ............................... 15
Table 4. City of Ferndale Roadway Functional Classifications ...................................... 41
Table 5. Corridor Level of Service Standards ................................................................ 50
Table 7. Transportation Project and Program Costs (2017 – 2036) .............................. 67
Table 8. Transportation Funding Revenue Projections (2017 – 2036) .......................... 69
Table 9. Forecasted Revenues and Costs ..................................................................... 72

ii
City of Ferndale
Transportation Element September 2023

Introduction
A city is both defined and constrained by the
network of highways, roads, trails, railroads
and transit services that facilitate the TRANSPORTATION ELEMENT
movement of its residents and goods
AT A GLANCE:
throughout the community. A comprehensive
and well-planned transportation system is SUMMARY OF CONCLUSIONS
essential to Ferndale’s long-term growth and
vitality, and the ability to move goods and
• Passenger vehicles will continue to
people is fundamental to maintaining a healthy
be the primary mode of transportation
community.
in Ferndale over through 2036.
Over time, key City transportation facilities • Sufficient capacity is available on
area are forecast to degrade with increased the majority of City streets for
land use growth. Responsible transportation motorists at all hours of the day.
planning in Ferndale is increasingly important
to maintain an efficient transportation network • Peak hour traffic (evening rush
that is vital to all sustainable communities. hour) leads to congestion at Main
Street from Interstate Five through
The Transportation Element provides the Downtown and at Second Avenue.
framework to guide the growth and • Irregular events such as traffic
development of the City’s transportation accidents, train delays, inclement
infrastructure. It also integrates land use and weather will generate longer and
the transportation system by ensuring that all more substantial congestion in the
existing and future developments are future, even if overall delays are
adequately served. While the automobile- relatively minor.
related transportation system needs provide
the core of the system, the Element also • Thornton Street Extension will
addresses the development of a balanced, address some but not all congestion
multimodal transportation system for the City issues.
and adjacent Urban Growth Area (UGA). The • Downtown congestion will not be
Element also recognizes the regional nature of relieved without adding capacity or
the transportation system and the need for reducing volume.
continuing interagency coordination.
• Alternative transportation (bike,
The Transportation Element establishes the pedestrian, transit) have significant
City’s goals and policies for developing the existing demand, but cannot be
transportation system within the City and accommodated until coordinated
UGA. The Element is based on a 2015 study alternative transportation facilities are
of Ferndale’s existing transportation network, established.
combined with projections of future growth and
transportation needs. The Element includes
five sections:
A. Inventory of Existing
Transportation Facilities and
Conditions
B. Forecasts, Alternatives, and
Emerging Transportation Trends
C. Transportation Systems Plans
D. Financing Program
E. Goals and Policies

1
City of Ferndale
Transportation Element September 2023

The Transportation Element is intended to serve as a guide for making transportation

decisions to address both short and long term needs. To meet GMA requirements, the
Transportation Element must identify existing transportation system characteristics, establish
standards for levels of service, and identify existing and future deficiencies based on land use
growth projections. The Transportation Element also discusses roadway mobility and
accessibility needs, identifies improvements necessary to enhance safety, bicycle and
pedestrian travel, and public transit. Along with the other elements of the Comprehensive
Plan, the Transportation Element establishes a flexible policy framework for making decisions
consistent with this vision, and describes a strategy for accomplishing the vision over the
long-term planning horizon (20 to 25 years).

The Growth Management Act also requires that the Transportation Element contain a funding
analysis of the capital transportation projects it recommends [RCW 36.70A.040(6)]. This
analysis should cover funding needs and resources, and should include a multi-year
financing plan. The purpose of the analysis is to ensure that the City’s transportation
systems plans are affordable and achievable. If it is not, the Element must discuss how
additional funds will be raised or how assumptions used in the analysis will be reassessed.

Varying levels of detail in transportation planning efforts

2
City of Ferndale
Transportation Element September 2023

A. Inventory of Existing Transportation

Facilities and Conditions

Travel needs within the City of Ferndale are

met by a range of transportation facilities and
services. These facilities and services provide
for travel within the City and also connect
Ferndale with the rest of the region. The City’s
existing transportation system is comprised of Transportation Facilities
interstate freeways, state highways, arterials,
Roadway/Intersection
collectors, local roads, pedestrian and bicycle
facilities, and transit facilities. A major rail line Traffic Modeling
also traverses the City and affects other travel
Pedestrian/Bicycle
modes. The following summarizes key
elements of the existing transportation system Transit
serving the City. The inventory provides input
Freight
for identifying and prioritizing the City’s
transportation improvement projects and
programs presented later in the Transportation
Element.

To provide background for identifying the transportation improvement projects and programs,
a summary of existing conditions of the study area roadway system is presented. This
includes the number of lanes and existing traffic controls, existing traffic volumes and
operations, transportation safety conditions, and the freight system. Non-motorized facilities
and transit services, which use the roadway system, are also described.

Street and Highway Network

The backbone of the City’s transportation system is the street and highway system. The
street and highway system provides mobility and access for a range of travel modes and
users. Roadways are classified by their intended function and desired service. The City’s
roadway functional classification is defined in the Transportation System Plans section of the
Transportation Element.

Figure 1 shows the existing state highway and arterial system serving Ferndale. The City is
served by state routes, and several major north-south and east-west routes that are
described in the following sections. In general, routes in the City are two lanes (one lane each
direction) with posted speeds of 25 to 35 mph. In rural areas the speed may be 45 mph or 50
mph.

State Routes
The primary state route within the region is Interstate Five, which has two travel lanes in each
direction in the Ferndale area. Interstate Five connects Ferndale south to Bellingham and
Skagit County, and north to Blaine and Canada. Four interchanges serve the Ferndale
community. The interchanges are located at Grandview Road (SR 548), Portal Way, Main
Street, and Slater Road. Posted speeds are 60 to 70 mph.

Within the northern portion of the City limits, Grandview Road is a state route (SR 548) west
of Interstate Five. East of Interstate Five, Grandview Road is a county road. Grandview Road
connects the Birch Bay community and major employment centers to Interstate Five. Within

3
City of Ferndale
Transportation Element September 2023

the Ferndale City limits, Grandview Road is two lanes with posted speeds of 35 mph. Speed
limits increase to 45 mph outside of the Ferndale UGA.

North-South Routes
In the southeastern areas of the City, LaBounty Drive and Barrett Road provide key frontage
roads parallel to Interstate Five. These roadways allow for non-freeway traffic circulation
between Main Street, Smith Road, and Slater Road, as well as access to adjacent
commercial land uses. Sections of LaBounty Drive have a center median lane.

In the southwestern part of the City and adjacent area, Imhoff Road and Ferndale Road
provide key links between Main Street and Slater Road. Imhoff Road (via Douglas Road)
provides a more direct connection with higher allowed speeds than Ferndale Road (via 1st
Avenue).

In the northwestern areas of the City, Vista Drive, Malloy Avenue, and Church Road provide
the primary north-south routes. Vista Drive is the longest of the three routes, connecting
downtown Ferndale to Grandview Road (SR 548). Vista Drive provides a center two-way left-
turn lane along some segments within the existing City limits. Malloy Avenue and Church
Street are more narrow streets with lower speed limits.

In the northeastern areas of the City, Portal Way and Enterprise Road provide the only
continuous route in an area bordered by Interstate Five and the Nooksack River. Portal Way
runs parallel to Interstate Five and connects Ferndale to areas north of the City, including the
communities of Blaine and Birch Bay. As Portal Way crosses to the west side of Interstate
Five, Enterprise Road provides for continuity of the north-south route on the east side of
Interstate Five. Within the Downtown area, Second Avenue and 3rd Avenue provide key
connections between Main Street, Vista Drive, and Portal Way (via Washington Street.)

East-West Routes
Main Street provides direct access to the downtown area from Interstate Five, across the
Nooksack River. Between the river and Interstate Five, the roadway is 3 to 5 lanes wide
serving a variety of commercial properties. West of the river, Main Street is 2 to 3 lanes wide
serving downtown Ferndale and points to the west, including access to/from the Cherry Point
refineries and employment areas located west of the City. East of Interstate Five, Main Street
becomes Axton Road with connections to Northwest Drive and Guide Meridian Road (SR
539).

Slater Road provides another link across the Nooksack River and another interchange with
Interstate Five. This road is two lanes and has posted speeds ranging from 35 to 50 mph. In
the southeast section of the City, Slater Road is the primary route for traffic within the Lummi
Nation, Lummi Island, Sandy Point, and the Conoco Phillips refinery. Smith Road provides
an important City link across Interstate Five to Northwest Drive and Guide Meridian Road (SR
539).

Thornton Street and Washington Street also provide important east-west routes within the
City. Washington Street provides key connections between Portal Way, Vista Drive, and Main
Street. Thornton Road provides continuous connections between Church Road, Vista Drive,
and Malloy Avenue. Both routes are generally two lanes with 25 mph posted speeds.

4
City of Ferndale
Transportation Element September 2023

Figure 1 Existing Highway and Street System

5
City of Ferndale
Transportation Element September 2023

Roadway Traffic Volumes

Traffic volumes in urban areas in the Puget Sound Region are typically highest during the
weekday PM peak hour and are used for evaluating transportation system needs. This
reflects the combination of commuter work trips, shopping trips, and other day-to-day
activities. The City of Ferndale typical weekday peak hour is between 4 and 6 p.m. but can
often start and end a bit earlier.

Existing (2015) traffic volumes were provided by the City of Ferndale and Washington State
Department of Transportation (WSDOT). In some locations new traffic counts were collected.
Existing (2015) weekday PM peak hour volumes are shown in Figure 2 for selected locations
in the City and surrounding study area.

Interstate Five had the highest corridor volumes at about 4,900 trips during the weekday PM
peak hour. Main Street and Slater Road had the next highest number of trips (between 1,000
and 1,800). Vista Drive has 500 to 1,200 trips. Grandview Road (SR 548) and Portal Way
were typically 400 to 900 trips. Daily traffic volumes are approximately 8 to 12 times the PM
peak hour traffic volumes.

6
City of Ferndale
Transportation Element September 2023

Figure 2 Existing (2015) PM Peak Hour Traffic Volumes

7
City of Ferndale
Transportation Element September 2023

Roadway Traffic Operations

Traffic operations analyses provide a quantitative method for evaluating how the
transportation system is functioning. It is applied to existing and forecast conditions to assist
in identifying issues and potential improvement options. The traffic operations are reported for
weekday PM peak hour conditions.

Level of Service Standards

Level of service is a measure of the quality of traffic flow and operations. It can be described
in terms such as speeds, travel times, delays, convenience, interruptions and comfort. The
Highway Capacity Manual (HCM), Transportation Research Board, 2010, provides
methodologies for evaluating levels of service (LOS) for transportation facilities and services.
The HCM criteria range from LOS A indicating free-flow conditions with minimal delays, to
LOS F indicating extreme congestion and significant delays.

For purposes of the Transportation Element the City has adopted level of service standards
for transportation facilities under its jurisdiction (as required under the Growth Management
Act) and is summarized below. The City also coordinates with other agencies in the region on
maintaining LOS standards in their respective jurisdictions. The LOS standards for these
agencies are also summarized in the sections below for reference.

Many Ways to Measure Traffic

A transportation network typically involves many agencies. In and around Ferndale,
transportation-related Level of Services is measured by four different agencies: Ferndale,
Washington State Department of Transportation, Whatcom County, and City of
Bellingham. The figure below illustrates the various LOS measurements along Slater
Road.

Prepared by Washington State Department of Transportation

City of Ferndale LOS Standards

As part of the 2010 Transportation Element update, the City revised its LOS standards. The
City determined that two components were important to defining the adequacy of its
transportation system. The first was the ability to maintain a reasonable travel speed for
access to/from Interstate Five and along major corridors serving traffic within the City. The
second component is intended to ensure that intersections on arterials and collectors operate
without extensive delays during the peak travel periods. To accommodate these two
objectives, the City has defined an LOS Standard for corridors and a second standard for

8
City of Ferndale
Transportation Element September 2023

intersections. The City’s LOS Standards are summarized below, but more detailed
information is located in the Transportation Systems Plan section.

Corridor Level of Service. The City of Ferndale has identified the weekday PM peak hour
travel speeds along the following five roadway corridors (two sections of Main Street/Axton
Road; Grandview Road; and, two sections of Vista Drive) as being critical to maintaining the
adequacy of its transportation system. Figure 3 shows the corridor segments.

The LOS standard for each segment is based on travel speeds, which factor the total travel
time and delays at the intersections within and the end of each segment. The LOS standard
for Segments 2, 4, and 5 are 20 mph. For Segments 1 and 3 the LOS standard is 15 mph. In
addition, Segment 1 has an addition standard of 10 mph for each of three sub-segments.

Intersection Level of Service. The City has established the following LOS standards for
intersections. The levels of service shall be measured using methodologies identified in the
latest edition of the Highway Capacity Manual (HCM).

LOS D – For traffic signals, roundabouts, and all-way stop controlled (AWSC)
intersections based on overall average delay per vehicle.

LOS E – For unsignalized two-way stop controlled (TWSC) intersections for worst
traffic movement. On a case-by-case basis, the City may allow the level of service for
traffic movements from the minor streets at two-way stop controlled intersections to
operate below the adopted standard, if the City determines that no significant safety
or operational issues will result.

9
City of Ferndale
Transportation Element September 2023

Figure 3 Corridor Level of Service Segments

10
City of Ferndale
Transportation Element September 2023

State Highway LOS Standards

Two state highways serve the City of Ferndale. Interstate Five is a designated Highway of
Statewide Significance (HSS) and SR 548 (Grandview Road) is designated as a Regionally
Significant State Highway (non-HSS). Washington State Department of Transportation
(WSDOT) has adopted LOS D for HSS facilities within urban areas and LOS C for highways
in rural areas. These level of service standards also apply to non-HSS highways in Whatcom
County including Grandview Road (SR 548). WSDOT applies these standards to highway
segments, intersections, and freeway interchange ramp intersections.

When a proposed development affects a segment or intersection where the level of service is
already below the state’s adopted standard, then the pre-development level of service is used
as the standard. When a development has degraded the level of service on a state highway,
WSDOT would work with the local jurisdiction through the SEPA process to identify
reasonable and proportional mitigation to offset the impacts. Mitigation could include access
constraints, constructing improvements, right-of-way dedication, or contribution of funding to
needed improvements.

Whatcom County LOS Standards

Whatcom County has adopted level of service standards based on the volume-to-capacity
(v/c) ratio of roadway segments during the PM peak hour. The County has adopted the
following LOS standards:
• County arterials and collectors outside of urban growth areas – v/c less than or equal
to 0.75, except corridors designated by Whatcom Council of Governments (WCOG)
as a part of the regionally significant road system which have a LOS standard
requiring a v/c less than or equal to 0.90.
• County arterials and collectors within urban growth areas – v/c less than or equal to
0.90.
Whatcom County LOS standard is adjusted within urban areas to increase the allowable v/c
threshold by 0.05 where transit service or adequate non-motorized facilities are available or
will be provided by a development.

As areas of the unincorporated UGA are annexed, City standards will be applied. The City
intends to work with Whatcom County to potentially apply the City’s LOS standards for
developments within the UGA. This is consistent to Policy 6A-5 of the Whatcom County
Comprehensive Plan’s Transportation Element, which reads:

“Encourage extension of city concurrency review authority and LOS

Standards into their respective UGA’s to provide for greater consistency in
concurrency review for urban areas.”

Whatcom Council of Governments LOS Standards

Whatcom Council of Governments does not set LOS standards for local agencies, but
coordinates with agencies within the region to establish LOS standards. The Whatcom
Transportation Plan (2013), which is WCOG’s combined Metropolitan and Regional
Transportation Plan, summarizes the LOS standards of local agencies such as Ferndale and
will be updated if agencies make changes to LOS standards.

11
City of Ferndale
Transportation Element September 2023

Existing Levels of Service

This section describes the specific LOS measurements for the City’s transportation network,
split between corridor and intersection measurements.

Corridor Level of Service

Corridor LOS is based on average travel speed through a corridor and the type of urban
street. Three concurrency corridors are currently within City limits: Main Street west of I-5,
Main Street east of I-5, and Vista Drive. Existing corridor travel speeds are summarized in
Table 1, along with the corridor’s adopted standard. Based on the City’s LOS standards,
these three corridor segments meet the LOS standard.

Table 1. Corridor Level of Service Standards

Minimum Average 2016 Travel Speeds – mph

Corridor Segment Urban Street Class Travel Speed (mph)1 (NB/SB) or (EB/WB)

1. Main Street 15 mph

(West of Fourth Avenue to west of IV. (10 mph for sub- 16.8 / 21.6
I-5/Northbound Ramps) segments)
2. Main Street
(West of I-5 Northbound Ramps to east III. 20 mph 30.4 / 29.4
city limits)

3. Vista Drive
(South of Third Avenue to north of IV. 15 mph 24.2 / 23.8
Parkland Way)
1. Urban Street Class based on parameters from Highway Capacity Manual (page 15-3) which takes into account the typical free
flow speed on the facility (for example travel speeds during the middle of the night). Urban Street classifications range from I-IV,
with Class I streets having the highest average travel speeds and Class IV streets having the lowest. The majority of Ferndale
streets are Class III (35 mph) or Class IV (20-25 mph).
2. Minimal travel speed for corridor based on field measurements and adjusted for planned and funded improvements.
3. Corridor not subject to City concurrency review without annexation or agreement with Whatcom County.

Intersection Levels of Service

Figure 4 shows the 2015 PM peak hour intersection LOS and existing intersection control for
each of the selected study intersections. The study intersections are consistent with those in
the 2012 Transportation Element. Table 2 summarizes the intersections that have LOS D or
worse during the 2008 or 2015 time periods.

12
City of Ferndale
Transportation Element September 2023

Table 2. Existing PM Peak Hour Intersection Levels of Service

2015 PM 2008 PM
Peak Peak
LOS Hour Hour
Intersection Jurisdiction Control Type1 Standard LOS2 LOS3
Grandview Road / I-5 NB Ramps WSDOT Unsignalized D C F
Portal Way / I-5 NB Ramps WSDOT Unsignalized D F C
Main Street / Hovander Road City of Ferndale Unsignalized E F E
Main Street / Barrett Road City of Ferndale Unsignalized E D C
Main Street / I-5 NB Ramps WSDOT Signal D F B
Washington Street / Vista Drive (east leg) City of Ferndale Unsignalized E D D
Slater Road / I-5 SB Ramps4 WSDOT Roundabout D A D
4
Slater Road / I-5 NB Ramps WSDOT Roundabout D B D
Slater Road / Pacific Highway4 Whatcom County Roundabout n/a5 A F
1. “Signal” = Typical traffic signal; “AWSC” = All-way stop control; “Unsignalized” = all other types of stop control, such as two-way
stop or partial stop control.
2. Level of Service (A to F) as defined by the Highway Capacity Manual (TRB, 2010)
3. 2008 level of service from 2012 Transportation Element.
4. Roundabouts were installed in 2015. Previously TWSC intersections.
5. Whatcom County does not have an intersection LOS standard.

Two unsignalized intersections have levels of service that exceed jurisdictional standards.
The Portal Way / Interstate Five NB Ramps and Main Street / Hovander Road intersections
are operating at LOS F. All other intersections operate within acceptable standards at LOS D
or better. In 2015, Main Street / Interstate Five NB Ramps intersection also had higher than
acceptable LOS.

The major differences in LOS between 2008 and 2015 can be attributed to several factors.
New development near Portal Way as well as 2nd Avenue improvements may have
increased volumes in the area. Three roundabouts were completed in 2015 on Slater Road in
the vicinity of the Interstate Five ramps to improve levels of service. Higher volumes along
Main Street (Axton Road) contributed to the Main Street/Barrett Road LOS changes.

13
City of Ferndale
Transportation Element September 2023

Figure 4 Existing (2015) PM Peak Hour Intersection Level of Service

14
City of Ferndale
Transportation Element September 2023

Roadway Traffic Safety

Traffic safety was reviewed for intersections within the City of Ferndale. Historical collision
records maintained by the City were analyzed for major roadways over the five-year period
from January 1, 2010 to December 31, 2014. During the five-year analysis period, 770
collisions were reported. Approximately 58 percent of collisions occurred on City streets, and
the remaining 32 percent occurred on Interstate Five ramps. Table 3 summarizes
intersections within the City of Ferndale that had the highest average number of collisions per
year.

Table 3. Highest Collision Intersections in Ferndale (2010 - 2014)

Average Daily Total
Accidents Entering Collisions Most Common
Intersection Control Type per Year3 Vehicles1 per MEV2, 3 Collision Type
Main Street / I-5 NB Ramps Signal 6 22,150 0.79 Turning
Main Street / Hovander Road Unsignalized 5 19,050 0.66 Rear End
Main Street / 2nd Avenue Signal 5 17,850 0.71 Rear End
Slater Road / I-5 SB Ramps Unsignalized 4 15,600 0.67 Rear End
Main Street / 1st Avenue Signal 4 19,050 0.52 Rear End
Vista Drive / Washington Street (N) Unsignalized 2 8,200 0.79 Angle
Grandview Road / I-5 NB Ramps Unsignalized 2 8,300 0.47 Angle
Portal Way / I-5 NB Ramps Unsignalized 2 11,800 0.46 Rear End
Vista Drive / 3rd Street Unsignalized 2 8,600 0.64 Angle
Main Street / 4th Avenue Unsignalized 2 11,650 0.47 Rear End
Source: Ferndale historical accident records (January 2010 to December 2014), WSDOT
1. Estimated based on Existing (2015) PM peak hour traffic volumes
2. Collisions per million entering vehicles
3. Gray shading = high collision location

Of the collisions reported on City streets, approximately 20 percent occurred along Main
Street. The majority of these were multi-vehicle/rear-end collisions. Typically, the main cause
for rear-end type collisions is traffic congestion (vehicles following too closely). Approximately
three percent of all collisions reported on City streets involved pedestrians or bicycles. Based
on the collision historical rates, no specific areas were identified as problematic safety areas.

Four fatal collisions occurred within the study area during the study period. Two involved the
driver hitting a guardrail, one involved the vehicle driving over an embankment, and one
involved a collision with a pedestrian.

Freight System
Freight movement in the study area involves both trucks and rail transportation. The City
works to provide adequate routes and facilities for movement of goods by truck. Rail tracks
also traverse the city, and can impact other transportation modes in the City.

Truck Routes
The movement of freight is a major priority for the City of Ferndale. The Washington State
Freight and Goods Transportation System (FGTS) is used to classify state highways, county
roads, and city streets according to average annual gross truck tonnage they carry as
directed by RCW 47.05.021. The FGTS is primarily used to establish funding eligibility for the
Freight Mobility Strategic Investment Board (FMSIB) grants. In addition, it also supports
designations of HSS corridors, pavement upgrades, traffic congestion management, and
other state investment decisions.

15
City of Ferndale
Transportation Element September 2023

The FGTS classifies roadways using five freight tonnage classifications, T-1 through T-5.
Routes classified as T-1 or T-2 are considered strategic freight corridors and are given
priority for receiving FMSIB funding. The classifications are as follows:
• T-1: Over 10 million annual gross tonnage (about 800 trucks per day or more).
• T-2: 4 to 10 million annual gross tonnage (about 320 to 800 trucks per day).
• T-3: 300,000 to 4 million annual gross tonnage (about 24 to 320 trucks per day).
• T-4: 100,000 to 300,000 annual gross tonnage (about 8 to 24 trucks per day).
• T-5: Over 20,000 gross tonnage in a 60 day period.
Within the City of Ferndale and its UGA, Interstate Five is classified as a T-1 route.
Within the City of Ferndale and its UGA, the following roadways are classified as T-2 or T-3
freight routes:
• T-2 Freight Routes
▪ Main Street (Interstate Five to 3rd Avenue)
• T-3 Freight Routes
▪ Enterprise Road (north City Limits to Portal Way)
▪ Main Street (Interstate Five to east City Limits)
▪ Main Street (3rd Ave to west City Limits)
▪ Smith Road (Barrett Road to east City Limits)
▪ 3rd Avenue (Main Street to Washington Street)
▪ Barrett Road (Main Street to W Smith Road)
▪ Labounty Drive (Main Street to W Smith Road)
▪ Malloy Avenue (Vista Drive roundabout to north City Limits)
▪ Portal Way (2nd Avenue roundabout to north City Limits)
▪ 2nd Avenue (Washington Street to Portal Way)
▪ Vista Drive (Washington Street to north City Limits)
▪ Washington Street (2nd Avenue to Vista Drive)
▪ Slater Road
▪ SR 548 (Grandview)

Truck and rail freight movement often come to conflict points in Ferndale. Since both systems
are of vital importance to economic development within Ferndale as well as international
commerce, the City has promoted improvements that support both rail and truck movement
as having a high priority. Grade-separation projects improve safety for rail, truck, and vehicle
traffic and allow train speeds to increase.

Rail Crossings
The Burlington Northern railway seeks to reduce the number of at-grade crossings
throughout its system, for the purpose of reducing potential collisions as well as improving the
efficiency and speed of its trains.

16
City of Ferndale
Transportation Element September 2023

Figure 1 identifies
the City’s five at-
grade railroad
crossings: Slater
Road, Hovander
Road, Washington
Street, Brown
Road, and
Grandview Road
(SR 548). The
railroad crossing at
Slater Road is near
the southern
boundary of the
City limits, and has
a moderate impact
on east/west traffic.
Washington Street
also crosses the
railroad tracks at-
grade. Brown Road
is the most lightly
travelled roadway
of the five at-grade
crossings. Crossings at Second Avenue and Thornton Street crossings have been closed as
a result of the Second Avenue extension/Portal Way roundabout project completed in 2010.

Rail traffic in the Pacific Northwest is expected to increase during the planning period,
reflected in both an increase in the number and the length of trains. Precise estimates of
future rail traffic are proprietary and are not publicly available.

Ferndale’s transportation network will likely be impacted by increased rail traffic, particularly
at at-grade rail crossings, but also extending to nearby intersections and in extreme cases to
the Interstate Five mainline. In addition, drivers seeking alternative routes may contribute to
temporary congestion on Main Street and other surface streets.

While the majority of these impacts may be temporary in nature, they will be exacerbated
during emergency conditions and for emergency vehicles due to the limited nature of
alternative routes in Ferndale. Grade-separated rail crossings outside of the floodplain with
convenient access to the interstate system may be necessary to properly mitigate these rail
impacts.

Pedestrian and Bicycle Facilities

Pedestrian and bicycle facilities play a vital role in the City’s transportation environment. The
non-motorized transportation system is comprised of facilities that promote mobility without
the aid of motorized vehicles. A well-established system encourages healthy recreational
activities, reduces travel demand on City roadways, and enhances safety within a livable
community. Pedestrian and bicycle facilities also provide access to/from transit stops. Good
transit access can increase the use of non-auto travel modes.

17
City of Ferndale
Transportation Element September 2023

Pedestrian Facilities
Ferndale residents depend on sidewalks and trails for recreation, as safe routes to and from
school, and for local, non-motorized transportation. There are over 73 miles of sidewalk or
marked pedestrian shoulders located within the City of Ferndale, particularly in the downtown
and northwestern portions of the City. Sidewalks or pathways also are located along some
arterials and local streets throughout other areas of the City. However, gaps in the system
reduce the connectivity between various subareas of the City. Figure 5 shows locations of
existing sidewalks. The City’s street standards identify the standards for pedestrian facilities
to be constructed as part of transportation projects or as part of new developments.

Within certain parts of the City and its UGA, pedestrians must walk on roadway shoulders,
where available. This can pose safety issues and reduces the likelihood for pedestrian travel
in the City or its UGA. Pedestrian routes within close proximity to school zones are vitally
important to the pedestrian network for a variety of reasons: school children are often
unsupervised and are unfamiliar with driving regulations and stopping speeds, peak hours of
school traffic (especially the am peak) often coincide with typical peak hour drive times for
non-school related activities, neighborhoods surrounding school zones were often
established prior to school construction and are not designed to accommodate pedestrians,
and many schools lack a coordinated plan to separate walking trips from driving trips.

In some parts of the City, pedestrian trails serve a similar purpose as adjacent sidewalks.
The City’s Parks, Recreation and Trails Master Plan anticipates that sidewalks may be
incorporated into the trail network and vice versa, in order to avoid unnecessary
redundancies and increased maintenance costs – provided that life-safety and ADA
accessibility requirements are also met.

The City also has a multi-use trail in the downtown area. The Centennial Riverwalk is located
along the west side of the Nooksack River south of Main Street leading down to Pioneer
Park. Other trails or pathways are planned for areas in the City limits and in the Ferndale
UGA, including extensions to the Riverwalk on both the east and west sides of the river.
Regional trails connecting the City to other jurisdictions and unincorporated Whatcom County
are also planned.

Bicycle Facilities
The existing bicycle facilities within the City of Ferndale consist of bicycle lanes in the
downtown area. These lanes exist along Main Street between Front Avenue and 4th Avenue,
in both directions of travel. As part of its street standards, the City has identified standards for
bicycle facilities to be constructed as part of transportation projects or as part of new
developments.

Whereas pedestrian facilities are intended primarily for shorter trips and their use may be
significantly impacted by weather, season, and time of day, a robust bicycle network may
provide a reasonable alternative to driving for intra-city transportation. As such, the City
seeks to reduce barriers that would preclude the use of bicycles while at the same time
avoiding instances where bicycle use impedes motorized transportation on primary
roadways.

As with sidewalks and trails, bicycle facilities are not independent of other transportation
facilities. Where practical, bicycle lanes can be incorporated into the design of certain
streets, allowed on pedestrian trails, and in some situations may utilize sidewalks when no
bike lanes are present on the adjacent roadway.

18
City of Ferndale
Transportation Element September 2023

Figure 5 Existing Sidewalks

19
City of Ferndale
Transportation Element September 2023

Transit and Transportation Demand Management

Transit and transportation demand management services and programs are another
important component of the City’s transportation system. Transit services and programs are
discussed below. To be consistent with the rest of this chapter, this section details conditions
in 2015 and have not been updated to reflect 2022 conditions.

Transit Service

Transit service is a vital component of a balanced transportation system. Whatcom

Transportation Authority (WTA) operates three routes in and through the City of Ferndale
including two fixed local routes and one FLEX route. WTA also provides paratransit services.
All of the routes serve origins and destinations within Whatcom County. Figure 6 shows the
fixed routes throughout the City along with the existing park and ride facilities reflecting 2015
conditions.

Route 27 serves the residential neighborhoods west of Malloy Drive. Service is provided
hourly. Route 55 provides service along Portal Way, Somerset Street, and Third Avenue
from I-5 into the downtown area. Service is provided three times daily. Route 70X provides
express service along I-5, and runs twice in the morning and twice in the afternoon. The
transit service is focused on Ferndale Station, the main park and ride lot within the City. In
addition, WTA coordinates ridesharing services. This lot is served by all three routes. Park
and Ride lots facilitate the use of public transit and also serve as a meeting place for vanpool
and carpool commuters. In areas where much of the development is low density, Park and
Ride lots allow transit to operate more efficiently by serving as consolidation points.

WTA also operates transit services, such as vanpool, rideshare and specialized transit
services. Specialized transit services serve citizens who are unable to use the fixed route
transit system because of a disability. The success of the public transportation system is
dependent on integrating key elements that comprise the overall plan. Integration of the
transit system with street improvements, bicycle facilities, and pedestrian facilities is critical to
transit’s success.

FLEX Program
The FLEX program serves the general transit-riding public by allowing buses on specified
routes to travel off-route for pre-arranged pick-ups. Riders must be located in a FLEX area
and need to call at least two hours ahead of time to schedule a pickup. The only flex route
which operates in the City of Ferndale is Route 55; service is available Monday through
Saturday on that route.

Safety Net Program

Safety Net service provides transit connections to the main transit centers in Bellingham for
individuals who are in less populated areas of Whatcom County. On specified days, riders
can call the service number and request a pick up; this can be done up to a week in advance,
but no later than two hours before the pickup time.

20
City of Ferndale
Transportation Element September 2023

Figure 6 Existing Transit Routes and Facilities

21
City of Ferndale
Transportation Element September 2023

Lummi Transit
The Lummi Nation has provided bus service within the City of Ferndale via Lummi Transit
since July 2011. Currently Lummi Transit provides a “Fixed-Route Service” Monday through
Friday from 11:00am to 6:30pm. Lummi Transit has 6 (six) official bus stops within the City of
Ferndale (Douglas& Imhoff, Rite Aid, Boys & Girls club, Dollar Tree, Grocery Outlet, and
WTA Ferndale Station) with a proposed new stop at the new Ferndale Library. Lummi
Transit connects with the following WTA routes at the Ferndale Station: Route 27, Route 55,
& Route 70X; and Route 50 on the Lummi Reservation. Lummi Transit provides this service
“fare free” for all community members tribal and non-tribal. All of the buses in the Lummi
Transit fleet are equipped with ADA lifts. In 2014 Lummi Transit had a total of 9,566 riders
who used this service between the Lummi Reservation and the City of Ferndale.

The Lummi Transit route through Ferndale (also shown in Figure 6) is designed to provide
the community with easy access to a variety of health, financial, shopping and public
services.

Park & Ride Lots

As shown on Figure 6, the City currently is served by one park-and-ride lot located off Axton
Road east of Interstate Five, known as Ferndale Station. This lot serves all three transit
routes operating in the City and has approximately 100 parking stalls. The lot was designed
and built with the expectation that building pads within the development would be developed,
creating an anchor for bus riders and the general public.

The lot is under-utilized and is a significant distance from residential properties. Congestion
at the interchange, the lack of shopping options and the infrequency of bus service has
diminished the convenience that a successful Park & Ride facility might otherwise offer. The
City expects to work with WTA to identify ways in which the original development concept
might yet be realized to increase ridership. Additional park and ride options might be
explored to increase ride share opportunities.

Vanpool Program
WTA operates a vanpool program serving commuter groups with an origin or destination in
Whatcom County. The program offers support to forming and operating vanpool groups. The
support includes providing vehicles, driver orientation, vehicle maintenance, and assistance
in forming vanpool groups for daily commuters.

22
City of Ferndale
Transportation Element September 2023

B. Forecasts, Alternatives, and Emerging

Transportation Trends
In addition to addressing existing transportation system issues, the City is planning a
transportation system to accommodate forecast growth. The GMA requires that the
transportation planning horizon be at least ten years in the future. For the 2016 update, the
City chose a longer-range horizon year of 2036 as the forecast year for the Transportation
Element and is consistent with the horizon year used by WCOG for its long-term planning.
The longer-range horizon year allows the City to better plan for and size transportation
facilities that will be needed as the City grows. The transportation improvement projects are
grouped into short (current year to 2020) and long-range (2020 to 2036) time frames to help
guide implementation and funding of the plan improvements and programs.

The City’s travel forecasting model was used to support the City’s transportation planning
efforts. The travel demand model provides a tool for forecasting long-range traffic volumes
based on the projected growth in housing and employment. The model is also useful in
evaluating transportation system alternatives. However, it must be noted that the ratios and
specific land use forecasts included in the model are intended for planning purposes only and
are not intended to restrict or require specific land use actions. The land use assumptions are
based on a county-wide, parcel-by-parcel evaluation (the Land Capacity Analysis, or LCA) of
current (2013) zoning, existing and permitted development, and remaining assumed capacity
for development over the course of the planning period.

Land Use Forecasts

Travel forecasts are largely derived based on changes in households and employment within
the study area. The expected countywide population and employment growth anticipated to
occur in Ferndale was allocated to Traffic Analysis Zones (TAZs) in WCOG’s regional
transportation demand model based on where capacity was identified in the LCA. Using
WCOG’s model as a starting point, Ferndale made adjustments to TAZs within the city based
on known planned developments within the area.

23
City of Ferndale
Transportation Element September 2023

Figure 7 summarizes 2013 and 2036 total number of households and employees for the City
of Ferndale and its UGA areas.

The City has evaluated future growth based on the allocations provided by Whatcom County
and is consistent with the Land Use Element of this plan. In addition, the City modeled a
number of scenarios in which slightly higher (or more rapid) growth takes place in order to
determine whether additional or modified transportation projects would be necessary. This
approach provides the City with the ability to better-evaluate and anticipate future
transportation needs through ongoing monitoring via the City’s concurrency program, future

24
City of Ferndale
Transportation Element September 2023

amendments to this element, the City’s 6-Year Transportation Improvement Program (TIP),
and more.

Household Growth

Figure 7 shows the projected household growth in Ferndale used in modeling scenarios. The
City of Ferndale’s traffic model is based on forecasts that the City and its Urban Growth Area
(UGA) could grow by nearly 3,000 households. This is about 70 percent higher than existing
households. The bulk of housing growth (over 90 percent, or up to 2,728 units) will be

25
City of Ferndale
Transportation Element September 2023

northwest of the Nooksack River with nearly

half of those housing units in the core of the SCENARIO TESTING
City’s existing residential area (District 5). The
downtown area (District 6) and the Portal Way The City is required by the Growth
corridor (District 4) also include a major Management Act to plan for growth based on
portion of household growth north of the river. allocations provided by Whatcom County. As
District 5 has historically been the major discussed in the Land Use Element, these
residential section of the City, so housing allocation numbers are distributed
growth is consistent with historical throughout the City based on “most likely”
development patterns. Residential growth in growth scenarios as adopted by the elected
the downtown area (District 6) reflects the councils of Whatcom County and the City of
City’s plans for a mix of land uses and Ferndale.
redevelopment of the downtown area.
Recognizing that the retail growth anticipated
by the Main Street Master Plan and the
Lummi Nation’s Salish Village project may
result in a rapid concentration of growth in
those areas, the City also evaluated maximum
build out of those areas to determine projects
necessary to support that growth. While the
Main Street Master Plan analysis is complete,
the Salish Village analysis is still ongoing.

These scenario tests are not intended to

suggest that Ferndale will grow beyond what
was projected in the County’s allocation – but
rather to explore the the implications of
additional (or more concentrated) growth in
different subareas would mean for the City’s
infrastructure plans.

26
City of Ferndale
Transportation Element September 2023

Employment Growth

Figure 7 also summarizes the forecast growth in employment used in developing the 2036
travel forecasts. Most of the growth was added along the Interstate Five corridor between
Grandview Road and Slater Road (Districts 1, 4, 7, and 8). Approximately 60 percent of the
employment growth is anticipated to be south of the Nooksack River in Districts 7 and 8. The
City anticipates new employers being attracted to these areas due to the relatively easy
access to Interstate Five.

27
City of Ferndale
Transportation Element September 2023

Figure 7 Existing & Future Land Use by District

28
City of Ferndale
Transportation Element September 2023

2036 Baseline and

BEHIND THE NUMBERS:
Alternatives Evaluation
SUMMARY OF 2036 NETWORK
WITHOUT PLANNED The travel forecasting model was used to
convert the existing (2013) and forecast (2036)
IMPROVEMENTS land use data into travel demands. The 2036
model was used to forecast traffic volumes and
travel patterns. A comparison of 2013 and
• Increased traffic places substantial
2036 traffic volumes is shown in Figure 8.
demand on Interstate Five
interchanges and Main Street/
The 2036 forecast model was initially set up
Washington Street corridors.
with the assumption that only currently
• Development at the Grandview committed transportation improvement projects
interchange and at Cherry Point would be constructed by 2036. This scenario
increases congestion beyond the provides a baseline for identifying future
ability for stop-controlled deficiencies. The resulting 2036 baseline PM
intersections to handle; increased peak hour intersection levels of service are
rail traffic reduces opportunities to shown in Figure 9. Potential alternative
“flush” the interchange on a regular transportation improvement system scenarios
basis. were developed and evaluated to determine
how the City could best resolve those
• Northbound ramps at Portal Way deficiencies. The results of the alternatives
interchange reach capacity and evaluation were used to establish a framework
back up into the mainline of for the Transportation Systems Plan.
Interstate Five. Left-hand turning
movements from the ramp to Portal
Way lead to increased congestion. 2036 Baseline Evaluation
Lack of sufficient length at The 2036 baseline model was developed
southbound onramp impacts based on capacity improvement projects
freeway mainline as an increased identified in prior plans and project lists
number of vehicles attempt to prepared by WSDOT, Whatcom County, and
merge at a lower speed. the City of Ferndale. For the 2036 baseline
• Compact roundabouts at Slater model, the baseline scenario included several
Road interchange are unable to projects including improvements to Washington
support planned development in this Street (Vista Drive to 2nd Avenue) and
area. intersection improvements to:

• Opportunities result from the • Labounty Drive/Nordic Way

compact nature of planned
development in certain areas to • Slater Road/Rural Avenue
facilitiate mode-shift from • Slater Road/Interstate Five Southbound
automobile to other forms of Ramps
transportation.
• Slater Road/Interstate Five Northbound
Ramps
The results of the 2036 baseline model and related intersection operations analysis showed
that increased traffic volumes put substantial demand on Interstate Five interchanges and the
corridors of Main Street and Washington Street. These forecasts show the reliance of
Ferndale’s growth on Interstate Five. As discussed above, substantial employment growth is
focused near the interchanges or along the Interstate Five corridor. In addition, growth in the
core of the City (District 5 and 6) will use Main Street and Washington Street (via Second
Avenue and Portal Way) as the primary access routes from residential growth areas to
Interstate Five.

29
City of Ferndale
Transportation Element September 2023

Figure 8 Existing & 2036 PM Peak Hour Traffic Volumes

30
City of Ferndale
Transportation Element September 2023

Figure 9 2036 Baseline PM Peak Hour Intersection LOS

31
City of Ferndale
Transportation Element September 2023

The following list highlights areas within the City and UGA with roadway capacity concerns.

• Main Street corridor, from Interstate Five to downtown - The Main Street
interchange includes signalized ramp intersections and a two-lane bridge. The
2036 baseline PM peak hour traffic volumes will be approaching the capacity of the
two-lane overcrossing which may result in additional congestion and potential
safety issues. However, revised forecasts in the corridor as well as minor
improvements to corridor intersections in recent years have created conditions
where additional major improvements are not needed in the planning horizon.

• Washington Street corridor, from Second Avenue to Vista Avenue - This

corridor becomes more heavily travelled as a result of recent improvements to
Second Avenue and delays along Main Street. The additional delays on Main
Street will likely result in residential traffic to/from Interstate Five diverting from the
Main Street interchange to use the Portal Way interchange (Exit 263). This puts
added traffic on Washington Street and at the stop-controlled intersection of
Washington Street and Vista Drive.

• Grandview Road Interstate Five interchange - Grandview Road’s role as a state

highway and northern access to Ferndale will result in significant traffic demands.
The interchange is limited by stop-controlled ramp intersections and a two-lane
bridge. The Grandview Road interchange has been identified as an area of
significant commercial (retail) growth on all four quadrants surrounding the
interchange.

• Portal Way Interstate Five interchange - This interchange serves both residential
areas east of Interstate Five and commercial/residential areas north along Portal
Way. The southbound ramp intersection was recently improved with a roundabout.
Under 2036 weekday PM peak hour conditions the roundabout will be approaching
capacity. Portal Way under Interstate Five will also be congested.

• Slater Road Interstate Five interchange - This interchange provides access to

Interstate Five for areas south of Ferndale and north of Bellingham. It also serves
the nearby employment based land uses. The interchange stop-controlled
intersections have been converted to temporary roundabouts in anticipation of
more permanent intersection design project. The Slater interchange has been
identified as an area of significant growth, with a combination of industrial and
commercial traffic, as well as development of the Lummi Nation and potential
Whatcom County facilities. WSDOT is working to finalize details on an
improvement project for this Slater Road corridor.

Alternatives Evaluation
Based on the results of the extensive evaluation conducted for the 2011 Transportation
Element update and the evaluation of the 2036 baseline forecasts, only two additional
alternatives were studied. The primary alternative was called the 2036 Plan scenario and is
the focus of this section. A smaller secondary alternative called “2036 Plan with Overpass”
scenario is briefly discussed in a following section.

2036 Plan Scenario

The 2036 Plan scenario includes all the projects listed in Section C, which are nearly all the
same projects listed as planned improvements the 2011 Transportation Element update. The
project list changes reflect updates related to the latest available information on WSDOT
corridor plans for the Interstate Five corridor, recent development plans within the City, and

32
City of Ferndale
Transportation Element September 2023

other transportation studies conducted since 2011. The follow provides an overview of the
planned improvements:

• Grandview Road Corridor – Transportation improvements are planned at the

intersections of Vista Drive, Portal Way, and Interstate Five ramps. This northern
area of the City is anticipated to see growth in commercial and industrial
employment and the intersection improvements will alleviate forecasted traffic
congestion.
• Thornton Street Corridor – Transportation improvements are planned along this
corridor between Church Road to the Portal Way intersection to facilitate east-west
mobility and safety in the northern areas of the City. At Malloy Avenue, a new all-
way stop is anticipated. West of Malloy Avenue, the street projects will not increase
roadway capacity, but improve the street to current City design standards. East of
Malloy Avenue, a new connection to the 2nd Avenue roundabout is planned that
includes a bridge over the railroad corridor. The 2036 Plan scenario does not
include a new Thornton Street bridge over Interstate Five. The street connection
provides a new grade-separated railroad crossing north of the Nooksack River that
will be critical for City mobility as increased rail traffic causes traffic delays at
Washington Street, Brown Road, and Grandview Road.
• Portal Way Corridor – Between Interstate Five ramp intersections and Enterprise
Road, the corridor will be improved to three lanes with sidewalks. Intersection
improvements are planned at the ramp intersections and at Enterprise Road to
accommodate traffic flows. This area is anticipated to develop as a mixed use area
of the City and the improvements are needed to address both vehicle and non-
motorized mobility along the corridor as well as provide appropriate left-turn
capacity for commercial developments.
• Church Road Connection – A new connection between Main Street and Douglas
Road will facilitate greater mobility in this section of the City. This connection is not
expected to shift a large amount of vehicle traffic, but will provide vehicle and non-
motorized connectivity in the area.
• Washington Street Vicinity – Projects are anticipated along Washington Street,
Ferndale Terrace, and Legoe Avenue to bring the streets to urban City standards.
In addition, intersection improvements are anticipated at the Vista Drive and Legoe
Avenue to improve safety at these awkward intersections.
• Main Street Corridor – Main Street provides a direct connection between
downtown and Interstate Five, a bridge connection across the Nooksack River, and
the only grade-separated connections across the rail corridor in the City. While
some other planned improvements may shift trips away from the Main Street
corridor, this street will always be the first choice for most travelers in the area.
Intersection projects are anticipated at Hovander Road and Barrett Road. East of
Interstate Five, Main Street will also be reconstructed and widen to meet city
standards.
• New SE Connector Road – The area southeast of the Main Street and Interstate
Five corridors is planned for major growth, requiring the construction of a major
collector roadway. This road is also needed to reduce traffic volumes at the Main
Street/Barrett Avenue intersection. The intersections at the end of these new
connection will be roundabouts.
• Slater Road Corridor – The Slater Road Corridor is anticipated to see increases in
regional traffic as well as local traffic as the interchange area becomes more
developed. Intersection improvements are anticipated at Labounty Drive, Rural
Avenue, the Interstate Five ramps, Pacific Highway, and Northwest Drive. The
bridge over the Nooksack River is also planned to be improved. The long-term land

33
City of Ferndale
Transportation Element September 2023

use in this interchange area has been under much discussion in the region, which
makes transportation investment planning difficult. It is recommended that an
Interchange Area Management Plan be developed for Slater Road to provide more
clarity for local stakeholders.

2036 Plan with Overpass Scenario

As mentioned previously, a smaller secondary alternative called “2036 Plan with Overpass”
scenario was also developed. This scenario is the same as 2036 Plan except that the
Thornton Street Interstate Five overpass is built to the Portal Way/Newkirk Road intersection.
This project would be in addition to the connection south to the 2nd Avenue roundabout.

Having a new connection between Portal Way and Malloy Avenue over the railroad corridor
diverts a substantial amount of Northwest Ferndale residential traffic away from Washington
Street corridor and the at-grade rail crossing. Much of these benefits can be achieved with or
without the new Interstate Five overpass, assuming the grade-separated project west of the
interstate is in place. The new Interstate Five overpass would shift traffic away from the Portal
Way/2nd Avenue roundabout, reliving congestion at that intersection as well as under the
interstate at Portal Way.

Forecast 2036 Traffic Operations with Plan Framework

As documented previously, a number of alternatives were tested as part of the process used
to identify the improvements needed to provide acceptable traffic operations in 2036 during
the weekday PM peak hour. Based on the analysis of each of these alternatives, a preferred
package of improvements, including use of roundabouts, was identified and forecast traffic
volumes were generated to account for each of the preferred improvements. The analysis
was then updated to confirm that the identified improvements remained appropriate, and that
projects did not duplicate the benefits of improvements in other areas of the City. These
forecast traffic volumes with the recommended improvements were evaluated to assess the
2036 traffic operations.

As noted in the existing conditions section, the City has established the following intersection
level of service standards for intersections within the City limits:

• LOS D for intersections with roundabouts, traffic signals, or all-way stop control.

• LOS E for two-way stop controlled intersections. On a case-by-case basis, the City may
allow the level of service for traffic movements from the minor streets at two-way stop
controlled intersections to operate below the adopted standard, if the City determines that
no significant safety or operational issues will result.

The identified improvements would result in acceptable intersection operations at each study
intersection.

At a number of study intersections either a roundabout or traffic signal would be able to

provide acceptable traffic operations. The City has identified installation of roundabouts as a
possible improvement strategy. However, the City may consider modifications of existing
traffic signals, or installation of new signals, based on the availability of funding, timing of the
need for improvements, and costs for acquiring right of way, provided the improvements meet
the City’s level of service standards. Another consideration in the identification of
improvements is the existing traffic control at adjacent intersections and/or the proximity of
adjacent intersections.

34
City of Ferndale
Transportation Element September 2023

The identified improvements resolve the existing 2013 level of service deficiencies identified
in Figure 4. In combination with the implementation of the other identified improvements, the
City’s level of service standards can be met at all study intersections in 2036.

Emerging Transportation Trends

In addition to formal transportation analysis and forecasting, long-range planning also
includes anticipating emerging transportation trends that may change basic assumptions
concerning transportation systems. Within the last two decades, technology has come closer
to past futuristic visions, and it is likely that by the end of the planning period, some or all of
these technologies will be deployed to realize some of these long-imagined ideas. This
section describes some of these possible technologies and the impacts they may have on
Ferndale’s transportation network.

Autonomous Vehicles (AVs)

A great deal of uncertainty faces us in planning for autonomous vehicles. Potential outcomes
carry a wide range of possibilities. The next five years may see the first fully driverless
vehicles in operation. The next 15 years stand a chance to witness a significant portion of
fleet of vehicles on our streets and highways operating without drivers. It is possible that 30 to
40 years from now all or nearly all vehicles will be driverless or will have driverless
capabilities in certain situations. The implementation of some of these technologies may be
within current long-range planning horizons, and thus the City should consider the
ramifications of these technologies on its transportation network. A few key issues rise to the
top of what local governments should contemplate while preparing long-range plans.

Street and Roadway Planning

Since AVs will be able to space themselves closer together, the capacity of streets and
highways will likely increase significantly, as much as double. This implies that roadway
capacity improvements to accommodate more vehicles may not be necessary in the long
term as these technologies are implemented. This is especially true if AVs travel in narrower
lanes with smaller vehicles.

35
City of Ferndale
Transportation Element September 2023

Transit Planning
Over half of the cost of operating buses is related to the driver. In the future, replacing the
driver with AV technology may enable transit operators to offer more service for the same
cost. Technology that clears lanes when buses approach may allow them to avoid the same
congestion they now face. This will also increase service as buses will be able to run their
routes faster. Such technology may reduce the need for expenditures in rail transit
infrastructure as buses may operate with close to the same freedom that trains do on
dedicated rights-of-way.

Shared Ride Regulations

The demand for shared ride services such as Lyft and Uber may likely increase as the
economics improve without drivers. Public agencies will need to develop policies to regulate
the environment for these types of services, especially those that offer pooling options for
two, three or more people to ride together.

Human Services Transportation

AV will reduce the cost for serving the needs of the disabled, of military families, and
caregivers. With dramatic safety improvements walking and bicycling will likely become much
more attractive. The need for wider sidewalks and more bike lanes may increase.

Parking Demand Shifts

It is likely that the economics of transportation will dramatically change with widespread use
of AVs and other technologies. Car ownership in urban areas may further decrease if on-
demand travel with or without driverless vehicles becomes a legitimate alternative. At
present, most vehicles are parked 95 percent of the time, while AVs may operate much of the
day picking up one passenger after another, potentially reducing the need for parking. With
widespread adoption this could have a transformative effect on the need for parking stalls.

36
City of Ferndale
Transportation Element September 2023

Land Use Planning

Reducing the need for parking could greatly change land use planning. Often today one-
quarter to one-half of the cost of constructing new buildings is for parking. Architectural
considerations will change and open new possibilities for more economical and more
interesting and
efficient buildings.
Perhaps most
important, the cost of
building housing could
drop dramatically.
Further, land that is
now taken up by
parking facilities could
be repurposed for
more pressing needs,
such as affordable
housing.

Connected
Vehicles
Although it is not yet
clear what the
demand for vehicle-to-
infrastructure may
ultimately look like, cities might look ahead to providing reference points for lidar and radar to
function more efficiently. Perhaps lampposts will become smart poles. Further, it will be
possible as more vehicles are fully self-driving to optimize traffic flow with computer systems
that talk to and moderate flow. Cities might want to watch to see what systems will be needed
and prepare to offer such systems.

37
City of Ferndale
Transportation Element September 2023

Teleworking
Advances in technology and communication infrastructure will facilitate the exponential
growth of teleworking in the next decade and beyond. According to current Census data, “not
traveling at all” accounts for more than two percent of the overall national mode split and is
increasing at a greater rate than all other modes. Factors that are fueling this change include;
improving communications and collaboration technologies, increased high-speed broadband
availability, and the proliferation of web-based applications. The land use and transportation
implications of this trend are wide ranging including; reduced VMT and roadway congestion,
reduced greenhouse gas emissions, and greater number of employees choosing to live
further from job sites.

Emerging Trends Takeaways

It is difficult to summarize the potential for future technologies, as by definition many of the
technologies (and their adoption) remain theoretical. But some trends are emerging: the
costs of commuting (both financial and in time lost) in some cases are overwhelming the
benefits of being physically present in an office – and technology now exists that allows
nearly identical productivity from a remote location.

Similarly, technology now exists to remove many of the responsibilities for driving from the
driver themselves. Perhaps the most significant obstacle to increased automation will be the
individual driver’s desire to drive.

It remains unclear whether or not these new technologies (or others) will gradually be
implemented by municipalities and vehicle manufacturers, if there will be a sudden shift

38
City of Ferndale
Transportation Element September 2023

towards these technologies, or some combination of the two. Regardless, the City of
Ferndale should keep abreast of capital improvement alternatives that could be implemented
to serve these existing technologies.

39
City of Ferndale
Transportation Element September 2023

C. Transportation Systems Plans

The Transportation System Plans and associated transportation system improvement
recommendations provide a long-range strategy for the City of Ferndale to address current
and forecast transportation issues and needs. Transportation system improvements are
required to safely and more efficiently accommodate the projected growth in population and
employment within the City and its UGA. The recommended improvements are based upon
analyses of the existing transportation system, forecasts of future travel demands, anticipated
availability of funding resources, and the desire of the community to create an efficient
transportation system that puts a priority on community livability and providing modal options.

Streets and Highways

Streets and state highways are the core of the transportation system serving the City of
Ferndale and surrounding communities. These facilities provide for the overall movement of
people and goods, for a wide range of travel modes. Streets and highways serve automobile
trips, trucks, transit, vanpools, carpools, bicycle and pedestrian travel. Therefore, the streets
and highways establish the framework for the overall transportation system for the City.

The core of the street and highway system includes arterials and collectors. The City also has
designated specific corridors as truck routes, which can affect the design features of specific
improvement projects. The arterial system is supported by future connector roads to provide
circulation and connectivity of the overall system.

Arterial and Collector Classifications

Functional classification is a way to group highways, roads, and streets that comprise the
transportation system. The functional classification of a roadway depends on types of trips
that occur on it, the basic purpose for which it was designed, and the relative level of traffic it
carries. Higher classifications (e.g., freeways, principal arterials) provide a high degree of
mobility with higher traffic volumes, generally at higher speeds, and should have limited
access to adjacent land uses. Lower classifications (e.g., local access streets) provide
access to adjacent land and are not intended to serve through traffic, carrying lower volumes
at lower speeds. Collectors balance the function between mobility and access.

City of Ferndale Functional Classification

In Ferndale, the current roadway functional classification system has five categories, as
presented in Table 4. The general hierarchy of functional classification is based on the
relationship between the function of the roadway and the surrounding land uses and the
relationship between mobility and access. For example, commercial developments will
generally desire to locate along arterials or collectors due to higher traffic volumes and
visibility. Likewise, it is desirable to have parks, schools, and residential homes located along
collector or local streets due to lower traffic volumes and a high degree of access. Figure 10
shows the functional classification for streets within the City’s designated UGA. The figure
shows how the City’s arterial classifications connect with and support the regional
transportation system. The functional classification also reflects the analysis of the longer-
range needs to serve growth through 2036.

40
City of Ferndale
Transportation Element September 2023

Table 4. City of Ferndale Roadway Functional Classifications

Classification Description

Freeways and interstate highways are multi-lane, high-speed, high-capacity roadways

Freeway/Interstate intended exclusively for motorized traffic. All access is controlled by interchanges and bridges
separate roadway crossings. Freeways and interstate highways are designed to move freight
efficiently. Interstate Five freeway bisects the Ferndale urban area.

Principal arterials are roadways that connect major community centers and facilities, and are
often constructed with limited direct access to abutting land uses. Principal arterials carry the
highest traffic volumes and provide the greatest mobility in the roadway network by limiting
Principal Arterial access, providing traffic control devices, and posting higher speed limits. Transit routes are
generally located on principal arterials, as are transfer centers and park-and-ride lots.
Principal arterials may service any level of traffic volume, up to full utilization of the road
capacity.
Minor arterials are roadways that connect with and augment principal arterials. Minor arterials
provide densely populated areas easy access to principal arterials and provide a greater level
of access to abutting properties. Minor arterials connect with other arterial and collector roads
extending into the urban area, and serve less concentrated traffic-generating areas, such as
Minor Arterial
neighborhood shopping centers and schools. Minor arterials serve as boundaries to
neighborhoods and collect traffic from collector streets. Minor arterials also carry transit traffic.
Minor arterials may serve any level of traffic volume, but should not utilize quite the total
capacity of the roadway.
Collectors are roadways that provide easy movement within neighborhoods, and they connect
two or more neighborhoods or commercial areas while also providing a high degree of property
access within a localized area. These roadways “collect” traffic from local neighborhoods and
Collectors
distribute it to higher classification roadways. Additionally, collectors provide direct services to
residential areas, local parks, churches and areas with similar land uses. Collectors provide
the link between local access streets and larger arterials.
Local access streets are intended for use within commercial, single-family, and multi-family
subdivisions to provide direct access to abutting lots, and to collect traffic from cul-de-sacs.
Restrictions may be placed on entry and exit locations for traffic safety relative to intersections.
Traffic volumes are typically very low for compatibility with abutting land uses, to accommodate
Local Streets turning movements and significant amounts of pedestrian activity, while providing minimal
disturbance to the tranquility of the residential environment. Local streets are not designed to
accommodate transit service. All roadways that have not been designated as an arterial or
collector roadway are considered to be local access streets. Local access streets comprise
the largest portion of roadway miles in the city.

Federal Functional Classifications

The federal functional classification is based on a state-wide view of the transportation
system and is used in some funding programs. Figure 11 shows the federal functional
classification within the City of Ferndale. As shown in the figure, most major city roadways
are considered minor arterials including Main Street.

41
City of Ferndale
Transportation Element September 2023

Figure 10 Roadway Functional Classification

42
City of Ferndale
Transportation Element September 2023

Figure 11 Roadway Federal Functional Classification

43
City of Ferndale
Transportation Element September 2023

Transit Street Classifications

The City has determined that the Main Street and Portal Way corridors represent areas that
represent existing and emerging destination points for transit service in Ferndale. The use of
these areas as a hub for transit service will facilitate the continued growth of these areas and
may limit increases to congestion. Figure 12 reflects these Transit Streets.

Connector Roads
Building on the roadway functional classification system, the City recognizes the need for
additional connector roadways. The connector roads are needed to facilitate property access,
circulation, and connectivity of the roadway system. Connector roads are needed to fill gaps
in the existing system as well as serve the growth projected for the City. A complete system
of connection roads will help disperse traffic which will minimize impacts within individual
neighborhoods. This will reduce the number of access roads and driveways intersecting with
arterials, which will help maintain capacity and safety of the system.

Figure 13 shows the general locations of planned connector roads, including future arterial
routes. Specific alignments have not been identified for the planned connector roads. In
general, the connector roadways would be constructed to urban standards including
sidewalks and illumination. The alignments will be defined as part of future subarea studies or
required as a condition of development for projects on adjacent properties. Some of the
planned connector roads also may be classified as arterials in the future, depending on
specific design and access requirements at the time of development.

44
City of Ferndale
Transportation Element September 2023

Figure 12 Transit Oriented Areas

PORTAL WAY TRANSIT-ORIENTED AREA

MAIN STREET TRANSIT-ORIENTED AREA

Figure 12

45
City of Ferndale
Transportation Element September 2023

Figure 13 Planned Connector Roads

46
City of Ferndale
Transportation Element September 2023

Rail Crossings
The City has designed and is constructing (2023) a grade separated crossing at Thornton
Road as a priority, this crossing would allow residents to access the interchange located at
Exit-263 potentially addressing some of the congestion issues seen in the Main Street
corridor.

Recent improvements to the Washington Street at-grade crossing should be sufficient for the
planning period but will continue to be impacted by increased rail traffic. There are no current
projects anticipated for the at-grade crossings at Brown Road, Slater Road, and Grandview
Road. Although not currently planned improvements to the Smith Road / Interstate Five
interchange would most likely necessitate upgrades to the current at-grade crossing located
at Hovander Road. Existing rail crossings are shown in Figure 1.

Truck Routes
The City’s truck routes are show in in Figure 14. Generally, trucks of heavy tonnage must
use these routes or be subject to Haul Route Agreements as provided for in the Ferndale
Municipal Code.

47
City of Ferndale
Transportation Element September 2023

Figure 14 Truck Routes

48
City of Ferndale
Transportation Element September 2023

Level of Service Standards

Level of service is a measure of the quality of traffic flow and operations. It can be described
in terms such as speeds, travel times, delays, convenience, interruptions and comfort. The
Highway Capacity Manual (HCM), Transportation Research Board, 2010, provides
methodologies for evaluating levels of service (LOS) for transportation facilities and services.
The HCM criteria range from LOS A indicating free-flow conditions with minimal delays, to
LOS F indicating extreme congestion and significant delays.

For purposes of the Transportation Element the City has adopted level of service standards
for transportation facilities under its jurisdiction as required under the Growth Management
Act (GMA).

City of Ferndale LOS Standards

As part of the 2010 Transportation Element update, the City revised its LOS standards. The
City determined that two components were important to defining the adequacy of its
transportation system. The first was the ability to maintain a reasonable travel speed for
access to/from Interstate Five and along major corridors serving traffic within the City. The
second component is intended to ensure that intersections on arterials and collectors operate
without extensive delays during the peak travel periods. To accommodate these two
objectives, the City has defined an LOS Standard for corridors and a second standard for
intersections.

The City will apply the standards to roadways only within the City of Ferndale. As areas of the
unincorporated UGA are annexed, City standards will be applied. The City intends to work
with Whatcom County to potentially apply the City’s LOS standards for developments within
the UGA. This is consistent to Policy 6A-5 of the Whatcom County Comprehensive Plan’s
Transportation Element, which reads:

“Encourage extension of city concurrency review authority and LOS

Standards into their respective UGA’s to provide for greater consistency in
concurrency review for urban areas.”

Corridor Level of Service. The City of Ferndale has identified the weekday PM peak hour
travel speeds along the following three roadway corridors as being critical to maintaining the
adequacy of its transportation system.
• Main Street/Axton Road
• Grandview Road (SR 548)
• Vista Drive
The Main Street/Axton Road corridor is divided into a segment west of Interstate Five
(including the interchange ramps) and east of Interstate Five. Vista Drive would also be
divided into two segments – between Third Avenue and the existing city limits and between
the existing city limits and Grandview Road. The five corridor travel speed segments are
shown on Figure 3. The City will only apply the corridor LOS standards for segments that are
primarily within the City limits unless agreements are reached with Whatcom County for
applying City level of service standards to developments within the UGA.

49
City of Ferndale
Transportation Element September 2023

BEHIND THE NUMBERS: DIFFERENT DAY, DIFFERENT TRAFFIC?

Ferndale’s Level of Service is based on average traffic volumes and
congestion. This means that actual daily traffic volumes may fluctuate –
sometimes dramatically – from day to day.

These fluctuations may be caused by inclement weather, traffic accidents,

delays caused by rail traffic, construction, higher volumes of traffic – or simply
random chance. In some cases, the cause of traffic congestion may not be
visible or may exist on an adjacent road or exit.

While Ferndale’s traffic volumes will continue to grow and congestion will
increase without the projects described in this element, this element generally
reflects the traffic on most days of the year.

For each of the corridor segments, the City has established minimum travel speeds that
equate to (LOS) D or better based on methodologies presented in the (Highway Capacity
Manual) TRB, 2000. Table 5 summarizes the City’s corridor level of service standards which
will be applied to concurrency review. The standards are applied during the weekday PM
peak hour time period. The weekday PM peak hour time period typically has the highest
traffic volumes and therefore will typically represent the slowest travel speeds throughout the
City. The travel speeds account for the total travel time, including delays at the intersections
for the limits of each segment.

Table 5. Corridor Level of Service Standards

Minimum
Urban Street Additional
Corridor Segment Average Travel
Class Requirements
Speed (mph)1
Minimum sub-
1. Main Street segment travel
IV. 11 mph
(West of Fourth Avenue to west of I-5/Northbound Ramps) speed of 10 mph

2. Main Street
III. 16 mph
(West of I-5 Northbound Ramps to east city limits)

3. Vista Drive
IV. 11 mph
(South of Third Avenue to north of Parkland Way)

4. Vista Drive2
III. 16 mph
(North of Parkland Way to south of Grandview Road)

5. Grandview Road (SR 548)3

III. 16 mph
(West of Vista Drive to east of Enterprise Road)

1. Urban Street Class based on parameters from Highway Capacity Manual (page 15-3) which takes into account the typical free
flow speed on the facility (for example travel speeds during the middle of the night). Urban Street classifications range from I-IV,
with Class I streets having the highest average travel speeds and Class IV streets having the lowest. The majority of Ferndale
streets are Class III (35 mph) or Class IV (20-25 mph).
2. Minimal travel speed for corridor based on field measurements and adjusted for planned and funded improvements.
3. Corridor not subject to City concurrency review without annexation or agreement with Whatcom County.

Main Street and Vista Drive within the existing City limits have speed limits of 25 mph, which
equates to a Class IV facility for the Highway Capacity Manual methodologies. The other four
segments have higher typical travel speeds and equate to Class III facilities.

50
City of Ferndale
Transportation Element September 2023

The minimum average travel speeds established for the LOS standard are two miles per hour
faster than the low range of LOS D for that class of urban street. For example, LOS D for
Class IV facilities ranges from 9 to 13 mph. The City has established a 11 mph minimum
acceptable speed based on field measurements to account for potential decreases in travel
speeds associated with traffic that will be generated by already approved but not yet built
developments.

The City will need to coordinate use of a LOS D standard for Grandview Road with WSDOT
and WCOG because it is also a state highway. While portions of Grandview Road were
annexed into the City in 2010, the majority of the roadway is within the unincorporated UGA,
and the City will not be applying its corridor LOS standard to Grandview Road until the area is
annexed or an interlocal agreement is established with Whatcom County.

In addition to the minimum travel speed for the overall corridor, a second standard must be
met along Main Street. The Main Street concurrency corridor has been further divided into
three sub-segments in each direction. These sub-segments are generally defined as:
• Fourth Avenue to First Avenue
• First Avenue to LaBounty Drive
• LaBounty Drive to west of Interstate Five northbound ramps
Travel speeds along each sub-segment of Main Street must operate at a measured travel
speed of 10 mph or higher. This second requirement was established to support a more
consistent travel speed along Main Street between Downtown and Interstate Five.

Intersection LOS. The City has established the following LOS standards for intersections.
The levels of service shall be measured using methodologies identified in the latest edition of
the Highway Capacity Manual (HCM).

Traffic Signals, Roundabouts, and All-Way Stop Controlled Intersections – LOS

D or better based on overall average delay per vehicle.

Unsignalized Two-Way Stop Controlled Intersections – LOS E or better for worst

traffic movement. On a case-by-case basis, the City may allow the level of service for
traffic movements from the minor streets at two-way stop controlled intersections to
operate below the adopted standard, if the City determines that no significant safety
or operational issues will result.

The lower LOS standard for unsignalized, two-way stop controlled intersections reflects the
desire to minimize delays on the major street and through street traffic, while supporting safe
and efficient operations from the minor streets.

The City typically will apply the intersection LOS standard to the weekday PM peak hour. The
City may, however, define additional evaluation periods for intersection review in order to
identify if potential impacts would occur. These could include weekday AM peak hour,
weekends, or other time periods depending on the type and location of a proposed
development.

Non-Motorized Transportation Systems Plans

The City of Ferndale will continue to develop pedestrian and bicycle facilities as part of its
transportation system improvements. The City has adopted street standards that provide for
a range of facilities including sidewalks, bike lanes, wider travel lanes, and multi-use trails.

51
City of Ferndale
Transportation Element September 2023

The Parks, Recreation, and Trails Master Plan (2016) identifies the overall desired major
pedestrian and bicycle systems plans. The Transportation Element was coordinated with the
updated Parks Plan and focuses on improvements that provide a transportation system
connectivity benefit to guide investment priorities. This approach is intended to consolidate
both motorized and non-motorized transportation options in one conversation, in order to
avoid unnecessary redundancies, efficiently utilize funds, and develop an overall
transportation system that is logical and well-utilized. As noted above, the roadway
improvement projects incorporate pedestrian and bicycle facilities to facilitate implementation
of the overall non-motorized transportation system, and provide choices that support growth
and reduce congestion.

Non-Motorized Transportation System Objectives

The planning and development of a well-connected non-motorized system supports several
state and national acts, including Washington’s Growth Management Act (GMA), Clean Air
Act, and Commute Trip Reduction Act, the federal Clean Air Act, the Americans with
Disabilities Act (ADA), and the Fixing America’s Surface Transportation Act (FAST Act).
Supporting the non-motorized system helps ensure compliance with these initiatives and the
healthy community principles espoused by Whatcom Council of Governments (WCOG)
through the Whatcom Transportation Plan (2013). It also increases funding opportunities for
City projects. It also increases funding opportunities for city projects and provides modal
choices that reduce demand on congested roadways.

Healthy Communities
The City’s Transportation Element promotes Healthy Communities and supports aspects
related to pedestrian and bicycle connectivity. Recognizing the growing need for physical
activity among citizens, the Washington State Legislature amended the Growth Management
Act (GMA) in 2005 with ESSB 5186. The amendments require that communities:
1. Consider urban planning approaches that promote physical activity in the Land
Use Element of a comprehensive plan; and
2. Include a bicycle and pedestrian component in the Transportation Element of a
comprehensive plan.
The key policy areas are:
• Plan for all users.
• Plan Complete Streets for all users.
• Require connectivity.
• Create a safe pedestrian network.
• Consider multimodal concurrency.
• Identify and develop safe routes to school.
• Use parking management strategies to enhance bicycling and walking.
• Provide facilities to support bicyclists and pedestrians.
• Provide encouragement, education, and law enforcement to support bicyclists and
pedestrians.
The Transportation Element, in coordination with the City’s Parks Plan, plans for bicycles,
pedestrians, public transit, and private automobiles in order to support a physically active
population.

52
City of Ferndale
Transportation Element September 2023

A well-designed multi-modal street system will not only allow options to the automobile; it will
encourage those options in a manner where all users are comfortable. To accomplish this
goal, street system design including connectivity, traffic calming, and a grid system will
provide multiple choices for bicycles, pedestrians, and automobiles. These multiple modes of
transportation may not be featured in the same location, or even along the same route – as
the co-location of multiple modes of transportation at all locations may not serve the needs of
any mode.

These factors are considered by this element and the Ferndale Municipal Code and street
standards. The amount of parking available affects the decision to walk, bicycle, or drive and
is considered for both private development and development of public right-of-way. The
width of City streets may intentionally or unintentionally encourage travel speeds that are not
safe for other modes of transportation in close proximity. Other facilities such as bicycle
racks, public art, interpretive and educational signage, and resting or plaza stops with
benches or other amenities also support Healthy Communities. Education regarding
pedestrian and bicycle safety and enforcement of traffic laws for bicycles, pedestrians, and
drivers is also stressed within this element to support Healthy Communities.

The City of Ferndale values walking and bicycling as an integral part of a complete
transportation system. Ferndale is interconnected by multi-use trials, bicycle lanes,
pedestrian walkways, and sidewalks. The City desires to protect, enhance and expand this
existing infrastructure to meet pedestrian and bicyclist’s needs without unnecessarily
encumbering automobile traffic along major transportation routes. The City’s planning policies
and goals encourage safe, barrier-free mobility for all members of the community.

System Connectivity
Transportation system connectivity is drawing increased focus within local, state and federal
planning circles as smart growth, active living, growth management, sustainability and climate
change policies and programs stress smarter decision-making and place greater importance
on multi-modal connectivity. The quality of connectivity is inversely related to the number and
severity of environmental and infrastructure barriers to walking and bicycling. The physical
barriers that affect travel behavior are felt at the neighborhood level. These barriers take
many forms, from a lack of convenient routes to common destinations to physical barriers
such as steep terrain, rivers, freeways or major arterials which prevent safe or comfortable
travel. Land use and neighborhood street design patterns can also form barriers to
pedestrian and bicycle travel. For example, overly large blocks and the lack of mid-block
connections cause pedestrians and cyclists to travel further to reach local destinations, often
resulting in a decision to utilize a vehicle for short trips that would otherwise be completed on
foot or bike.

A viable non-motorized transportation system consists of the connection of traffic generators,

such as major employers, the downtown, schools, residential areas, parks, and transit stops
through a system of bike and pedestrian facilities. With this in mind, an analysis was
conducted to evaluate non-motorized transportation system connectivity within Ferndale and
its UGA. Connectivity to schools and downtown were assessed to evaluate a select group of
non-motorized routes identified in the Park Plan. Based on this analysis, the following
corridors were identified as providing the most benefit for serving these non-motorized
destinations.
• Main Street/Washington Street Corridor – Church Road to Vista Drive
• Thornton Street Corridor – Malloy Avenue to west City limits
• Vista Drive Corridor – 2nd Avenue to north City limits
Non-motorized transportation enhancement investments in and around these corridors will
facilitate increased pedestrian and bicycling trips. Specific improvements in these corridors

53
City of Ferndale
Transportation Element September 2023

have not been defined as part of this effort. Adjacent roadway improvements identified in
these corridors will include non-motorized facilities as part of the City’s adopted street
standards. The implementation of the planned connector roads discussed earlier and shown
on Figure 13 will provide connectivity for non-motorized travel. In addition, the development
of new connector streets and upgrades to arterials and collectors, as identified in the
Transportation Element are needed to enhance the use of non-motorized travel within the
City. Such streets and upgrades may be utilized as alternatives to primary corridors where
multi-modal connectivity could be constrained.

Pedestrian Systems Plan

Every trip begins and ends with a walk. People walk to their cars and drive somewhere where
they will walk into a building or facility. Or they need to walk to the bus stop. The City hopes
to connect more destinations with walking paths so as to encourage walking between trip
destinations. The City encourages retail and commercial developers to design new facilities
in a pedestrian friendly way.

Much of the residential development in the City pre-dates the Growth Management Act
(GMA) and may discourage walking as a form of transportation. In fact, some residential
areas do not have enough continuous sidewalks to provide for a good evening stroll or a brisk
walk for exercise. Most of these areas are costly to retrofit with sidewalks. The City requires
sidewalks for all new development and on arterial streets. The Transportation Element
includes a program to identify and retrofit older residential developments with sidewalks and
other pedestrian-oriented facilities.

Future plans call for the downtown area to include residential, commercial and retail facilities
in a walkable community centered around the historic downtown and along the Nooksack
River. The City recognizes that such a program will provide economic incentives for
continued investment and re-investment in the downtown community.

The City has integrated its pedestrian systems plan with the Parks, Recreation and Trails
Master Plan (2016), establishing a system of trails and sidewalks that provide connectivity to
major destinations, to parks and even proposed regional trail systems that extend beyond the
City limits. This system will facilitate travel within and between neighborhoods, and to and
from schools. These connections will take time to construct, and not every street will feature
the same variety of pedestrian amenities. However once built, this system will provide safe,
all-weather walking and jogging opportunities in every Ferndale neighborhood. Over time
pedestrian trips will supplement the system through alternative means, thus reducing
automobile congestion. The increased density of development will also place users in close
proximity to services and alternative means of transportation, especially bicycle and
pedestrian. In addition to additional bike and pedestrian mobility, Main Street and Portal Way
are anticipated to provide increased transit mobility as well.

Bicycle Systems Plan

Bicycling is an important and growing mode of travel for people in Ferndale. When
appropriately planned, bicycle routes have a role in reducing congestion, improving air
quality, providing travel choices, encouraging exercise and recreation, and providing greater
mobility for those without access to a vehicle. In Whatcom County, 2.9 percent of trips are
made by bicycle1. The City encourages the use of bicycles; endeavors to coordinate linkages
between off-road and on-road bicycle facilities; considers impacts on bicycles when designing
and engineering roadways; and emphasizes continuous bicycle linkages to existing facilities.

1 Whatcom Transportation Plan, 2012

54
City of Ferndale
Transportation Element September 2023

The City has included a Bicycle Systems Plan (Figure 15), which shows existing bicycle
facilities and proposed future facilities. Proposed facilities are informed by the City’s roadway
functional classification as well as facilities identified in the Whatcom Transportation Plan
(2012). It is important to note that while bikes may be allowed on all streets, not all streets
can or should include bicycle lanes. In some situations, particularly along major
transportation corridors or steep hills, the close co-location of bicycles and motorists benefits
neither traveler.

Recognizing the health benefits of bicycling as a form of exercise and hoping to promote non-
motorized alternatives for many of the trips people take within their neighborhoods and in the
community, the City wishes to encourage people to take advantage of this transportation
mode. By conducting a complete inventory of the existing facilities, consulting with the school
district and the Whatcom Council of Governments, the City will attempt to create a prioritized
list of those bicycle improvements that will provide the most benefit to the widest array of
Ferndale citizens.

In the meantime, the City continues to incorporate adjacent bicycle lanes or other design
treatments, as appropriate, into roadway construction projects whenever the right-of-way is
sufficient, funding can be secured, and life-safety is preserved or enhanced. Bicycle travel
through roundabouts will need to be addressed as individual projects are designed and
implemented. The City’s current Six Year Transportation Improvement Plan (TIP) identifies a
number of projects which will include bicycle lanes.

In addition to specific bicycle-related projects described in this or other plans, the City seeks
to establish routes that will allow bicyclists to travel from residential areas to the Downtown
core, to facilitate bicycle traffic along Main Street, and to provide bicycle-friendly, safe routes
to and from Ferndale schools. The City also expects to work with Whatcom County and the
City of Bellingham to establish regional bicycle trail connections.

This Plan was updated and incorporated into the Whatcom Transportation Plan, which was
adopted in October 2001 and updated in June 2007, 2012, and 2013. This Plan identifies a
regional trail project (the Nooksack River Trail) that will impact future trails planning in
Ferndale. Identified in the 1994 Bicycle Plan, the Nooksack River Trail is proposed to follow
the dikes and banks of the river from Bellingham to Maple Falls. Intersecting other proposed
regional trails, the result will be an approximately 70-mile long loop providing visitors or
commuters from all over western Whatcom County opportunities to utilize a non-motorized
off-road corridor. The Whatcom County comprehensive trail transportation network plan
could be developed in coordination with the extensive existing British Columbia trail network
and the Trans-Canada Trail to provide further non-motorized and recreational travel
opportunities.

55
City of Ferndale
Transportation Element September 2023

Figure 15 Bicycle Systems Plan

56
City of Ferndale
Transportation Element September 2023

Transit and Transportation Demand Management

In order to provide a comprehensive transportation system, the City of Ferndale recognizes
the importance of transit and transportation demand management (TDM) programs. To date,
the City of Ferndale has been a relatively inactive participant in applying transportation
demand management programs. However, as the City’s population grows, especially in
employer based land uses, the City will continue to explore alternate methods of increasing
efficiencies without costly infrastructure projects to add additional capacity.

To help reduce the need for costly new road facilities, the City of Ferndale will support and
encourage efforts by Whatcom Transportation Authority and the Whatcom Council of
Governments to reduce peak hour travel by automobiles and encourage the use of public
transportation, carpooling, vanpooling, and walking and bicycle modes of travel. The
Whatcom Smart Trips program is one example of these efforts. The City will encourage
employers and major residential areas within the city to consider ways to reduce automobile
travel by their employees and/or residents. The City will also act as a lead agency in
encouraging private businesses and citizens to utilize alternate modes of transportation.

The City’s Transportation Impact Fee policies are built in a manner to encourage businesses
to adjust hours of operation, practice ride-sharing, or utilize alternative transportation options
in order to reduce or avoid impact fees and the need for road expansion to meet peak hour
demands. These efforts have been successful from the establishment of the fee structure in
2011 through the adoption of this plan. However, professional offices and manufacturing
facilities are generally more flexible in their hours of operation than retail or service
businesses – which depend on drop-in customer traffic and generate a disproportionately
higher share of overall traffic.

Transit
The City should continue to work with WTA to improve transit services and develop a
convenient, integrated, and efficient transit system that supports future growth, reduces peak
hour congestion and promotes modal options. Design and construction of roundabouts at
intersections in the City needs to also take into account the location of bus stops, access, and
pedestrian safety to facilitate access and use.

Additional improvements to transit services should focus on the following elements:

• Provide service within the City of Ferndale through the re-establishment of a
circulator route
• General increase in frequency to existing routes serving City of Ferndale
• Provide service to Interstate Five/Slater Road area
• Provide service to LaBounty Drive corridor
• Provide service to Portal Way corridor
• Provide direct or near-direct service between residential areas, Downtown, and the
Main Street Commercial area

Transportation Demand Management (TDM) Program

TDM consists of strategies that seek to maximize the efficiency of the transportation system
by reducing the number, length and need of private automobile trips. Typically, TDM
measures include provision of park and ride lots, improvements to pedestrian and bicycle
facilities, and promotion of ridesharing activities.

57
City of Ferndale
Transportation Element September 2023

The Washington State Legislature passed the Commute Trip Reduction (CTR) Law in 1991,
with goals to improve air quality, reduce traffic congestion, and reduce fuel consumption. In
2006, the Legislature adopted changes to the CTR law to make the program more effective,
efficient, and targeted. The modified program focuses on UGAs and congested highway
corridors. The City’s UGA is classified as an “affected” UGA by WSDOT but currently does
not have any employers with 100 or more employees working a shift beginning between 6 am
and 9 am, and therefore is not required to implement CTR. When such an employer does
exist, the City should develop a CTR ordinance consistent with the State CTR Act. The
ordinance should include TDM actions for employers, such as carpool matching, transit pass
subsidies, and bicycle parking to discourage employees from commuting alone.

TDM strategies are typically most effective in denser and larger urban areas. However,
strategies coordinated with Whatcom County, WSDOT, and WCOG can provide alternatives
for residents and employees in Ferndale. Potential TDM strategies the City could promote
through policy or investment include but are not limited to the following.

• Transit Incentives – Employers can provide free or reduced-rate transit passes to

all employees.

• Ridesharing - Employers can develop and maintain a database of home

addresses to facilitate carpool and vanpool matching between employees working
on the same site. Employers can also provide financial incentives or reserved
parking spaces for carpool and vanpool vehicles.

• Flexible Work Schedules – Flexible work hour schedules allow employees to

adjust start/end times to accommodate carpools, vanpools, or transit options.
Alternative work schedules can also be used to reduce the number of days an
employee commutes during peak travel periods. These programs help reduce the
need for adding capacity to highways and arterials, and reduce the levels of peak
hour congestion.

• Telecommuting – The use of telecommunications technology can allow some

employees to work from home, reducing the need for travel to and from a work site
for some work days.

• Secured Bicycle Parking and Showers – Secured bicycle parking could be

provided in the vicinity of major employment centers, preferably in a covered,
weather-protected area. Shower facilities at work sites are also desirable to
encourage commuting by bicycle. Several City of Ferndale programs, including the
EAGLE program, provide the opportunity for points for the establishment of these
facilities.

Intelligent Transportation Systems

The Intelligent Transportation Systems (ITS) is a broad array of applications to improve the
efficiency of the transportation system through enhanced information and use of technology.
The focus of the ITS program for the City of Ferndale relates to the operations of traffic
signals along key arterial corridors. Implementation of an advanced traffic management
system (ATMS) would allow the City to improve the coordination and specific issues such as
back-ups and traffic diversions relating to an event or a collision, while providing capabilities
to make timely adjustments to signal timing remotely.

An ITS program also could include Closed Circuit Television (CCTV) cameras to enhance
situational awareness of the traffic conditions and variable message signs to direct traffic to
alternate routes. ITS also has the capability to provide the City with additional data about its

58
City of Ferndale
Transportation Element September 2023

transportation system which will assist it in design of capital projects or refinement of other
operational processes. Especially with the mainstream use of mobile communication
technology and software applications, the available traffic data sources and data analytics
provided by ITS offers a wide variety of benefits towards understanding traffic characteristics
that will help the City of Ferndale plan for future needs.

A first step in implementing ITS would be the preparation of the ITS architecture plan and
systems engineering document. In addition to ensuring conformance with the National ITS
Architecture for ITS implementation, the architecture plan and systems engineering document
will establish the objectives, priorities and implementation phases for the system. It will
include an evaluation of options to connect with the WSDOT, City of Bellingham, and other
agency ITS systems.

Transportation Improvement Projects and Programs

Based on an evaluation of existing and forecast traffic volumes, traffic operations, safety, and
circulation needs, a recommended list of transportation improvement projects and programs
were defined. The project list is organized into the following categories:
• Intersection / Operations – upgrading intersections through the addition of
roundabouts, added turn lanes, or modifications to traffic controls. Where applicable,
improvements may also include upgrading of traffic signals and implementation of Intelligent
Transportation Systems (ITS).
• Widening / Reconstruction – widening existing corridors to add travel lanes and
turn lanes to add capacity. Includes reconstruction and upgrading roadways to serve higher
traffic volumes and non-motorized travel.
• New Roadways – constructing new arterials or collector roads, including non-
motorized facilities.
• Other Agency Improvements – improvements along state highways and /or outside
the City’s UGA.
• Citywide Programs – includes annual citywide programs.

Figure 16 and Table 6 identify each of the projects and their locations. Table 7 also provides
a brief description of each project including the project limits. The table identifies projects that
are currently part of the City’s Transportation Improvement Program (TIP). This highlights the
projects that are currently identified for planning, design, or construction. A project
identification number is provided for each project that is referenced in Figure 13.
Planning level cost estimates are also included for each project. The cost estimates were
prepared based on typical per unit costs, functional classification, and level of improvement.
The cost estimates include allowances for right-of-way acquisition based on generalized
needs to meet the City’s adopted roadway standards. Estimated costs for several
improvements on state routes were developed jointly with Washington State Department of
Transportation (WSDOT).
A relative priority (high, medium, and low) was established for each project. The priority
reflects the relative need for the projects to enhance the City of Ferndale and its UGA
transportation system and provides guidance in implementing the respective improvements.
The priority list will be amended throughout the planning period, based on achieved growth,
funding, and project cost.

59
City of Ferndale
Transportation Element September 2023

BEHIND THE NUMBERS: NEW ROADWAYS

The majority of the City’s planned transportation improvements consist of
modifications to and maintenance of existing roadways and intersections, in addition
to new roadways built by private development to serve new development. There
are several exceptions, as described below and shown in Figure 12:

Church Street Connector: Extension of Church Street south to Douglas Road

through properties currently in the Urban Growth Area Reserve. This project is
intended to improve local circulation while providing more-direct access between
residential neighborhoods, Slater Road, and Interstate Five. Existing property
owners have expressed opposition to such an extension. The City has not
determined whether such an extension would represent a public project or a
requirement of the redevelopment of subject properties.

The Church Street Connector would utilize existing roadways south of the project
and would not result in a direct connection to Slater Road. As a consequence, such
a connector would unlikely to be utilized as a major commuter route for Ferndale
residents.

Master Plan Linkage Roads: Two new east-west roadways are planned to the
north and south of Main Street west of the freeway interchange. To the south, the
existing private roadway would be extended to LaBounty Drive as development
occurs, providing an alternative to Main Street for Ferndale shoppers. The roadway
would be built by private development as a condition of approval and maintained as
a private right of way. To the north, a private roadway linking LaBounty Drive to Joe
Mosier Way would be established when and if development occurs in that area.

Barrett Drive Reconfiguration: The City anticipates that Barrett Drive south of
Main Street will be reconfigured by re-orienting Barrett to the east, creating a four-
way stop (or roundabout) east of the northbound freeway terminals. This
reconfiguration is anticipated as a capital project, to be built and maintained by the
City.

North Ferndale Industrial Connector: As services are extended to the area in the
vicinity of Malloy Drive and Brown Road, industrial and commercial development will
trigger the need for all-weather roads that are not constrained by the significant hills
along Malloy. A road parallel to Malloy Drive is planned, to be developed as a
condition of private development and maintained by the City.

60
City of Ferndale
Transportation Element September 2023

Figure 16 Transportation Improvements Projects

61
City of Ferndale
Transportation Element September 2023

Table 6. Transportation Improvement Projects and Programs

2022
Project Project 2022 Cost
Group ID Project Name Project Limits Project Description Estimate
Construct one large roundabout, two compact
I-1 Washington St / Vista Dr Intersection $ 4,433,000
roundabouts, or signal at offset intersection
Realign Portal Way to connect directly with
I-2 Portal Way / Enterprise St / Destiny St Intersection Enterprise Rd/Destiny St intersesction. Remove $ 1,750,000
Portal Way south of Destiny St
I-3A Main St / Hovander Dr Intersection Restrict northbound left-turns $ 26,000
Install partial signal to provide phase for
I-3B Main St / Hovander Dr Intersection $ 850,000
westbound left-turns
I-4 Smith Rd / Labounty Dr Intersection Construct signal or roundabout $ 3,000,000
INTERSECTION/OPERATIONS

I-5 Smith Rd / Barrett Rd Intersection Construct signal or roundabout $ 3,500,000

I-6 Portal Way / I-5 NB Ramps Intersection Construct full size roundabout $ 3,000,000
Construct multimodel connection along Portal
Way between the northbound and southboud I-
Multimodal Connection: Portal Way
I-7 Undercrossing 5 ramp intersections. Assumes no change to $ 150,000
Undercrossing
existing bridge structure. Likely trail-type
facility on east side of Portal Way.
Construct slip lane from southbound Portal
I-8 Portal Way / I-5 SB Ramps Intersection $ 1,000,000
Way to the I-5 SB On-Ramp

Construct signal and coordinate with I-5 ramp

I-9 Main St / Barrett Rd (North) Intersection $ 1,200,000
signals
I-10 Main St / SE Connector Road Intersection Construct signal or roundabout $ 2,500,000
I-11 Barrett Rd / SE Connector Road Intersection Construct signal or roundabout $ 2,500,000
I-12 Aldergrove Rd / Malloy Rd Intersection Construct roundabout $ 2,500,000
I-13 Aldergrove Rd / Vista Dr Intersection Construct roundabout $ 2,500,000
I-14 Aldergrove Rd / Church Rd Intersection Construct roundabout $ 2,500,000
North side of road, 8-ft wide road widening and
curb, gutter, sidewalk and storm. Existing road
R-1 Thornton Rd Church Rd to Maureen Dr and south side curb, gutter and sidewalk $ 2,402,000
remains. Install ADA ramps at Church
Rd/Thronton Rd intersection.
Reconstruct and widen to meet City standards,
R-2 Portal Way I-5 NB Ramps to Trigg Rd $ 18,356,000
including utilities
Reconstruct and widen to meet City standards,
R-3 Thornton St Vista Dr to Malloy Ave $ 1,891,000
including utilities
Washington St to Ferndale Reconstruct and widen to meet City standards,
R-4 Legoe Ave Improvement $ 3,922,000
Terrace including utilities.
Reconstruct and widen to meet City standards,
R-5 LaBounty Dr Seahawk Dr to Sunset Ave $ 8,967,000
including utilities
WIDENING / RECONSTRUCTION

Reconstruct and widen to meet City standards,

R-6A Ferndale Terrace Vista Dr to Birch Dr $ 3,615,000
including utilities
Reconstruct and widen to meet City standards,
R-6B Ferndale Terrace Birch Dr to Shannon Ave $ 4,777,000
including utilities
Barrett Road to east City Reconstruct and widen to meet City standards,
R-7 Main St $ 10,232,000
limits including utilities
750-ft east of S Church Rd to Reconstruct and widen to meet City standards,
R-8 Douglas Road $ 5,774,000
Imhoff Rd including utilities and box culvert
Separate left-turn loop detectors, implement
Main Street Signal Improvements -
R-9A Labounty Dr to Douglas Rd traffic signal cabinet and controller upgrades, $ 300,000
Short Term
and expand/upgrade interconnect system
Main Street Signal Improvements -
R-9B Labounty Dr to Douglas Rd Implement an Adaptive Signal Control system $ -
Long Term
Whiskey Creek Crossing to Reconstruct and widen to meet City standards,
R-10 Malloy Ave $ 10,983,000
Brown Rd including utilities
North City Limits to Reconstruct and widen to meet City standards,
R-11 Vista Dr $ 6,720,000
Aldergrove Rd including utilities
Pacific Highlands Ave to Reconstruct and widen to meet City standards,
R-12 Church Rd $ 8,211,000
Aldergrove Rd including utilities
Reconstruct and widen to meet City standards,
R-13 Aldergrove Rd Malloy Ave to Vista Dr $ 7,245,000
including utilities
Reconstruct and widen to meet City standards,
R-14 Aldergrove Rd Church Rd to Vista Dr $ 3,402,000
including utilities

62
City of Ferndale
Transportation Element September 2023

Table 6. Transportation Improvement Projects and Programs (continued)

2022
Project Project 2022 Cost
Group ID Project Name Project Limits Project Description Estimate
Corridor study to convert selected downtown
DOWNTOWN

D-1A Downtown Traffic Reconfiguration Main St Bridge to 4th Ave roadways to one-way operations to improve $ 30,000
Main Street traffic flows.
D-1B Downtown Traffic Reconfiguration Main St Bridge to 4th Ave Project contruction (TBD) $ -
Grandview Rd (SR 548) / Vista Dr
O-1 Intersection Add eastbound right-turn lane $ 500,000
Intersection
Widen all intersection approaches to provide
Grandview Rd (SR 548) / Portal Way dedicated left-turn lanes. Revise traffic signal
O-2 Intersection $ 4,000,000
Intersection operations to operate left-turn movements
OTHER AGENCY IMPROVEMENTS

with protected/permitted phasing

Grandview Rd (SR 548) / I-5 NB & SB
O-3 Interchange Construct signals or roundabouts $ 2,500,000
Ramp Intersections
Contruct intersection improvement in
O-4 Slater Rd / Rural Ave Intersection NA
coordination with WSDOT
Contruct intersection improvement in
O-5 Slater Rd / I-5 SB Ramps Intersection NA
coordination with WSDOT
Contruct intersection improvement in
O-6 Slater Rd / I-5 NB Ramps Intersection NA
coordination with WSDOT
Contruct intersection improvement in
O-7 Slater Rd / Pacific Hwy Intersection NA
coordination with WSDOT
As part of the Nooksack River Levee project,
Levee Reconstruction/Riverwalk Cherry St to south of Star connection to Ferndale Road south of the city
O-8 NA
Extension/Street Realignment Park will be moved to the west. The Riverwalk trail
will be extended south along the new levee.
PROGRAMS
CITYWIDE

C-1 Sidewalk Program City-wide Repair, replace, and construct new sidewalks. NA

C-2 Pavement Rehabilitation Program City-wide City-wide program NA

63
City of Ferndale
Transportation Element September 2023

Interstate Five Access Improvements

Interstate Five provides the primary connection between Ferndale and the Western
Washington region. To the north Interstate Five connects the Ferndale area to the United
States/Canadian border. To the south, Interstate Five connects to Bellingham and the central
Puget Sound region. The Ferndale area is served by four existing interchanges:
• Grandview Road (SR 548)
• Portal Way
• Main Street
• Slater Road
The Transportation Element includes specific projects to improve operations at or near all
four of interchanges. Improvements are needed to fix operational issues in the near term and
to serve forecast growth in the long term. Improvements to the Interstate Five/Grandview
Road (SR 548) (project O-3) are identified for a long term need. Improvements will improve
traffic operations at the ramps by adding turn lanes and installing a traffic signal when future
traffic volumes warrant. Improvements to the state highway system should be designed to
improve safety and efficiency for bicyclists and pedestrians.

Roundabouts also are identified as the preferred improvement strategy for the Slater Road /
Interstate Five interchange ramps (projects O-5 and O-6). Installation of roundabouts at the
Slater Road interchange ramps needs to be coordinated with improvements at the
intersections of Slater Road with Pacific Highway and Rural Avenue (projects O-4 and O-7).

Intersection / Operations Improvements

Improvements to intersections along City arterials and collectors are needed to resolve future
deficiencies, primarily routes that provide access to Interstate Five. The City may consider
roundabouts, modifications of existing traffic signals, or installation of new traffic signals
based on the availability of funding, timing of the need for improvements, and costs of right of
way acquisition

Intersection and operations improvements at City intersections account for a large number of
improvement projects in the Plan. However, costs of the intersection/operational
improvements account for approximately one-quarter of the estimated capital costs for City
projects.

The January 2011 Transportation Element included improvements to upgrade the traffic
signals and install Intelligent Transportation Systems (ITS) infrastructure along Main Street.
This project was intended to provide improved traffic operations, capacity, and efficiency in
the Main Street corridor..

Widening / Reconstruction Improvements

This category of projects includes upgrading and widening of roadways to City standards to
provide turn lanes at major access locations as well as improvements to non-motorized
facilities. Widening/ reconstruction improvements account for approximately 70 percent of the
total City-related capital improvement costs in the Transportation Element. These projects
are generally intended to add capacity to existing road segments rather than establishing new
roadways to serve the same purpose.

The City will also consider opportunities to explore the concept of road “diets,” in which the
width of streets is reduced in order to reduce maintenance costs, reduce speeds, combine

64
City of Ferndale
Transportation Element September 2023

multi-modal opportunities, and reduce stormwater run-off. The width of streets has a
significant influence on safety, and when wide streets are combined with sparse traffic the
average speed will increase – sometimes to levels that are dangerous to pedestrians,
bicyclists – and ultimately the driver themselves.

New Roadways
The City has identified and will be completing soon one new arterial roadway in the
transportation element to support future growth. The Thornton Street/2nd Avenue Grade
Separation will provide a grade separated connection across the BNSF rail line from Malloy
Avenue to Portal Way. The new roadway would not connect directly into Interstate Five but
would allow access to the Portal Way interchange.

The travel forecast results suggests that the Thornton extension would have a citywide
impact, and would serve to relieve pressure on Main Street (including the Downtown core),
would provide an all-weather emergency route that is immune to seasonal flooding, would
support rapid emergency response, and would bolster economic development along both
Thornton Street and Portal Way.

Other Agency Improvements

Improvements to the Slater Road and Grandview Road (SR 548) interchanges serving
Ferndale are identified in the Transportation Element under the other agency category. These
facilities are critical in providing access to Interstate Five from the City and its UGA and are
discussed above. Improvements under the jurisdiction of Whatcom County are also identified
in the Transportation Element. West of Interstate Five, improvements to Slater Road
(projects O-4) include modifying the intersection. Improvements along Grandview Road (SR
548) include upgrading intersections to improve safety and operations at the intersections of
Vista Drive and Portal Way (projects O-1, O-2, and O-3). These could include the addition of
turn lanes, constructing roundabouts, or installing traffic signals when future traffic volumes
warrant. Improvements to the state highway system should be designed to improve safety
and efficiency for bicyclists and pedestrians.

As part of the levee improvement project Whatcom County is realigning Ferndale City roads
south of downtown. The specific alignments have not been defined at this time.

Citywide Programs
A systematic program for maintaining the existing and future transportation infrastructure is
critical to a safe and efficient transportation system. Failure to maintain existing roadways by
providing dedicated funding to maintenance and operations programs could result in more
substantial capital projects and road rehabilitation projects in the future.

The Pavement Rehabilitation Program (project C-1) includes a systematic evaluation of

pavement conditions on arterial and local roadways. In addition, a Citywide Sidewalk
Program (project C-2) is needed to repair, replace, and construct new sidewalks citywide.

65
City of Ferndale
Transportation Element September 2023

D. Financing Program
The list of transportation improvement projects must be funded and implemented to meet
existing and future travel demands in and around the City of Ferndale. Estimated project
costs and future revenues are presented and options to fund the projects are described.
Implementation strategies are discussed and include items such as coordination with
WSDOT, Whatcom County, and Whatcom Council of Governments to prioritize and fund
regional improvements. Other strategies include refining the transportation concurrency and
impact fee programs to ensure development helps fund transportation improvements
necessary to support new growth. The implementation plan sets up the framework for the
City to prioritize and fund the improvements identified in the transportation systems plan.

The Growth Management Act (GMA) requires the Transportation Element of the
Comprehensive Plan to include a multi-year financing plan based on the identified
improvement needs in the transportation systems plan. The financing plan is to be the basis
in developing the required 6-year Transportation Improvement Program (TIP). If probable
funding is less than the identified needs, then the transportation financing program must also
include a discussion of how additional funding will be raised or how land use assumptions will
be reassessed to assure that level of service standards will be met. Alternatively, the City can
adjust its level of service standards.

A summary of the cost of capital improvement projects and citywide maintenance and
operation programs are presented. The capital project and maintenance and operations
program costs are compared to estimate revenues from existing sources used by the City to
fund transportation improvements. Other potential funding sources to help reduce the
projected shortfall are described. A summary of a reassessment strategy for the City to use
for reviewing transportation funding in the context of the overall Comprehensive Plan is also
included.

Project and Program Costs

Table 7 summarizes the costs of the recommended transportation improvement projects and
programs. These cover City of Ferndale capital improvements, maintenance, and operations.
The costs are summarized for the life of the Plan. Improvements under the responsibility of
WSDOT or Whatcom County are not included in the summary table. However, the City may
choose to include a share of the costs of WSDOT improvements in its transportation impact
fee or other funding options when they serve the growth needs of this plan.

66
City of Ferndale
Transportation Element September 2023

Table 7. Transportation Project and Program Costs (2023 – 2036)

Improvement Type (2017-2036) Total Costs1 Percent of Total Costs

Transportation Capital Projects2

Intersection Improvements $31,409,000 24%

Widening / Reconstruction $96,797,000 74%

Subtotal Capital Projects $128,206,000 100%

Transportation M & O Programs

Maintenance & Operations $24,079,000 80%

Pavement Rehabilitation Program $4,033,000 13%

Sidewalk Program $2,016,000 7%

Subtotal M & O Programs $30,129,000 100%

Total Costs $158,335,000

1. All costs in 2023 dollars

2. Does not include other agency improvements

Planning level cost estimates were developed for the capital improvements presented in the
Transportation Systems Plan section of the Transportation Element. The planning estimates
were prepared based upon average unit costs for recent transportation projects within the
City. Planning level costs were developed with the assumption that such costs would include
associated storm water development requirements, property acquisition, wetland mitigation,
and utility extensions and/or upgrades, based upon historic costs for those items. The cost
projections are not specific to individual projects or locations. More detailed cost estimates
will need to be prepared as the projects are closer to design and construction. Future design
studies will identify specific property impacts and options to reduce costs and impacts on
properties.

The estimated capital cost of the City portion of the Transportation Plan is $128.2 million (in
2023 dollars). Approximately 74 percent of the capital costs are associated with widening and
reconstruction of existing streets in the City. These costs cover upgrading roadways to City
standards to accommodate higher volumes of traffic and construction of urban features such
as underground drainage, sidewalks, and streetlights.

Maintenance and operations costs were projected based on figures from the 2017
transportation element with 10 percent added to account for cost increases. Maintenance and
operations costs cover general administration, roadway and storm drainage maintenance,
street lighting, traffic signal and street signs, street sweeping, and other miscellaneous safety
improvement programs. In addition, the City developed estimates of annual expenditures to
repair, replace and construct sidewalks to improve connectivity and safety, beyond facilities
that would be constructed as part of other capital improvements. An estimated need for
overlays to preserve the existing street system is also included in order to reduce the need
for extensive capital reconstruction projects. Approximately 20 percent, or $30 million, of the
total $158.3 million Transportation Element cost is associated with maintenance and

67
City of Ferndale
Transportation Element September 2023

operations. Of that cost, approximately 20 percent is for citywide sidewalk and pavement
overlay programs.

The Transportation Element also includes other agency projects in the vicinity of the City. The
other agency projects will serve development in Whatcom County, Bellingham, and other
communities and therefore were not included in the City of Ferndale totals. These projects
are not currently funded by the other agencies.

Funding Analyses with Existing Revenue Sources

The City has historically used tax revenues, developer fees, and grants to construct and
maintain their transportation facilities. The description of available funding sources and
projected revenue is listed in Table 8.

68
City of Ferndale
Transportation Element September 2023

Table 8. Transportation Funding Revenue Projections (2023 – 2036)

Revenue Source1 Total Revenues Percent of Total Revenues

Transportation Capital Revenues

REET $17,881,000 21%

Transportation Benefit District $11,879,000 14%

TIF Transfers $5,356,000 6%

Transportation Impact Fees & Developer

$9,952,000 11%
Commitments2

Grant Funds $42,000,000 48%

Subtotal Capital Revenues $87,068,000 100%

Transportation M & O Revenues

Motor Vehicle Fuel Tax - Non-Capital Only $5,366,000 29%

Solid Waste Tax - Committed $12,113,000 67%

Other Private
$297,000 2%
Assessments/Contributions/Transfers

Miscellaneous (Permits, Other) $333,000 2%

Subtotal M & O Revenues $18,172,000 100%

Total Revenues $105,240,000

1. All revenues in 2023 Dollars

2. Includes only transportation impact fee revenues for City projects; additional revenues could be generated as a City contribution
toward WSDOT improvements to the I-5 interchanges serving Ferndale.

The revenue projections were estimated based upon the City’s 2023 budget, historical
revenues, and input from the City’s finance department. Based on recent historical data, it is
estimated that revenues would be approximately $105 million during the 14-year period, of
which eighty-three percent would be dedicated for capital improvements and seventeen
percent for maintenance and operations programs.

Of the approximately $87 million in revenues dedicated for capital improvements,

approximately eleven percent, 10 million, are expected to come from developer contributions
through impact fees, frontage improvements, and SEPA or concurrency mitigation. Grants
are assumed to generate a minimum of approximately $42 million, or approximately 48
percent of all capital revenues. Transportation Benefit District taxes and fees will generate
approximately $12 million, or 14 percent of all capital revenues during the life of the plan.

Over $18 million in revenues dedicated for maintenance and operations programs are
anticipated over 14 years. Over two-thirds is expected to come from the City’s Solid Waste
Tax. The motor vehicle fuel tax is anticipated to generate approximately 29 percent of all
maintenance and operations revenues, $5.4 million. Other contributions and miscellaneous
revenue sources make up approximately 4 percent of the total over the 20-year period.

Tax Revenues
The existing tax revenues used by the City will need to be maintained as one source of
revenue to fund transportation projects and programs. These revenue sources include motor

69
City of Ferndale
Transportation Element September 2023

vehicle fuel tax, property taxes, and other tax revenues that support the City’s general fund.
The majority of the existing tax revenue sources will be used for maintenance, and to provide
the matching funds for grants or to complete a portion of the improvement projects not
covered by other agencies.

Developer Transportation Funding

The City uses several programs to help offset the increased traffic impacts of new
development or redevelopment. These include construction of frontage improvements such
as curb, gutter, and sidewalks and internal roadways needed to serve the development. The
City is also required to review the potential transportation impacts of development and define
appropriate mitigation under the State Environmental Policy Act (SEPA) and GMA
concurrency requirements. In addition, the City’s adopted Transportation Impact Fee (TIF)
program helps fund growth-related transportation system improvements. As shown in Table
8, the funding program identifies $10 million (2023 dollars) in development generated funding
for City growth related improvement projects.

Transportation Impact Fees

The GMA allows agencies to develop and implement a Transportation Impact Fee (TIF)
program to help fund part of the costs of transportation facilities needed to accommodate
growth. State law (RCW 82.02) requires that TIF programs are:

• Related to improvements to serve new growth and not existing deficiencies;

• Assessed proportional to the impact of new developments;
• Allocated for improvements that reasonably benefit new development, and;
• Spent on facilities identified in the adopted Capital Facilities Plan.

TIFs can only be used to help fund improvements that are needed to serve new growth. The
projects can include recently completed projects to the extent that they serve future growth
and did not solely resolve existing deficiencies. The cost of projects needed to resolve
existing deficiencies cannot be included.
The TIF program must allow developers to receive credits if they are required to construct all
or a portion of system improvements to the extent that the required improvements were
included in the TIF calculation. Cost associated with dedication of right-of-way for
improvements included in the TIF also would be eligible for credits. The City is in the process
of updating its existing program based on the updated Transportation Element.
Each of the capital improvement projects was evaluated for potential inclusion in an updated
TIF program based on the 2036 horizon year. This resulted in up to $33 million (2023 dollars)
eligible for inclusion in the transportation impact fee program. The analysis did not assume
improvement projects under the jurisdiction of WSDOT or Whatcom County would be
included since the City does not have interlocal agreements or MOU’s with these agencies.
The travel forecasting model was applied to determine the proportionate share of the costs of
these improvements due to growth in the City, its UGA, and other areas.

Other Developer Mitigation and Requirements

The City has adopted specific development related requirements which will help fund the
identified improvements. These include frontage improvements and mitigation under the
State Environmental Policy Act (SEPA) and concurrency requirements. The City requires
developments to fund and construct certain roadway improvements as part of their projects.
These typically include reconstructing abutting streets to meet the City’s current design
standards. These improvements can include widening of pavement, drainage improvements,
and construction of curb, gutter, and sidewalks.

70
City of Ferndale
Transportation Element September 2023

Several of the projects identified in the Transportation Element could be partially funded and
constructed as part of new developments. As noted above, to the extent that costs of a
transportation improvement are included in the TIF then credits would be required. If
improvements to an abutting local street are not included in the TIF, then credits against the
TIF would not be required or allowed.
The City also evaluates impacts of development projects under SEPA. The SEPA review may
identify adverse transportation impacts that require mitigation beyond payment of the TIF.
These could include impacts related to safety, traffic operations, non-motorized travel, or
other transportation issues. The needed improvements may or may not be identified as
specific projects in the Plan. As with frontage improvements, if the required improvements are
included in the TIF program, then the City must provide credits to the extent that the costs are
included in the impact fee.
The City also requires an evaluation of transportation concurrency for development projects.
The concurrency evaluation may identify impacts to facilities that operate below the City’s
level of service standard. To resolve that deficiency, the applicant can propose to fund and/or
construct improvements to provide an adequate level of service. Alternatively, the applicant
can wait for the City, or another agency or developer to fund improvements to resolve the
deficiency.

Grants
Over the past several years the City has secured grants for transportation improvements.
Based on recent grant awards, this source would provide over $42 million in revenues during
the 14-year period, which anticipates a similar grant approach than has been experienced in
recent history. Grant funding is typically tied to specific improvement projects and distributed
on a competitive basis. Due to reduced federal and state revenues the pool of grant funding
will likely decrease in the future. In addition, more local agencies are pursuing grants
resulting in a more competitive environment. The funding analysis assumes the City will
receive $42 million in grants over the 14-year life of the Plan, or similar to the historical
average annual level of grants received between 2018 – 2022.

Forecasted Revenue Shortfall

Table 9 summarizes the City’s proposed transportation financing strategy for the $128 million
City portion of the capital improvement costs as well as the over $30 million in maintenance,
operations, and program expenditures. All values are presented in 2023 dollars. The plan
results in a shortfall of nearly $53 million dollars. This assumes that the level of grants and
developer commitments will be generated as estimated in the Transportation Element. The
deficit could be greater if the level of development or the level of grant funding is less than
forecast. This would be offset by a reduced need for transportation improvements
necessitated by growth. If the City is more successful in obtaining grants or other outside
funding for projects then potential deficit could be reduced, as discussed in the next section.

The shortfall identified in the Transportation Element is not unusual, particularly as many of
the improvements identified in the plan will require partnership with other agencies.
However, in an era of diminished public resources and increased competition for grant
funding the City must take a realistic view of potential revenue sources. The City and its
consultants have also sought to be conservative in revenues (anticipating generally lower
revenues), and conservative in project costs (anticipating generally higher costs). As such, a
theoretical deficit is expected. Moreover, several projects identified within the plan are owned
by the Washington State Department of Transportation and may be eligible for full or partial
funding from Washington State or the Federal Highways Administration.

71
City of Ferndale
Transportation Element September 2023

In order to be consistently successful in receiving grant funding, the City cannot become a
part-time participant in grant requests. Preparation of grant applications must begin early and
must be supported by the Comprehensive Plan and the 6-Year Transportation Improvement
Project list.

The City should also consider funding options which more equitably distribute the costs of the
transportation system among the users of the system. While the “growth pays for growth”
principle has been applied throughout the Transportation Element, the costs of maintaining
the existing transportation system over time are the shared responsibility of all of the
Ferndale community. This could include adoption of other citywide transportation funding
programs such as a Transportation Benefit District (TBD) or increased use of general
revenues from sales taxes or other sources.

Table 9. Forecasted Revenues and Costs

1
Revenue Source Total (2023–2036)

Transportation Capital Revenues $87,068,000

Total Capital Project Costs $128,206,000

Capital Estimated Shortfall ($41,138,000)

Transportation M&O Revenues $18,172,000

Transportation M&O Costs $30,129,000

M & O Estimated Shortfall ($11,957,000)

Total Estimated Shortfall ($53,095,000)

1. All revenues in 2023 dollars

2. Does not include other agency improvements

Capital Revenue Shortfall

The shortfall in funding would primarily affect the ability of the City to fund capital
improvements. The City is committed to funding the existing maintenance and operations
programs needed to preserve the integrity, safety, and efficiency of its existing transportation
system. The maintenance and operations cost will expand with the future annexation of its
UGA.

Maintenance and Operations Revenue Shortfall

A shortfall of approximately $12 million is forecasted for completely funding the 14-year
maintenance and operations programs. General citywide maintenance and operations
programs will balance with forecasted revenues over the life of the plan. The $12 million is
associated with the general maintenance and operations costs assumed in the previous
transportation element.

Potential Options to Balance the Plan

As noted above, projected existing revenue sources would allow the City to fund
approximately 80 percent of the identified transportation improvement projects and program
costs. The City could address this shortfall through delaying lower priority projects or
increasing revenues. Increases in revenues can be segmented into capital project needs and
citywide preservation or sidewalk programs.

72
City of Ferndale
Transportation Element September 2023

Options for Reducing the Funding Shortfall for Capital

Improvement Projects
The City can increase funding for capital street projects using a range of revenue options.
These include partnering with other agencies or additional grants and use of tax increment
financing. Alternatively, the City could delay implementation of projects, especially lower
priority improvements. Possible applications of these funding strategies are discussed below.

Combining Improvement Projects

The City may be able to reduce the overall costs of capital improvements (Transportation and
utilities) by consolidating planned projects. The City’s Capital Facilities Element Consolidated
Project Map depicts all of the forecast improvements necessary within the planning period. In
many cases, there are a number of separate projects located in one general area, and there
is the potential to combine those various projects (and their funding sources) into one or two
larger improvements.

Consolidation allows the City to save costs by avoiding redundant designs, by avoiding
multiple site mobilizations, utilizing committed funding as “match” funds for grants, and more.
While the cost savings will vary substantially from project to project (and may not be feasible
in all cases), the City has adopted policies in several of the elements of the Comprehensive
Plan to consider these approaches.

Delaying Improvement Projects

Table 6 includes a relative priority list of the improvement projects. The priority list reflects the
relative need for the project to meet the City of Ferndale’s transportation system needs,
including safety, circulation, operations/congestion, pedestrian and bicycle system
connectivity, and transit service. The City will focus its funding on the higher priority
improvements by making conservative adjustments to the Six-Year Improvement plan.

As developments occurs, the City may require frontage improvements or SEPA mitigation, as
appropriate. The City also may identify other programs or opportunities to partially or fully
fund some of these improvements.

Additional Grants and Other Agency Funding

As discussed above, the transportation financing analyses assumes that the City will receive
$42 million in grant funding over the life of the plan. This is similar to the average annual
transportation grant funding received between 2018 and 2022. The Transportation Element
has a range of improvement projects that should be competitive for grant funding.

In addition, the City will need to coordinate with and partner with WSDOT, Whatcom County,
and others to help fund and implement the required improvements in the Transportation
Element. GMA requires the Transportation Element to identify needs to facilitate coordination
between the local and state transportation planning efforts. The City will continue to work with
WSDOT and other local, regional, and state agencies to develop strategies for funding and
implementing improvements.

The Transportation Element also includes improvement projects that are outside the City and
its UGA. Most of these improvements are in Whatcom County. These improvements are part
of the greater Ferndale area transportation system but are not the focus of the City funding
programs. The City will continue to partner with Whatcom County, Bellingham, Lummi Nation,
and Whatcom Council of Governments (WCOG) on funding these types of improvements.
One strategy would include developing Interlocal Agreements related to transportation impact
fees, developer mitigation, as well as joint pursuit of grants for improvements.

73
City of Ferndale
Transportation Element September 2023

Tax Increment Financing

Washington State allows cities to create “increment areas” that allows for the financing of
public improvements, including transportation projects within the area by using increased
revenues from local property taxes generated within the area. The specific rules and
requirements are noted in the Community Revitalization Financing (CRF) Act.

The Local Infrastructure Financing Tool (LIFT) program is a potential tool for the City to
pursue. Under this concept the annual increases in local sales/use taxes and property taxes
can be used to fund various public improvements.

The City may choose to further consider these types of funding programs in the future as part
of its annual budget and six-year Transportation Improvement Program (TIP) processes.

Voter Approved Bond/Tax Package

Bonds do not result in additional revenue unless coupled with a revenue generating
mechanism, such as a voter approved tax. The debt service on the bonds results in
increased costs which can be paid with the additional tax revenues. Although the City does
not anticipate issuing bonds in the near future, it remains an option for generating additional
transportation revenues to fund some of the higher cost improvement projects included in the
Transportation Element.

Options for Reducing the Funding Shortfall for Maintenance

and Operations Programs
The Transportation Element includes annual street overlay and sidewalk improvement
programs. These programs are intended to preserve the City’s prior transportation
investments in a systematic manner. It may be appropriate to develop a more dedicated
funding source for these programs to help assure that the streets do not fall into disrepair
which would ultimately require a capital reconstruction project. In addition, the City may work
with its citizens and businesses to help fund specific neighborhood improvements, such as
completing missing sections of sidewalks.

Some of the potential revenue options for these types of improvements are discussed below.
These options also might be suitable for some capital street projects discussed above, but
these programs generally generate lower levels of revenues compared to those discussed
above. The City and its residents and businesses would need to decide which, if any, of
these revenues they wish to pursue to help fund the projected shortfall in funding.

Transportation Benefit Districts

In 2012, Ferndale voters voted to assess themselves a 0.2 percent increase in sales and use
tax in order to form a Transportation Benefit District (TBD) for the construction, maintenance,
preservation, and operation of the transportation system. This funding was necessary to
provide funding identified for shortfalls. The Ferndale community sought to address these
potential shortfalls proactively in order to prevent more-costly projects in the future that could
have resulted from lack of funding in the short-term.

Property Tax
The City also could ask voters to increase the local property tax levy. The City estimates that
a voter approved property tax levy could generate $100,000 per year. Over a 20-year period
this source could generate up to $2 million (2016 dollars). The City estimates that this would
increase the tax on a $300,000 property by $25 to $30 per year.

74
City of Ferndale
Transportation Element September 2023

Local Gas Tax

Ferndale voters rejected a 1-penny-per-gallon fuel tax in 2014 that could have provided
$50,000 per year in funding, or over $1,000,000 if enacted over a 20-year period. Opponents
of the measure felt that the gas tax, which can be established due to the City’s proximity to
the Canadian border, could harm local fuel stations and would tax Ferndale residents
disproportionately than it would Canadian customers, whose impacts the tax was intended to
mitigate.

Street Maintenance Utility

Under current state law, the City cannot enact a street utility fee to fund transportation system
maintenance. In 2011, the Association of Washington Cities (AWC) is planning to propose
legislation to allow creation of a street maintenance utility to help fund pavement
management and maintenance; signs and markings; on-street bicycle and pedestrian
facilities; and traffic controls and signalization. The proposed legislation would require voter
approval. The fees would likely be assessed based on the number of trips generated by
different types of land uses. The 2011 bill was not passed by the legislature. However, the
City should monitor that option if it is passed in the future. If passed by the state legislature in
the future, the City of Ferndale could consider this as an additional funding option for funding
the street overlay and sidewalk programs or other allowable uses.

Local Improvement Districts

A local improvement district (LID) is a special assessment area established by a jurisdiction
to help fund specific improvements that would benefit properties within the district. LIDs could
be formed to construct sidewalks, upgrade streets, improve drainage or other similar types of
projects. A LID may be in residential, commercial, or industrial areas or combinations
depending on the needs and benefits. LIDs can be proposed either by the City or by
residents or business/property owners. LIDs must be formed by a specific process which
establishes the improvements, their costs, and assessments. The assessments are added to
the property tax which helps to spread the costs over time.

Reassessment Strategy
Although the financing summary identifies the potential for a total revenue shortfall of
approximately $53 million (in 2023 dollars) over the life of the plan, the City is committed to
reassessing their transportation needs and funding sources each year as part of its 6-year
Transportation Improvement Program (TIP). This allows the City to match the financing
program with the short-term improvement projects and funding. In order to implement the
Transportation Element, the City will consider the following principals in its transportation
funding program:
• Balance improvement costs with available revenues as part of the annual 6-year
Transportation Improvement Program (TIP);
• Review project design standards to determine whether costs could be reduced
through reasonable changes in scope or deviations from design standards;
• Fund improvements or require developer improvements as they become necessary
to maintain LOS standards to meet concurrency;
• Explore ways to obtain more developer contributions to fund improvements;
• The City could consider options to fund transportation improvements based on the
use of the existing transportation network, through transportation benefit districts,
increased fuel taxes, and vehicle tab surcharges, or other funding mechanisms.
Many of these options will require voter approval.

75
City of Ferndale
Transportation Element September 2023

• Coordinate and partner with WSDOT, Whatcom County, and others to implement
improvements to the Interstate Five interchanges, Grandview Road (SR 548), and
Slater Road;
• Vigorously pursue grant funds from state and federal sources;
• Work with Whatcom County to develop multiagency grant applications for projects
that serve growth in the City and its UGA;
• Review and update the TIF program regularly to account for the updated capital
improvement project list, revised project cost estimates, and annexations;
• The City could consider changes in its level of service standards and/or limit the rate
of growth in the City and its UGA as part of future updates to its Comprehensive
Plan;
Some lower priority improvements may be slid or removed from the Transportation Element.
The City will use the annual update of the 6-year Transportation Improvement Program (TIP)
to re-evaluate priorities and timing of projects and need for alternative funding programs.
Throughout the planning period, projects will be completed and priorities revised. This will be
accomplished by annually reviewing traffic growth and the location and intensity of land use
growth in the City and its UGA. The City will then be able to direct funding to areas that are
most impacted by growth or to roadways that may be falling below the City’s level of service
standards. The development of the TIP will be an ongoing process over the life of the plan
and will be reviewed and amended annually.

76
City of Ferndale
Transportation Element September 2023

E. Goal and Policies

The Transportation Element was developed around one central goal.

Overall Goal: The City will provide a safe, dependable, properly maintained, multimodal
transportation system that promotes economic development and environmental vitality, and
will explore innovative methods of resolving transportation-related issues.”

Goals and policies for implementation of the Transportation Element of the Comprehensive
Plan support the City of Ferndale’s vision statement.

1 The City will provide an efficient and safe transportation network to serve
existing needs and to accommodate new growth and development.

Policies:
A. The City will coordinate planning and operation of transportation facilities with
programs to optimize multimodal transportation programs.
B. The City will coordinate the location of major utility and transportation
corridors wherever practical.
C. The City will strongly encourage the preservation of rail rights-of-way for
future rail uses, and will work with appropriate agencies to ensure the
availability of rail services to its industrial lands.
D. The City will maintain the existing and expanded transportation network.
E. The City will identify and prioritize transportation system needs citywide to
meet current and future demand.
F. The City will establish a program to upgrade its existing signal system to
improve traffic flow, progression, and safety.
G. The City will seek to integrate appropriate facility design with compatible land
use types to reduce environmental and livability impacts.
H. The City will balance the equitable distribution of transportation projects with
needs, based on 1) safety issues 2) growth-related improvements and 3)
available funding.
I. The City of Ferndale will seek to maintain a coordinated and consistent
strategy of development of land use, together with Whatcom County, for
those unincorporated areas surrounding Ferndale which are within the
boundaries of the City’s Urban Growth Area, or which generate substantial
traffic volumes to and through Ferndale.
J. The City of Ferndale will seek to maintain a coordinated and consistent
strategy of development of land use, together with the Lummi Nation, for
those tribal lands south of Ferndale which are outside of the boundaries of
the City’s Urban Growth Area, but which generate substantial traffic volumes
to and through Ferndale.

2 The City will maximize the operating efficiency of its transportation system.

Policies:

77
City of Ferndale
Transportation Element September 2023

A. The City will develop its roadway functional classification system in

accordance with the regional functional classification system developed by
the Whatcom Council of Governments and the City’s road standards.
B. The City will maximize the operating efficiency of its transportation system
through the use of Transportation Demand Management strategies.
C. The City will actively coordinate the planning, construction, and operation of
transportation facilities and programs that may impact the City with local,
tribal, regional and state jurisdictions and their associated comprehensive
plans. These agencies and plans include, but are not limited to, Whatcom
County (Comprehensive Plan and related updates), the Whatcom County
Council of Governments, and the Washington State Department of
Transportation (State Highway Systems Plan 2007-2026).
D. When considering proposals to revise the land use and zoning plans, the City
will seek to minimize future increases in vehicular travel or, where possible,
to increase the efficiency of the transportation infrastructure.
E. The City shall coordinate transportation planning and land use planning to
reduce the distance between work, home, shopping, and recreation
opportunities, and to provide facilities and services to support alternative
methods of transportation to travel between each.
F. The City shall identify land use requirements which result in densities
capable of supporting transit opportunities, particularly within the Downtown
Core, High Density Residential land use classifications, and within the
primary shopping and employment districts of the City.
G. The City shall coordinate with the Washington State Department of
Transportation for the purpose of developing a Memorandum of
Understanding that will lead to a comprehensive review of potential
transportation improvements along the I-5 corridor, including the Main Street
corridor, and also including potential improvements at other interchanges
within the City limits as well as at Smith Road. This Memorandum may also
include an agreement to jointly monitor the Level of Service in and around
Exit 262 at defined points within the planning period of the Master Plan.

3 The City will encourage public/private partnerships for financing

transportation projects that foster economic growth and address the
transportation needs to support planned growth and development.

Policies:
A. The City will reserve property for needed rights-of-way, including trail rights
of way, as quickly as possible by requiring dedication of right-of-way as a
condition for development.
B. The City will only approve land use changes (such as planned unit
developments, master planned projects, rezones and plats) when existing
and proposed transportation system needs meet concurrency requirements.

78
City of Ferndale
Transportation Element September 2023

C. The City will route major and secondary arterials around, rather than through,
neighborhoods and communities so as to minimize traffic impacts on
residential neighborhoods.
i. New residential collector street corridors should be designed and
constructed through areas that are not already substantially
developed with single family housing.
ii. Existing local residential streets should not be converted into
collector street routes. In instances where existing streets must be
converted to collector roads, these streets shall be brought up to the
minimum design standards for collector roads.
iii. In those cases where collector street corridors must be built in close
proximity to existing residential neighborhoods, the collector street
must be designed in such a way as to minimize the impact to
adjoining residents through the use of landscape buffers, sound
barriers or similar measures.
iv. In order for arterial collector streets to function effectively, access
restrictions shall be imposed on new arterial collector streets. Such
access restrictions may permit commercial businesses from
accessing directly onto an arterial collector street, only if no
reasonable alternative is available. Further, residential access may
be allowed in specific instances where such access can be
demonstrated to have no negative impacts on traffic safety, road
function and /or circulation.
v. The City will work with property owners and developers to establish
collector road systems in developing areas to minimize the number
of access locations on arterials and collectors and to promote
connectivity for motorized and non-motorized travel within residential
neighborhoods, as well as commercial and industrial area.
D. The City will consider sharing costs with other jurisdictions for needed
improvements that solve regional transportation problems.
E. The City will encourage the development community to site and construct
transportation facilities that are compatible with adjacent land uses to
minimize potential conflicts.
F. The City will utilize all general taxation and user-fee options available to it
under state law.
G. The City will seek to maximize support from county, state, and federal
sources for those improvements needed to provide facilities and services
necessary for safe and efficient operations and the economic health of the
region.
H. The City will only approve developments that adequately mitigate their
impacts on the transportation system as required under Transportation
Concurrency Management, the State Environmental Policy Act, the Ferndale
Development Standards, Ferndale Concurrency regulations, Commute Trip
Reduction, and other applicable development regulations.
I. The City will encourage state lawmakers to recognize the financial pressure
upon the City of Ferndale that is imposed by growth and request legislative
action to provide greater relief to the City than is afforded by existing revenue
sources.
J. The City will explore the feasibility of partnering with individual property
owners and neighborhood associations to share the cost of sidewalk
installation in established neighborhoods.

79
City of Ferndale
Transportation Element September 2023

4 The City will work to secure adequate funding sources for transportation.

Policies:
A. The City will update its Transportation Impact Mitigation Policy ordinance on
a regular basis.
B. The City will encourage public /private partnerships and grants for financing
transportation projects.
C. The City will work to establish local improvement districts and transportation
improvement districts in designated areas for economic development.
D. The City will work to establish on and off-site storm sewer systems which
combine storm detention for road projects and private developments.
E. The City will consider asking voters to enact new taxes or fees to help fund
transportation improvements.
F. The City will seek to fund a minimum average of thirty percent of capital
project costs through grants.
G. The City will continue to fund transportation system maintenance using
property and/or sales tax.
H. The City will continue the historical practice of generally not using property
and/or sales tax to fund transportation capital projects.
I. The City will work with WSDOT to secure funds for regionally significant
infrastructure that supports the City’s economic plans and growth.

5. The City will encourage the use of transportation modes that maximize energy
conservation, circulation efficiency, and economy.

Policies:
A. The City will support increased use of multimodal transportation. This
includes, but is not limited to, high occupancy vehicle lanes, bicycle trails,
park-and-ride facilities, carpools, vanpools, buses and mass transit.
Together, the implementation of these policies is expected to result in a
reduction of automobile trips, the promotion of healthy activities, and
increased connectivity.
B. The City will coordinate planning efforts for non-motorized modes of travel
with other jurisdictions and develop an integrated area-wide plan for non-
motorized travel modes that ensures continuity of routes.
C. The City will encourage sidewalks, improved shoulders, and /or off-street
trails within new developments concurrent with the project in order to
accommodate internal and external circulation.
D. The City will encourage new development to be pedestrian friendly and
compatible with the public transportation system by ensuring that such
development reflects all related infrastructure master plans such as trails or
utility plans.
E. The City will seek to receive formal recognition as a “Bicycle Friendly
Community.”
F. The City will coordinate site development guidelines to encourage and
enable use of alternative transportation modes.

80
City of Ferndale
Transportation Element September 2023

G. The City will seek to ensure that new road construction shall, wherever
possible, include sidewalks or other pedestrian service amenities, and
special provisions for bicycle and/or transit connectivity as may be
economically and/or environmentally justifiable, based on existing and
potential connection opportunities, including establishing new connector
roads, collector roads, and arterial roads.
H. Improvements to existing roads shall be prioritized to remove deficient
conditions for pedestrian, bicycle, and transit circulation as well as improve
vehicular mobility.
I. The City will seek to cooperate with Whatcom County, the Washington State
Department of Transportation, the Whatcom Transportation Authority, and
any private entity for implementation of regionally significant transportation
projects and programs for Ferndale and its environs.
J. The City of Ferndale recognizes and supports the continued operation of the
Burlington Northern Railroad as an important part of the region’s
transportation system for the movement of freight and passengers, and shall
seek to increase the availability of those services within the City, and reduce
conflict with the City’s road network and emergency services.
K. The City of Ferndale shall seek to conduct a thorough inventory of city
sidewalks, in order to identify deficiencies in the system and opportunities for
expansion, based on existing and potential connection opportunities. The
City will systematically implement the improvements through its Sidewalk
Program.
L. The City of Ferndale recognizes and supports the continued operation of the
Bellingham International Airport as an important part of the region’s
transportation system as an alternative to major regional airports such as the
Vancouver International Airport and Seattle-Tacoma International Airport.
The City shall seek to increase transportation connections between the City
and the airport.
M. The City of Ferndale will seek to provide incentives to developments which
incorporate multi-modal transportation options into their projects, and will
continue to re-evaluate such incentives as multi-modal opportunities increase
over time.
N. The City shall provide written justification for including capital projects which
are designated as “low” priority within this plan prior to placing such projects
on the Six-Year Transportation Improvement Plan.

6. The City will work to ensure efficient and effective freight transportation
needed to support local and regional economic expansion and diversification.

Policies:
A. The City will collaborate with federal, state and neighboring local
governments and private business to ensure the provision of transportation
infrastructure investments and services deemed necessary by the City to
meet current and future demand for industrial and commercial freight
movement by way of roadway and truck, rail, air and marine transport.
B. The City will work with the Whatcom Council of Governments, Port of
Bellingham, Whatcom County, and other agencies to develop intermodal
connectivity facilities deemed by the City to be needed to facilitate seamless
freight transfer between all transport modes.

81
City of Ferndale
Transportation Element September 2023

C. The City will ensure that Transportation Element goals and policies are
implemented in a manner that reinforces the goals and policies of adopted
economic development strategies.
D. The City will work with the Port of Bellingham to identify connectivity
opportunities between the City of Ferndale and the Bellingham International
Airport.

7. The City will establish level of service standards and implement concurrency
management programs to assure the adequacy of its transportation system.

Policies:
A. For concurrency review, the City has adopted roadway minimum travel
speed standards for the weekday PM peak hour as documented in Table 5
of the Transportation Element.
B. The City has established the following levels of service (LOS) for intersection
operations along arterial and collector roads based on methodologies in the
latest edition of the Highway Capacity Manual (HCM):
i. LOS D or better for traffic signal, roundabouts, or all-way stop
controlled intersections based on overall average delay per vehicle.

ii The LOS standard for stop controlled (except all-way stop)

intersections within the City limits shall be LOS E and be applied to
each approach or separate traffic movement at an intersection. On a
case-by-case basis the City may allow the level of service for traffic
movements from the minor street at a two-way, stop controlled
intersection to operate below the adopted standard if the Public
Works Director (or designee) determines that no significant safety or
operational impact will result. As appropriate, mitigation will be
identified and required to address potential impacts to safety or
operations. Potential installation of traffic signals or other traffic
control devices at these locations shall be based on the Manual on
Uniform Traffic Control Devices, the Transportation Element, and
sound engineering practices.
iii. The City will generally apply the intersection level of service
standards based on the weekday PM peak hour, but may choose to
require evaluation of other time periods in order to identify potential
deficiencies and project impacts.
C. The City will apply Washington State Department of Transportation’s level of
service standards to intersections of state highways within the Ferndale area:
i. LOS D or better within urban areas.
ii. LOS C or better within rural areas.
D. The City will work with Whatcom County to coordinate level of service
standards for roadways and intersections within the City’s unincorporated
Urban Growth Area.
E. The City has implemented a Transportation Concurrency Management
program to ensure adequate transportation facilities are available concurrent
with development.
F. The City will not apply concurrency to the interchange ramps with Interstate
Five which is designated as a Highway of Statewide Significance (HSS).

82
City of Ferndale
Transportation Element September 2023

G. As appropriate, the City will reassess its level of service standards,

Transportation Concurrency Management program, and other development
regulations based on growth and funding levels.
H. The City shall review development applications based in part on the existing
level of service, and will identify responsible mitigation measures necessary
to preserve existing level of service where appropriate.
I. The City will consider incorporating mechanisms into the concurrency
regulations that may fully utilize the concurrency time limits allowed by State
law.

83
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

TABLE OF CONTENTS
UTILITIES ELEMENT: SUMMARY
OF CONCLUSIONS

INTRODUCTION  The utilities subject to this

BACKGROUND AND PURPOSE element are private and are
DESCRIPTION, INVENTORY AND ANALYSIS OF UTILITY generally not regulated or
SYSTEMS administered by the City.
- SOLID WASTE AND RECYCLING
- ELECTRICITY
 Opportunities exist to improve
- NATURAL GAS
- TELECOMMUNICATIONS coordination with utility
UTILITY DEMAND PROJECTIONS companies related to capital
GOALS AND POLICIES projects and day-to-day
maintenance.

 Communications utilities –
cellular communications, high
INTRODUCTION speed fiber and similar provide
substantial opportunities for new
investment at both the public and
City residents rely on a number of basic services that help
private level.
define their quality of life and maintain their health and well
being. Utilities such as the delivery of natural gas, electricity,
cellular, and telecommunication services are key to that quality  Future City investment in
of life. municipal fiber may increase the
City’s ability to attract businesses
that depend on this infrastructure
In Ferndale, these services are currently provided by private or
quasi-public agencies. As a result the City (and the community while reducing costs for Ferndale
in general) does not have a direct in determining the methods citizens.
or expectations for future services over the twenty-year
planning period.  The City has the responsibility
through its franchise agreements
The Washington Utilities and Transportation Commission to ensure that utility companies
(WUTC) regulates the services and defines the costs that a are attentive to the needs of
utility can recover, to ensure that the utility acts prudently and Ferndale residents and the City in
responsibly. The Growth Management Act provides for both general.
the City and the WUTC to have jurisdiction over the activities
of gas, electric and telephone utilities within the City of
Ferndale.

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 1
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN
During the 20-year scope of the Comprehensive Plan, changes will occur in howutilities
are provided. As technology evolves, it is important to ensure that all citizens of
Ferndale continue to have access to these services. The City aims to ensure that the
utility service that is provided is both economical to the service provider and affordable
to the consumer.

BACKGROUND AND PURPOSE

Continued population growth is expected to profoundly alter the shape of the City of
Ferndale. When the 1996 Comprehensive Plan was drafted, the population of Ferndale
was approximately 6,830, and there were 2,514 housing units. In 2005, the population
had increased to 9,750, and there were 3,476 housing units. Currently, in 2016, there
are over 13,000 residents of Ferndale and the city is projected to grow to nearly 20,000
residents by 2036, adding up to 2,800 additional housing units. The Land Use and
Housing elements of this plan provide more details on Ferndale’s anticipated growth..

The purpose of the Utilities Element is to ensure that utility services provided by both
public and private purveyors will be consistent with the City’s Comprehensive Plan and
be available to support the community’s growth and development as anticipated in the
Plan during its 20 year planning period. The design and timing for extension of utility
services should promote the land use pattern and policies proposed in the Land Use
Element, and coordinated with the infrastructure improvements outlined in the
Transportation Element.

The costs of private utility expansions or modifications are typically paid for by the
consumers or subscribers to that utility (the customers). The City does not finance
these changes. However, the City can provide guidance to private utilities as to where
future population growth is anticipated.

This element is also intended to supplement and guide franchise agreements between
the City and the various utilities described in this plan. This plan also seeks to ensure
that the services provided by utilities are not only available to Ferndale residents – but
that they are provided in an efficient manner that respects Ferndale residents as
customers.

The Growth Management Act (GMA) and Utilities Planning

While the City is required to prepare a Utilities Element per the State of Washington
Growth Management Act, the City has chosen to expand on the requirements to include
opportunities for closer coordination between the City and utilities, customer service
advocacy, and the possibility of expanding City services in the future.

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 2
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN
The Growth Management Act requires that each city develop a Utilities Element as a
part of its Comprehensive Plan. The Utilities Element must include an inventory of the
general location of all existing and proposed utility facilities and a description of the
current capacity and expected future capacity of each utility. The utilities addressed in
this Element are: electricity, natural gas, utility conveyance systems (such as major
transmission lines and pipelines), and telecommunications (including cellular service,
cable TV and the Internet). The domestic water, wastewater (sanitary sewer), solid
waste and recycling, stormwater are referenced but further articulated in their respective
sub-elements of the Capital Facilities Element.

Unlike public or municipal providers, private utility providers are not required to meet
specific level of service standards or demonstrate concurrency prior to development.
The WUTC mandates that these private utilities provide service on demand and provide
the same level of service to all customers, without forcing existing users to subsidize
new growth. Electric and telephone utilities are further regulated by the Federal
Energy Regulatory Commission(FERC). Additionally, cellular telephone communication
companies are licensed by the Federal Communications Commission (FCC). Cable
television companies are regulated by the Federal Communications Commission (FCC)
and the Communications Act of 1934, as amended.

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 3
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN
DESCRIPTION, INVENTORY AND ANALYSIS OF UTILITY SYSTEMS

Typically, utility systems have at least two components, a transmission system that
transports the
utility to the area UE1: UTILITY SYSTEMS
and a distribution
system that
provides an
individual
customer with the
utility service (see
Figure UE1). The
focus of this
chapter is on
transmission
systems. It is
assumed that
each utility will
have its own
distribution
system located
throughout the
City and Urban
Growth Area.
These systems
are necessary and desirable in order to serve each customer who requests service.

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 4
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN
Solid Waste and Recycling

All homes, businesses and public facilities within the Ferndale Urban Growth Area
generate municipal solid waste. Solid waste is generally defined as being household
trash or garbage. The Sanitary Service Company (SSC), under contract with the City,
collects municipal solid waste within the City of Ferndale. SSC is certified by the
Washington State Utilities and Transportation Commission, and has the exclusive right
to collect solid waste generated within the city. SSC has also been granted the
exclusive right to collect both residential and commercial solid waste from areas located
within the Ferndale UGA.

Solid and hazardous waste in Whatcom County is administered by the Whatcom County
Health Department, subject to the Comprehensive Solid and Hazardous Waste
Management Plan (2016) which is hereby adopted by reference to this plan. See Figure
UE2 for a regional map of solid and hazardous waste facilities.

Existing Conditions

SSC deposits municipal solid waste at a regional transfer station facility located on
Slater Road, which is owned and operated by Recomp of Washington, Inc. Both SSC
and Recomp process and load solid waste into railroad cars for transport to southeast
Washington and burial in the Roosevelt Landfill.

Recycled materials are collected by Recycling and Disposal Services (RDS) at the
Slater Road transfer facility, where they are then sorted and distributed to recycling
companies.

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 5
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

UE2: FACILITIES HANDLING MAP

Map 1:
Facilities
Handling
Map

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 6
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN
When all recycled items and collection services and opportunities in Whatcom County
are accounted for, it is estimated
that Whatcom County’s recycling UE3. Whatcom County Recycled
rates (40-50%) and diversion rates Stream Composition 2007-2013
(52-58%) are higher than the state
average. These higher recycling
rates have been attributed to the
County’s continued use of a multi-
bin recycling system.

The City is committed to reducing

the waste stream through source
separation and recycling. New and
extended recycling programs will
continue to be the preferred
approach in an effort to minimize the (Source: Whatcom County Comprehensive
Solid and Hazardous Waste Management Plan
need for future disposal facilities.

Future Deficiencies UE4. Whatcom County Waste Stream

Composition
Whatcom County in general, and
Ferndale specifically, seeks to
2009 Seasonal Study
(Source: Whatcom County Comprehensive Solid and Hazardous Waste
reduce or prevent the generation of Management Plan
solid waste. While no deficiencies
in the solid waste and recycling
utilities were identified in the
Comprehensive Plan, this does not
mean that significant improvements
should not be made – or that the
City has no role to play.

Ferndale’s role in solid waste

prevention will be experienced most
dramatically through expanded
education and outreach to private
households and the construction
industry, which together comprise
the majority of all waste generated in
Whatcom County. Figures UE3 and

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 7
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN
UE4 demonstrate that well over half of all products disposed of in Whatcom County in
2009 could have been diverted from a landfill.

As noted, Ferndale’s association with solid waste is somewhat unique, in that it hosts
three of the largest solid waste disposal/recycling businesses in Whatcom County.
While Ferndale’s share of total solid waste is reflective of its size (rather than location),
the City does play a role in working with those businesses to ensure that sustainable
waste disposal and recycling remains the first option for consumers.

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 8
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN
Electricity

Ferndale and its growth area are served by Puget WHAT IF: THE POWER OF PUBLIC
Sound Energy (PSE). This regional purveyor provides INFORMATION
service to nearly 2 million people in their 4,500 square
mile service area. Electricity is transmitted into This element describes a variety of
Whatcom County by high voltage lines from Canada private or quasi-public utilities that
and Skagit County, much of it on lines owned by the have a variety of different objectives,
federal Bonneville Power Administration (BPA). PSE response times, and ability to deliver
purchases electricity from BPA, private sources, and resources.
also generates some of its own. Major electrical
transmission lines and electrical substations are While some of these utilities (such as
illustrated in Exhibit UE5. telecommunications) are in a
competitive marketplace and seek to
The “Bulk Transmission System” is operated by the
expand their services to the greatest
BPA, which operates a region wide, interconnecting,
transmission system that supplies electric power to extent possible, others (such as Puget
utilities from federal hydroelectric projects east and west Sound Energy) seek to encourage the
of the Cascades. The primary service BPA provides to conservation of scarce resources.
PSE is wheeling energy around the region. All the
transmission lines supplying Ferndale are energized at The City is in a unique position to
115kV (Kilovolt). These lines supply power into the provide objective and free information
electrical distribution system and provide connections to to the public concerning all of these
customers countywide. The electricity is distributed utilities. Working with other public
through Whatcom County via high voltage transmission agencies and through franchise
lines which connect to distribution substations. These agreements, the City can inform the
substations reduce the voltage levels for distribution to public of its rights as consumers – and
local levels. The nearest such station to Ferndale is of its responsibilities as they relate to
located in Custer. There are several smaller the conservation of resources.
substations located within or very near the Urban
Growth Area. These substations provide the
The City can also provide a
distribution lines that deliver electricity to residential and
transparent (and trusted) voice when
commercial customers within the area. One of these
stations is located east of the city on Trigg Road, a informing the public when significant
second is located on Aldergrove Road (west of the expansions of utility systems are
Burlington Northern Railroad), a third is located on proposed, especially when those
Sunset Avenue (west of the freeway), and a fourth is expansions may have the potential to
located at the Whatcom County PUD pump site on the impact the life or safety of the
west bank of the Nooksack River, along the southerly Ferndale community.
boundary of the city limits.

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 9
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Two 115 KV lines are located on the southern boundary of the city, along the Slater
Road corridor. Refer to the attached Electrical Transmission System Map, provided by
Puget Sound Energy.

Level of Service

Puget Sound Energy’s future electrical service plans are designed not only to provide
for future growth and accommodate new and increased loads, but also include changes
to the existing systems to improve reliability, maintain power quality, and maintain
redundancy backup service in the system. PSE foresees no immediate energy issues,
and will continue to be able to supply energy to Ferndale as the City grows.

Existing and Future Deficiencies

Additional construction of cogeneration facilities and transmission lines/transformer

capacity could potentially expand the existing system. The timing of any improvement
would depend on the design and capacity of the cogeneration facility.

PSE also has an active asset management plan. The plan includes replacing poles as
they age and as necessary to maintain or to increase line clearances, as well as
working with local jurisdictions to “underground” utilities when associated with new
development or as part of planned capital projects.

No deficiencies currently exist, and no deficiencies are forecasted. Therefore, no

expansion plans will be necessary during this planning period. In the decade preceding
2016, PSE had aggressively sought to promote the use of solar energy and other
renewable energy forms as a method to supplement existing energy systems. These
programs have generally focused on solar installation with a rapid return on investment
such as private residences, but it is expected that commercial and public users will
continue to adopt these methods over the planning period and legislation will provide
adequate incentives to support this transition.

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 10
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN
Natural Gas

Natural gas is distributed throughout Whatcom County by Cascade Natural Gas (CNG).
Natural gas is a fuel provided to homes and businesses through underground piping. It
is colorless, odorless, flammable and lighter than air. Gas is odorized to make leaks
more perceptible. Most natural gas use in the urban growth area is for space and hot
water heating. Major gas transmission pipelines are illustrated in Exhibit UE-2.

CNG provides natural gas to the City and surrounding communities through a network
of interconnecting supply and distribution mains. According to CNG’s Rate Department,
the average house (using natural gas for both heat and hot water) consumes about
1,000 therms per year. Ten therms equals approximately one “mcf” (one thousand
cubic feet) of gas per year. Given that 10 therms equal approximately one “mcf” of gas
(or one thousand cubic feet), then 1,000 therms per house equals approximately
100,000 cubic feet of gas per year per house.When planning the size of new gas mains,
CNG uses a saturation model which assumes all new households will use natural gas
since the vast majority of new homes constructed, where builders have the choice, are
using natural gas. Extension of service (typically conversion) is based on request and
the results of a market analysis to determine if revenues from an extension will offset
the cost of construction.

Natural gas used in Whatcom County flows from Canada, through Sumas, then west to
Cherry Point and south and east to Ferndale. The primary transmission line runs
adjacent to Slater Road and services Bellingham and other points south. Large
distribution lines are also located in the Urban Growth Area, along Imhoff Road to the
south of the city limits, and east of the freeway and south of Smith Road. The location
of the utility infrastructure is illustrated on Figure UE-1.

As of 2016, a new natural gas transmission line has been proposed north of Ferndale,
conveying gas through Whatcom County and ultimately under the Salish Sea to
Vancouver Island. The City discourages the location of such a transmission line
through the City or its Urban Growth Area as such a line would likely require additional
setbacks and buffers, thus limiting future development potential. Environmental and
safety concerns represent additional considerations that must be evaluated regardless
of the location of a transmission line.

Delivery to homes and businesses occurs from smaller pipelines throughout the city.
Not all the city has access to natural gas, although most newer subdivisions install it as
a standard utility service.

Level of Service

The capacity of the natural gas supply system is primarily constrained by the volume of
gas entering the network. The minimum pressure at which gas can be delivered is 15

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 11
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN
psi. As it is not an essential service, CNG is not mandated to provide residential or
commercial service. However, according to CNG officials, there is ample supply to
accommodate existing and future demand.

Existing and Future Deficiencies

Natural gas is considered a “cleaner” energy source in comparison to other fossil fuels
like coal or crude oil. As the nation works to confront climate change, demand for
natural gas may increase.

The availability of natural gas does not appear to be an issue during the next 20 years.
As such, Cascade Natural Gas does not anticipate constructing new facilities within the
region. Based on growth projections, CNG anticipates that the existing system is
capable of supplying approximately 50,000 customers in Ferndale. If supply issues
become problematic, potential methods for increasing supply to a particular area include
replacement of the lines, looping, installing parallel lines, and inserting higher pressure
lines into greater diameter but lower pressure mains. Three types of construction
anticipated in the Ferndale area include:
 New installation to increase capacity of existing customers or conversions from
an alternate fuel;
 Main replacement projects to improve maintenance and system reliability; and
 Replacement or relocation of facilities due to municipal and State projects.

Changes to federal law over the last two decades were designed to increase
competition among energy sources by encouraging the development of new natural gas
resources and the development of nationwide transmission pipelines. Almost all new
homes use natural gas for heat. Facility technology for electricity transmission may
change in the future in response to the need to create more efficient facilities and in
response to various electromagnetic field and health concerns. Utility policies should be
updated in the future to take into consideration changes in technology, facilities, and
services.

Natural gas service and availability are currently sufficient to meet existing demand.
Northwest Pipeline works together with Cascade Natural Gas to ensure that local gas
supply needs are met.

No deficiencies currently exist and no deficiencies are forecasted. Therefore, no

expansion plans are anticipated during the life of the Comprehensive Plan.

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 12
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

UE6

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 13
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Telecommunications
Telecommunications is the transmission of information by wire, radio, optical cable,
electromagnetic, or other similar means. In Ferndale, telecommunications utilities
include standard (conventional) telephone, wireless communication, Internet service
and cable TV. Telecommunications is not only important for voice transmission but also
provides the infrastructure for the transmission of images and electronic data. In the
City, telecommunications service providers include Century Link, Comcast, and Frontier
Communications. In addition, several wireless providers provide mobile services via a
system of wireless
UE7: FORECASTING TECHNOLOGY communication towers
and several companies
provide cable TV and
internet service.

Conventional
Telephone Service

Existing Systems

Conventional telephone
service (or “landline”
service) is regulated by
the WUTC.

A local exchange area is

served by a
Central Office (CO),
which contains various
kinds of switching
equipment. From a CO,
there are typically four
main cable routes
extending relatively north, south, east, and west. From each main cable route there are
branch distribution routes. These facilities may be aerial or buried, copper or fiber.
Extending from the branch distribution routes are local lines that can be used for voice
or data transmission by subscribers.

The 2005 Comprehensive Plan anticipated a significant and increasing demand for
conventional telephone service through 2025. However since that time the use of

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 14
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN
landlines has declined significantly as consumers utilize Voice Over IP (VOIP) or
eliminate landlines entirely, in favor of mobile devices. See Figure UEX

Level of ServiceWhile landlines are expected to continue to decline over the life of this
plan, it is likely too early to predict their obsolescence, or an era in which
telecommunications companies will be unable to provide landline services on demand.

Existing Deficiencies

None identified.

Future Deficiencies

Telecommunications companies are required by law to provide adequate

telecommunications services on demand. Accordingly, these companies must provide
facilities to accommodate whatever growth pattern occurs within the City. Due to
advances in technology, additional capacity is easily and quickly added to the system.
The City has substantial authority through its franchise licensing authority to ensure that
utility companies maintain their responsibilities.

Cellular Telephone Service

Existing Systems

The location of cellular wireless tower facilities is illustrated in Exhibit UE-3.

Wireless facilities are regulated by the FCC and the City of Ferndale has adopted local
regulations that are consistent with federal standards. Throughout the 1990’s and early
2000’s, the various wireless carriers focused primarily on the development of the
cellular network, which most visibly consisted of wireless tower facilities. The majority
of improvements anticipated within the planning period consist of the maintenance,
updating, and co-locations on existing facilities.

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 15
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

UE8

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 16
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

WHAT IF? FRANCHISE AGREEMENTS

Level of Service

No Level of Service has been established for these The various utilities described in this
uses and may vary from company to company based element operate within the City of Ferndale
on individual business models and market demand. under “Franchise Agreements” that allow
the utility to use the city’s public rights of
According to Pew Research, as of 2014, 90% of way. In turn, these agreements are
Americans own and use a cell phone, with 64% of intended to provide the utility with the
citizens using a so-called “Smartphone”. Furthermore, ability to quickly and efficiently serve their
43% of adults are living in a household with a cell customers.
phone and no landline.
It is vitally important that franchise
Future Deficiencies
agreements are updated on a regular basis
The use of cellular telephones has far outpaced initial and that the City and the utility are able to
projections, and advances in technology continue to frankly discuss their individual goals and
shift the use and expectations for these devices. As an objectives, as well as upcoming projects
example, the 2005 Comprehensive Plan forecast that that may impact the other.
by 2010, 20% of the population would own mobile
devices. By 2014, 90% of American adults owned a In some cases, the lack of frank discussion
cell phone. The 2005 update pre-dated “smart phones” may lead to project delays, redesign of
by several years – by 2016, nearly 70% of the adult projects, or inconsistent elements within
population owned a smart phone. projects (such as failure to underground
utilities or subsequent modification to the
Forecasting for new cellular facilities uses a relatively project once it is complete).
narrow time frame of two years. Expansion is demand
driven, and services are expanded in response to
Cities may also negotiate in-kind or financial
customer demand. Raising the density of
transmission/reception equipment to accommodate support from utilities in order to distribute
additional subscribers follows rather than precedes information to the public about the utility as
increase in local system load. For this reason, well as City processes, to support local
companies closely analyze market demand to programs, and other projects.
determine expansions into new service areas. The
cellular network is expanded by dividing a larger cell Franchise agreements may also include
into several smaller cells to increase the number of agreements related to customer complaints
available channels. Capacity may also be expanded associated with the utility, including the
through technological advances in digital equipment. basic expectations of the community for
Therefore, cellular companies must maintain a short response time – and even including
response time and a tight planning horizon. penalties should the utility fail to perform.

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 17
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

WHAT IF? MUNICIPAL FIBER

Internet Service
Many jurisdictions throughout the world have
No technology in the last century has so radically sought to provide free or low-cost access to the
and quickly transformed daily life as the internet. internet, often through high-speed fiber-optic
The internet has become so pervasive in daily life infrastructure located within public right of ways.
that it is now an essential utility for billions of
people. Many cities have also sought to establish public
wifi networks, often within the downtown core
In Ferndale, Internet service is presently provided
of a city, in order to provide residents and
by telephone, cable, and satellite. In addition, as
visitors with free and reliable access to
the City constructs or reconstructs streets, it is
information.
providing conduits to assist in the installation of
fiber optic communication systems.
These approaches serve a number of different
Level of Service functions:

Federal and state regulations require that • As a non-profit venture, they tend to decrease
telecommunications purveyors provide adequate costs to the consumer
telecommunications services on demand.
Continuing coordination between the City and • Provide competition to private carriers
telecommunications purveyors will help ensure
maintenance of an adequate level of service.
• Provide a significant incentive to businesses
Future Deficiencies that depend on high capacity, high speed access
to information to locate in a jurisdiction
Streaming video is becoming a larger part of
America’s entertainment consumption. In the first • Provide municipal agencies the ability to
quarter of 2015, American Netflix subscribers remotely access critical information
watched over 10 billion hours of internet video
content, roughly two hours per subscriber per • Decreases the “digital divide” that may prevent
day. According to a 2014 report by Sandvine, a low-income households from accessing the
Canadian bandwidth-management systems internet.
analyst, streaming video accounts for 36.5% of all
downstream internet bandwidth during peak As of 2016, the need for quick and reliable access
periods in North America.
to information continues to expand and there is
little doubt that high speed internet access has
become an essential utility. However, the degree
to which the City of Ferndale will become
responsible for providing this utility is yet to be
determined.

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 18
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Cable and Satellite Television

Cable television service in Ferndale is provided by Comcast and Frontier

Communications, while satellite television is provided by DIRECTTV and DISH Network.
Cable systems receive their signals in several different ways. Some are received
through the air directly from broadcast television stations using antennas similar to
those used by homeowners. Other signals are transmitted from point to point via
microwave. Microwave transmission differs from off-air broadcast channels because
the carrier that the video, color and sound are modulated upon is at a much higher
frequency in microwave transmission. A third source of signal is via satellites.

Main trunk cable lines (coaxial cable and fiber) distribute cable television signals
throughout Ferndale. Feeder cables branch from the main trunk cables to distribute the
signals to neighborhood areas. From there, individual connections are made to the
customer’s service entry. Satellite television utilizes a satellite receiver, or dish, located
on the customer’s property and receives information (internet, telephone, television) via
direct line of site to a satellite.

Comcast works closely with utility companies and the City to stay informed on proposed
developments so that cable can be a part of a development’s plans. Each year,
engineers assigned to the Ferndale area assess the need for system expansion based
on telephone inquiries, permitting data from the City and County, and technological
advances in distribution equipment. Comcast now offers digital service to Ferndale
customers, and has also replaced copper cable trunk lines with fiber optic lines, which
can be configured to carry video or data transmission signals.

Level of Service

Existing cable television facilities are currently capable of servicing approximately nearly
all potential customer connections in Ferndale. Comcast policies encourage the
provision of service to all residents within its franchise areas. Factors considered in
extending service are overall technical integrity, economical feasibility, and franchise
requirements.

Federal and state regulations require that telecommunications purveyors provide

adequate telecommunications services on demand. Continuing coordination between
the City and telecommunications purveyors will help ensure maintenance of an
adequate level of service.

Future Deficiencies

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 19
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN
No deficiencies in the cable or satellite television service system were identified in the
Comprehensive Plan, so no improvement recommendations were developed.

UTILITY DEMAND PROJECTIONS

Utility providers must consider the regional as well as local needs for the services they
provide. Consideration must be given not just to the number of people within a given
area, but where they work, live, and shop. An analysis of the population projections and
land use plan is key to development of these demand projections. As future growth and
development generate demand for additional utility service, major utility providers are
encouraged to work with the City to identify potential sites for infrastructure and facility
expansion. To date, the plans that utility providers have provided to the City do not
indicate that additional facilities are planned within the urban growth area.

Major utility facilities and transmission lines are typically difficult to site within an
urbanizing area. While there may be some community resistance to permitting
particular private utility and service providers to locate and operate facilities within the
City, it is important to remember that it is the demand for utility services and community
resources that create the need for these facilities in the first place. State law does not
permit jurisdictions to preclude the siting of essential public facilities within the City. A
discussion on essential public facilities is contained within the Capital Facilities Element.

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 20
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN
UTILITY GOALS AND POLICIES

I: PLAN IMPLEMENTATION: The City shall take an active role in working with private
and quasi-public utilities, their location, and their response to Ferndale consumer
expectations.

Plan Implementation Policies:

i: Franchise agreements will not be allowed to lapse.

ii: The City will seek to initiate franchise agreement negotiations no less than six
months prior to expiration of previous agreements.

iii: The City will seek to maintain maps and other information online that will
provide utility companies with long-range notice of pending or potential capital
projects.

iv: The City will seek to inform utilities companies of pending private development
projects that will require the extension of utilities in order to minimize or
prevent subsequent encroachment into the public infrastructure soon after
installation.

v: The City shall establish Development Standards that anticipate the joint use of
public right of way and utility corridors.

II: CONSUMER RIGHTS: Ferndale residents should be informed of their legal rights
and have agency when resolving conflicts with utility providers.

Consumer Rights Policies:

i: The City will seek to utilize franchise agreements when funding public
information outreach and surveys related to individual utilities.

ii: Utilities constructed in residential neighborhoods shall be designed and

constructed in a manner consistent with the character of the area. Where
actual design of a structure cannot be modified (e.g., above-ground vaults,
power poles), appropriate buffer/screening measures shall be required as a
condition of development.

iii: The City will seek to utilize franchise agreements to fund improved access to
public meetings, public events, and general outreach.

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 21
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

iv: The City will seek to work with utilities companies to inform the public of
significant utilities projects in advance of their development.

v: When new utility facilities must be located in close proximity to residential

neighborhoods, every effort should be made to minimize the impacts of the
facility through the use of buffers, landscaping, undergrounding of utilities, co-
location of utilities, and designing the facility to minimize aesthetic impacts.

vi: Establish development regulations that permit utilities to efficiently serve their
customer base, without abrogating the City’s responsibilities to protect its
citizens.

III: ENVIRONMENT: Promote conservation of utility resources and the environment in

order to extend the life and capacity of both.

Environmental Policies:

i: City shall facilitate the conversion to cost-effective and environmentally

sensitive technologies and energy sources.

ii: When possible, the City shall minimize encroachment on view and solar
access of existing residences by new utility facility construction or
improvements.

iii: City shall facilitate the conversion to cost-effective and environmentally

sensitive technologies and energy sources.

iv: The City shall target goals and timelines for reduction of electric energy
consumption within City-owned facilities, and implement measures to achieve
these goals.

v: The City shall seek to implement waste reduction measures by coordinating

with Sanitary Service Company and other utilities, and shall seek assistance in
these measures through revised franchise agreements.

IV: UTILITY RIGHTS: The City recognizes that utility substations and transmission lines
are necessary components of utility service in urban areas and encourages those types
of facilities to locate in a manner that is compatible with surrounding land uses.

Utility Rights Policies

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 22
CHAPTER 5: UTILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

i: Encourage utility providers to locate new facilities in areas that are compatible
with surrounding land uses and away from established residential
neighborhoods whenever possible.

V: TECHNOLOGY AND SERVICE ENHANCEMENT: The City will explore methods

through which Ferndale citizens and businesses may be provided with the most reliable,
advanced, and cost-effective utilities.

Technology and Service Enhancement Policies:

i: Whenever it is determined that a utility cannot compete with services that could
be provided by the City or another agency, the City shall consider modifying or
nullifying franchise agreements in order to provide better service to Ferndale
citizens.

ii: The City shall consider utilizing franchise agreements to fully or partially fund
the development of Municipal Broadband, in order to create a “high tech” zone
of fast and inexpensive internet service throughout its downtown.

City of Ferndale – Comprehensive Plan Utilities – Chapter V

June 2016 Page 23
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Chapter VI — Capital Facilities Element

CONTENTS
Executive Summary
Introduction
Background
Capital Facilities Element Components and Tools
Level of Service Standards
Description of Services, Inventories and Level of Service by Facility Type
Capital Facilities Planning and Finance Plan
Reassessment of Land Use Element
Goals and Policies

EXECUTIVE SUMMARY

The Growth Management Act (GMA) and Capital Facilities

The Capital Facilities Element (CFE) is one of several elements required by the Growth
Management Act to be in a local government’s comprehensive plan. The purpose of the
CFE is to provide a comprehensive overview and to set policy direction for all capital
facility improvements which are proposed in the City’s comprehensive plan and in those
of other local districts, such as schools and fire protection. In doing so, the city is required
to:
▪ Provide capital facilities for land development that is envisioned or authorized by
the Land Use Element of the Comprehensive Plan.
▪ Affect the quality of life envisioned in the City’s Comprehensive Plan by
establishing and maintaining standards for level of service.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 1
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

▪ Coordinate and provide consistency among the many plans for capital
improvements, including:
a. Other elements of the comprehensive plan such as the transportation and
utilities elements.
b. Master plans and other studies of the City.
c. Plans for capital facilities of state and/or regional significance.
d. Plans of other local governments (e.g.,
THE CAPITAL FACILITIES ELEMENT Whatcom County).
MUST INCLUDE: e. Plans of special districts (e.g., schools, fire
district).
1. An inventory of existing capital
facilities owned by public entities, ▪ Ensure the timely provision of adequate facilities
including locations and capacities of and services for land use development.
these facilities ▪ Document all capital projects and their
financing.
2. A forecast of future needs for such ▪ Determine the financial resources available for
facilities capital facilities projects and improvements.
This Capital Facilities Element has been
3. The proposed locations and
developed in accordance with RCW 36.70A.070
capacities of expanded or new facilities
(the Growth Management Act), and represents the
City’s policy plan for the provision of capital
4. At least a six-year plan that will facilities to the year 2036, and includes a financing
finance such facilities within projected plan for capital facilities from 2016 to 2021. The
funding capacities (and showing the goals, policies, and financing strategy presented
sources of funding) here are consistent with the Whatcom County-
wide Planning Policies and with all other elements
5. A requirement to reassess the Land of the Ferndale Comprehensive Plan.
Use Element if probable funding falls
short of meeting existing needs, and to
ensure that the Land Use and Capital For the first time, the element also includes a
Facilities elements are consistent. Comprehensive Projects Map portraying the
capital projects (parks, transportation, water,
sewer, stormwater) proposed by the City of
Ferndale.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 2
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

INTRODUCTION

A community is often judged by the quality of the facilities and services it provides. Quality
of life and community pride are reflected by the condition of the city streets, parks,
community buildings, and other public works and services. A municipality has the
primary, and sometimes the sole responsibility to provide water and sewer services, parks
and recreation, public safety, safe streets and roads, and other basic public services and
facilities. If public investment and facilities are able to accommodate private investment
(growth), then sound economic development and growth can occur. If traditional public
services that would provide additional capacity are not available, then growth and
development opportunities are limited.

Finding money for capital improvements has become increasingly difficult. The cost for
new projects and the rehabilitation of older facilities is increasing beyond what some cities
can afford. Making the most of limited financial resources is a challenge facing agencies
across the nation. Therefore, it is essential that comprehensive, capital-facility
improvement planning be a priority in order to maintain the quality of facilities and services
that the citizens of Ferndale have come to expect.

Capital facilities and services are provided by both public and private entities and are the
integral elements that link the entire plan together (also see Chapter V, the Utilities
Element of this Comprehensive Plan).

The growth scenarios envisioned in the Land Use Element will not become a reality unless
it can be shown through the Capital Facilities Improvement Plan (CIP) that there will be
adequate facilities and services in place to support future development. It must also be
shown that those improvements can be financed, and the appropriate funding sources
identified. Some of the most important goals of the Growth Management Act are realized
through implementation of the Capital Facilities Element of the Comprehensive Plan.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 3
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

BACKGROUND

Capital Facilities are those public facilities and services, including utilities that are
necessary for a government to carry out its functions or to provide services to its citizens
(see Figure CFE-1, below). Examples are roads, public buildings, schools, parks, water
and sewer systems, fire protection, police protection, jails, and libraries. Often the entire
collection of these facilities is referred to as infrastructure. Capital facility improvements
refer to major capital expenditures needed to purchase, construct, replace, and maintain
public facilities or services.

Capital Facilities are characterized by their long useful life and require significant
expenditures to construct and maintain. In Ferndale, as in many cities, services are
provided by a combination of city-managed and non-city-managed providers. Depending
on the service provided, these are variously state-regulated, federally-licensed and/or
municipally franchised providers. Capital facilities also appear in other elements of the
Comprehensive Plan:

FIGURE CFE-1

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 4
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

CAPITAL FACILITIES ELEMENT COMPONENTS AND TOOLS

As shown in Figure CFE-2, below, the Capital Facilities planning and implementation
process is complex and depends on a consistent series of steps and analysis. The City
begins by analyzing existing facilities while establishing policies for the measurement of
these facilities (Level of Service). Next, the City projects the impacts of future growth and
maintenance costs on those facilities. Where existing facilities need to be replaced,
expanded, or new facilities added, the City determines project boundaries and projected
costs. Finally, the City identifies reasonable funding strategies to pay for these projects
and if necessary reconsiders LOS, growth, or revenue policies as a result.

The City’s 6-Year Capital Improvement Plan (CIP) guides capital projects from a general
planning stage to construction. The CIP is supported by such other tools as concurrency
programs which require facility expansion in-line with new growth, impact fees, project
engineering and design, and more.

FIGURE CFE-2

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 5
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Six-Year Capital Facilities Improvement Plan

While the Capital Facilities Element forecasts general needs and projects to 2036, the the
Six-Year Capital Facilities Improvement Plan (CIP) identifies specific projects and project
costs within the first six-year period, and is updated annually. The CIP makes the rest of
the Capital Facilities Element – and the Comprehensive Plan - come to life. By funding
projects needed to maintain levels of service, and for concurrency, the CIP determines
the quality of life in the community. The requirement to fully finance the CIP provides a
reality check for the vision of the Comprehensive Plan.

The Capital Facilities Improvement Plan (CIP) is a document that provides a list of
proposed major capital expenditures throughout the City. It also provides a multi-year
look at the strategies and financing requirements for major capital programs. The CIP
projects needs six years into the future for major construction, infrastructure
improvements, land acquisition, and machinery and equipment purchases. The CIP also
provides a funding strategy and illustrates projected funding scenarios for each
successive year. The minimum cost threshold for mandatory inclusion into the Capital
Facilities Improvement Plan is $10,000.

Concurrency

In addition to mandating that a Capital Facilities chapter be included in comprehensive

plans, the GMA also introduced the concept of concurrency. In general terms,
concurrency describes the situation where adequate and necessary public services and
facilities are available at the same time as the impacts of new development are
experienced, or within a specified time thereafter. Concurrency has two levels of
applicability.

The first is at the planning level and refers to all services Concurrency describes the
and facilities, over the long term, and at the citywide scale. situation where adequate
Planning level concurrency is what this chapter is all and necessary public
about. It inventories all existing facilities and services, services and facilities are
establishes a LOS standard for each, estimates new available at the same time
facility requirements to accommodate projected growth, as the impacts of new
and develops a financing plan that identifies the revenues development are
necessary to pay for all the new facilities. If the necessary experienced, or within a
revenues are not available, then the jurisdiction fails the specified time thereafter.
planning level concurrency test and must take appropriate
action. Those actions include lowering the LOS standard, raising taxes, restricting
growth, or a combination of these actions. This chapter satisfies the planning level
concurrency requirement as outlined in the GMA.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 6
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

The second level of concurrency analysis is project specific and only required for
transportation facilities. Specifically, the GMA [RCW 36.70A. 070(6)] states:

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 7
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

“...local jurisdictions must adopt and enforce ordinances which prohibit

development approval if the development causes the level of service on a
transportation facility to decline below the standards adopted in the
transportation element of the
WHAT IF: A VOICE IN OLYMPIA
comprehensive plan, unless
transportation improvements or
strategies to accommodate the Washington State typically requires that jurisdictions
impacts of development are made that request funding assistance demonstrate that
concurrent with the development.” capital projects are included within their
comprehensive plans. As a consequence, State
That same section goes on to say that legislators are frequently presented with projects from
“concurrent with the development” shall around the state that provide a demonstrable benefit
mean that improvements or strategies are to their community.
in place at the time of development, or
that a financial commitment is in place to Jurisdictions that employ full, part-time or targeted
complete the improvements or strategies lobbyists for specific projects tend to do
within six years. To satisfy the project- disproportionately better at securing grants than
level concurrency requirement, a jurisdictions that do not.
concurrency management discussion is
referenced in Chapter IV, the
The City of Ferndale has a significant number of capital
Transportation Element and specific
concurrency requirements are described projects that it must complete within the twenty-year
in the Ferndale Municipal Code. planning period, but relatively few projects that would
grab headlines. Ferndale is projected to grow fast, but
not explosively. Ferndale is not a small town – but it is
Impact Fees not a large city.

Local jurisdictions planning under the These factors might otherwise tend to push Ferndale
GMA are authorized to assess impact into the background, making the City less competitive
fees for development activity as part of
for grants and funding. Finally, in some cases the City
financing for public facilities, such as
must recognize that it cannot and should not pay for
parks, transportation, and schools.
the entirety of projects within the City – and must
Impact fees must be based on adopted
capital facilities improvement plans. In work in partnership with other agencies and
addition, the collected fees must be used representatives to secure funding.
for projects that are reasonably related to,
and will reasonably benefit, the By employing a lobbyist, the City would position itself
development paying the fees. The fees to establish a relationship with elected officials around
must also be used within a specified time the state, to put individual projects in the appropriate
from the date they were collected or context, to share Ferndale’s progress towards
returned to the payee. Impact fees may accomplishing its plans, and to promote or defend
be imposed for system improvement Ferndale in times of conflict or confusion.
costs previously incurred to the extent
that new growth and development will be
City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI
Amended February 2018 Page 8
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

served by the previously constructed improvements, provided they not be imposed to

make up for any system improvement deficiencies. To impose an impact fee program,
the City must have a plan in place to make up any existing system deficiencies. The
City’s impact fee policies are contained within the Ferndale Municipal Code.

Level of Service

To prepare a Capital Facilities Element, one of the first decisions a jurisdiction must make
involves establishing a level of service (LOS) standard. The level of service standard is
the measurement through which the City will determine the effectiveness of the facility or
service. LOS is usually expressed as a ratio of amount of service to a selected demand
unit (see Figure CFE-3).

For example, the City’s LOS for its park and trail system is based on a combination of
distance from a park (measured by trail connectivity) and the overall number of people in
close proximity to individual parks (measured by park capacity).

Those facilities that FIGURE CFE-3

provide multiple
services (such as City
buildings) may have
very complex LOS – or
may need to be
evaluated by a variety
of performance
measurements. In any
event, adopting LOS
standards for all the
services and facilities
the City provides would
help it: 1) evaluate how
well it is serving
existing residents, and
2) determine how many
new facilities will have
to be constructed to
service new growth
and development.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 9
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

LEVEL OF SERVICE STANDARDS

The Growth Management Act requires the establishment of level of service (LOS)
standards for those capital facilities for which such standards can be quantified. However,
some levels of service standards are quantified as engineering standards and are
therefore not included in this Capital Facilities Element. As the various Levels of Service
represent the City’s definition of success for its services, careful thought must go into
those standards. The City has established general objectives for LOS definitions at the
conclusion of this element.

The City should not adopt more standards than it can manage or maintain. The LOS
goals are standards which the City generally meets under existing conditions, but may
not meet at certain times or in certain areas. These levels of service also generally
indicate needed capital facilities improvements in order to achieve the LOS goal.
Jurisdictions have broad discretion in determining LOS standards and measurements in
order to reflect their specific needs and goals. The LOS standards in Exhibit CFE-1 reflect
the City’s existing policies, but may be amended or changed to reflect changed City
conditions or policies.

Exhibit CFE-4 contains the levels of service standards that have been established for
capital facilities in the City of Ferndale.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 10
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Exhibit CFE-4
City of Ferndale Level of Services
Capital Facility Lead Agency Level of Service Standards
Water City of Ferndale Provide adequate storage
Sanitary Sewer City of Ferndale Capacity adequate to handle the demand from
each service connection
Stormwater City of Ferndale All stormwater detention and treatment
facilities shall comply with the most current
Department of Ecology Stormwater manual.
Fire Whatcom County Fire 80% of calls responded to within eight minutes
District 7 for staffed stations,
80% of calls responded to within ten minutes
for non-staffed stations as per WCFD 7 Capital
Facilities Plan 2011-2031
Police City of Ferndale Average seven minute response time for calls
for service
Parks City of Ferndale 70% of population within a ten minute walk of
a park, .5 miles of trails per 1,000 population,
3 acres of Regional Parks per 1,000
population.
Municipal Facilities City of Ferndale 1,000 square feet per employee NOTE: As of
June 30, 2016, the City is completing analysis
of existing municipal facilities and anticipates
the consideration of new or amended Level of
Service measurements for municipal facilities
in Fall 2016.
Schools Ferndale School District 0.395 students per new single family residence
and 0.151 students per new multi-family
residential dwelling unit
Libraries Whatcom County Library Open to the public sixty hours per week
District

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 11
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

DESCRIPTION OF SERVICES, INVENTORIES AND

LEVELS OF SERVICE BY FACILITY TYPE: EXISTING AND FUTURE CONDITIONS

Existing Conditions for Municipal WHAT IF: TO BUILD OR NOT TO BUILD?

Facilities
This element focuses on the City’s capital facilities –
The City of Ferndale provides many
services at municipal facilities located those buildings and non-transportation infrastructure
throughout the City. The City is that provide necessary services to the Ferndale
expecting to add 6,833 people and community. The growth anticipated within this plan
approximately 2,800 housing units will place varying pressures on these existing facilities
between the years 2013 and 2036. As and in many cases will compel modifications or
planned, this growth will stimulate the expansions to this infrastructure.
local economy and maintain a diverse
and vibrant community. This growth will While the evaluation process will be different for each
also change the demand for new public facility, one fundamental question that must be
services and facilities, such as schools, addressed is whether the existing facility can be
parks, and police and fire protection. efficiently modified to serve growth without being
Thesechanges, the new or modified completely rebuilt or replaced.
facilities they will require, and the
financial implications they will have for In some cases, the costs of these retrofits may be less
Ferndale and its citizens, are the subject
than a complete rebuild – but in other cases a retrofit
of this chapter.
may not be appropriate, or may only be appropriate
This section describes the City of to marginally extend its useful life until a permanent
Ferndale’s City Hall and administrative replacement can be made.
facilities, the City Hall Annex, the City
Maintenance facilities, Police and Fire The costs of bringing older infrastructure or buildings
Protection facilities, Water, Wastewater into full compliance with current codes is often more
and Stormwater facilities, Library and expensive than a complete rebuild – and may put the
School facilities, Parks and recreation City in a position of choosing between the lesser of
facilities and Whatcom County two evils. As an example, it may be possible to add
Emergency Service and related more office space to existing buildings, but at the cost
communications facilities. of necessary storage space and a diminishment of
productive work environments.
Information presented includes an
inventory of existing municipal facilities
For these reasons, this plan cannot always anticipate
within the UGA, level of service
standards, an analysis of deficiencies, the true nature of future projects, and will rely on
recommendations for improvements, and responsible, public deliberations by future decision-
relevant goals and policies for the makers.
provision of municipal facilities.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 12
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

The location of all municipal facilities is illustrated on Exhibit CFE-5.

CORE AREA IN DETAIL

Exhibit CFE 5 – Municipal & Fire Facilities

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 13
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Administrative Facilities

While City Hall is perhaps the most visible of all City administrative facilities, it is by no
means the only one. Other municipal facilities include the City Hall Annex, the Police
Department, City Shops, the West City Hall Annex, the Pioneer Pavilion and the Water
Plant.

The City of Ferndale employs a total of 69 full-time employees. Twenty-three employees

are housed at the main City Hall facility; 13 employees are at the City Shop facility, 2
employees at the parks office, 4 employees are at the Water Treatment facility, and 24
employees, including 3 staff support personnel and 3 court/ probation staff, are housed at
the Police Department. The Whatcom County Library System employs the equivalent of
20 full time employees.

The current inventory of city government administrative offices and municipal facilities
totals 74,858 square feet of gross floor area. Exhibit CFE-6 lists each facility along with
its current capacity in net square feet of area.

Exhibit CFE-6
Current Facilities Inventory – Municipal Facilities
Name Location Capacity (Net Square
Feet)
City Hall 2095 Main Street 6,934
Annex Building 5694 Second Avenue 4,113
Pioneer Pavilion 2007 Cherry Street 10,998
Police Department 2220 Main Street 18,000
City Shops 5735 Legoe Avenue 20,368
Water Plant 5405 Ferndale Road 12,045
West City Hall Annex 2113 Main Street 2,400
Ferndale Public Library 2125 Main Street 15,000
Bergsma House 5475 Ferndale Road 1,912

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 14
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Administrative Facilities – Conclusions

With the exception of City Hall (which includes the majority of administrative offices and
departments) the City Hall Annex (which includes City Council Chambers, the Ferndale
Municipal Court, and a range of other uses), the City Shop, and structures at the City’s
Water and Wastewater Treatment Plants1, the City’s public buildings are anticipated to
be of sufficient size and basic configuration to meet demands through the year 2038. In
2017 the City contracted with King Architecture to perform a needs analysis for those
functions now provided by City Hall and the City Council Annex. The needs analysis
concluded that neither City Hall or the City Council Annex are of sufficient size or
configuration to meet the demands that will be placed on them by 2037, and are likely of
insufficient size and configuration to meet the demands that are currently placed on them.

At least one, and likely both buildings will need to be replaced or significantly expanded
within the planning period. These modifications may occur either in the same location,
by co-locating the various functions of the buildings in the location of one of the existing
structures, or by identifying a new location for these uses.

The precise size, configuration, and location are to be determined. Initial (2017)
estimates project up to 27,500 square feet of combined indoor floor area for a total
estimated cost of approximately $11.5 million (2017 dollars), not including possible site
acquisition.

While the precise costs, configuration, and size of these facilities has not yet been
precisely established, it is the policy of the City of Ferndale to continue to refine these
projections for the purpose of identifying the location and size of a new or expanded City
Hall and City Council Chambers. It is not the policy of the City of Ferndale to consider
reconfiguration of the existing facilities without expansion, except for short-term purposes
while a permanent design is being developed.

The City has also determined that the City Shop is of insufficient size to effectively serve
the City through the twenty-year planning period. The two acre facility at 5375 Legoe
Lane is constrained by development around it and cannot be significantly expanded
without acquiring additional property. The Shop office facility lacks adequate space for
the full functions of Public Works Maintenance personnel, and is deficient in office space,

1
As described in the City’s Comprehensive Sewer Plan, which is adopted by reference
to this element, the existing Wastewater Treatment Plant (WWTP) must be updated and
expanded to meet future demand. This expansion will result in the reconstruction and
repurposing of several of the existing buildings currently onsite.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 15
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

locker storage, and areas that would facilitate twenty-four hour operations during
emergency events. The covered maintenance bays are inadequate to perform necessary
repairs to the City’s fleet vehicles. The Shop site itself no longer provides adequate bulk
storage (stockpile space) for City supplies, and constraints placed on the space as a
result of two on-site wells and a bioswale have reduce the ability to maneuver within the
site without impacting operations. It is likely impractical to further expand the existing
facilities without also establishing a secondary offsite facility, and the City may find that
the most cost-effective and efficient solution will be to transfer all Maintenance Shop
operations to a new location with five acres or more of useable space.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 16
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

City Hall

Location: 2095 Main Street

Year Built: 1980

Building Size: 7,184 square feet

Lot Size: 1.1 Acres

Services Provided: Departments and services typically associated with direct customer
service, including customer information, utility billing, permits and licensing. Also located
in the main city hall building are those persons or departments which manage City
operations including the Mayor’s Office, the City Administrator, the City Clerk, the City
Treasurer, the Public Works Department, and the Community Development Department

Other: City Hall is part of the City’s Civic Campus and includes the Ferndale Public
Library and “Pizza Annex.” The Ferndale Post Office is directly across the street.

Number of Employees: 23

Existing Staff/Area Ratio: One employee per 312 square feet of indoor space.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 17
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

The City Hall Annex,

Location: 5694 Second Avenue

Year Built: 1944, expanded 1955

Building Size: 3,816 square feet

Lot Size: .5 Acres (22,500 square feet)

Services Provided: Ferndale Municipal

Court, Ferndale City Council, Ferndale
Hearing Examiner and Ferndale Planning
Commission meetings are held within Council
chambers. The Community Resource center and related non-profit groups utilize
attached office space.

Other: The City Hall Annex was previously utilized as City Hall. Historically, facilities
onsite included the Ferndale Fire Department, Police Station and Ferndale City Hall.

Number of Employees: None.

Existing Staff/Area Ratio: Not applicable.

Existing Level of Service: Supports a variety of City and community group functions.

Other: Fixed seating for 100, judge’s chambers, defendant chambers (2), prisoner
cell (2), jury room, jury box, prosecution and defense tables, conference room, file
storage, offices.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 18
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Ferndale Police Department

Location: 2220 Main Street

Year Built: 1991, expanded 2012

Building Size: 18,000 square

feet

Lot Size: 3.4 Acres (co-located

with Public Works Shop).

Services Provided: Routine

patrol, crime and accident investigation, traffic and City code enforcement, crime
prevention, community outreach, court services, probation, records and evidence
keeping, armory, and offices.

Other: In 2012, the Police Department transitioned from its former location at 5640 Third
Avenue to its new location at 2220 Main Street. The Police Department building was
originally constructed in 1991 and was the location of the Ferndale Public Library until
2010.

Number of Employees: 24

Existing Staff/Area Ratio: One employee per 750 square feet of indoor space

Another measure of LOS is response time to incident calls. In 2010, the Police
Department responded to a total of 11,375 dispatched calls for service, an increase of
33% above the 2005 level of 8,532 dispatched calls (excluding calls for service received
in person and in the station, which are not documented). The growth of dispatched calls
outpaced the City’s actual population growth of 15% during the time period (9,750
residents in 2005, 11,210 in 2010).

Despite relatively constant population growth and an increase in incident responses, the
Police Department has been able to maintain 2005 response time goals of seven minutes
per call. Although existing police services are adequate to serve the current population
of the City, and the new Police Department facility will provide adequate space throughout
the planning period, it is likely that Police Department staffing will be unable to maintain
the current response times in a twenty-four hour cycle beyond the immediate future. In
addition, the complexity of modern police work may require a more complex Level of
Service calculation in addition to response time. Police Department staffing levels should
be addressed as soon as possible.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 19
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

The majority of police patrols are conducted utilizing single officer vehicles which must be
maintained in high operating condition. An appropriate Level of Service for police vehicles
is as follows:

Reserve Vehicles: One reserve vehicle per four patrol officers

Maximum Average Vehicle Mileage: 100,000 miles

Projects Necessary to Achieve Level of Service: TBD

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 20
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

City Shops and Maintenance Facilities

Location: 5375 Legoe Avenue

Year Built: Various – established 1980, new buildings 2002, 2005.

Building Size: Total: 16,386 square feet. Main Office: 2,720 sf. Garage: 8,476 sf.
Warehouse: 2,340 sf, 2,850 sf.

Lot Size: 2.5 acres – located adjacent to Ferndale Police Department

Services Provided: Citywide maintenance and operations of capital facilities and

buildings, including City levee system. City fleet parking, material storage, equipment
storage, minor fabrication and machine shop. Minor automotive repair, fleet fuels.

Other: Co-located with City well. City maintenance and operations responsibilities vary
substantially each year. Between 2014 and 2015, the City crew responsibilities were
divided as follows:

CFE - 7

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 21
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Number of Employees: 15 Full Time Employees, not including seasonal parks and
maintenance employees.

Existing Staff/Area Ratio: One employee per 1,092 square feet of indoor space.

Adopted Level of Service: To Be Determined

Projects Necessary to Achieve Level of Service: To Be Determined

Ferndale Public Library

Location: 2125 Main Street

Year Built: 2014.

Building Size: 15,000 square feet

Lot Size: 4+ acres

Services Provided:

Other: The Ferndale Public Library is located adjacent to Ferndale City Hall. The two
facilities share a public parking lot and wetland mitigation area. The library building is
owned and maintained by the City of Ferndale, with library services provided by the
Whatcom County Library System (WCLS).

Number of Employees: 20

Existing Level of Service: Open minimum of sixty hours per week, open six days per
week.

Projects Necessary to Achieve Level of Service: None identified.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 22
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

City Biosolid Field

The City utilizes a 20-acre property adjacent to the wastewater facility on the east side of
Imhoff Road for a bio-solid field.

City Well

Another City-owned site located on the west side of Imhoff Road just south of Douglas
Road is utilized as a second well for municipal water, completing the City’s transition from
water purchased from the Public Utilities District to groundwater. Another portion of the
site has also been developed as a regional stormwater detention facility.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 23
 CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Water System and Treatment Facility

The City’s water system consists of facilities for source, treatment, transmission, storage
and distribution. Prior to 2012, the primary source of water was from the PUD #1 of
Whatcom County, through an intake and filtration plant north of the City’s water plant on
the Nooksack River west bank, near the south edge of the City limits. In late 2011, the
City converted its primary source to groundwater, utilizing the City’s “Shop” well located
at the City shop and the “Douglas” well, located on City-owned property south of Douglas
Road. The Shop well has a capacity of 870 gallons per minute and the Douglas well has
a capacity of 1,300
CFE - 8 gallons per minute. The
combined 2,170 Gallons
Per Minute (GPM)
translates to 3.125
Million Gallons Per Day
(MGD), or roughly three
times the current
demand. There is an
additional capacity
available for a new well
at the Douglas site with
an estimated 700 gpm,
resulting in a total
capacity of up to 4.133
mgd.

The water treatment

plant, constructed in
1975, has a capacity of
4.125 MGD with space
available for future
doubling. Storage
reservoirs consist of a
1.0 MG concrete
reservoir located near Thornton Street and Vista Drive and a 1.7 MG steel tank south of
Thornton Street on the Bender Park property.

The City’s Water Systems Plan is adopted by reference to this document.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 24
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Plant Capacity:

The City’s water treatment plant is located at 5405 Ferndale Rd, Ferndale, WA 98248.
Converted in 2012 to treat groundwater water rather than surface water, the plant
operates at approximately 30% capacity in 2016. Based on the projected growth as
identified in the Land Use Element of this plan, the plant capacity is sufficient for the 20
year planning period.

The water system relies on two existing wells located at the City’s Shop and Douglas Rd.
The City has determined water rights are sufficient for the 20 year planning period,
however one or more additional wells are required to provide a measure of reliability in
case existing wells fail or unusual conditions impose higher demands than expected. The
City has initiated planning for these well/water right expansions. Planning level costs are
estimated to be $500,000.

Conveyance:

The City’s water system conveyance relies on approximately 73 miles of pipe, ranging
from 2”-20” in size. The City also utilizes four pump stations. The majority of the City’s
conveyance line is ductile iron with sections of aging asbestos-cement. The majority of
the conveyance projects anticipated within the planning period are intended to replace
aging mains, meet current fire flow standards, increase system capacity and reliability,
and expand into urban growth areas as development occurs. New extensions of water
mains are expected to be paid for by new development, although the City may participate
through ULID or Latecomer processes. The total cost to the City is estimated at $25
million over the 20-year planning period.

The City does not intend to extend water service to the unincorporated Urban Growth
Area or Urban Growth Area Reserve. In those rare cases where an extension may be
required to extend through these unincorporated areas, no services will be allowed except
in cases of emergency. The City will rely on its Annexation Blueprint/Annexation Phasing
Plan to determine when or if water extension projects should be planned for recently-
annexed areas. For these reasons, while the City has analyzed future conveyance
projects at a planning level for the purposes of this document in order to ensure orderly
outward growth and consistency with existing infrastructure, those projects that are
identified within the unincorporated UGA or Urban Reserve will not be constructed prior
to annexation.

Level of Service

Based on existing conditions and a slower-than-expected growth rate, it appears that the
capacity of the water treatment facility will not be exceeded within the first (six-year)

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 25
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

planning period. No deficiencies currently exist, and no deficiencies are forecast before
the conclusion of the six year planning period (2016-2022)The City is in the process of
preparing expansion plans, as anticipated by previous updates to this plan.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 26
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Wastewater (Sewer) Facilities

The City’s Wastewater Facilities Plan was first established in 1996 and 1998 and
subsequently updated in
CFE - 9
2012 and 2016. The
plan analyzes existing
and future conditions for
both the conveyance
system and the treatment
plant, identifies existing
deficiencies in the
system, lists projects
necessary to maintain
service levels, and
addresses the City’s
ability to fund those
projects.

Figure CFE -9, right,

summarizes the existing
sewer system.

The City’s Sewer Plan is adopted by reference to this document.

Wastewater Treatment Plant Capacity:

The City's wastewater treatment plant is located at 5405 Ferndale Road at the south city
limits. Built in 1969 and expanded most recently in 1996/1998, the plant operates at
89% of capacity in 2016. Based on the projected growth as identified in the Land Use
Element of this plan, the plant capacity will need to be increased from a monthly
average flow limit of 3.23 to 4.10 million gallons per day (MGD) by 2019. This capacity
is projected to be sufficient until 2036 when an additional aeration basin and clarifier
would be added.

This expansion will not only expand the capacity of the plant, it will also provide
improved and more consistent removal of pollutants and better energy efficiency. The
City has estimated that the expansion construction will take place between 2018 and
2019 and cost approximately $22,000,000 (in 2016 dollars). The City has planned for
such an expansion since 2014, and expects to fund the project through the use of
revenue bonds, which are ultimately repaid by sewer service and sewer connection
fees.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 27
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

The wastewater treatment plant upgrade will include needed improvements unrelated to
growth. These include grit removal, eliminating chlorine use, and improved removal of all
pollutants and ammonia and nutrients in particular. The treatment system will be
converted from an aerated lagoon system to an activated sludge system, which will
provide the needed improvement in treatment to provide the best protection of
environmental water quality (Nooksack River and Bellingham Bay). All improvements will
be located at the site of the existing facility.

Conveyance:

The City's sewer conveyance system relies on 60 miles of pipe, ranging from 4" to 48" in
size (the majority being 8”) and 17 pump stations. The majority of the City's conveyance
piping is either PVC (70%) or concrete (18%). The majority of the conveyance projects
anticipated within the planning period are intended to correct existing deficiencies
(including reducing inflow and infiltration), to increase capacity, or to expand into new
areas concurrent with development. New extensions of sewer line are expected to be
paid for by new development, although the City may participate through ULID or
Latecomer processes. The total cost to the City is estimated at 30,000,000 (in 2016
dollars).

The City does not intend to extend sewer lines to the unincorporated Urban Growth Area
or Urban Growth Area Reserve. In those rare cases where an extension may be required
to extend through these unincorporated areas, no services will be allowed except in cases
of emergency. The City will rely on its Annexation Blueprint/ Annexation Phasing Plan to
determine when or if sewer extension projects should be planned for recently-annexed
areas. For these reasons, while the City has analyzed future conveyance projects at a
planning level for the purposes of this document in order to ensure orderly outward growth
and consistency with existing infrastructure, those projects that are identified within the
unincorporated UGA or Urban Reserve will not be constructed prior to annexation.

Many sewer facility improvement projects have been completed recently, including
upgrades for the city’s three major pump stations. Pump Station #4, which will receive
wastewater from the new county jail or other industrial facilities, was upgraded in 2015.
Major improvement projects currently being implemented include upgrade of Pump
Stations #2 and #3 are scheduled for construction in 2016 and 2017, respectively.

Level of Service

The City has the capacity to maintain a sufficient level of sewer service to its citizens.
Anticipated sewer fund revenue is estimated to be $125 million over the next 20 years
compared to projected expenses of $101 million. Maintaining service within the city limits

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 28
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

will be maintained by implementation of planned improvements as well as developer

funded improvements. Service to UGA areas scheduled for annexation will be provided
by developer funded sewer extensions and by City funded projects as appropriate.
Existing deficiencies and future deficiencies (due to growth) will be addressed by planned
and funded projects as shown in the sewer plan’s 6-year and 20-year capital improvement
plans (CIPs). The 2019 wastewater treatment plant upgrade is necessary to allow
continued growth in the City and in future UGA annexations.

Stormwater

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 29
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

The City of Ferndale is subject to the Western Washington Phase II Municipal Stormwater
Permit, and as of December 31, 2016 was required to administer that permit subject to
the 2014 Stormwater Management Manual for Western Washington.

Consistent with these requirements, the City must address several primary goals as
shown in Figure X, to the right – as well as ensure compliance with stormwater regulations
through
maintenance, CFE - 10
consistent
development
and
enforcement
regulations,
monitoring, and
integration with
capital projects.

As the 2014
Manual
focuses on Low
Impact
Development
(LID)
approaches to
stormwater
management –
rather than
large
stormwater
ponds that have typified stormwater over the last two decades – there are few capital
projects specifically focused on stormwater. However, nearly every public and private
development has a stormwater component, stormwater issues must be addressed – and
stormwater funds may be used to partially fund elements of a variety of projects.

Still, while stormwater funds may be available for certain capital projects, compliance with
Washington State stormwater mandates are largely unfunded by Washington State and
must instead be paid for through General Fund monies, or through Stormwater Impact
Fees.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 30
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Parks & Recreation Facilities

The Parks Recreation and Trails Master Plan was updated in 2013. That plan, which is
adopted by reference into this Comprehensive Plan, describes existing parks, recreation
and trails facilities, adopts a Level of Service (LOS) for parks and trails, and identifies
projects and funding necessary to achieve that LOS.

The plan also includes a variety of non growth-related park and trails projects that will be
funded through a variety of sources. These projects include the replacement or
expansion of existing playground equipment and sports fields/facilities, the development
of existing (but undeveloped) park land, and more.

The Parks, Recreation and Trails Master Plan is the basis for the City’s Park Impact fee
and land dedication in lieu of fees. The plan also serves as the basis for the City’s Park
Six-Year Capital Improvement Program.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 31
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Existing Conditions for Non-Municipal Facilities

Fire Protection

Following a majority vote in 2015, the City of Ferndale was annexed into Whatcom County
Fire District 7. This annexation was completed in order to moderate service fee changes,
to provide City residents with the opportunity to run for Fire Commissioner, and to further
ensure consistent emergency services for the foreseeable future.

Whatcom CFE - 11
County Fire
District Seven
is a quasi-
municipal
corporation
(political
subdivision) in
the State of
Washington,
pursuant to
RCW 52,

The District
serves a
seventy-five
square mile
area and
provides fire
protection and
EMS service to
approximately
twenty-five thousand residents, including the residents of Ferndale. The District
boundaries are roughly between Slater Road north to Bay Road, and Aldrich Road west
to the Straight of Georgia. Figure CFE-6 illustrates the District’s boundaries. The Fire
District adopted its first Capital Facility Plan in 2011 and amended it in 2016, with a
planning horizon to 2036. The City has adopted this capital facilities plan and future
updates by reference into its Comprehensive Plan.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 32
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

CFE - 12

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 33
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Level of Service

The Fire District has established four Levels of Service, based on the distinct use
classifications within its boundaries. The City of Ferndale is subject to the District’s Urban
LOS, which is defined as follows:

Urban levels of service shall be a READY: EMERGENCY PREPAREDNESS

response time of 8 minutes 80% of
the time when the responsible This comprehensive plan focuses primarily on intentional
Department has a staffed station
changes that may occur over the next twenty years -
and 10 minutes 80% of the time
essentially growth and the consequences of that
when the fire station is not staffed.
This equates to a WSRB growth. Yet the City must also be prepared for
(Washington Surveying and Rating unintentional and unpredictable changes that may
Bureau) Rating of 5 in the City of significantly disrupt day-to-day operations - and in
Ferndale and 6 in District 7. extreme cases, basic standard of living and safety.

Based on existing conditions, it Natural and human-caused disasters are a fact of life in
appears that the capacity of the many parts of the world, and Northwest Washington is
District to provide an adequate LOS not immune to these events. Earthquakes, fires, flood,
based on response times will not be train derailments, school shootings, and terrorism are
exceeded within the first (six-year) frequently in the headlines - and systems have been
planning period. No deficiencies established to respond to each of these events (and many
currently exist and no deficiencies more). The City has a basic responsibility to ensure that it
are forecasted.
has developed the necessary support infrastructure, inter-
The District anticipates that a total jurisdictional agreements, technology, communications,
of $14.4 million in facility and and Emergency Operations Plans to respond quickly and
apparatus purchase/replacement effectively to disasters, utilizing all available resources and
improvements will be required agencies at its disposal.
district-wide during the twenty-year
planning period district-wide, In order to respond effectively to disasters, the City must
including future modernization of ensure that at least four components are in place: a plan,
both stations within the City of the technology and equipment to serve that plan, a
Ferndale between 2026 and 2036. regular schedule of training and exercises, and the public’s
confidence in those agencies to carry out the plan.

While steps can be taken to lessen the potential for

disasters and their aftermath, if and when a disaster
strikes, it will likely be without warning – and the City’s
emergency preparedness must be prepared to react
where and when it occurs.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 34
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Library

The Ferndale Public Library has grown over time and has occupied no less than four
buildings from 1991 to the present. The current, and permanent library at 2125 Main
Street is approximately 15,000 square feet and was opened in Fall 2014.

All library operations are funded through Whatcom County Library System as part of its
countywide statutorily
established library district. CFE - 13 CFE - 13
The Library District has a
2016-2020 Strategic Plan
in place that guides and
directs its services. The
plan emphasizes
Reading, Engagement,
Access, and Diligent
Stewardship of taxpayer
resources.

Circulation of materials in
Ferndale continues to be
the second highest of the
ten branches in Whatcom
County at 400,271 items
in 2015 – an increase of 22% from 2010. Door counts and new patron registrations
have also increased in the permanent location.

Level of Service

The Library has established an LOS of remaining open a minimum of sixty hours per
week. This LOS has been established as an appropriate reflection of the costs necessary
to maintain the library for such a period of time, as well as the demand for library
operations in Ferndale.

The library serves the public seven days per week and currently is the only library in
Whatcom County providing Sunday service. The library collection ranges from 40,000
items to 55,000 items, depending on what is checked out. In addition, patrons have
access to electronic books and downloadable audiobooks via the library’s website. In
Ferndale, WCLS provides 14 public access computer terminals and 8 computer stations

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 35
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

for staff use. Meeting rooms provide spaces for library programs of all ages from
toddler’s to Senior Citizens. With staff support, an active Teen Advisory Group has
developed a program of specific interest to teens. The library has an ongoing staff
training program to ensure a high quality of professional library service to its patrons.

The library space also includes a large meeting and presentation room open to the
public as well as dedicated space for the Friends of the Ferndale Library for fundraising
activities and used book sales.

The library facility is a community gathering place designed according to the City’s
EAGLE Standards and of a size that is sustainable and with capacity to provide library
materials and programs for the future.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 36
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Schools

The Ferndale School District Capital Facilities Plan was adopted in 2005 and updated in
2013. Another major update is scheduled for 2017. The 2013 update, which is adopted
by reference into this Comprehensive Plan, describes existing school facilities, outlines
the anticipated enrollment
demand on schools, lists CFE - 14
the School District’s 2013-
2019 construction
program, and outlines the
District’s Financing Plan.

The School District

anticipates that capital
projects within the
planning period will consist
of the reconstruction or
expansion of Ferndale
High School, remodeling
of one or more elementary
schools, and additional
modification of existing
schools.

These projects would be

paid for through bonds or levies approved by school district voters.

In addition to capital facilities plans, the Ferndale School District and the City of Ferndale
have coordinated on Safe Routes to Schools programs described within the Parks,
Recreation and Trails Master Plan and the Transportation Element.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 37
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Capital Facilities Planning and Finance Plan

The GMA requires cities and counties to approve and maintain a six (6) year capital
facilities improvement plan which includes requirements for specific types of capital
facilities, measurable level-of-service (LOS) standards, financial feasibility, and
assurance that adequate facilities will be provided as population and employment growth
occurs. The Annual Budget Document and six-year Capital Facilities Improvement Plan
(CIP) of the City of Ferndale fulfill the GMA requirement for facilities planning.
Additionally, these documents serve as a foundation for City fiscal management and
ensure its eligibility for grants and loans. These documents and the Capital Facilities
Element provide coordination among the City's many plans for capital improvements,
including other elements of the Comprehensive Plan, operating plans of departmental
service providers, non-municipal service providers, and facilities plans of the State, the
region, and adjacent local jurisdictions.

The CIP identifies the location and cost of needed facilities, and the anticipated sources
of revenue that will be used to fund the facilities. The CIP, which is a component of this
Element, is approved through the annual budgeting process. Subsequently adopted
amendments to the CIP and the Annual Budget Documents are hereby incorporated by
reference into this Element. The Capital Facilities Element contains or refers to LOS
standards for each public service and facility type, and requires that new development be
served by adequate services and facilities. Operating plans of the City and other public
services and facilities providers also contain information associated with levels-of-service.
The Annual Budget Document and Six-Year CIP contain broad goals and specific
financial policies that guide and implement the provision of adequate public services and
facilities.

The CIP must be financially feasible; in other words, dependable revenue sources must
equal or exceed anticipated costs. If the costs exceed the revenue, the City must reduce
its levels-of-service, reduce costs, or modify the Land Use Element to bring development
into balance with available or affordable facilities.

The GMA mandates forecasts of future needs for capital facilities and the use of standards
for levels of service of facility capacity as the basis for public facilities contained in the
CIP [see RCW 36.70A.020(12)]. As a result, requested public services and facilities
detailed in the CIP must be based on quantifiable, objective measures of service or facility
capacity.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 38
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Capital Facilities Plan Costs And Revenues

Financial Resources

The City has a wide variety of funding methods available, though the limits on uses and
capacity of any source may vary significantly. The following is a summary of financial
resources that may be considered for future improvement funding:

Debt Financing
o Short Term borrowing
o Revenue Bonds (RB)
o General Obligation Bonds (GOB)
o Councilmatic Bonds (CB)

Taxes
o Single-Purpose Levies – Local
o Multi-Purpose Levies – Local
• Property taxes
• Business and occupation taxes (B&O)
• Sales tax
• Utility taxes
• Real estate excise tax (REET)
• Franchise taxes
• Excise taxes
o State-Allocated Taxes
• Fuel tax
• Motor vehicle excise tax

Local Non-Tax Sources

o Fines, Forfeitures, Fees
o Charges for Services (SC)
o Charge for Connection (Connection Fees) (CC)
o Special Districts (LID)
o Reserve Funds (RF)
o Lease Agreements
o Development Impact Fees (IF)
o Privatization
o Donation (D)

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 39
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Grants and Loans

o Community Development Block Grants (CDBG)
o Department of Commerce (Commerce)
o Community Economic Revitalization Board (CERB)
o US Department of Agriculture (USDA)
o Public Works Trust Fund (PWTF)
o Port of Bellingham (economic development) (POB)
o Whatcom County Economic Development
Incentive (EDI)
o State Parks Grant (SP)
o Municipal Stormwater Grants Program (Ecology)
o Interagency Council for Outdoor Recreation (IAC)
o Youth Athletic Facilities (YAF)
o Washington Wildlife Recreation Program (WWRP)
o Centennial Clean Water Fund (CCWF)
o Water Pollution Control Revolving Fund (SRF)

For Transportation-Related Projects

o Urban Arterial Trust Account (TIB)
o Safe, Accountable, Flexible, Efficient
Transportation Equity Act (SAFETEA)
o Federal Highway Administration (FHWA)
o State Transportation Program (STIP)
o Regional Transportation Program (WCOG)
o Transportation Benefit District (TBD)

Fund Review

Capital improvements will generally be budgeted within ongoing department funds of the
City or from special project funds that may be established for a specific purpose or project.
The listing of such funds in Exhibit CFE-15 also outlines the kinds of projects that will
generally be financed by each fund; the type of financial resources typically employed;
and the estimated amounts of funding that will be available during the period of the six-
year plan. It should be noted that most amounts are best estimates; actual amounts will
vary. Amounts are not inclusive of funding that may be available through debt financing
(see Debt Capacity) or from outside sources; i.e. grants or loans or from new tax or fee
sources.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 40
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Exhibit CFE-15
CAPITAL IMPROVEMENTS FUNDS
Type and Estimated Resources

ESTIMATED AVAILABLE
FINANCIAL CITY RESOURCES FOR
FUND PROJECT TYPE
RESOURCES CAPITAL PROJECTS
2016-2022
General Government
Current Expense Taxes, Reserves $600,000
Buildings
In-Lieu Park Parks Impact Fees $00,000
Service Charges,
Water Operations System Upgrades $1,200,000
Reserves
Connection Charges,
Water Capital System Expansion $2,400,000
Reserves
Service Charges,
Sewer Operations System Upgrades $1,200,000
Reserves
Connection Charges,
Sewer Capital System Expansion $2,400,000
Reserves
Real Estate Excise All Capital
Taxes $800,000
Tax Improvements
Stormwater
Stormwater Fund Impact Fees $420,000
Improvements

Source: City of Ferndale Finance Department

Debt Capacity

State law allows cities to incur general obligation debt both with and without voter
approval. Also, debt is authorized specifically for water or sewer service or for park and
open space provision with voter approval. Exhibit CFE-16 outlines the capital costs and
financing for the public facilities which are provided by the City of Ferndale per the most
recent Capital Facilities Improvement Program (CIP), which is contained in Appendix A.

The need for a sewer plant expansion has been known for many years, and the City has
been able to delay such expansion as a result of conservation measures and lower-than-
expected growth, while retaining funding and debt capacity to pay for the upgrade, when
necessary. It is anticipated that the majority of the upgrade will be paid for through bonds.

The Finance Plan for Park and Recreation Facilities is contained within that chapter.

The Finance Plan for transportation system improvements is contained in Chapter IV, the
Transportation Element.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 41
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Similar financial information for the Ferndale School District is available in the districts’
capital facilities plans, which have been adopted by reference as part of the Capital
Facilities Element.

Similar financial and facilities information for Whatcom County Fire District 7 is available
in the districts’ capital facilities plans for 2016-2036, and adopted by reference as part of
the Capital Facilities Element.

It should be noted that these figures do not include capacity for revenue bonds that may
be issued with voter approval and based on utility charges. No statutory limits apply to
revenue bonds.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 42
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Exhibit CFE-16
Municipal Facilities Six-Year Finance Program
General Government and Public Works Facilities

FINANCIAL COST (THOUSANDS) PER YEAR

PROPOSED PROJECTS
SOURCE 16 17 18 19 20 21
WASTEWATER CCWF,
TREATMENT FACILITY: SERVICE
400 4000 4000 2000 2000 2000
UPGRADE CHARGES,
BONDS
WATER SYSTEM SRF, FEES,
UPGRADES AND CONNECTIONS
IMPROVEMENTS 400 400 400 400 400 400

SEWER SYSTEM CCWF,

UPGRADES AND SERVICE
IMPROVEMENTS CHARGES 200 200 200 200 200 200

ACQUIRE LAND FOR CCWF,

BIO-SOLID DISPOSAL SERVICE 2000
CHARGES
LIBRARY GOB, CB,
100
TAXES
PARKS AND TRAILS IF, GOB, D, SP,
120 120 120 120 120 120
IAC
CITY HALL GOB, CB,
EXPANSION/COURT TAXES
200 3000 1000
FACILITY/COUNCIL
CHAMBERS
TOTAL 1,220 4,720 4,720 2,920 7,720 3,720

Source: City of Ferndale Public Works Department

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 43
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

REASSESSMENT OF LAND USE ELEMENT

The City will utilize the following tools to monitor and reassess the Land Use Element in
order to determine whether growth and financial resources remain consistent with this
element:

• The annual process to amend the Comprehensive Plan

• Periodic City-County review of the Comprehensive Plan

• Project-based review for adherence to minimum density requirements.

• Compliance with adopted Annexation Blueprint

• Annual CIP budget process

• Annual TIP budget process

• Transportation Concurrency Register

• Annual population growth estimates

• Annual monitoring of park and trail acquisitions, compared to current development

proposals.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 44
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Essential Public Facilities

According to the GMA, “essential public facilities” is a specialized term applicable in the
context of siting certain identified facilities, and refers to facilities that are typically difficult
to site. RCW 36.70A.200 identifies Essential Public Facilities as “those facilities that are
typically difficult to site, such as airports, state education facilities and state or regional
transportation facilities as defined in RCW 47.06.140, state and local correctional
facilities, solid waste handling facilities, and in-patient facilities including substance
facilities, mental health facilities, group homes, and secure community transition facilities
as defined in RCW 71.09.020”. This definition is not considered all-inclusive, but provides
examples of facilities that are difficult to site. Essential public facilities can be government
owned and operated facilities or privately owned facilities that are regulated by public
entities. If a service or facility is considered to be an important public service and is
difficult to site, it may be included in this list, regardless of ownership.

The GMA requires that the City’s Comprehensive Plan contain a process for identifying
and siting essential public facilities [WAC 365-196]. Evaluation of proposals for the
expansion of existing essential public facilities or construction of new essential public
facilities within the city shall be according to a set of criteria. These criteria shall consider,
among other things, the need for the facility, its compatibility with surrounding land uses,
and the goals of the project.

The City of Ferndale has adopted development standards addressing Essential Public
Facilities that is codified in Chapter 18 of the Ferndale Municipal Code.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 45
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

GOALS AND POLICIES

The following general goals and policies are proposed for capital facilities:

1. The City will ensure that public facilities and services necessary to support
development are sized and constructed to serve new development.

Development-Related Policies:
A. The City will work with other purveyors of public services to provide facilities
and services concurrent with development.

B. The City will ensure convenient and safe access to all municipal facilities.

C. The City will consider potential cost savings that may result through
partnerships with other purveyors of public services that combine shared or
common resources.

D. The City will ensure that capital facilities are designed and built to balance
durability, safety, a minimization of environmental impacts, efficiency and
limited maintenance with cost effectiveness and reasonable flexibility in design.

E. The City recognizes that the useful, safe, and efficient life of City Hall and the
City Council Annex have ended or will end by no later than 2027, and that it
shall be a priority of the City to identify a permanent solution or solutions to
address space availability, worker and public safety, secure document storage,
public meeting space, and operational and environmental needs.

F. The City shall seek to create a fund or funding plan sufficient to pay for land
acquisition (if necessary) as well as building and site design and construction,
based on an estimated 2017 cost of $11.5 million.

G. It is no longer the policy of the City of Ferndale to consider minor reconfiguration

or improvements to either City Hall or the City Council Chambers, except for
the purposes of accommodating short-term needs or for life-safety and
maintenance purposes.

2. The City will provide capital facilities that ensure environmentally sensitive,
safe and reliable service.

Environmentally Safe and Reliable Policies:

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 46
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

A. The City will consider the environment and identify ways to minimize
environmental impacts in siting, construction and use of all capital facility
expansion and construction projects.

B. The City will use best available science and best management practices to
mitigate adverse impacts resulting from capital facilities projects.

C. The City will locate capital facilities identified as essential public facilities so as
to provide the necessary service to the intended users with the least impact on
surrounding land uses.

3. Capital Projects in Conformance with this Plan: Unless emergency

conditions exist, the City shall strive to undertake capital projects that are
specifically listed within the City’s Comprehensive Plan, including those
improvements necessary to maintain existing infrastructure. However, the City
recognizes that the need for certain projects may present itself in a manner that
does not allow for immediate amendment to this plan, and that the City shall not
be prohibited from taking action on those projects for the benefit of the greater
good.

Conformance Policies:
A. The City shall strive to base the respective 6-Year Plans that are adopted
by the City on an annual basis on the 20-year project list described within
this plan, or plans that are adopted by reference to this plan.

B. It is not the purpose of this plan to constrain the City from undertaking
projects not listed on this plan that are timely and which meet the City’s
overall objectives

C. In those situations where a project is proposed that is not contained within

this plan, the City Council shall consider whether the opportunity or
benefits (both material and financial) to complete such a project would be
lost if it were to be delayed in order to amend this plan.

i. In some cases, projects within the Six-Year Plan may

represent a phased approach to larger projects contained in
this plan.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 47
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

ii. In preparing the 6-Year Plans, the City shall reference the Project Number
identified within this plan.

iii. This plan shall be updated on a regular basis to remove projects that have
been completed, modified, or are no longer necessary.

iv. The City shall develop, and the City Council shall consider, criteria
necessary to determine the relative timing of planned projects. Such
criteria may include but is not limited to: life-safety, capacity, concurrency
requirements, available funding, and the coordination of multiple projects
(public and private).

4. Level of Service Objective: Level of Service Standards adopted by the City

of Ferndale should be useful, quantifiable, and should be designed to result
in facilities that reflect overall City objectives.

Level of Service Policies:

A.: LOS measurements should assure that the City’s most important service
needs are met, but not be so restrictive that they discourage growth.

B.: LOS measurements should be realistic and capable of being maintained.

C.: LOS measurements should be appropriate for the City, based on its
characteristics, needs, and priorities.

D.: LOS methodology should not attempt to combine dissimilar areas,

buildings, or facilities for the purpose of a simplified analysis.

E.: LOS measurements should promote efficient, effective, and safe service
delivery.

F.: The City should establish programs to monitor and maintain LOS once
achieved.

G.: The City should correct existing deficiencies as well as assuring that
new facilities meet standards.

H.: LOS measurements should be understandable and valid, measuring

what is intended to be measured.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 48
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Schools
The City of Ferndale is not typically involved in decision-making or funding for the
Ferndale School District. However, GMA requirements and sound long-range planning
practices call for the two agencies to work together on planning issues that affect them
both. City action that will affect population growth, for example, will affect the school
district’s need to build additional schools. Land use designations and the availability of
municipal services affect where new schools can and should be built.

The following capital facilities goal is proposed for schools:

1. The City will work with the Ferndale School District to promote the effective
utilization of school facilities by the citizens of Ferndale.

School District Policies

A. The City will consider the public services and land area provided by the
Ferndale School District to the citizens of Ferndale as a basis for meeting
certain Level of Service requirements for park and trail space.

B. The City will work with the Ferndale School District to determine appropriate
safe routes to school and to identify shared funding sources to support the
construction and maintenance of these routes.

C. The City will work with the Ferndale School District to identify procedural
and review requirements for School District projects in order to facilitate the
efficient review and processing of development permits.

D. The City will work with the Ferndale School District to provide information
on City events and projects, and will enlist the support of the School District
for certain community events.

Public Safety
The Growth Management Act requires concurrency for public safety services such as
police, firefighting, and emergency response. This means that public safety facilities that
are needed to accommodate new development must be available at the time the
development is completed without degrading service to existing development below
established standards. The City will meet the GMA concurrency requirement.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 49
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

In addition, perceived personal safety is essential to maintaining a city’s high quality of

life. Public safety services typically provide an early and ongoing impression of a
community’s general well-being.

The following capital facilities goals and policies are proposed for public safety:

1. The City will provide efficient, cost-effective and concurrent levels of public
safety services designed to maintain quality of life.

Public Safety Policies:

A. The City will maintain current community education programs on crime and fire
prevention to increase the level of community awareness.

B. The City will emphasize continued cooperation through interlocal agreements

with public safety services provide by adjacent agencies and other jurisdictions.

C. The City will evaluate the adequacy of its public safety facilities and equipment,
mutual aid agreements, and personnel staffing and program needs, for the
present and for changes in needs with anticipated growth.

D. The City will participate in at least one multi-agency “table top” emergency drill
per year to ensure that the various City departments that may be involved in
emergencies understand their role in such events.

E. Appropriate City staff will acquire and maintain necessary certifications relevant
to their role in emergency events.

2. The City will reduce the risk of crime and provide residents with security by
providing an adequate force of peace officers, by physical planning to
provide adequate police facilities and minimize opportunities for crime, and
by creating a high level of public awareness and support for crime
prevention.

A. In addition to providing an adequate police force, the City will explore

other crime-prevention or reduction tools such as improved street lighting,
traffic calming devices, neighborhood watch programs, and general
education.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 50
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

Parks. Recreation and Trails Goals:

The City of Ferndale adopted standards for providing parks and recreation facilities in the
Comprehensive Parks, Open Space and Recreation Master Plan in 1996, and
subsequently revised this plan in 2001, 2008 and 2013.

The following capital facilities goals are proposed for Parks, Recreation and Trails:

1. The City will maintain the Parks, Recreation and Trails Master Plan, which is
adopted by reference to this document.

Parks, Recreation and Trails Policies:

A. The Parks, Recreation and Trails Master Plan will include goals and policies that are
adopted by reference to this document.

2. Parks, Recreation and Trails are an integral component of the City’s delivery of
services.

A. The City will seek to reasonably fund parks maintenance and operations
accounts in a sustainable and predictable manner.

B. The City will seek to incorporate park and trail planning into overall capital
facility planning.

Essential Public Facilities Goal

I. Provide for the siting of essential public facilities that will be needed to
meet the growing needs of the community.

Rationale
The Growth Management Act requires that the City identify procedures for the
siting of such facilities.

Essential Public Facilities Policies:

A. Work with Whatcom County and other cities within the County to develop a
procedure for the siting of essential public facilities of a regional or statewide
nature, as identified in the County Wide Planning Policies.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 51
CHAPTER 5: CAPITAL FACILITIES ELEMENT
FERNDALE COMPREHENSIVE PLAN

B. Use the existing conditional use permit procedure contained in the city’s
zoning code for siting essential public facilities of a local nature and for
facilities of a regional or statewide nature until such time as a new procedure
is developed in conjunction with Whatcom County.

C. Facilities that generate substantial traffic volumes should be located on

major arterials that are served by public transit.

Emergency Preparedness

I. Goal: Ensure that the City of Ferndale is prepared to respond quickly and
efficiently to all emergencies at the level required to reduce loss of life and
property, and to facilitate the return to normal conditions as rapidly as possible.

Emergency Preparedness Policies:

A. The City will maintain an Emergency Operations Plan which documents the
responsibilities of each department within the City, as well as basic protocols to
follow in a variety of emergency situations.

B. The City will conduct or participate in one or more emergency drills per year to test
the training, technology, and validity of the Emergency Operations Plan.

C. Appropriate City staff shall obtain necessary certifications in Incident Command

System and National Incident Management System concepts and operations.

D. The City shall seek to ensure that City personnel have or have access to all
necessary equipment, training, and technology in case of an emergency.

E. The City recognizes that communications between agencies, and between

agencies and the general public are a vital component of emergency response.

F. The City recognizes that emergencies are fluid and unpredictable, and that
emergency plans shall be written to ensure broad flexibility based on ICS and
NIMS concepts and hierarchy.

City of Ferndale – Comprehensive Plan Capital Facilities – Chapter VI

Amended February 2018 Page 52
 Exhibit E

MASTER PLAN
2021 UPDATE
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

TABLE OF CONTENTS

SECTION 1: INTRODUCTION 2
SECTION 2: PARKS, RECREATION, AND TRAILS 3
VISION
SECTION 3: PARKS, RECREATION, AND TRAILS 4
MASTER PLAN OBJECTIVES
SECTION 4: PLAN DEVELOPMENT APPROACH 6
SECTION 5: STATEMENT OF NEED 7
SECTION 6: FACILITY DEFINITIONS 12
SECTION 7: FACILITY INVENTORY 22
SECTION 8: PARKS TRAILS AND FACILITIES 40
LEVEL OF SERVICE
SECTION 9: RECREATIONAL ACTIVITIES 52
SECTION 10: CAPITAL IMPROVEMENT 55
PROGRAM
SECTION 11: FUNDING 58
APPENDIX 1: GOALS AND POLICIES 66
APPENDIX 2: PARKS AND TRAILS 77
CONNECTIVITY MAPS
APPENDIX 3: PARK AND TRAILS NEEDS 84
ASSESSMENT PROCESS
APPENDIX 4: GLOSSARY OF TERMS 85
APPENDIX 5: DRAFT DEVELOPMENT IMPACT 87
FEES
APPENDIX 6: EXISTING AND PROJECTED 89
FUTURE GROWTH
APPENDIX 7: PUBLIC INVOLVEMENT 90
APPENDIX 8: PUBLIC INVOLVEMENT (2021) 95

1
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

SECTION 1: INTRODUCTION

The Ferndale Community sees the parks and trails system as a critical element in the
overall quality of life of the area, and essential to the long-term economic development
of Ferndale. Since livability is a key element in the future growth of the community, the
Parks, Recreation, and Trails Master Plan is designed to enhance both quality of life and
improve the overall economic development opportunities for Ferndale.

It is the intent of the City Council that this plan shall receive periodic updates to revise
the park inventory and 6-Year Capital Improvement Project (CIP) list, and consider
changes to the goals, policies, and standards herein. The Parks, Recreation, and Trails
Advisory Board (PRTAB) shall present an updated plan to the Planning Commission, to
be forwarded to the City Council, on a regular basis.

2
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

SECTION 2: PARK, RECREATION, AND TRAILS VISION

This plan envisions Ferndale in 2038 and beyond as…

…a community with a high-quality Parks, Recreation, and Trails system that meets the
needs of all of the citizens of Ferndale. We have major sports and activity areas,
special use areas that honor and reflect our rich history, as well as a complete trail
system that makes it possible for citizens of all ages to walk or bicycle around town.
Our trails interconnect with parks, schools, and other community destination points,
are multi-modal and link with the trail systems of both Whatcom County and the City
of Bellingham. The City hosts recreational opportunities in Ferndale parks, in
partnership with local businesses and community organizations for residents and
visitors. These events promote a positive city culture, increase public participation and
improve the quality of life in Ferndale.

Our parks and trails are well cared for, properly maintained and are a major draw for
newcomers and visitors alike. Our parks are beautiful, are landscaped, and set the
tone for enhanced community pride. Our citizens are actively involved with both the
construction of new park areas as well as in the ongoing maintenance. The park and
trail system are a signature piece of the community’s identity.

Our parks provide a safe, comfortable place

for children of all ages and present numerous
opportunities for visitors to express
themselves through various art forms, sports,
and special events. Our parks provide
opportunities to practice physical fitness, to
expand imagination, and to celebrate nature.
Parks provide areas for escape and reflection,
but also link diverse elements of the
community, allowing opportunities for engagement on many levels in a shared space.
ENTRANCE TO PIONEER PARK

3
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

SECTION 3: PARKS, RECREATION, AND TRAILS MASTER PLAN

OBJECTIVES:
The Parks, Recreation, and Trails Master Plan is designed to achieve the following
objectives:

1. Deliver the community’s long-range

vision for Ferndale and provide a
high degree of livability for all ages
and interests.
2. Establish a system of parks that use
trails as a primary access point, and
a system of trails that provide an
opportunity to interact with nature
and are interconnected with our
parks.
3. Create a realistic Six Year Park CIP
based on the delivery of the Parks, Recreation, and Trails Master Plan that
allows for annual adjustments, and responsibly addresses acquisition,
development, and maintenance/operations costs.
4. Establish a development impact fee that will provide a proportionate share
of revenues for the park and trail projects identified in this plan that become
necessary as the result of growth.
5. Identify a set of policies, uses, and future plans for every park area.
6. Link the Parks, Recreation, and Trails Master Plan with the Ferndale Historic
Downtown and provide for the synergy that strengthens both the Parks,
Recreation, and Trails System and the Downtown area.
7. Develop and propose parks, recreation, and trail standards for maintenance
and operations that produce a high-quality park system for the community.
8. Identify cooperative relationships with other jurisdictions, citizens and others
that lead to the creation of a high-quality Parks, Recreation, and Trails
System. Clarify the roles and responsibilities of all involved.
9. Be a part of the City of Ferndale Comprehensive Plan and as such, provide a
basis for the authorization of park impact fees and other funding
opportunities.
10. Document a plan to deliver the parks, recreation, and trails elements in
accordance with the community vision.
11. Create an implementation strategy for park capital improvements that
contains an action plan identifying: priority, year, proposed method of
completion, cost, and responsible party(s) or agency(s).
4
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

12. Develop a long-term vision for the Park, Recreation, and Trails system that is
integrated into the vision statement that accurately represents the desired
future of the citizens.
13. Prioritize the improvement of existing park and trail facilities (including
connectivity between residential uses and those facilities) to limit the
acquisition of new park and trail facilities except in those cases where a
deficiency exists.
14. Provide goals, vision and metrics for recreational activities being offered by
the City.
15. Adopt a policy of continual improvement for the Parks plan to ensure that it
evolves to meet the changing needs of the Ferndale community.

5
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

SECTION 4: PLAN DEVELOPMENT APPROACH:

The 2018 update to the Ferndale Parks, Recreation, and Trails Master Plan is based in
part on previous public processes conducted in 2001 and 2006, and represents a minor
update to plans adopted in 2013. These processes were instrumental in establishing an
overall vision for the plan.

The 2013 update modified the City’s overall parks and trails policy to place an increased
emphasis on the efficient use of limited resources, expanding trails and trail
connectivity, and retaining existing park locations. A limited number of new park
locations are proposed during the planning period, to be established in concert with
development in the surrounding area. This was in response to the economic conditions
of the time.

Compared to previous plans, the 2013

updates significantly decreased the
anticipated 20-year capital costs by
emphasizing low-maintenance trails and
publicly accessible private trails.

The 2018 updates maintain the overall

philosophies identified in 2013, provide
updates to improvements that have been
made since that time, and provide
updates that are likely to be required over the next six years. The update included some
discussion of the renewed focus on parks from the community in the wake of the
community build of Star Park.

The 2021 update seeks to integrate the success of the “Summer of Fun” recreational
activities into the plan, with clear metrics for further expansion of those activities. It
includes updates to new park facilities that have been constructed since the 2018
update, including the new bathrooms at VanderYacht and Star Park, the new Picnic
Shelter at Star Park, the playground upgrade at Cedar Creek.

It will also seek to address the shifting interest of the public as they desire a wider range
of recreational facilities and amenities beyond the traditional sports fields.

6
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

SECTION 5: STATEMENT OF NEED

Overview
Parks and trails are an essential component of a vibrant urban environment that must
be carefully planned and maintained in order to achieve maximum benefit for the
community that they serve.

For many years, the City of Ferndale measured the success of its park and trails system
based on the number and aggregate size of those facilities. This measurement proved
to be unsustainable, as the relative use of parks varies substantially throughout the city,
the costs of maintaining large numbers of parks frequently exceeds use benefits, and
there were an unnecessary number of independently operated parks in close proximity
to one another. The planned locations of future parks did not reflect the projected
location of future park users and was developed independently of trails. Therefore, one
of the primary goals of this plan is to establish a coordinated system of parks and trails,
rather than a series of independently functioning amenities.

The Nooksack River creates conditions which simultaneously restrict growth and
promote recreational activities. As a result, much of the City’s current and future
parkland will be concentrated adjacent to the
Nooksack River in the vicinity of downtown.
This parkland currently consists of two large
parks, which together account for over half of
the total parkland in the city.

While the concentration of parkland within the

downtown core results in a disproportionate
distribution of total parkland away from most
residential areas, the City is not necessarily
placed at a disadvantage. Previous updates to BNSF BRIDGE FROM VANDERYACHT PARK
the parks plan had sought to rectify this
disproportionality through the acquisition of significant additional parkland in other
portions of the city, however the City no longer feels that is necessary.

Pioneer and VanderYacht Parks are unique, depend on large open spaces, take
advantage of Ferndale’s unique riverfront location, and utilize land that would not
otherwise be available for traditional development. They provide not only the defining
aesthetic for the Ferndale community, but they are ideally situated for hosting large
community events. They are easy to find, have ample parking and walkability and allow
for large-scale community interactions. This is an essential benefit to the City and
7
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

should be used to its full potential. In short, these regional parks are intended as
destination attractions unto themselves.

PIONEER PARK VANDERYACHT PARK

These City parks, in combination with Whatcom County’s Hovander Park, serve to
anchor the historic core of the city while providing services and experiences unique to
each area.

The plan further recognizes that the establishment of significant additional parks, even if
they are distributed throughout the city, will not inevitably generate public use and
interest that is equal to the cost of acquisition or maintenance. Instead, the parks plan
is intended to identify those areas of the city in which parkland is not easily or safely
accessible by bicyclists or pedestrians. In such cases, improved connectivity through
sidewalks and trails between neighborhoods and existing parks is prioritized and the
acquisition of new park space is limited to those areas in which connectivity to existing
parkland is not feasible.

Furthermore, a park without the facilities to support it is a half-measure at best. The

City will seek to improve the parks already established and ensure that new parks have
the facilities and support they require rather than simply adding more space to the park
total.

While the majority of park and trail activities can be broadly defined as recreational
activities, the plan recognizes that organized or planned recreational and volunteer
opportunities play a key role in introducing residents and visitors to parks, creating a
spirit of stewardship for the parks and the surrounding environment, and re-introducing
visitors to existing parks.

Planned recreational activities drive economic activity for local businesses and increase
tourism, a central goal of the Comprehensive Plan for the City of Ferndale

8
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

Methods of Park and Trail Acquisition and

Development
To ensure no reduction in level of service through the twenty-
year planning period, the City requires that applicants for
residential development projects pay to the City a park
development impact fee to the City. The fee reflects a
proportionate share of the costs to construct growth-related park improvements and
can be utilized for the acquisition and development of park and trail facilities reflected
on the City’s 20-year plan, but cannot be utilized for ongoing maintenance and
operation of those facilities. This park impact fee will be adjusted on a regular basis for
inflation, in order to ensure the buying power of the fee remains constant.

The City also provides developers of new residential projects with the option of
dedicating land in lieu of payment of impact fees. This option (for both residential and
non-residential developments, through the City’s EAGLE program) is restricted to those
dedications that would address a legitimate current or future need within the
immediate area of service. The City does not anticipate accepting land use dedications
in lieu of park fees in those areas that are not projected to require new park or trail
space.

As early as 1982, the City had mechanisms to allow

payment of fees in-lieu of land dedication. Ordinance
676 (1982) required the dedication of 1/12th of the total
land included in all plats and short plats of 10 acres or
more to be dedicated to the City as parkland. The
ordinance included a provision allowing negotiation of
an in-lieu fee with the City. To manage these funds, the
“In-Lieu Park Fund” was developed in 1989 (Ord. #885).
In 1993, the City passed Ordinance 1001 formalizing in-
lieu payments with the creation of Park Impact
Mitigation Fees to be paid on a per-dwelling-unit basis.

While the acquisition and development of new park and

trail space may be achieved through dedication and the
payment of fees, the ongoing maintenance and operation of those facilities cannot, by
law, be paid by development. Instead, such funding is provided through the City’s
General Fund and other sources. In an era of increased demands on an aging
infrastructure, the City must consider the maintenance obligations and impacts to the
general fund for ongoing amenities, especially those with substantial ongoing costs such
as water features or ball fields. Compared to other cities, the City of Ferndale lacks
significant sales tax-generating businesses and as a result must identify other funding
sources for park and recreation activities. Without a dedicated and consistent funding
9
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

source, funding for park projects (and maintenance) will tend to rely heavily on one-
time grant opportunities, volunteer efforts, and Park Impact Fees.

The struggle to maintain parkland is considered in contrast to the increasing demands

placed on parks by an expanding population, which looks for recreation opportunities
that have little or no cost to enter, and which can be accessed via foot, bicycle, or car.

Finally, through public meetings, comments, social media, surveys, and other methods,
residents of the City of Ferndale have consistently voiced a clear expectation that
parkland and natural areas should be identified and preserved before they are
developed for future urban uses. Citizens have also indicated that economic constraints
should not be an excuse for a lower level of service for future residents. From a fiscal
standpoint, the costs of acquiring undeveloped land are much lower than the costs of
acquiring developed land, and on average may even be lower when acquisitions can be
included as a condition of development approval.

In response to the COVID-19 outbreak, parks became an essential opportunity for fresh
air, exercise and a means for improving mental health when other avenues were
unavailable. This highlighted the need for restroom and picnic facilities throughout the
park system as well as the need for better interconnectivity between trails and parks.

Furthermore, the recreation needs of the community continue to shift. In previous

iterations of the park plan, there was a focus on youth sports, however the recreational
interest of the community has diversified in recent years. The City’s “Summer of Fun”
which includes field games, movie nights, city scavenger hunts, food truck days and
concerts have all been warmly received as positive community events.

The community has asked to expand these offerings beyond the Summer season and to
include individual events targeted at families, young adults and seniors.

Based on the preceding statement of needs, continued urban development may

outpace Ferndale's ability to maintain the current level of service and improve the
quality of the park and recreational experience unless public resources, policies, and
funds are coordinated among the City, Whatcom County, Ferndale School District, and
private partnerships. The policy directions in the previous plans were updated both to
accommodate the impacts of current and projected growth and to be consistent with
the City's overall planning efforts under the Growth Management Act.

The State of Washington Growth Management Act (GMA) was amended in 2005 to
require the land use element of the city’s Comprehensive Plan to consider planning
approaches that increase the opportunities for physical activity. Approaches suggested
by the GMA to accomplish this include connecting neighborhood commercial nodes to
allow walking and cycling to local services, linear parks, and schools. Therefore, it is

10
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

fitting for Ferndale to have a comprehensive and functioning Parks, Recreation, and
Trails system that encourages physical activity on the part of all citizens.

11
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

SECTION 6: FACILITY DEFINITIONS

A quality Parks, Recreation, and Trails system is
comprised of many different types of facilities
which together create an overall parks and
trails experience. Neighborhood and
community parks complement and expand the
playgrounds and sports fields located on school
grounds. In certain areas, neighborhood and
community parks are adjacent to or co-located
with school facilities. Urban open space sites
may or may not be improved but can include
informal trails and trailheads, greenways,
corridors, community gardens, farmed areas,
and areas within community or neighborhood
parks if left in their natural states. Many of
these open space sites are not accessible to the
public and are temporary or transitional in
nature. As such, they should not be considered
to be permanent features of the park and trail
landscape, and will not be included in the
overall Level of Service for parks and trails.
Existing and proposed sidewalks, alleyways and
other paved surfaces may also serve as necessary, all-weather corridors linking park
opportunities to their users.

In order to be responsive to the community vision and to deliver that vision through the
Parks, Recreation, and Trails system, park and trail classifications are created. The
classifications are based on standards historically proposed by the National Recreation
and Park Association (NRPA) and modified by the Parks, Recreation, and Trails Advisory
Board (PRTAB) to address the needs of the City of Ferndale. In addition to the
classification system, NRPA identifies recommended facility development standards.
This establishes minimum requirements for a community’s Parks, Recreation, and Trails
system. It is modified to fit the particular needs of the City of Ferndale today and for
the next 20 years.

The classification of Ferndale’s Parks, Recreation, and Trails Master Plan defines basic
parameters and guidelines for each type of park and facility that may be constructed
within the park system. A facility defined in this section does not require that the City
include such a facility in a six-year or twenty-year project list. Instead, the classifications
provide a common, consistent, and justifiable framework for planning purposes,

12
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

allowing for an orderly development of the park system that ensures all community
needs are fulfilled.

For the purposes of this planning process, the population figure used for the Master
Plan is developed by the Washington State Office of Financial Management (OFM) and is
established as 14,300 as of Feb 2021.

Park Amenities

Park amenities will vary from park to park, depending on the individual character and
sense of place within each facility. The following list is intended to identify a range of
potential park and trail amenities, but is not intended to restrict other uses not
specifically listed, nor compel the City to construct each amenity. In general, all parks,
regardless of classification, should have one or more of the following types of activities:

1. SPORTS COMPLEX: A Sports Complex is

a heavily programmed athletic facility
often located within a Regional or
Community Park. The minimum size for a
sports complex will vary depending upon
the activities proposed within the park,
including associated parking and accessory
uses. The Phillips 66 Sports Complex is an
example of a park in this designation.
Sports complexes may be owned and
operated by public or private entities, but
must be available to the public at large.
The City charges a nominal fee for the use of the ball fields, but these fees do not
capture the full cost of operation. However, if the fees were increased to reflect the
true cost of operation, it is likely that the usage of the ball fields would decrease.
The City anticipates exploring additional partnerships with local businesses,
including additional advertising at the ball fields as well as the availability for
discounts at these businesses for participants in sporting events.

2. SPECIAL USE AREAS: Special Use Areas include a broad range of parks and
recreation facilities oriented toward a single purpose use that can be further
classified as a City/Regional Park, although the size of such areas may vary. Special
Use Areas are those areas designed to accommodate the needs of the citizens of the
community. Special or unique features, such as historic sites, cultural areas and
social sites are generally found in this type of park. These parks may also include
special amenities such as ADA accessible playgrounds, dog areas, frisbee/disc golf
areas, community gardens, and skate parks, which may be either a separate function
13
X
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

or designed into any of the other park classifications. These areas are often used for
hosting large public events. Pioneer Park is an example of a park in this classification.

3. NATURAL RESOURCE AREAS: Natural Resource Areas are lands set aside for the
preservation of significant natural resources, remnant landscapes, open space, and
visual buffering. These areas may be used for offsite wetland mitigation or
enhancement. Natural resource areas are not developed with typical parkland
amenities, and are left in a natural or wild state to be enjoyed by all. These areas
are extremely critical to the long-term
health and vitality of the community
and may include wildlife viewing
stations, decks and platforms for
viewing, and interpretive areas that
feature agriculture life, birds, plant life,
and wildlife. These locations may
contain areas designed for classroom
and educational purposes. Buffer zones
are included in this definition. Passive
recreational uses may be permitted in SHANNON PARK NATURAL AREA
Natural Resource Areas.

4. HISTORIC AREAS: Farms, homes, buildings, historic walks, and plaques

documenting areas, structures, or people of historic importance, as well as other
resources with historic significance are included in this category of parkland. Given
the strong historical resources of the community, some areas may be termed
historical areas and provided with special development protections to ensure the
long-term enhancement and preservation of these areas. , a transportation
museum, veteran’s memorial, and other special amenities that highlight and add
value to the historic elements of the community fit into this category.

The plan further recognizes that just as Ferndale’s history was not established in its
parks, neither should all historic markers or exhibits be placed in the parks. By
locating a number of historic markers or plaques in relatively close proximity to one
another, the City may be able to establish an informal historic walking tour for
visitors and residents, such as in Griffintown Park.

5. EDUCATION: Displays or exhibits intended to increase visitor’s knowledge of the

area, natural features and processes, or hands-on learning, may be established at
any park. Examples include interpretive signs, educational or activity centers, ropes
courses, and more.

14
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

6. BEAUTIFICATION AREAS: Areas of special plantings and flowers add value to the
overall leisure experience for citizens and visitors and significantly enhance the
appearance of the total community. Flower beds utilizing approved plant materials
(type and color) and connecting all park and trail areas with the same or compatible
themes are included. Special plant use along major arterials and the entrances into
the community are also included, and may be established or maintained by the City
or by a public or private organization, subject to prior City approval.

7. SIGNAGE: Distinct, clear, and usable signs will be placed at all Parks, Recreation,
and Trails areas providing historical information, facility information, and helpful
suggestions for area usage. The City shall utilize similar signage at all City owned
parks and facilities in order to establish a brand identity that is recognizable to
residents and visitors alike. This brand may include identical signage structures, but
may be reduced to a common logo in order to provide for variation between parks.
Such signage may also be incorporated into, or reference, the City’s wayfinding
system.

8. RESTROOM FACILITIES:
Restroom facilities enable users to
experience a park for longer
periods of time, particularly when
available park amenities include
children’s playgrounds and sports
activities. While regional parks
such as Pioneer Park and Star Park
will include complete restroom
facilities, restrooms in
INFORMATION KIOSK AT VANDERYACHT PARK
neighborhood and community
parks will more appropriately consist of single restrooms, Restroom facilities require
daily maintenance, and are frequently targets of malicious mischief, graffiti, and
other vandalism. The construction of new restroom facilities shall only be
considered in parks with uses that necessitate such facilities, where there is
documented foot traffic and should be based upon the City’s ability to adequately
maintain the restroom.

PARKLAND CLASSIFICATIONS*

The City expects to provide a broad range of park amenities, and to establish parks with
characteristics unique to each facility. Most parks will include amenities such as active
15
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

recreation options and sitting or picnic areas. However the services provided by
individual parks, both within the same classification and between multiple
classifications, will vary from park to park – for example, some neighborhood parks may
be entirely “developed” with playgrounds, sitting areas, and landscaping, while other
neighborhood parks may be left in a near-natural state to protect wildlife, sensitive
areas, or to engage visitors in creative play and imagination. The majority of parks are
also expected to evolve over time based on population growth, demographic changes,
and the shifting demand for specific amenities. A broader list of potential park and trail
amenities follows the Trail Classifications section of this document. In general, higher
parkland classifications may include elements of lower parkland classifications. For
example, a neighborhood park may include a tot lot, a community park may include
elements of neighborhood parks (but on a larger scale), and a regional park may include
elements of all other park classifications.

The Ferndale City Council, through recommendations made by the Parks, Recreation,
and Trails Advisory Board (PRTAB) and City staff, will seek to incorporate public input on
new parkland or substantial alterations to existing public City parks, in order to identify
park needs within the immediate service area. This master plan shall not compel the
owners or operators of private parks or other public or quasi-public parks to obtain
public comment, unless otherwise required to, or the park is intended to satisfy a park
planning or dedication requirement of the City.

* The Level of Service for many park classifications is based in part on walk time
“connectivity” calculations. These walk time calculations are derived from the distance
from residential lots within the park service area, the existence of City trails and
sidewalks, general topography of the area, and the average walk time of the typical
adult. Please see Appendix 2 for walk time maps. The calculation is intended to provide
a broad assessment of the relative connectivity of individual parks to the residents that
they serve, and is not intended as a guarantee that all citizens will be able to make the
trip within the projected time frame, in all circumstances, and in all weather conditions.

1. TOT LOTS: Tot lots are small parks typically ranging in size between 10,000 square
feet and ½ acre (approximately 22,000 square feet) of usable space. Tot lots are
intended to accommodate one or more commercial grade play structures with
climbing and sliding activities, and swings. Play activities should accommodate pre-
school and elementary school aged children. A tot lot shall contain one or more
benches, one or more picnic tables, and shade trees, but does not necessarily
require parking spaces. Playfields are typically not included. Tot lots are generally
owned and maintained by a homeowner’s or neighborhood association, but may
also be included as a component of public parks. Tot lots should be installed in areas
that have convenient access to the Ferndale trails system and be sheltered from
traffic either by a fence or distance.

16
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

However, tot lots that are installed as an amenity within a development project
shall not receive park mitigation credits unless the tot lot, together with other
amenities, overall size, and location meets the criteria for neighborhood,
community, or regional parks. These restrictions are also intended to apply to tot
lots and other open spaces areas that are required by the Ferndale Municipal Code
as a condition of development, including Planned Unit Developments.

2. NEIGHBORHOOD PARKS: Neighborhood parks typically range in size from one to

five usable acres, and are designed to be located within a ten minute walk of the
neighborhoods they serve. Neighborhood parks are connected to the city-wide trail
system and often contain a children’s play area with appropriate play structures and
swings. As the most common type of parkland in the city, specific amenities, design,
and sense of place within neighborhood parks will vary to reflect the needs of the
neighborhoods that they serve. In many
cases, the neighborhood parks may
evolve with the neighborhood. These
parks are designed to provide a level of
service that is 1.0 acres per 1,000 people.
Attention should be given to the provision
of neighborhood parks in those areas
without a park, and whether such areas
could be served by existing parks if
connectivity were improved. As a
disproportionate amount of parkland is
BRIDGE AT CEDAR CREEK PARK located in the central portion of the city,
proximity to new residential development
is a significant factor in determining the need for new neighborhood parks. The City
will attempt to provide for any deficiencies in these neighborhoods and will own and
maintain any new parks added to this classification.

3. COMMUNITY PARKS: Community Parks are larger park areas which offer a wide
range of facilities suitable for many activities, and are intended as primary gathering
spots within the areas that they serve. Community Parks typically range in size from
one to 25 acres in size. A community park offers a range of amenities, and should
include informal picnic and sitting areas, shaded children’s play equipment, and a
covered picnic area. Formal ball fields for softball, baseball, wading pool, soccer,
football and other games may also be provided. Major interpretive, historic, or other
City-approved themes or attractions may be permitted in place of formal ball fields,
provided that the City retains an inventory of such ball fields in close proximity to the
surrounding neighborhood. These parks are located within a one-mile radius of the
neighborhoods they serve and connect with the city-wide trail system. Community
Parks are recommended for areas in the community’s north and northeastern areas

17
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

to meet the needs of new and growing neighborhoods. Additional community parks
may be provided as a condition of commercial development within the Main Street
Corridor defined by the Main Street Master Plan. Branch libraries, skate parks,
swimming pools, and community centers may also be sited and placed in this
category of park to meet the varied needs of citizens.

Ferndale School District playground facilities and fields are considered community
parks. These spaces complement other community open spaces and allow for
expanding the recreational and educational opportunities available to the
community. Appropriate school parkland facilities are included in this plan, as they
provide for a combination of active and passive uses after school hours. School
facilities also provide a safe
environment in a setting
that is familiar to school-age
children. Where possible,
school parkland is connected
to the city-wide trail system.
The optimum size of a
school park is dependent
upon its intended use but
generally ranges from 1 to
25 acres.

4. CITY/REGIONAL PARKS: City and regional parks are park facilities that meet
the needs of the entire community by providing for major activities and events.
This parkland classification is typically designed to complement the economic
viability of the downtown area. Major sports activities, softball and baseball
tournaments, soccer, community events, concerts, performances and activity
centers are located in this classification of park. City and regional parks typically
contain anywhere from 25 to 200 + acres of land and serve as major focal points for
community activities. Parks in this category may also include wetlands or
habitat areas. They may be developed with facilities for picnics, special events,
and other activities. This category of park may also provide for the location of
community centers, swimming pools, activity buildings, and museums.
City/Regional Parks are designed to provide a level of service that is 3.0 acres
per 1,000 populations. The City currently has a significant surplus of regional
parkland, and does not expect to utilize public funds to acquire additional
regional parkland within the planning period. However, the City may utilize
funds, including park impact fees, in order to develop new or existing regional
parkland with facilities or amenities that may experience a deficit during the
planning period.

18
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

5. TRAILS AND LINEAR PARKS: Trails and linear parks are the major connectors
between the entire community and the park system. The City has identified the
acquisition and development of trails and linear parks as a priority that will result in
increased use of the City’s existing parks. The majority of City trails and linear parks
are intended as connections between destination points. However, opportunities to
create linked trail loops shall also be examined. While the vast majority of linear
parks will be on land, there is also the potential to create such parks and amenities on
or over wetlands or other water bodies, such as the Nooksack River, provided that
environmental elements are protected or properly mitigated.

5a. URBAN PARKS: Urban parks are park facilities that are used by the entire
community and region in the course of daily activities. Such facilities may also be
utilized for community events, parades, and celebrations, and are in essence the
community’s collective living room. Urban parks are typically located within, and
defined by, the right of way of major streets within the City of Ferndale, typically
within the designated pedestrian center/downtown of the City. Parks in this
category shall generally feature prominent street trees, benches, and shaded
areas and are not necessarily intended to create a natural aesthetic within an
urban setting. Privately owned and maintained seating and/or eating areas are
also encouraged along the periphery of the urban park. Temporary or semi-
permanent banners, flags, flower baskets, or other similar decorations may also
be provided.

The City Council has designated Main Street from the Nooksack River
bridge to Sterling Avenue an Urban Park.

While there are wide varieties of trails and linear parks, the three most common will be
“corridor trails,” “connector trails,” and “multi-modal roads.” These trails are
interconnected within the community and the UGA with links to the county and regional
trail system. They have durable surfaces, are designed to meander throughout the
various neighborhoods of the community, and will be designed to accommodate
persons with disabilities to the greatest extent practical, as required by the Americans
with Disabilities Act (ADA). These trails and corridors may include sidewalks on a
temporary or permanent basis, but cannot consist only of sidewalks. They provide a
variety of alternative transportation modes for citizens to utilize. This category of park
may also have activity nodes, where additional space may be developed to allow for
skating, picnicking, and other activities. Wildlife viewing stations, physical fitness
stations, rest areas, and interpretive areas can be a part of this category of park. The
City will seek to establish linear parks with distance markers clearly identified for
walkers and joggers.

19
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

The trail and linear park system is designed so that citizens can walk throughout the
community. It is envisioned that these
trails and linear parks will also be included
along certain utility corridors to serve as a
buffer and create a pleasant place to walk.
Elements of the trail system will be created
through the land development process,
although the City will seek to purchase or
convert land in areas where trail
connections are unlikely to result from
development, such as within
neighborhoods that have already been
developed. The City will generally seek to
create trail space where legitimate and
HERON CREST TRAIL
cost-effective opportunities exist, and to
rely on existing or future sidewalk facilities should a separated trail system be cost-
prohibitive.

5b. MULTI-MODAL ROAD: Multi-Modal Roads provide space for automobiles,

bicycles, wheelchairs, pedestrians, strollers, scooters, and more. Such roads
will include a paved sidewalk or all-weather trail on both sides of the street
and will generally include a parking lane and planting strip on each side as
well. Bike lanes, turning lanes, and center medians will be established as
appropriate per the Ferndale Development Standards (Chapter 19 of the
Ferndale Municipal Code). Sidewalks may be constructed in a meandering
fashion along major and minor arterial streets and collector streets, with
trees and benches placed within the planting strip to afford maximum safety
and separation from traffic. These are designed to create a pleasant and
enjoyable experience while adding value to the livability of the community
and promote the City’s “Tree City USA” designation.

5c. CORRIDOR TRAIL: Corridor Trails are developed away from motor vehicle travel
and are designed to interconnect within the community and the UGA with links
to the county and regional trail system. Corridor Trails typically serve walkers,
joggers, and bicyclists. Specification standards include composite gravel
surfacing and a minimum width of ten feet with a preferred width of twelve feet.
This type of trail often incorporates linear park features such as rest stations,
shade trees, and grass or natural greenbelts. It is the intent of this plan that
development in or adjacent to designated trail routes should be designed to
include corridor trail segments as appropriate.

20
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

5d. CONNECTOR TRAIL: Connector Trails bring neighborhood users to the wider
Corridor Trail by principally serving walkers, joggers, and bicyclists.
Specification standards include composite gravel surfacing and a minimum
width of six feet, with a preferred width of eight feet. This trail can also be
incorporated into natural or scenic areas with interpretive opportunities.
Connector trails are the primary element of the City’s trail system, and are
planned to not only connect parks to residential areas, but to create a trail
loop throughout the community. The City’s trail map identifies the location
of existing and potential trail connections; proposed projects may be
required to incorporate this trail connectivity as a condition of development.

5e. FITNESS TRAIL: Fitness Trails are typically laid out as walking or jogging
courses with designated exercise stations which allow users to exercise at
their own pace. Such trails will generally be oriented in a looped system,
and will provide distance markers at regular intervals. The City will seek to
establish variety among fitness trails by establishing courses with varying
lengths and degrees of difficulty.

5f. WATER TRAIL: Water Trails provide routes between landings or points of
interest where boating is possible. Docks with platforms that are less than
twelve inches above the water level are optimal for canoe and kayak
accessibility. Permanent boat launches, including boat ramps may be
considered in specific park areas that are designed to accommodate such a
use.

5g. INTERPRETIVE TRAIL: Interpretive Trails are routes that provide access to
nature, wildlife, or other special interest areas. Interpretive trails tend to be
short walking or hiking trails less than two miles in length with interpretive
maps and descriptions that point out information about the natural and
man-made environments. These trails can be an important factor in
developing knowledge and appreciation of natural resources, historical
resources, or the environment.

5h. BIKE LANE: Bike Lanes are typically located on a portion of a public roadway
designated by signs and/or pavement markings and maintained for
preferential bicycle travel. The minimum width required for bike lanes is five
feet.

21
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

SECTION 7: FACILITY INVENTORY

The inventory of Parks, Recreation, and Trails areas consists of several components
including neighborhood parks, community parks, trails, semi-public facilities and areas,
school district facilities, special use parks, sports complexes, and natural resource areas.
This section summarizes these areas within the City of Ferndale.

Inventory of Parkland in the City of Ferndale

Park Acreage Classification Development Status
Bender Park 5.0* Neighborhood Undeveloped
Cedar Creek 5.3 Neighborhood Developed
Centennial Riverwalk Park 2.5 Linear Park Developed
Diamond Lane (Emerald Terrace) 3.1 Nat. Res. Area —
Flair Park 0.9 Neighborhood Developed
Glacier View 2.5 Nat. Res. Area —
Griffintown Park 4.3 Linear Park Developed

Horizon View 0.6 Neighborhood Developed

Michael Moore 2.9 Neighborhood Partially Developed (30%)
Oxford 1.2 Neighborhood Developed
Shannon 1 Neighborhood Undeveloped
Vista Ridge 2.1 Neighborhood Developed
VanderYacht 17.7 Community Partially Developed (75%)
Pioneer 12.8 City/Regional Partially Developed (85%)
ConocoPhillips Sports Complex 46.75 City/Regional Partially Developed (75%)
School District Parkland 17.33 Community Partially Developed (85%)
Sports Complex NRA 14.75 Nat. Res. Area —

Source: City of Ferndale Community Development Department and updated by PRTAB and the Ferndale School
District. Partially Developed percentages indicate progress toward completion.
* Bender Park acreage is 6.1 with 1.1 acres dedicated to non-park water utility uses.

NEIGHBORHOOD PARKS

There are currently nine sites which meet neighborhood park requirements. The
following is a description of the existing neighborhood parks in the City of Ferndale.

1. BENDER PARK: Bender Park is located at 2641 Thornton Road. It is a 6.1 acre
parcel purchased by the city in 1973 for the purpose of providing a site for
22
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

water storage and a future five-usable acreage park area. The property is
currently undeveloped with one water storage tank in existence. The site had
previously been utilized by the City for debris stockpiles and temporary
storage of street sweepings. With its elevation and sweeping views, future
development could include a viewing tower overlooking the city.

The park may be accessed from the north via sidewalks installed on Thornton
Street. Future trail connectivity and main park entrance is anticipated from
the south, associated with private development to the southeast, and leading
to school district properties to the west. Protecting the water tank from
vandalism or damage remains a priority during the development of this park.

2. CEDAR CREEK PARK: Cedar Creek Park is located at 6179 Apollo Drive. The
park has resulted from three separate land dedications. These occurred in
1977, 1989 and 1995. This 5.3-acre park is accessed from Apollo Drive, Quail
Court and Ryan Court. This neighborhood park features a basketball half-
court, a new playground installed in 2019 featuring a unique rope climbing
structure, open grassy areas, picnic tables, mature trees, creek and bridge,
and is considered fully developed.

While access points do exist, they are not well marked or maintained, and
may not be known to potential visitors. There are few opportunities to access
Cedar Creek Park to the east, and such access may be restricted until such
time as access is established from Parkland Court or through private
CEDAR CREEK PARK
properties to the northeast. The park also does not have any restrooms.

3. FLAIR PARK: Flair Park is located in southwestern Ferndale at 5610 Poplar

Drive and may be reached from Poplar Drive and Tamarac Place. The 0.9-
acre park was renovated in 2001 and has a half basketball court; children’s
play equipment that is at or near
the end of its useful life, open
grassy areas and picnic tables. Flair
Park was dedicated to the city in
February 1971 and is considered
fully developed.

Access to the park is sufficient to

the west and south, but cedar
fencing established by the City
along the eastern border limits
access to the east.

23
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

4. HORIZON VIEW PARK:

The Horizon View
subdivision was
approved in 1972. This
included a 0.6-acre
parcel identified as a
park. The park is
located at 6195
Cascade Drive. The
property was acquired
by the city in 1993 after
paying back taxes owed by
the developer. In 1994, 1997,
and 2014, the notion of selling
the property was discussed by
the Park Board and City
Council. The idea was
rejected each time, based on
arguments made by
surrounding neighbors testifying to its use and importance to the
neighborhood. The park features an open grassy area and variety of trees.

There is no direct access to the park beyond the immediate neighborhood,

and the park’s location at the end of a road with no outlet likely further limits
knowledge that the park exists. Few opportunities to further connect this
park exist, beyond public education of its location.

5. MICHAEL MOORE PARK: Michael Moore Park was dedicated to the city in
1999. It is located in southeast Ferndale at 5300 Shields Road, and is accessed
from Smith Road. The 4.4-acre partially developed park features a children’s
play area, a basketball court, a grassy open area, and a meandering paved
walkway paralleling West Smith Road.

The park is accessible to residential neighborhoods within this area, and is

centrally located to provide access to existing neighborhoods beyond the city
limits. However, the relatively large size of the park, combined with the poor
drainage of the associated field, has significantly reduced actual use. This plan
anticipates that the overall size of the park could be reduced, and the extra
space utilized for an affordable housing project as recommended by the 2020
North Whatcom Poverty Task Force.

24
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

6. OXFORD PARK:
Oxford Park is located
at 6160 Malloy
Avenue. This is a 1.2-
acre park whose
primary features
include a half OXFORD PARK
basketball court,
picnic table and
bench, children’s play
equipment and an
open grassy area. A
small creek runs
through a portion of
the park. Playground
equipment in the park is at or near the end of its useful life and the pea gravel
surfacing will transition to engineered wood chips as part of the City’s surface
replacement program initiated in 2017. The property for the park was
dedicated to the city in August 1991. Access to Oxford Park is via Malloy Road.

7. SHANNON PARK: Shannon Park is an undeveloped one-acre park located on

the west side of the 6000 block of Shannon Avenue. It has been reclassified
from part of the Diamond Lane Natural Resource Area in order to address a
neighborhood park deficiency.

In 1978, land was dedicated to the City as part of the Sunshine Heights
subdivision for a nature trail that would connect Pine Drive and Shannon Park.
City-owned properties south of Shannon Park are anticipated as part of a trail
system that may be placed on the west side of Schell Creek. While it may be
possible to link this trail system with Main Street to the south, environmental
and property constraints may result in the trail terminating at a viewpoint
north of Ferndale Terrace.

8. VISTA RIDGE PARK: Vista Ridge Park was dedicated to the city in 2001. It is a
2.1-acre park with half basketball court, limited parking and children’s play
equipment. As with many parks established as a condition of private
development, the playground includes only basic elements that may be
improved as part of recurring playground improvements recommended by
this plan. The park is located on Fulton Street north of Thornton Road and
slightly east of Vista Drive. In 2016, a bench and neighborhood library were
installed as part of an Eagle Scout project.

25
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

The park is linked to Vista Drive and

the Vista Ridge neighborhood via
sidewalks. As part of the
development of this neighborhood,
pedestrian access and utility
easements were established along
the southern and eastern
boundaries of the plat. However,
no formal trails have been
established to link the plat to
development (and trails) to the
east.
ENTRY TO VISTA RIDGE PARK

COMMUNITY PARKS

There is currently one Community Park

and nine school parkland sites in the
City of Ferndale. The following is a
description of these areas.

VANDERYACHT PARK:
VanderYacht Park is a 17.7-acre
community park located west of
the Nooksack River at 1945
Washington Street. The park may
be accessed at two separate
locations. There is a parking area
at the north end of the park which
can be reached from Portal Way and a second parking area to the south which
may be reached from Bass Street. Thirteen acres of the park were purchased in
1993 with the assistance of a Department of Natural Resources grant. An
additional three acres were purchased in 2000, and approximately one quarter
of an acre was acquired by the City through a land donation in 2013. Park
amenities include a league certified, nine-hole disc golf course, a large open
grassy area, ½ mile loop walking trail with interpretive signs, pond, picnic areas,
and river access points. The park is also the City’s largest off-leash dog park and
includes several dog waste receptacles and bagging areas.

The majority of park users access the park via an unpaved parking lot to the
north which is anticipated to be paved early in the planning period. Future
pedestrian connectivity to the south via Bass Street is anticipated by this plan.
Further pedestrian connectivity to the west, via Washington Street may be made

26
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

a condition of development. In 2021, a vault toilet was installed adjacent to the

parking lot providing much needed facilities for users of the park. VanderYacht
park is frequently the site of Ferndale’s recreational park activities.

SCHOOL DISTRICT: The Ferndale School District operates four elementary schools1,
two middle schools, and one high school within the planning area. The school district
also owns property within the Ferndale Urban Growth Area and expects to utilize it
as a future school site when necessary. Each school features athletic fields, play
equipment, classrooms, and gyms which may be rented. The high school has the
only public tennis courts in the city. School district properties available for
recreational use total approximately 17.33 acres.

 Ferndale High School includes an extensive trail system, primarily north of the
school campus. This trail system is expected to connect to City
sidewalks west of the site, with a trail system extending north to Thornton
Street.

Modifications to the campus are anticipated as part of the construction of the new
Ferndale High School in 2022-2024.

 Skyline Elementary School and Vista Middle School are adjacent to one
another, and are accessed primarily through sidewalks along Thornton Street and
Vista Drive. A system of trails extends from Vista Drive through the
western portion of both properties, terminating in close proximity to Thornton
Street. While there appear to be few opportunities to connect these trails with
Shannon Avenue to the west or Sunrise Street/ Artist Drive to the south, the City
should explore opportunities to establish such connections.

 Eagleridge Elementary School and Horizon Middle School are adjacent to one
another, and pedestrian access is primarily via sidewalks along Thornton Street. The
two campuses are connected via hard surfaced trails and future trail connectivity
may be provided to the east via Bender Park and future residential development.
Trail connectivity may also be established to the west and the south as development
in those areas occurs.

 Cascadia Elementary School is within walking distance of Pacific Highlands and

nearby developments to the west and is connected via a system of sidewalks and
crosswalks. The developed nature of the surrounding neighborhood limits the

1
Mountain View Elementary School was closed following the 2012-2013 school year. Following this
closure, four elementary schools will remain in operation within the City limits.
27
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

establishment of new walking trails to and from the school, although future trail
connectivity may be possible to the north.

 The former Mountain View Elementary School campus is adjacent to several

residential neighborhoods, and includes trail connectivity to the southeast and
north. Pedestrian sidewalks on the east side of Hendrickson Avenue are connected
with sidewalks along Main Street. While the Ferndale School District’s use of the
school ended following the 2013 school year, the school grounds will continue to
provide connectivity options. The Primrose Lane trail provides access to the site
from properties to the east, and additional trail easements and trail construction
linking property to the west will be sought as a condition of development
applications.

 Central Elementary School is the only school bordered on all four sides by
public streets. However, Central is also in close proximity to a complete sidewalk
system and several trails (Centennial Riverwalk, Second Avenue, Sports Fields).
Future trail connectivity may include an extension of the Riverwalk to VanderYacht
Park, as well as a trail system between Pioneer Park, Cherry Street, and Main Street.

SPECIAL USE PARKS

There is currently one special use park within the City of Ferndale. For the purposes of
establishing the City’s parkland Level-of-Service (LOS), Special Use Parks are classified as
City/Regional Parks.

PIONEER PARK: Pioneer Park is a unique, 12.8-acre park. The park was deeded
to the city in 1972 by the Old Settlers Association. A provision of the deed
specifies that the park revert to Old Settlers ownership for the annual four-day
Pioneer Picnic. Pioneer Park has three developed little league fields, mature
trees, two picnic
shelters, restrooms, a
performing arts stage,
and children’s play
equipment that is at
the end of its useful
life.

The park is also

home to Pioneer
Village, the largest
collection of historic
wood slab cabins in the
world. These cabins

28
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

feature a collection of artifacts owned by the Old Settlers Association and

maintained by the Ferndale Heritage Society. The Pioneer Pavilion community
center, Chamber of Commerce, and the Ferndale Boys and Girls Club are also
located within Pioneer Park. Pioneer Park is located at the end of First Avenue at
2004 Cherry Street.

The Old Settlers Association seeks to continue to acquire historic cabins from around
the region and to relocate these cabins to Pioneer Village. In order to protect the
cabins themselves, as well as the artifacts within them, a fire suppression system is
expected to be installed over the twenty-year planning period.

In 2019, the City constructed a stamped concrete pathway throughout the park
facilitating better all-weather access and ADA accessibility.

The City intends to reconstruct the existing stage within Pioneer Village in order to
attract a wider variety of musical acts, outdoor theatre, and more. Future plans also
include redevelopment of the front entrance to the park from Cherry Street,
including improvements to the shared parking lot.

Pioneer Park is the most used facility for the City’s recreational activities; specifically
Food Truck Fridays, Music in the Park on the Pioneer Stage and Flicks in the Park.

STAR PARK: Directly south of Pioneer Village is Star Park. Star Park is a 12,000
square foot playground including a variety of play structures and two covered
benches. The play area is split into two sections, one for kids aged five and younger,
and one for kids age six to twelve. Many of the features of the park reflect Ferndale
landmarks including Mt. Baker, the railroad bridge, and the Pioneer Park cabins. The
playground was constructed in 2016 entirely with volunteer labor, involving 2,000
volunteers from over 300 organizations, combined with a matching grant from the
Washington State Recreation and Conservation Office.

29
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

In 2018, the City installed two ADA accessible bathrooms adjacent to the
playground. In 2021, the City installed a picnic shelter with a cold water sink,
electrical plugins and artistic features reflecting the design of the park.

The city frequently hosts recreational parks events at Star Park.

In 2021, the Ferndale Arts Commission added significant new artistic features to
the playground including a number of original murals on the play equipment and
carved salmon attached to the main ascending walkway.

SPORTS COMPLEX

There is currently one sports complex within the City of Ferndale. For the purposes of
establishing the City’s Level of Service (LOS), Sports Complexes are classified as
City/Regional Parkland.

PHILLIPS 66 SPORTS COMPLEX: Formerly known as the Tosco Sports Complex, the
Phillips 66 complex was acquired by the City in 1997 through the receipt of a
donation from the Tosco (now Phillips 66) Refining Company and grant from the
Interagency Committee for Outdoor Recreation (now Recreation and Conservation
Office). Construction on the 61.5-acre site located adjacent to Pioneer Park was
completed in 2008. The completed complex includes six softball fields, three soccer
fields, parking areas, and a natural resource protection area with a ponds and the
Hanadori interpretive trail.

30
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

NATURAL RESOURCE AREAS

The City of Ferndale currently maintains four natural resource areas. They are not
intended for public use in their current state.

1. PHILLIPS 66 SPORTS COMPLEX NATURAL RESOURCE AREA: The Phillips 66

Sports Complex Natural Resource Area (14.75 acres) is located at the Conoco
Phillips Sports Complex site. It features enhanced wetlands and a pond. 3,000
trees were planted on the site in 2001 to reestablish a native forest. The area
features an interpretive trail and may accommodate additional wetland
mitigation in the future.

2. DIAMOND LANE NATURAL RESOURCE AREA: The Diamond Lane Natural

Resource Area is located behind Shannon Avenue, Heather Drive, Diamond Lane
and Pearl Lane. It contains approximately 3.1-acres of land in two parcels. It
features a creek, mature trees, and ravines, which limit accessibility. This area
may be able to accommodate a future trail section that would link the Shannon
Park area to lands to the south.

3. GLACIER VIEW NATURAL RESOURCE AREA: The Glacier View Natural

Resource Area is a two-section parcel totaling 2.5 acres. The areas are located
off of North Beulah and Snowden Avenues. They feature a small, grassy area
with views of Mount Baker and natural areas with a creek and wetlands. They
were dedicated to the City in April of 1993 and improved with the assistance of
the developer and Ferndale High School’s Future Farmers of America (F.F.A.)
program.

4. SPRUCE COURT NATURAL RESOURCE AREA: The Spruce Court Natural

Resource Area is located along the Spruce Court cul-de-sac and features a creek
and mature trees. It contains approximately 1.1-acres of land. Neighboring
private property makes access to the area difficult, although City-owned land has
been reserved, connecting South Bakerview Park Drive (and Church Road) to
Spruce Avenue. Adjacent City-owned property east of Spruce Avenue creates
the potential for future trail linkages to the proposed Schell Creek trail system,
likely as a condition of future private development.

ADDITIONAL PUBLIC RECREATION FACILITIES

There are a variety of park and recreation areas and facilities that are available to the
public within the planning area. While the City owns and operates a variety of these
facilities, many of them are provided by public or private organizations. These facilities
are as follows:

31
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

BOYS & GIRLS CLUB: The Ferndale Boys and Girls Club leases a portion of Pioneer
Park from the City of Ferndale on an annual basis. The club coordinates youth
baseball, basketball and football programs and offers a drop-in facility. The Boys
and Girls Club facility was completed in 2009 and is addressed as 2015 Cherry Street.

CORRELL PARK TRAIL AND

CLUBHOUSE: The Correll Park
retirement community has an activity
clubhouse and nature trail along the
Schell Marsh, located to the south of
the subdivision.

IRLS CLUB FERNDALE SENIOR ACTIVITY CENTER:

The Ferndale Senior Activity Center is
operated by Whatcom County Parks
and Recreation. The grass areas of
the senior center are maintained by the City Public Works Department. The Senior
Activity Center is located at 1999 Cherry Street.

GARDINER TERRACE WATER GARDEN AND TRAIL: A park, pond, and trail
established by the developer of Gardiner Terrace, maintained by the homeowner’s
association. The public is not restricted from these facilities, which are accessed
through existing sidewalks.

LAKERIDGE ESTATES WALKING TRAIL AND POND: A pond and walking trail
established by the developer of Lakeridge Estates, maintained by the homeowner’s
association. The public is not restricted from these facilities, which are accessed
through existing sidewalks.

PACIFIC HIGHLANDS PARK: Homeowners Association neighborhood park and trails.

The facilities at Pacific Highlands are restricted to members of the Pacific Highlands
Homeowners Association and are not intended to be used by the general public.

PIONEER MEADOWS PARK: Homeowners Association neighborhood park and trails.

The facilities at Pioneer Meadows are restricted to members of the Pioneer
Meadows Homeowners Association and are not intended to be used by the general
public.

32
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

FERNDALE PUBLIC LIBRARY: The Ferndale Public Library is located at 2125 Main
Street. The library serves over 200,000 visitors per year, and is one of two libraries
in the Whatcom County Library System that are open seven days per week. The
library was completed in 2014. The
Ferndale Public Library land and
facilities are owned by the City of
Ferndale.

PIONEER PAVILION: The Pioneer

Pavilion acts as a community center
and meeting space and is the home to
the Ferndale Chamber of Commerce
and Visitor’s Center. During normal
park hours, public restroom facilities
are available when the building is not
reserved for other functions. The
facility features a recently installed
catering kitchen to serve the needs of
renters.

CENTENNIAL RIVERWALK FOUNTAIN: The Centennial Riverwalk Fountain is located

immediately south of Main Street along the Centennial Riverwalk. The fountain is a
popular summer destination for Ferndale residents, and includes public art
commissioned by the City.

FERNDALE FRIENDSHIP COMMUNITY GARDEN: The City of Ferndale has allowed use
of the land east of the
FERNDALE FRIENDSHIP COMMUNITY GARDEN
Bergsma House, located at
5475 Ferndale Road for a
community garden. The
community garden is
available to the public and is
coordinated by the Ferndale
Community Service PIONEER PARK
Cooperative, a 501 c3
corporation. The existing
Memorandum of
Understanding extends
through December 31, 2020.

33
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

INDOOR RECREATION FACILITIES

TILLICUM HOUSE: The Tillicum House was constructed in 1925. It is located in

Pioneer Park adjacent to the Senior Center. The building has capacity for 80 people
and features a large open area used for meetings, weddings, parties, and classes, a
small kitchen, and a restroom.

PARKS AND RECREATION OFFICE: The former office of the Parks and Recreation
Department was located at 5475 Ferndale Road, also known as the Bergsma House
(constructed 1908). The Bergsma House was renovated in 2000 and features a
kitchen as well as a meeting room with a capacity for 30 people. It is not
traditionally used for public events and serves as the office space for the parks staff.

PIONEER VILLAGE: Pioneer Village features the largest collection of historic log
cabins in the northwest, some of which are nearly 150 years old. The buildings are
open for guided tours by docents in period attire on a seasonal basis, feature
artifacts owned by the Whatcom Old Settlers Association, and are maintained by the
Ferndale Heritage Society.

The Pioneer Village is a unique tourism opportunity, ideal for educational groups,
historical buffs and general tourists, however it is not widely known outside of
Whatcom County. An investment in wayfinding signs as well as a rebranding and
marketing campaign could result in a significant increase in park attendance.

Part of the rebranding could include officially renaming the tourism location
“Pioneer Village” in order to distinguish it from other regional parks. Currently, there
is a “Pioneer Park” in LaConner, Surrey, Puyallup, Tumwater, and Mercer Island – all
cities within a 100-mile radius. The nearest “Pioneer Village” is a museum in
Wenatchee and a park in Utah. The state has appropriated funds for new pedestrian
walkways in Pioneer Village and is expected to pass the funds in the 2018-2019
budget.

INVENTORY OF SPECIFIC RECREATION FACILITIES

WITHIN THE CITY OF FERNDALE

The following is a summary of specific public and private recreation facilities located
within the Ferndale Urban Growth Area:

TRAILS AND BICYCLE PATHS

The City of Ferndale currently maintains the majority of trails within the parks system.
There are over 6.37 miles of existing trails and dedicated trail easements within the City
34
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

of Ferndale, including public and quasi-public trails in various locations throughout the
city, as shown in the following table:

Trail Name Trail Trail Connection Point(s) Other

Type Length Current/Future

Pioneer Private .1 miles

Meadows Trail

Portal Manor .13 miles Current: Portal Way. Future:

Potential connections to the
north and south will be
considered.

Larsen’s .39 miles Current: Church Road.

Church Hill Future: Subsequent phases
Estates will connect north to
Thornton Woods, south to
Heron Crest, and west to
Bender Park and school sites

VanderYacht .63 miles Current: Bass Street,

Park Washington Avenue, Future:
Connection to regional trail
through pedestrian bridge to
former Riverside Golf Course,
possible acquisition of
adjacent private property,
redevelopment of Bass Street
with walking trail.

Nooksack .52 miles Current: Ferndale Road, First

Levee and Avenue, Main Street. Future:
Centennial Extension to VanderYacht
Riverwalk Park, possible future
connection to Hovander Park.

Phillips 66 .68 miles Current: Second Avenue,

Sports Ferndale Road
Complex
Future: Schell Marsh
Boardwalk to Cherry Street,
Main Street

35
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

Ferndale High .82miles Current: Existing sidewalks Includes

School link to western properties on running track
Malloy Road. Future: Trail
opportunities may connect
trails to Thornton Street

Griffintown .35 miles Current: Primary trail

Park connectivity via sidewalks
along Washington Avenue
Future: Sidewalk connectivity
extended to the north.

Cedar Creek .12 miles Current: Primary trail

Park connectivity via sidewalks to
adjacent streets. Future:
Improved connectivity to the
east.

Michael .25 miles Current: Connectivity to West

Moore Park/ Smith Road, Shields Road via
Shields sidewalks. Future: Limited
Estates additional connectivity
possible within City limits.

Heron Crest .26 miles Current: Connectivity to

Church Road, Lakeridge
Estates, Larsen’s Church Hill
Estates, Thornton Woods,
Thornton Street. Future:
Expansion of eastern
connections via trails to
Schell Creek.

Thornton .25 miles Current: Thornton Street

Woods connections, Larsen’s Church
Hill Estates and southern
subdivisions. Future:
connections to the west
(Bender Park)

36
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

The Meadows .47 miles Current: Interior trails and Privately

boardwalks. Future: maintained,
Connectivity to Thornton open to the
Street, public schools, public
Nubgaard Road, Church Hill
Estates trail network.

Douglas Pond .7 miles Current: Douglas Road. Loop trail

Future: Douglas Road around
sidewalks will provide Douglas
east/west links, future stormwater
private development may pond
incorporate connectivity to
the west

Malloy Village Current: limited connectivity

to Malloy Road. Future: Low
probability of future
connectivity.

Portal .26 miles Current: connection to Trigg Trail easement

Commons Road. Future: trail easement provided -
dedicated. Connectivity to undeveloped
north and south dependent
on future private
development proposals.

Gardiner .27 miles Current: Connectivity Privately

Terrace between Augustine Drive and maintained,
Gardiner Drive. Future open to public
expansions limited.

Primrose Lane .06 miles Current: Connectivity Privately

between Legoe Avenue and maintained,
former Mountain View open to public
Elementary School Campus.
This connectivity will be
preserved through a
permanent sidewalk in the
same location, constructed
by private development.

37
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

Ferndale .11 miles Current: connectivity Privately

Village Homes between Thornton Street and maintained,
Malloy Drive open to public

Regional Trails and Bicycle Paths

During the last several decades, a variety of regional trail plans have been proposed,
including the Nooksack River Trail and the Millennium Trail. These trail plans would link
several Whatcom County jurisdictions via pedestrian and bicycle trails, generally utilizing
natural features such as the Nooksack River to determine trail routes. While no plan has
been finalized or funded, the Nooksack River shoreline through Ferndale is a common
element to these regional proposals. This parks master plan assumes that a regional
trail will link to existing informal trails through Hovander Park on the east side of the
river, and that one or more pedestrian/ bicycle crossings will be considered within the
City of Ferndale.

In 2010, an Army Corps of Engineers project was completed in order to remove

vegetation along the Nooksack River levee south of Cherry Street. This project included
the re-grading of the levee, a potential first step towards the establishment of a
permanent trail in this location.

The Centennial Riverwalk was completed and is included in the City’s parkland inventory
as a linear park. Future trails will ultimately connect Pioneer Park and VanderYacht Park.
The trail will be designed to provide a myriad of recreational opportunities as well as
enhance economic development opportunities in the downtown business core of the
city. The Riverview Plaza and Trail Plan also seeks to improve public access to the
shoreline.

In addition, the City’s Comprehensive Plan and Development Standards call for the
integration of bicycle facilities with certain street improvements for the purpose of
establishing a linked bicycle network throughout the city. Links to the regional bicycle
network are more fully described in the Transportation Element of the City of Ferndale’s
Comprehensive Plan.

WITHIN THE FERNDALE UGA OUTSIDE THE CITY LIMITS

The Growth Management Act states that any facilities located within the UGA should
become a component of each jurisdiction’s comprehensive plan. While there are no
park facilities within the unincorporated UGA, there are additional lands available for
parks and recreation purposes located adjacent to Ferndale’s Urban Growth Boundary,
which add value to the parks and recreation opportunities to residents and visitors of
38
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

Ferndale. These lands include 346-acres comprising Hovander Park and Tenant Lake,
managed by Whatcom County Parks, and 374-acres of Washington State Department of
Fish and Wildlife lands. Both the Whatcom County Parks and the City of Ferndale are
interested in pursuing a pedestrian bridge over the Nooksack River to enhance park,
recreation, and trail opportunities for residents and visitors to the area. However, such
a bridge will likely require private or general fund financing, as it is not directly related
to the overall parks level of service.

WITHIN THE FERNDALE MARKET AREA

The City’s Comprehensive Plan has established the Ferndale Market Area, a geographic
area that reflects the Ferndale School District boundaries. While the City does not have
regulatory or financial authority over park and trail resources outside of the city limits,
this plan seeks to recognize these resources as a complement to those within the City
such as Lake Terrell, Hovander Park and Tennant Lake, the marine shorelines of Sandy
Point, Neptune Beach, Cherry Point, Lummi Island and Gooseberry Point, and more.

39
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

SECTION 8: PARKS, TRAILS, AND FACILITY LEVEL OF SERVICE

(LOS)
The City’s adopted LOS standard makes an assumption that the actual use of parks
(particularly neighborhood and community parks) and trails depends greatly on the
manner in which those facilities are connected to their users. With the exception of the
City’s regional parks and certain facilities that are unique to Ferndale, the majority of
park users will be Ferndale residents, and a significant percentage of those users will
utilize the trail and sidewalk system to reach their park destination. Therefore, the LOS
for trails is directly tied to and influenced by the LOS for parks.

The established LOS is based upon the actual connectivity between the parks and the
residents that they serve, as follows:

PARK ADOPTED LOS PRIMARY LOS SECONDARY LOS

CLASSIFICATION MEASUREMENT MEASUREMENT

Neighborhood Connectivity: 70% Connectivity: Walk Carrying Capacity:

of Ferndale Time < 10 minutes No more than
households shall be 1,000 residents per
within a 10 minute acre of park within
walk of a park 10 minute walk

Community Connectivity: 70% Connectivity: Walk Carrying Capacity:

of Ferndale Time < 20 minutes No more than
households shall be 1,000 residents per
within a 20 minute 1.5 acre of park
walk of a within 20 minute
community park walk

Regional Carrying Capacity: Carrying Capacity: N/A

At least three acres 3 acres: 1,000
of regional residents
parkland shall be
available per 1,000
Ferndale residents

Trails and Linear Carrying Capacity: Carrying Capacity: N/A

Spaces At least one-half .5 miles: 1,000
miles of trails shall residents
be available per
1,000 residents

40
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

For the purposes of this Parks, Recreation, and Trails Master Plan, the “overall distance”
shall be measured by the most direct walking route from a residence to a park entrance,
utilizing available and/or potential future sidewalks, trails, or other spaces reserved for
non-vehicular travel. Walk time shall be based upon a 3 mile per hour average speed
(ten minutes – ½ mile of travel). Drive time shall be based upon the speed limit posted
for the affected travel routes. Service area shall be a calculation of all residential
households within the Ferndale city limits. Cumulative size shall mean the aggregate
total of park acres in each category divided by 1,000. For the purposes of this plan, if a
park in any category (neighborhood, community, regional, private), with the exception
of tot lots and trails, is within a ten minute walk of a residence and is available for
residents to use, the City’s LOS requirements for distance will be met. The City will also
seek to ensure that parks within a ten minute walk of large segments of the population
are not overused. The cumulative size limitations have been added to the LOS
measurement for this purpose.

The City utilizes estimated walk and drive times as the primary calculation for
determining Level of Service, rather than distance measurements. This approach may
decrease the service area of certain parks where terrain, elevation, or existing access
points may challenge connectivity. However, it will also assist the City in removing
obstacles to access.

The location of trails and lineal spaces shall be determined based on those trail projects
necessary to achieve linkages between parks and their users. The trail system should
also be designed to establish one or more loops, allowing the user to navigate the
system without retracing their steps.

The City has created a map that will assist administrators in determining locations
where park and trail access is deficient. This map, entitled City of Ferndale Connectivity
Map, is found in Appendix 2 of this plan. The map is not intended to identify potential
park or trail projects, but rather to highlight those areas that do not meet adopted Level
of Service requirements. Administrators will utilize this map, as well as the Park and
Trail Needs Assessment Process (Appendix 3), to determine the location of future parks
and trails as well as the appropriate mitigation requirements for new developments.
For the purposes of this Parks, Recreation, and Trails Master Plan, the April 2020
population estimate of 14,600 that was prepared by the Office of Financial Management
(OFM) for the City of Ferndale was used to calculate existing deficiencies in park land
and recreation facilities. The 2038 population is estimated at 20,193, based on the 2016
update to the city’s Comprehensive Plan.

41
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

Regional Parks

While neighborhood and community parks will generally serve residents within the
immediate service area, regional parks, by virtue of their size and the unique amenities/
facilities within them are intended to serve the entire community. In some cases,
regional parks may serve a larger region beyond residents of the City of Ferndale. In
either case, regional parks are intended as a destination attraction, and the distance
from such a park is of secondary importance to the quality of the amenities within the
park. As a result, the LOS for regional parks shall be based on the total regional park
acres that will be delivered to the community, expressed as three acres per 1,000
residents. This calculation is consistent with previous park master plans.

The Ferndale community has identified the Nooksack River as the primary distinguishing
geographic feature in Ferndale. The river provides the community with unique habitats,
pristine viewsheds, and significant areas that cannot be built upon due to the risk of
flooding.

At this time, there are three major parks along the Nooksack River: Pioneer Park,
VanderYacht Park, and Hovander Park which is operated by Whatcom County. Pioneer
Park combines local human history with a series of cultural and recreational amenities,
including Star Park and the Phillips 66 ball fields. VanderYacht Park remains relatively
undeveloped as a passive walking park, including its use as an off-leash dog park, a
stormwater detention facility, and a disc golf course. Hovander Park combines
agricultural history with preserved habitat.

The combination of three parks, each serving different but related activities and
interests, connected to the city’s downtown and commercial areas by walking trails, will
create a series of parks that is unmatched in the Pacific Northwest.

The following table (Parkland Levels of Service and Existing Parkland and Trail
Deficiencies) provides a broad overview of existing conditions as well as the current
need for expansions. The 2036 Parkland Needs Assessment provides similar data,
projected to 2036. The City utilizes 2036 population projections provided by Whatcom
County to determine future growth, as well as the growth projections utilized by the
Ferndale Transportation Element (See Appendix 6 for the Existing and Future Land Use
by District Map) to anticipate the location of such growth. The 2036 Parkland Needs
Assessment is primarily focused on the carrying capacity of park and trail facilities
and/or requirements for new parks when connectivity is not possible.

42
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

Parkland Levels of Service and Existing Parkland and Trail Deficiencies

Classification Current Designated Actual LOS Parkland Deficient Amount of
Inventory LOS Required to Deficiency
(Acres, (Connectivity/ meet 2021 (2018)
Miles) per 1,000 LOS
population)
Neighborhood 24 70% of 77% Within N/A: See No None
population 10 Minute Trails Below
within 10 Walk of
Minute Walk Park
of Park
Community 35.03 70% of 74% Within None No None
population 20 Minute
within 20 Walk of
Minute Walk Community
of Park Park
City/Regional 59.6 3.0 Per 1,000 4.39 Per None No None
Population 1,000
Population
Trails & Linear 6.97 .5 miles per .47miles None No None
miles 1,000 per 1,000
Population Population
Natural 21.45
Resource
Areas*
*Natural Resource Areas are not included in Level of Service calculations

2036 Parkland Needs Assessment: Overall Acreage

Classification 2018 2018Deficiency to 2038Need Additional to Meet 2038
Inventory be Provided by City (acres or Need As Adjusted for
(acres or miles) Deficiency or (Surplus)
miles)
Neighborhood 24 0 30 6
Community 35.03 0 48 12.97
City/Regional 59.60 0 60.58 .98

Trails & Linear 6.35 .40 10.1 3.75

Natural 21.45 0 N/A* 0
Resource Area
Total Acres 140.08 0 138.58 19.95
Total Miles 6.37 .40 10.1 3.75

*No size criteria established for Natural Resource Areas

43
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

ANALYSIS OF PARK IMPROVEMENTS 2013-2021

Long-range plans are intrinsically forward-looking. In many cases, these plans fail to
analyze recent successes or failures. By focusing only on future events, the City may
actually reduce the effectiveness of long-range plans as these plans rely heavily on
developing strong foundations that may not always be obvious, especially in the early
years of the plan.

The Parks, Recreation, and Trails Master Plan has existed since the early 1990s, but was
substantially modified in 2013. As the 2021 update to this plan maintains the overall
philosophy of the 2013 plan, park and trail improvements made since 2013 are listed
below.

Star Park: Constructed in 2016, Star Park represents the largest volunteer effort in
Ferndale’s history. Nearly 2,000 volunteers contributed an estimated 8,000 hours of
time to the effort. This, combined with nearly $200,000 in monetary and in-kind
donations from local individuals and businesses and a matching grant of $231,000
matching grant from the Washington State Recreation and Conservation Office (RCO),
reduced the cost to the City for the construction of the project to almost zero. Ongoing
maintenance represents an additional expense.

Star Park established a large, centrally located playground that serves as an attraction
for both local and regional residents. Due to its size and relatively recent construction,
there is evidence that the playground has resulted in lessened activity within the City’s
other playgrounds. While Star Park is sufficiently large to accommodate this activity,
updating or replacement playground equipment in other parks will likely support the
continued operation of those parks.

While Star Park provided an additional amenity to Ferndale’s parks system, the park also
contributed to a modification in Ferndale residents’ perspective of the parks system.
Increased volunteer and recreational activities and general support for additional parks-
related projects continue to be a legacy of this project.

The Meadows Trails: The Meadows subdivision, which is located west of Horizon
Middle School on Thornton Street, established 2,460 feet (.47 miles) of new trails that
are privately maintained but open to the public. These trails surround preserved
wetlands and stormwater facilities and were created in exchange for credits against
Park Impact Fees.

The cost to the City for acquiring and then developing similar trail areas is estimated at
approximately $276,000, not including maintenance responsibilities.

44
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

Ferndale Village Homes Trails: The Ferndale Village Homes subdivision, which is located
at the northeast corner of Thornton Street and Malloy Road, established approximately
600 feet (.11 miles) of new trails for the purpose of connecting Thornton Street to
Malloy Drive without encroaching on an intersection that may be converted to a
roundabout in the future.

Primrose Trail: In 2013, volunteers established a 300 foot trail, including stream
culverts, from Legoe Avenue to the former Mountain View Elementary School campus.
This connection provides direct access to and between this campus and the growing
multifamily area north of Downtown Ferndale. While private development will convert
this trail to a sidewalk, the connection between the school property and the larger area
will remain in place.

Wood Chips: In 2018, the City established a program to install engineered wood chips in
many of its parks and playgrounds. These wood chips serve as a natural cushion for
children as well as an aesthetic improvement over gravel or similar surfaces. The wood
chips will be replaced on a rolling basis.

Potential Land dedications - Subdivisions: The City has required significant land
dedications and/or trail construction for several subdivision proposals that had not been
constructed as of the adoption of this plan. If built, these subdivisions would add over
half a mile of additional trails as well as dedicate an additional one and half acres of land
for future park uses.

Larsens Church Hill Estates Trails: Approximately 800 feet of trails were added as part
of the second phase of the Larsen’s Church Hill Estates subdivision west of Church
Street. These trail extensions will connect to Bender Park and are expected to connect
to trails associated with The Meadows subdivision as part of future residential
development.

Skyview Ridge Trails: Approximately 600 feet of trails are proposed as part of the
Skyview Ridge and Big Sky subdivisions south of Douglas Road. These trails are expected
to connect to trails at and around the Southwest Stormwater pond, and may eventually
connect to trails associated with Schell Marsh.

Southwest Stormwater Pond: The Southwest Stormwater Pond, located south of

Douglas Road and constructed in 2012, has subsequently been developed with
approximately .5 miles of trails.

Church Street sidewalks: The reconstruction of Church Street (2014-2015) resulted in

the addition of approximately 3,700 feet of sidewalk on each side of the roadway (7,400
feet or 1.4 miles of sidewalk total). The sidewalk provides safe access for residents
along Church Street to nearby parks and trail systems. The sidewalk has also completed

45
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

the “Outer Loop” of pedestrian trails and sidewalks anticipated by this plan and is a
popular course of approximately five kilometers for runners and walkers in the Ferndale
area.

BMX Park (Partial): From 2013 to the present, volunteers have utilized a small (half
acre) parcel of land north of the Phillips 66 Ball fields and west of the American Legion
Hall as an informal BMX park. The City installed a water system for dust control
purposes at the all-dirt facility. Volunteers have groomed and maintained the park to
reflect a relatively high skill level for bike riders. While the park has proved popular, it is
likely that a less-challenging course would attract participation from people of more
diverse skill levels.

To that end, the City developed the Metalworks Skate Park proposal for the Recreation
and Conservation Office which was included as part of the 2022 Capital Budget by the
Washington State Legislature. The funds were approved, and the City is on track to
begin construction of Metalworks Skate Park in 2024.

Veteran’s Memorial: Prior to 2010, the City had identified Bender Park as a potential
location for a regional Veteran’s Memorial. Upon the completion of Griffintown Park,
the Veteran’s Memorial Committee relocated the memorial to Griffintown Park.

Hovander Trail Connection: In 2013, the City constructed 850 feet (.16 miles) of trails to
connect with a Whatcom County trail extension within Hovander Park, along the east
bank of the Nooksack River. The County’s trail extension extends more than two miles
to Slater Road, but is not included in this analysis. The County system also includes a
dog park immediately south of the Ferndale City limits.

Pioneer Park Restroom Remodel: 2016 upgrades included toilets, flooring, lighting,
mirrors, fixtures, paint, and roof repairs.

Playground Toy Components Addition and Replacement (Various): Age, vandalism, and
destruction required the replacement of a variety of toy components at Oxford, Flair,
Horizon View, and Michael Moore parks from 2013-2018.

Library Interpretive Area: Private grant funding and an Eagle Scout project paid for the
establishment of an interpretive area southeast of the Ferndale Public Library.

North Shelter Reconstruction: In 2016, City crews rebuilt the shelter immediately west
of the Pioneer Pavilion, pressure washing the entire facility after replacing posts, beams,
and the roof.

Eagle Scout Projects: The City has been receptive to a variety of Eagle Scout projects,
including signage at the Hanadoori Trail west of Pioneer Park, the installation of an

46
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

information kiosk at VanderYacht Park, a walking path from Bass Street to existing trails
at VanderYacht Park, bat boxes at the Southwest Stormwater Pond, and a lending
library and picnic table at Vista Ridge Park.

Recreation Program: In 2017, the City re-initiated planned recreational programs

within its parks. This program, dubbed the annual “Summer of Fun” has attracted
thousands of residents and visitors over the course of the summer and continues to
expand with unique offerings throughout the year.

Star Park Restroom: In December of 2017, the City installed a restroom facility adjacent
to Star Park. The facility has two bathrooms and a drinking fountain available for Star
Park guests and users of the ball fields.

Cedar Creek Park Playground Upgrade: In 2019, the City installed new playground
equipment at Cedar Creek Park including a unique climbing feature. The ADA accessible
sidewalk has yet to be installed at the location.

Star Park Picnic Shelter: In Summer of 2021, the City is set to construct a unique,
purpose-built picnic shelter at Star Park with a cold water sink, electrical outlets and
picnic tables.

Metalworks Skate Park: As part of the 2022 Capital Budget, the state has granted the
City a $465,000 grant for Metalworks Skate Park, a 10,000 square foot skate park to be
installed at Pioneer Park adjacent to the Phillip 66 Ballfields and BMX park.

PROJECTED COST TO ACHIEVE ESTABLISHED LEVEL OF SERVICE

PARK AND TRAIL LAND ACQUISITION

This Master Plan is not intended to provide project-level analysis, including cost analysis,
for individual projects. Instead, the plan provides a planning-level analysis in order to
determine general need, location, and associated acquisition and development costs.

Land acquisition and development costs will vary significantly, depending on the
location (and relative quality) of the land, the type and number of amenities, and more.
In some cases, land and/or amenities may be acquired by the City through voluntary
dedications or donations, thereby decreasing overall costs. For the purposes of this
analysis, the City seeks to identify conservative estimates of park and trail costs.
Project-specific costs will be refined for those projects that are placed on six-year capital
improvement lists.

47
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

1. LAND ACQUISITION COSTS:

A. Parkland: Average home prices in Ferndale have increased 32 percent
between the first quarter of 2013 and the second quarter of 2018. Thus, for the
purposes of this plan, the cost of acquiring one acre of land for park purposes
will increase from $130,000 to $171,600.

B. Trails: Utilizing the same price escalation for trails as parks (a multiplier of
1.32), the average acquisition cost for one mile of trails (20-foot wide easement)
will change from $285,000 to $376,200.

2. DEVELOPMENT COSTS

A. Park Development Costs

Park development deficiency includes existing undeveloped public properties and the
development of yet-to-be acquired parkland necessary to achieve the established level
of service. There are approximately 30 acres of existing undeveloped parkland, as
determined by considering undeveloped and partially developed park sites. The City
utilizes third party construction cost indices from Washington State to determine
increases or decreases in development costs. These indices suggest that development
costs have increased by 14 percent since they were last amended in 2013. Therefore it
is estimated that park development costs will increase from $126,600 to $144,324.

B. Trail Development Costs

The 2013 update to this plan estimated a total overall cost for one mile of trail
development of $185,400. Utilizing the same cost escalator as was used for park
development, the new anticipated cost is $211,356. This cost includes a contingency of
twenty percent in order to address design, permitting, and mitigation costs.

PARK AND TRAIL ACQUISITION AND DEVELOPMENT DEFICIENCY COST

While there is no current deficiency in our trail system, certain trail projects are
necessary in the short term in order to address connectivity deficiencies between
residents and parks. Over the course of the planning period, 3.75 miles of additional
trails will also be established to meet 2038 LOS. While many of these trails will be
constructed as a condition of development, such development will be credited with the
equivalent cost of construction. As a result, this plan must include the construction
costs of all trails within its calculation. The total cost for trail acquisition and
development is estimated to be $2,962,000.

It should be noted that as of the date of adoption of this plan, there exist multiple
opportunities for new trail corridors in order to provide reasonable and desired

48
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

connectivity within the City, as a result of further densification. By 2038 it may be

appropriate to reconsider the adopted Level of Service that associates trail length with
population. This LOS could result in additional trails to meet the LOS, without clear
benefit in terms of connectivity. As a consequence, there is the potential that additional
trails within the City could create unnecessary redundancies and additional
maintenance costs.

This plan further anticipates that two new neighborhood parks and one new community
park will be necessary to achieve the adopted 2036 Level of Service. The neighborhood
parks are projected within the Douglas and Main Street/ Church Road area, and in the
vicinity of Portal Way/ Newkirk Road, with a community park to be built within the
unincorporated UGA in the vicinity of Church Road and Aldergrove Road. The plan
assumes that the neighborhood parks will be required as a condition of development
and that a community park may result from the dedication of land/ as a condition of
development in lieu of park mitigation fees.

For the purposes of this plan, neighborhood parks are projected to be three acres in size
and community parks fifteen acres in size (both projections are 60% of the maximum
size anticipated for that category of park). The regional park is expected to be built on
sixty acres of land, although non-park activities (including preservation of existing
vegetation) may result in reductions. In order to eliminate future deficiencies, a total of
twenty-four acres of parkland will need to be acquired and constructed, at a total cost
of $6,750,000.

EXPANSION/ REDEVELOPMENT OF EXISTING FACILITIES: COSTS

In addition to the acquisition and development costs for new facilities, this plan
identifies several projects within existing parks that become necessary in order to
accommodate new growth, to develop existing undeveloped areas, and to upgrade or
remodel existing facilities. These park redevelopment projects are anticipated to cost
approximately $4,110,000.

49
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

OVERALL PARKS, RECREATION AND TRAIL COSTS

This plan estimates the following total costs for Parks, Recreation, and Trails projects.

TRAILS AND PEDESTRIAN CORRIDORS $2,962,000

PARK REDEVELOPMENT $4,110,000

RECREATION PROGRAMS $220,000

PARK ACQUISITION AND DEVELOPMENT $6,750,000

CITYWIDE PROGRAMS $4,957,699

TOTAL $18,999,699

CITY ONLY $12,249,699

PROPOSED AREAS FOR NEW PARKS AND TRAILS

The “Ferndale Park & Trail System: 2038” map provides a conceptual reference point to
determine the approximate location for future parks and trails. The map should be
interpreted by staff and decision makers based on service area radius, connectivity
criteria, and environmental conditions to determine appropriate locations for park and
trail facilities. In situations where no suitable alternative exists, specific land parcels will
be identified for future acquisition and development. In general, staff and other decision
makers should either first seek land dedications and easements that are necessary for
park or trail projects identified in capital improvement plans, second to identify onsite
dedications and easements that were not previously identified but which have a realistic
benefit, or third to require the payment of development impact fees when land
dedication, development, or easements have little or no practical benefit to the
property or surrounding areas. Please see the Park and Trail Needs Assessment Process
in Appendix 3.

50
Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

51
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

SECTION 9: RECREATIONAL ACTIVITIES PROGRAM

Recreational activities, organized and

promoted by the City, are an
essential component of a successful
parks system. The goal of the City is
to organize high quality recreational
programs and services throughout
the community that provide fun,
educational, accessible, and safe
environments for people of all ages
and abilities.

To ensure the recreational offerings

align with the community’s interests,
especially in the light of rapid
population growth and demographic
shifts in Ferndale, the City annually
seeks out feedback from the public
on what programs to offer and when is the best time to offer them. These efforts
include, but are not limited to, online surveys, focus groups conducted by the Parks,
Recreation, and Trails Advisory Board, an annual parks audit, and in-person surveys at
events.

Currently, the community benefits from a number of organized sports activities

provided by third party organizations such as the YMCA, the Boys and Girls Club, and
other youth leagues. The City seeks to offer alternative events that do not include
traditional sports. Many of these activities reflect a lower capital cost to the city, as they
are one-time or periodic events with little equipment required.

52
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

2017 Pilot Program

In 2017, the City approved a modest budget ($3,000) and staff time for recreational
activities in the parks to be coordinated by City staff and the Parks, Recreation, and
Trails Advisory Board. After soliciting public feedback, they confirmed a slate of eight
events under the branding of “Summer of Fun”.

Funding was provided by the City, but

augmented by private sponsorship from local
businesses and a grant from the Whatcom
Community Foundation.

The recreational activities for 2017 were

selected to appeal to a wide selection of
Ferndale residents and increase awareness of
the City’s park system.

For instance, the Great Ferndale Treasure

Hunt was a city-wide scavenger hunt where
participants searched for eight treasure chests
in six different parks. This activity introduced
many community members to neighborhood
parks that do not normally enjoy high
visitation rates.

Some events were geared towards a specific

demographic. For instance, the Birdwatching
on the Nooksack started at the Ferndale
Senior Center and was promoted directly to
that group. The Storytellers in the Park was
designed with young children in mind and
promoted through the Ferndale Moms group.

All the events were provided to the public at

no charge, in locations accessible by public
transit and open to all ages.

There was an impromptu event added to lineup halfway through the summer: a viewing
event for the solar eclipse that drew an unexpectedly large crowd of 1,600 attendees on
a weekday morning. While the solar eclipse was a unique occurrence, the event drew
to Ferndale from as far as Seattle and the Lower Mainland of British Columbia,
confirming that when there are unique or important events in Ferndale, the potential
audience is significant.

53
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

By the end of the summer, over 2,200 people had participated in the events offered by
the City.

2018, 2019 and the Pandemic of 2020

The City expanded the recreation program to include monthly Food Truck Fridays,
Operation Splashmob and some indoor movie nights in the spring and fall. In 2019, the
City piggybacked on the Downtown Trick or Treat to offer a Mystery in the Park, an
interactive mystery event with live actors where participants could examine a crime
scene, interview suspects and vote on the guilty party.

In 2020, the Summer of Fun was suspended along with all public events due to the
COVID-19 outbreak. However, the City partnered with the Old Settlers Association to
provide the Old Settlers Variety Show, a celebration of Ferndale’s history and culture.
This streaming video event included interviews with long-time residents about Ferndale
history, a documentary from the Lummi Nation, an original radio drama performed by
local actors, a concert from local musicians and more. The program was recognized by
the Washington Recreation and Parks Association as one of their 2020 Spotlight
Program Excellence Award Winners.

In 2021, the recreational programs resumed with COVID-safe protocols in place.

As this program grows and expands, the City will keep the focus on providing
opportunities for residents to connect with each other, to enjoy the natural beauty of
Ferndale’s parks, and to practice a healthy lifestyle of physical activity.

54
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

SECTION 10: CAPITAL IMPROVEMENT PROGRAM

The Capital Improvement Program proposes the planned improvements to the Park,
Recreation, and Trails system between 2021 and 2038. A six-year Capital Improvement
Program shall be adopted annually. All capital projects included in the six-year
improvement program must be included in this section as well. The total cost estimates
provided in this table are intended to be consistent with (and generally less than) the
overall capital project costs described in Section 8.

Project-Specific Analysis

The City’s Level of Service provides Ferndale with the ability to adopt development
impact fees as a funding source for growth-related projects. The City’s LOS and State-
required concurrency regulations also require that the City identify and complete
projects within a given period of time. In any jurisdiction, projects may also be
55
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

identified that are not predominately associated with growth or level of service – these
are projects that are included within a plan less as the result of need, and more to
complete the City’s overall vision. Frequently, these projects are significant, both in cost
and in scope, and depending upon their success following construction may yield
substantial revenues (or substantial deficits) to the City and community.

Six such projects are briefly analyzed in this plan: the Portal Way park, a neighborhood
park adjacent to Portal Way, Playground Updates to Vista Ridge, Flair and Oxford Park,
the development of a boardwalk between the Ferndale Library and Pioneer Park, the
creation of a skate park, and development of Bender Park.

Development of Bender Park (Project PR-7): The City currently owns Bender Park, an
undeveloped area of land that is adjacent to a City water tank and three residential
developments.

Recognizing that the park’s adjacency to Eagleridge Elementary School and its
playground makes an additional playground in the same vicinity redundant, the City has
recommended creating a natural-themed fenced dog park at this location. The park
would be accessible from the south and include logs, nature shrubs and dog waste bag
dispenser. The development of this park could be handled directly by the public works
crew.

Regional Trail (Not included in Capital Plans): This plan references several draft plans
for a regional trail network, but notes that no final corridor location or governing
organization has been established. The Nooksack River plays a primary role in many of
these plans, and while river trail corridors are not a required element of the City’s
adopted Level of Service for parks and trails, such corridors are an essential component
of the overall identity of this community. This plan anticipates that Ferndale will play a
lead role in establishing a regional trail system through the city, and that components of
this trail will be established/ improved through public and private contributions, and
through the increased, informal use of trail corridors. Nothing in this plan shall
discourage the extension of trail corridors on both the east and west sides of the
Nooksack River, provided that all necessary permits are in place, as well as life/safety
and environmental protections.

Skate Park (Project PR-8): In response to vigorous public interest, the City pursued a
grant from the Recreation and Conservation Office (RCO) to build a skate park. In 2021,
the City received that grant to construct a 10,000 square foot skate park facility adjacent
to the Phillip-66 Ballfields that could be used by skater, bicyclists, scooter users and
more. This facility is line of sight from the Star Park playground, allowing for good
synergy and provides a unique recreation activity for residents of Ferndale. The design
work for this park began in 2022 with a robust public engagement campaign with local
skateboard enthusiasts. The park is scheduled to be constructed in 2024.
56
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

Portal Way Park (P-3): With the rapid residential development on Portal Way, the area
of the city is in need of a park within walking distance to maintain our parks LOS. To that
end, the goal is to establish a three-acre neighborhood park through developer
dedications and subsequent City construction. This will provide park amenities to an
under-served area.

Playground Updates to Vista Ridge, Pioneer Pavilion, Flair and Oxford Parks: The
playground facilities at each of these parks are in dire need of an update or expansion.
At Vista Ridge, there are only two features – a slide and some swings – and the park is
anticipated to see an uptick in use with the new housing development being
constructed directly adjacent to the park.

Adjacent to the Pioneer Pavilion, there is an aging playground that is ready for removal.
The Parks Board has considered a spray feature as a possible replacement.

In Flair Park, the aging equipment requires an upgrade at some point in the next six
years and perhaps an additional park feature to increase neighborhood usage.

Finally, Oxford Park has aging equipment that is nearing the end of their useful life.
Oxford Park is heavily used by the residents of new construction in the area and would
benefit from fresh playground equipment.

57
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

SECTION 11: FUNDING:

There are a wide variety of funding sources for the Parks, Recreation, and Trails System.
Because the City is limited in the types of sources for funds to support the delivery of
services, this plan only deals with those funding sources that stand the greatest
opportunity of being of service to the community.

Generally, the City will be working to use a variety of funding mechanisms to assist in
the delivery of the Parks, Recreation, and Trails Master Plan. Because of local funding
limitations, a careful strategy will be implemented that will include the following:

1. City General Fund and Bond issues and other voter approved methods
approximately 34%.
2. Developer impact fees approximately 34%.
3. Community donations and fund-raising efforts approximately 7%.
4. Use of volunteer labor and donated materials is approximately 6%.
5. Grants (IAC, Conservation Futures and others both public and private)
approximately 14%.
6. Partnerships with other jurisdictions approximately 5%.

The following resources, in a balanced approach, are deemed most favorable for the
delivery of the desired park system in Ferndale.

1. City General Fund: The General Fund receives monies for the City from
property and sales taxes and other sources where the City has maximum
flexibility in the use of the funds. This source should be utilized for the basic
maintenance and operations elements of the Parks, Recreation, and Trails
System.

2. Special Park Construction Fund: This fund holds approved dollars for
specifically authorized park projects once approved by the City Council.
Funds come from general taxes, bond issues, debt financing, grants, loans,
and other sources, but are placed in this fund to pay for major projects.

3. Park Mitigation Fund (Park Impact Fees): Park Mitigation Assessments

(Impact Fee) Funds in alignment with GMA requirements are assessed from
developers for use in creating or building development-related new parks,
trails, and facilities in accordance with the Park Master Plan and the City’s
Comprehensive Plan as updated. Use of these funds is limited by state law to
the “impact” created by new development. The City has determined that the
park impact fees and/or development dedications shall generate 50% of the
development-related costs of new park and trail space. For reference, draft
58
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

impact fee calculations are provided in Appendix 5 of this document. Park

impact fees must be adopted separately.

In some cases, land use applicants may wish to dedicate land, time, or
materials to establish parks or trails that are described within this plan. The
applicant shall first indicate to the City their desire to mitigate their impacts
through “sweat equity” and shall include the number of hours to be worked,
the equipment and materials that will be available for use, and any other
relevant information, including the construction or contribution of facilities
or other amenities, such as playground equipment. The City shall use
standard hourly rates for volunteer time, valued at $15.00 per hour (2021)
according to the Washington State Recreation and Conservation Office
(RCO)2. If approved by the City, all work shall be completed prior to the time
mitigation impact fees would be due. If work is not completed, the City shall
require the balance of fees paid.

Note: the City shall only provide “sweat equity” credits to those park and
trail projects that are impact fee-eligible; the City shall only provide credits
to those park and trail projects for which the applicant and their
volunteers are specifically responsible– the applicant shall not be
permitted to take credit for work completed by larger groups, in which
they were only a part.

Requests for consideration of the City accepting land in-lieu of fees shall be
submitted to the City for review by the Community Development Director
and the Public Works Director, and with consultation of the Parks,
Recreation, and Trails Advisory Board with final approval granted by the City
Council.

4. Grants: The availability of public, private, and foundation grants continues to

be uncertain. However, the City continues to be competitive for a variety of
grants thanks to efforts by Ferndale’s lobbyist and city staff. The City does
expect to identify projects in which a park or trail component is a secondary
element of a larger project that may be grant-eligible and shall aggressively
pursue grant opportunities through the Recreation and Conservation Office
and similar public or private agencies.

5. Transient Room Tax: Funds collected from this source come from motel,
hotel, and Bed and Breakfast rentals and can be used to enhance the tourism
attractiveness of the community.

2
The RCO allows for standard labor rates for certain skilled labor that is donated.
59
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

6. Volunteer Efforts: Volunteer effort is designed to be a major component of

this plan. Major effort must be given to develop city-wide and neighborhood
level volunteer efforts to build, maintain, and enhance the Park, Recreation,
and Trails system. The City will seek to partner with individuals, businesses,
non-government organizations, the Ferndale School District, and others to
establish volunteer programs meeting the following needs.

A. Adopt-a-field/ Adopt-a-park/ Adopt-a-trail: The responsibility for the

maintenance of certain neighborhood parks and trails is assumed by
interested individuals or organizations. This program fosters a sense of
pride and ownership in park and trail facilities in the City. In many cases,
volunteers are without a place at home to pursue hobbies such as
gardening. The shared maintenance of community parks and trails also
serves to build a sense of place and community within individual
neighborhoods.

Guidelines:

– All maintenance operations must comply with City of Ferndale

guidelines

– All chemicals, including lime and fertilizer, must be applied by a certified

licensed applicator, approved by the Ferndale Public Works Department.

– Adoption periods are a maximum of one year and subject to renewal.

Consecutive adoption periods may continue if both parties agree.

– The Adopt-a-Park program is a maintenance agreement and entitles

participants to perform only maintenance activities.

– No additions or changes to park facilities may be undertaken without

written request and approval of the Ferndale Public Works Department.

B. In-kind Donations: One of the most significant cost items, besides labor,
is material costs. The City of Ferndale accepts in-kind donations of beauty
bark, pea gravel, engineered wood chips, and landscaping materials on a
rolling basis.

C. Ferndale Food Bank Community Garden: Provided that land is made

available for such a use, a Ferndale Food Bank Community Garden will
include land available for citizen volunteers to raise and cultivate crops
that will be made available to the Ferndale Food Bank at no charge.

60
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

Citizen volunteers will be required to maintain the community garden,

purchase supplies (including seeds and plant starts), harvest the garden,
and transport the product to the Ferndale Food Bank. The Community
Garden is an existing contributor to the food bank.

D. Work Parties: On a regular basis the

City will identify specific locations
throughout the community at which
volunteer “work parties” will gather
to establish trails, improve parks, or
other similar projects that are
referenced in this document. In
2021, the City organized and carried
out a work party at Star Park to
clean, repair and add new artistic
features to the playground.

7. Community Donations: Private party

donations to help pay for specific
projects keyed to the Parks,
Recreation, and Trails Master Plan.
This also includes Eagle Scout projects
which must be individually approved by the Parks, Recreation, and Trails
Advisory Board.

8. Real Estate Excise Tax (REET): A tax upon the transfer of real estate limited
by state law to two 0.0025% increments. Funds from this source must be
used for facility development and cannot be used for operations and
maintenance.

9. SEPA Process: The City is authorized to require that mitigation be provided

for the impacts anticipated as a result of development. This mitigation is
often in the form of specific improvements or mitigation measures placed on
the land, such as the establishment of buffers, the dedication of land, etc. –
but mitigation may also be provided in the form of fees. These fees are
separate, and in addition to park impact fees paid for by developers, may be
applied to non-residential land uses. However, development which is in an
area requiring new park or trail space, the developer may dedicate land in
lieu of fees, and will receive credit equal or less than the park impact fees
owing.

10. EAGLE Program: The City has established an indicator-based program that is
a required element of major (20,000 square feet or greater) retail

61
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

construction. Though not specifically required, project applicants may elect

to provide land, funding, amenities and/or other resources that may be
utilized to achieve the goals of the Parks Plan.

Non-Traditional Funding Sources

In addition to identifying new sources of funding, including in-kind sources such as

volunteerism and dedications, the City will also seek to identify processes in which the
efficient use of City funds can be prioritized, and redundant services provided by
multiple agencies can be reduced.

1. Efficiency Review: The City will continue to examine each process to

identify alternative methods that will increase efficiencies and reduce costs.
Wherever practical, cost savings will be re-directed to address issues that
require additional funding.

2. Inter-Local Agreements: Ferndale should work with Whatcom County,

the City of Bellingham, the Ferndale School District, and the Lummi Nation
to determine an effective means whereby the provision of parks, recreation
and trails can be provided in a highly coordinated and efficient manner in
areas where jurisdictions or agencies are in close proximity, where a
duplication of services or resources is unnecessary, and/or where
maintenance and operations costs can be reduced without a reduction in
service.

Previous partnerships include working together on a Coast Salish mural on the Pioneer
Pavilion and working to include more historical information from the Lummi Nation in
Pioneer Village.

Section 11.1: Maintenance and Replacement Costs

The majority of this Parks, Recreation, and Trails master plan is necessarily focused on
the need for new park and trail facilities and the overall vision for parks, trails, and
recreation services. However, a significant component of the delivery of these services
depends on the degree to which ongoing maintenance is funded.

Since the Ferndale Parks Department was dissolved, the City’s Public Works Department
has overseen ongoing maintenance and replacement costs. As of 2021, the City funds
two full time parks maintenance employees, two part-time parks laborers and seasonal
labor during the summer months. The addition of the two part-time laborers in 2019
allowed for the park bathrooms to be open and maintained during the weekends and

62
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

provide assistance with recreational operations. The City also includes limited budget
for non-parks employees to assist in parks maintenance.

Not including seasonal labor, the City dedicates approximately 5,300 hours per year to
parks and park maintenance. This is equal to 2.5 full-time employees. The City budgets
a total of $362,014 for all parks labor to maintain the approximately 140 acres of parks
for which the City has responsibility. This equals a budget of approximately $2,585 per
acre of parkland, which is significantly less than nationwide standards.

The following is a comparison of the City of Ferndale’s parks services, compared to the
average park and recreation services nationally (Information provided by the National
Recreation and Park Association, 2016 Analysis, and the 2018 City of Ferndale Budget):

NATIONAL CITY OF FERNDALE PERCENT OF

AVERAGE NATIONAL
AVERAGE
PARKLAND PER 9.5 ACRES 10.29 ACRES 108%
1,000 RESIDENTS
PARK FUNDING $76.44 $26.57 35%
PER CAPITA
STAFF PER 10,000 7.4 2 27%
RESIDENTS
NUMBER OF ONE PARK FOR 1 PARK FOR EVER 217%
PARKS PER EVERY 2,277 1,047 RESIDENTS
RESIDENT RESIDENTS

The City anticipates that the combination of twenty-four acres of new parkland (a 17%
increase) and 3.08 acres of new trails (a 62% increase) will result in an overall increase in
maintenance responsibilities by approximately 25%. If all such projects were completed
immediately, this would require an increase to the annual parks and park maintenance
budget of approximately $94,000 in order to maintain the existing maintenance level of
service.

The Expansion/ Redevelopment of Existing Facilities that are listed in Section 9 must be
considered separately from both capital improvements and typical maintenance costs,
though individual projects may include elements of both. These projects may become
necessary due to damage, gradual deterioration over time, partial expansions, or some
other reason. Projects are typically a one-time expense that may or may not be
anticipated. This plan recommends that a dedicated fund be identified for both planned
(such as roof replacement) and unplanned (such as the replacement of vandalized
playground equipment not covered by insurance) costs.

63
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

Section 11.2: Funding Analysis/ Revenue Gap

This section includes a discussion of the overall maintenance and capital improvement
costs, as well as the anticipated revenues from various park-eligible sources. If there is a
gap between costs and revenues, the City will need to determine whether projects
should be eliminated, reduced, or if additional revenue sources (higher fees, park bonds
and levies, etc.) should be considered to close the gap. The City is not required to
demonstrate that it has or will have cash on hand but must show that it has made
reasonable assumptions to fund the projects.

The City has the following anticipated expenses in order to complete and maintain level
of service for parks and trails. Expenses are overall expenses unless otherwise noted:

Improvement Type Total Costs

Park and Trail Capital Projects
Park Acquisition and Development $6,750,000
Trail Capital Projects $2,962,000
Park Redevelopment $4,110,000
Subtotal Capital Projects $13,822,000
Park and Trail Maintenance Programs
Maintenance and Operations $8,000,000
Repair and Replacement $200,000

Recreation Program $220,000

Subtotal M & O and Recreation Programs $8,420,000
Existing Debt Service (Impact Fee Eligible) $957,699 (January 2018)
Total Costs $23,199,699

Capital projects necessary to support adopted levels of service are required only if
anticipated residential growth occurs. In turn, that residential growth is expected to be
responsible for 50% of the total costs of such projects. Therefore, park mitigation fees
(and associated dedications) are intended to raise up to $6,900,000, based on
anticipated growth. Should less growth occur, the need for capital projects will also
diminish. Ideally, sufficient funds will be available incrementally throughout the
planning period to address the needs for capital projects – and variations within the
planning period will be addressed in annual 6-year Capital Improvement Project (CIP)
assessments. Should significant trends be identified, this plan will also be updated.

64
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

The remaining $6,900,000 for capital projects must be raised through other sources
described above. Of this remainder, 60% (or 30% of the total costs) are anticipated to
be funded from the General Fund, which is also the primary source for maintenance,
labor, recreation, non-growth related development, and playground replacement
expenditures. This means that the general fund, including bond revenues, will be
required to account for overall costs of approximately $12.2 million (including $8 million
associated with recurring maintenance and operations salaries and equipment). This
results in an average annual General Fund cost to the City of $1.63 million per year.

Volunteer donations, including labor, equipment, monetary donations, and land

donations that are separate from development activities, are expected to equal almost
$1.2 million over the twenty-year period, or average $60,000 per year. This plan
anticipates that annual donations will likely ebb and flow over the planning period, and
may be closely tied to specific capital campaigns or specific projects. As an example,
nearly $300,000 in community donations were received as part of the Star Park project
in 2016. However, it should be noted that a significant portion of donations will likely
be the result of park and recreation projects that are not directly tied to capital projects
necessary to meet Level of Service requirements. In turn, these projects may also be
more attractive and visible to the general public than LOS-related projects. Thus, it will
be necessary for the City to aggressively publicize general capital facility projects
throughout the planning period.

Lastly, grant opportunities (14% of total costs) are anticipated to equal $2.7 million over
the twenty-year period, or approximately $135,000 per year.

This plan also assumes an average annual cost of $10,000 for the repair and
replacement of various park facilities not covered by insurance. Depending upon the
level of maintenance and other factors, this annual cost may fluctuate from year to year.

65
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

APPENDIX 1: GOALS AND POLICIES

Goals and Policies: Citywide Park and Trail Facilities

Goal A. Overall Vision: Provide a unique, varied high quality Parks, Recreation, and
Trails experience for Ferndale residents and visitors of all ages.

Policies:

1. The adopted Parks, Recreation, and Trails Master Plan represents the vision
of the City of Ferndale for Park, Recreation, and Trails over a twenty year
period. If the projects within this plan are completed and maintained,
Goal A (above) will be achieved.

2. The adopted Parks, Recreation, and Trails Master Plan will be utilized as the
primary planning document to identify future capital projects and park
vision.

3. The Parks, Recreation, and Trails Advisory Board will advise the City Council
and City staff on certain decisions associated with long-range parks
planning.

4. The Ferndale City Council shall retain the final authority on long-range
parks planning, including the authorization of park funding.

5. The City of Ferndale will utilize this plan and related comprehensive plans
as a basis for seeking additional funding from other sources.

6. Capital projects that are not reflected in this plan will not be considered for
City funding. Where appropriate, this plan shall be amended to include
capital projects that are not specifically listed.

7. The Parks plan should be periodically updated to ensure the plan evolves to
meet the changing needs of the Ferndale community.

Goal B. Accessibility and Safety: Parks and Trails should be visibly accessible to
enhance safety, reduce vandalism, and increase use.

Policies:

66
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

1. Parks should be developed with public street frontage, unless otherwise

noted.

2. The primary entrance to parks shall not be accessed primarily through

trails, easements, private drives, or “flag lot” arrangements, unless
otherwise noted.

3. Parks at corners of intersecting streets are preferred, unless otherwise

noted.

4. Parks visible and accessible from multiple rights-of-way are preferred,

unless otherwise noted.

5. Parks shall not be located primarily behind residential parcels, unless

otherwise noted.

6. Constructed facilities such as play structures and picnic shelters shall be

located so as to be highly visible from adjacent rights-of-way, unless
otherwise noted.

7. Constructed facilities such as play structures and picnic shelters shall be

constructed of durable materials that are resistant to
vandalism.

8. Advertising within neighborhood parks shall be prohibited, with the

exception of community events within parks approved by the City,
and/or the display of the names of community groups who have
sponsored a park.

9. Park and trail access points should include consistent, identifiable

markings and/or signage.

10. Constructed facilities such as play structures and playground equipment

shall be made of durable materials with an anticipated lifespan of twenty
years or more. The City expects to utilize the State bid list for approved
playground vendors.

67
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

Goal C. Environmental Impacts: Parks shall limit impacts on the natural

environment

Policies:
1. Parks shall utilize recycled or natural materials for sport court
surfaces, playground fall absorbent surfaces, etc. to the greatest
extent feasible.

2. Vegetation in parks shall primarily be native to the Pacific Northwest.

Goal D: Durable construction. Parks shall be constructed to encourage lifelong use

of the park.

Policies:
1. With City approval, individual parks may include not only
playgrounds but benches, activity centers, community gardens, or
sport courts.

2. All neighborhood parks shall be named. If the park is dedicated to

the City by an individual, business, or other entity, that entity may
propose names, subject to City Council approval. Corporate or
business names are discouraged, while names that have local
meaning are encouraged.

3. The establishment of new neighborhood parks shall include a

consideration of the costs necessary to maintain and operate the
park.

Goal E. Encourage Lifelong Physical Activity, Education, and Mental Well-Being:

Policies:
1. Offer recreational activities in Ferndale Parks that encourage physical
activity, engaging with the natural world and healthy living.

2. Ensure that residents have access to recreational activities without

regard to income level, level of education, or mobility.

3. Strengthen ties between neighbors through joint participation in

community events that encourage interactions and finding common
experiences with those around them.

68
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

4. Provide trails that comply with the Americans with Disabilities Act
(ADA) where required.

5. Permit and clearly mark authorization for multiple uses of trails and
facilities – walking, running, bicycling, etc.

6. Utilize interpretive materials to identify and describe historical points

of interest, native vegetation, unique views, trail names, mileage
markers, and more.

7. Provide adequate opportunity for quiet rest and contemplation.

8. Provide adequate opportunity for self-directed physical fitness,

including distance markers, outdoor exercise equipment, and more.

Goal F. Promote community involvement and volunteerism: Parks and trails not only
shape the community; they are shaped by the community.

Policies:
1. Actively engage the community in park planning efforts

2. Describe and promote volunteer opportunities

3. Establish adopt-a-park and adopt-a-trail programs.

4. Establish interlocal agreements with Ferndale School District,

Whatcom County, Port of Bellingham, and other local, state, federal,
or other private and public agencies.

5. Identify community and corporate partners who may provide funding

assistance.

6. Expand Community Cleanup Day to include parks and trails.

7. Establish the Parks, Recreation, and Trails Advisory Board as the

initial coordinating body for volunteer events.

Goal G. Re-establish a permanent parks department to oversee the elements of this

plan. The coordination of multiple elements of Parks, Recreation, and Trails,
including programming, capital projects, maintenance, fundraising, and best
management practices will be most effectively managed by dedicated parks
personnel.

69
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

Policies:

1. A permanent Parks Department must be provided with sufficient and

consistent resources that would enable it to remain effective for the
foreseeable future.

2. A permanent parks department should not be re-established until

sufficient and consistent resources are available.

3. Sufficient and consistent resources for a parks department must

include permanent administrative and maintenance staff,
equipment, office space, and budget.

Neighborhood Parks Goals and Policies

Goal A. Proximity to residents: Neighborhood parks should be within walking

distance of the homes in the neighborhoods they serve.

Policies

1. Neighborhood parks shall be located no more than a ten minute walk

from the dwelling units they serve, and when feasible shall be located
within a five minute walk or less from those dwelling units. Non-
vehicular access will predominate.

2. Where Community or Regional Parks exist in a Neighborhood Park

service area, they may substitute for the Neighborhood Park when
appropriate facilities exist in the Community or Regional Park.

3. New Neighborhood Parks shall be dedicated/developed as new

residential areas are approved for development, if no existing park
facilities are available within the service area.

4. Trail connections will be utilized to connect Neighborhood Parks to the

communities they serve and increase non-motorized connectivity to
those parks.

5. Updates and improvements to neighborhood parks should be

considered before the establishment of new parks within existing service
areas, unless delays in parkland acquisition will significantly increase costs.

70
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

6. Surrounding neighborhoods should be aware of nearby parks through

the use of appropriate signage and other means and volunteer
opportunities should be made available to those residents, in order to
foster a sense of ownership.

7. The City should monitor the number of residents within walking

distance of a neighborhood park and ensure that the carrying capacity
of individual parks is not exceeded. The carrying capacity for
neighborhood parks is typically assumed to be 1,000 residents per one
acre of park land. No parks were determined to be at or near carrying
capacity limits in 2013, but a carrying capacity analysis should be
performed prior to construction new parks, if parks become unavailable to
the public, and/or if there is significant population growth in the areas
surrounding certain parks.

Goal B. Activities: Neighborhood Parks should provide basic park activities that
can be enjoyed on a daily basis.

Policies.

1. Neighborhood parks should generally provide space for active and

passive activities, and should include playgrounds and
picnic areas.

2. Some neighborhood parks may be defined by natural features and

vegetation, without significant improvements for play structures or
formal picnic areas.

Community Parks Goals and Policies

Goal A. Proximity to residents: Community Parks should be located within a

five minute drive (or twenty minute walk) of the neighborhoods that they
serve. These parks shall include elements of a neighborhood park, and may
include the functions of a neighborhood park, but should generally include
additional elements that depend on greater land area, such as ball fields or
similar amenities.

Policies

1. Community parks shall be located within a one-mile radius of the

neighborhoods that they serve.

71
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

2. Non-vehicular access to community parks should be promoted and

encouraged through the use of trails and establishment of bicycle
racks, but due to the nature of activities within parks, motorized
vehicles will likely remain the primary mode of travel, varying from
park to park.

3. Natural features such as streams, bluffs, forested areas, and wetlands

are encouraged on and adjacent to community park dedications
consistent with the provisions of the natural resource area
dedications.

4. The establishment of new community parks shall include a

consideration of the costs necessary to maintain and operate the
park.

Goal B. Park Size: Community Parks shall be of sufficient size to accommodate the
immediate service area, as well as a larger area that may be attracted to unique
attractions or events within the park.

Policies:
1. Community parks will generally range from one to twenty-five acres or
more in size.

2. Community park dedications should provide adequate area with

appropriate topography to accommodate the facilities required in
such parks.

3. Whenever feasible, a minimum of 3 acres of generally level land

shall be available for development into formal ball fields and open
play fields.

4. Community park dedications should be located along property lines

to accommodate future land dedications which link to create a larger
overall park site.

72
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

Goal C. Park Amenities: Each Community Park shall provide a range of amenities,
attractions, and other activities.

Policies:

1. Community parks should include activities for each age group and level of
ability.

2. Opportunities for formal or informal walking trails should be considered.

3. Natural and historic features should be identified.

4. Where appropriate and funding is available, art should be

incorporated into community park facilities. Such art may consist of
sculpture, benches, railings, lighting, buildings, or other park amenities.

5. Recreation activities unique to each community park, such as disc golf,

rugby, ball fields, skate parks, educational programs, or other attractions
may be considered.

6. Where appropriate, natural features such as wetlands, mature

vegetation and trees, views unique to Ferndale, or other elements
should be retained in their natural form to the greatest extent practical.

Goal D. Adequate parking

Policies:
1. Parking shall be provided in proportion to the park area and the
recreation facilities developed.

2. Parking shall be distributed around park areas as appropriate.

73
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

Regional Parks: Goals and Policies

Goal A. Regional Draw: Regional Parks should not only include recreation activities and
amenities available to the surrounding area, but should also provide amenities,
including open space, that are unique or of significant size to attract visitors
throughout the city and beyond.

Policies:
1. Regional parkland may be considered for acquisition prior to the
identification of regional amenities only when development pressures
necessitate immediate acquisition.

2. The development of new regional parkland should be based in part on the

need for specific amenities within the park, and not only on a need for
additional park acreage.

3. Regional parks shall be designed to accommodate overflow parking and

shuttle services during events with high attendance.

4. In those regional parks that support a variety of amenities and events,

parking, restrooms, and other facilities should be shared and distributed
throughout the site that is convenient to each activity.

5. The City shall seek to partner with other agencies to fund development and
maintenance costs of regional parks that support events with an impact on
the larger region.

Linear Parks and Trails: Goals and Policies

Goal A. Connectivity and Access: Trails and linear areas are intended as
transitory spaces through which pedestrians, bicyclists and others can travel to
and from their residences, parks, schools, and other locations.

Policies.

1. The effective use of trails and linear spaces will depend on the public
expectation that such spaces provide connectivity in a safe environment. In
order to foster the sense of connectivity, existing trails and sidewalks will be
utilized to establish connectivity wherever possible.

74
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

2. Where practical and cost effective, new trails will be constructed as an

alternative corridor to sidewalks in order to complete non-motorized
connections.

3. Trail connectivity should include access to school and public bus stops
wherever possible.

4. Trail development should consider expansions to connect to regional trail

facilities, particularly trail expansions along the bank of the Nooksack River.

Goal B. Safety: Linear Parks and Trails should provide a feeling of safety for users

Policies:

1. Trails shall have entry and exit points at least every five hundred feet
whenever feasible.

2. Trails shall not be vegetated to the extent that they resemble an enclosed
space with no visible entry or exits

3. Trail use shall be discouraged at night unless adequate lighting is

provided.

4. When trails cross public right of ways (streets), signs indicating

pedestrian crossings shall be posted, a crosswalk shall be established
when vehicular traffic volumes warrant one, and the entry and exit points
for the trail shall be clearly marked.

5. Uniform trail markings shall be utilized in order to clearly designate

trailheads, wayfinding, and other functions of the system.

Goal C. Preservation of Open Space, Views: Linear Parks and Trails should
provide visual access to open space, natural areas, and views.

Policies:

1. To conserve land, trails are encouraged within and adjacent to critical areas,
buffers, parks, stormwater facilities, utility corridors, alleyways, and
community open space.

75
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

2. Trails in regulated wetlands and buffers are permitted when impacts are
mitigated as required in the City of Ferndale Critical Areas Ordinance. In
such areas, trail width may be reduced in order to avoid or reduce impacts.

3. Where trails are not located adjacent to critical areas, parks, and open
space the trail corridor should average 15 feet in width.

4. Trails are encouraged on ridgelines or other high ground or slopes with

views.

5. Trail corridors in alleys and similar spaces should be well-lit and should
include an exit/ entrance at least every 150 feet.

6. Linear parks and trails shall comply with Americans with Disability Act
(ADA) requirements where feasible.

76
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

APPENDIX 2: PARKS AND TRAILS CONNECTIVITY MAPS

MAP 1: EXISTING CONNECTIVITY

77
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

MAP 2: FUTURE CONNECTIVITY

78
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

MAP 3: 2013 CONNECTIVITY

79
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

MAP 4: NETWORK ASSUMPTIONS

80
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

The Parks and Trails Connectivity Map (Current) is intended to assist staff and the
general public in identifying the need and location for future park and trails projects.

The map was created with the assistance of the City’s transportation consultant (the
Transpo Group), based on the connectivity requirements in the City’s adopted Level of
Service (LOS), utilizing the Transpo Group’s ViaCity evaluation methods. Since 2013, the
level of connectivity has increased from 72% to 77% of households within a 10-minute
walk of a park. The Parks and Trails Connectivity Map (Future) includes a number of trail
improvements identified in this plan. If these improvements are completed, over 80%
of households will be within a ten minute walk of parks.

Periodic analysis will be required to determine actual LOS, as “infill” growth will tend to
increase the percentage of residents in close proximity to parks, while growth in
outlying areas will tend to reduce this percentage. The Future connectivity map does
not include potential new parks, but does further demonstrate the potential need for
such parks in those areas that lack connectivity now and, in the future, as is discussed in
more detail below.

Methodology

ViaCity examines the non-motorized transportation network in order to identify

potential obstacles that may limit accessibility and connectivity. For example, the lack
of a sidewalk along a busy roadway will limit the ability of residents to walk from their
home to a destination (such as a park or school). Crosswalks (or the lack of them) may
increase or decrease pedestrian mobility, and significant elevation changes may also
reduce the distance a pedestrian may be able to walk within a given timeframe.

Additional limitations, such as overhanging vegetation, broken sidewalks, lack of street

lighting and more may further limit mobility. These limitations are not factored into the
ViaCity model, but will be monitored through the administration of this plan and in
coordination with sidewalk improvement efforts, vegetation control, and walk to school
programs. The City will also seek to confirm whether statistical obstacles (such as the
lack of sidewalks) represent an actual impediment to pedestrian mobility, especially in
those neighborhoods with low to moderate street traffic, wide shoulders or other
factors that may allow for walking even when infrastructure is not available.

The Connectivity Map identifies the access points of all public parks, school facilities,
and private parks. Rather than identifying a radius around each access point, the map
measures the actual walking distance along adjacent streets, based on the average
walking speed of ½ mile in ten minutes. Areas that are within a five minute walk of a
park are shown in green, areas with a walk time of 5-10 minutes are shown in yellow,

81
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

and areas with a walk time greater than ten minutes are shown in red. Only those areas
zoned for residential uses are shown.

Areas with mobility obstacles (lack of sidewalks, crosswalks, etc.) are assigned varying
degrees of delay. In those situations where a sidewalk is not present, the model
assumes lack of access. For example, the east side of Vista Drive does not include a
sidewalk and are generally shown in red. However, many of these properties are in
close proximity (in some cases directly across the street) from park or school properties.
This plan recognizes that residents in this area can in many cases safely cross Vista Drive
and arrive at a park destination within ten minutes. However, the volume of traffic
along Vista Drive does not make this an ideal situation for walkers. Conversely, areas of
Maureen Drive north of Thornton Street (as an example) also lack sidewalks, but street
traffic is far less than Vista Drive, and the lack of sidewalks is not a significant obstacle.
City administrators will consider these factors when identifying future park and trail
projects.

Overall, the largest areas with mobility/connectivity issues are found between Shannon
Avenue and Church Road, generally south of Heather Drive, and in residential areas to
the east of Portal Way. The Church/Shannon area has relatively steep topography and
includes several neighborhoods that were established without parks or trail access. It is
unlikely that parks or trails can be developed within the center of these neighborhoods,
due to acquisition costs and other factors. Instead, the area will likely benefit from the
creation of new parkland north of Main Street as well as improvements in connectivity
in and around the Spruce Court area.

The Portal Way area had not been built out at the time this plan was adopted. The
linear nature of the neighborhood limits compliance with Level of Service connectivity
goals, as the existing park within the Portal Commons neighborhood would exceed a
ten-minute walk time for residents in other areas, such as the Whiskey Creek
neighborhood. As new neighborhoods are established, the City will seek to identify a
centralized neighborhood park, and to promote a linked trail network that may
ultimately link Trigg Road to the Nooksack River and a regional trail system, parallel to
Portal Way.

82
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

2038 Parkland Needs Assessment: Connectivity

2013 Deficit Projects 2038 Deficit Projects
Locations Necessary to Locations Necessary to
Achieve LOS Achieve LOS
Households 49% - Thornton Thornton Street Variable – see below
within .25 Street east of improvements
Church (sidewalks)
mile of park - Malloy
- not Road south
measured of Thornton
per LOS(%) - Vista Drive
south of
Seamount
- Vista Drive
west of Third
Households 77% - Douglas ~75% - Portal - Newkirk or
within .5 Road Way Kaas Road
- Vista Drive - Shannon Avenue neighborhood
mile of park (East) Park Development - Church park dedicated
– LOS - Newkirk Road north as condition of
requirement Road - Douglas of existing development
- Ferndale Road City limits
Terrace/ sidewalks - North
Seamount and trail - Vista Drive Church/Vista
west of Vista connectivity north of community park
Drive to existing City dedicated as
- Main Street Southwest limits condition of
west of Pond development
Douglas - Portal Way Malloy
sidewalks Road north - Western bank
of existing of Nooksack
City limits shoreline trail
north of
- LaBounty VanderYacht
Drive south Park to City
of Smith limits
Road

83
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

APPENDIX 3: PARK AND TRAIL NEEDS ASSESSMENT PROCESS

84
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

APPENDIX 4: GLOSSARY OF TERMS

Capital Project: means a project that purchases or constructs facilities owned by the
City. Such projects are distinct from maintenance projects, which do not involve an
expansion of City facilities.

Capital Improvement Program (CIP) (also 20-year Capital Improvement Program):

means the City of Ferndale Parks Capital Improvement Program. The CIP consists of
those Park, Recreation, and Trails projects that have been identified by this plan as
becoming necessary within the twenty-year planning period, including capital and
maintenance projects. In some cases, these projects may be reflected on both the Parks
CIP and the Public Works CIP for road and sidewalk projects.

Carrying Capacity: means the anticipated use (expressed in number of residents within
a park’s service area) that a park can support without becoming overused. In 2018, no
parks were determined to be at or near capacity overall, although some amenities
within parks may require expansion.

Six Year Park CIP: means those projects contained within the 20-year Capital
Improvement Program that are anticipated to be constructed within six years. These
projects are typically assumed to be partially or fully funded, are necessary to prevent a
reduction in the City’s adopted Level of Service, and/or are required maintenance
projects.

Parks, Recreation, and Trails Master Plan: means a document approved by the Ferndale
City Council and adopted by reference to the Ferndale Comprehensive Plan. The plan
establishes an overall vision for parks and trails within the City of Ferndale, adopts a
minimum Level of Service for such facilities, and is the basis for the City’s Parks Capital
Improvement Program and park impact fees.

Urban Growth Area (UGA): means the existing City limits as well as that area in which
the City could expand over the twenty-year planning period.

Ferndale Comprehensive Plan: means the State-required twenty-year plan for the City
of Ferndale. The Comprehensive Plan consists of several elements, including Land Use,
Housing, Transportation, Capital Facilities, twenty-year utility plans, and additional
information. The plan contains the City’s overall vision, and is the basis for decision-
making within the City of Ferndale.

Growth Management Act (GMA): means the Washington State Growth Management
Act (36.70a RCW).

85
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

Critical Areas Ordinance: means the City of Ferndale Critical Areas Ordinance (FMC
16.08)

LOS: means the City’s adopted Level of Service for parks and trails. The Level of Service
represents the minimum expectations of the City for the delivery of parks and
recreation services to the community, expressed by residents’ relative
proximity/connectivity to parks and trails, as well as the amount of park and trail space
necessary to accommodate the overall population.

Walk time: means an expression of the distance between park users and their
destination, described as the time required for an average adult to walk from their
residence to nearby park(s) in good weather conditions.

Connectivity: means the extent to which park users can gain entry to parks through the
City’s trail system, as a contributing factor to walk time calculations. For example,
increased connectivity between a residence and a nearby park will likely result in
reduced walk times and increased park use.

Usable Space: means that area within a park that can be reasonably utilized for park-
related activities, and does not typically include park areas dedicated to landscaping,
vegetation, critical or sensitive areas.

86
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

APPENDIX 5: DRAFT DEVELOPMENT IMPACT FEES

The City of Ferndale Park Development Impact Fees (Mitigation Fees) are based upon
the total costs of growth-related capital projects, the overall share of those costs to be
borne by development, and the anticipated population increase during the planning
period. The calculations result in a cost per resident, and then re-calculated based on
the average number of residents per single family or multifamily residence, as shown at
right, and further documented below.

Park Capital Costs: $6,492,000

(Two neighborhood parks, one community park)
+
Growth-Related Amenity Improvements: $500,000
(Pioneer Park playground expansion, misc. additional improvements)
+
Growth-Related Trail Capital Improvements: $2,079,168
+
Existing Debt Service: $1,293,128
(Griffintown and Riverwalk Parks)

Total Twenty-Year Cost: $10,364,306

Developer Share of Total Costs @ 30%: $3,109,292

Developer Share of Total Costs @ 50%: $5,182,153

Population Growth Assumption 2013-2034:

8,315

Per Capita Share of Growth:

(Developer Share divided by growth assumption)
@30% = $373.94
@50% = $623.23

Single Family Persons Per Unit: 2.77

Multifamily Persons Per Unit: 1.82

Multi Family Fees

@30% = $680.57 @50% = $1,134.28

Single Family Fees

@30% = $1,035.81 @50% = $1,726.35

87
 88
Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

Growth-Related Park Capital Improvement Costs Growth-Related Amenity Growth-Related Trail Capital Improvement Costs Total Growth-Related
(Section 10.1) Improvement Costs (Section 9) (Section 10.1) Existing Debt Service Capital Costs
Pioneer Park playground
Two Neighborhood Parks, One expansion, miscellaneous park Griffintown and
$6,492,000 Community Park: 24 Total Acres $500,000 amenity improvements $2,079,168 4.42 Trail Miles $1,293,138 Riverwalk Parks $10,364,306.00
Developer Share of Total Costs Population Growth Assumption 2013-2034
30% 50% 8315
$3,109,291.80 $5,182,153.00
Per Capita Share
30% 50%
$373.94 $623.23
Development Impact Fees Persons Per Unit 30% 50%
Single Family 1.82 $680.57 $1,134.28
MultiFamily 2.77 $1,035.81 $1,726.35
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

APPENDIX 6: EXISTING AND PROJECTED FUTURE GROWTH

(FROM FERNDALE TRANSPORTATION ELEMENT)

89
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

APPENDIX 7: PUBLIC INVOLVEMENT (2018)

The City of Ferndale sought to involve the public in a number of ways when updating
the Parks, Recreation, and Trails Master Plan. Beginning in 2015, the City solicited
public feedback on all elements of the
Comprehensive Plan and developed
dedicated web pages for the process.
Through the 2016 update of the
Comprehensive Plan, the City also held
several public workshops, a
Community Town Hall meeting, and
spoke to a variety of community
organizations.

In total, well over 1,000 comments,

responses, written suggestions, or
attendance at parks-related
informational events were provided to
the City between 2015 (the beginning
of the Comprehensive Plan process) and final adoption in February 2018.

The Ferndale City Council has also changed

dramatically in the last two election cycles,
with five of seven members joining the
Council since 2015. In January 2018, the
Council unanimously selected parks and
parks planning as the number one non life-
safety priority in the City.

90
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

The community has always been tied to the

school district, and the City and Ferndale
School District have sought to strengthen the
ties between the two organizations over the
last decade. These efforts have included
attendance at school board meetings,
presentations at school assemblies, and
participation in Parent Teacher Organization
events.

Generally, the public requested

additional services and activities, as
well as more information about
existing parks and trails, resources
for the elderly, activities for young
adults, and more. While concerns
were expressed related to the cost of
development and maintenance of
parks and trails (and the relative
priority of these amenities, vs. “life-
safety” infrastructure), there was
little desire to modify the underlying
philosophy of the 2013 Parks Plan.

91
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

In 2016, the City built a major playground – Star Park – using volunteer labor. As noted
in this plan, Star Park was the largest volunteer effort in Ferndale’s history, totaling
nearly 800 volunteers and thousands of hours of volunteer time. Through this
playground build the City gained additional insight into the long-range needs and
expectations of the community, and the community has remained engaged on parks
following Star Park’s construction.

During this process, the City was also able to speak directly to hundreds of school
children by visiting them in their classrooms. This represented somewhat non-
traditional public involvement, where the children were able to identify their needs and
wants, without the filter of their parents. These insights proved invaluable, and
ultimately helped decisionmakers to understand that parks and recreation in the future
will vary from the parks and recreation from the past.

92
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

As the City began work on the update to the Parks Plan in 2017, additional feedback was
solicited online through surveys, the City’s 2017 Recreation Program, an additional
Town Hall meeting, and numerous public meetings, both informal (the town hall and
recreation activities) and formal (the Parks, Recreation, and Trails Advisory Board,
Planning Commission, City Council).

Lacking a daily newspaper, over the last

several years the Ferndale community
has relied more heavily on social media,
primarily the informal Ferndale
Neighbors Facebook page, the Discover
Ferndale online news page, the City’s
own Facebook and social media
accounts, and the social media pages of
the various schools in the Ferndale
School District. It should be noted that
the City of Ferndale has one of the
largest social media presences in
Washington State in terms of total users
– more than twice the number of users
as the City of Seattle’s Facebook page,
for example. The City sought to
integrate parks and parks planning into
posts on these pages, and received a
significant number of responses and
suggestions.

In total, the City received 343 responses

to a 2018 survey related to parks and
recreation, in addition to other
comments received during the process.

93
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

Selected 2018 Survey Results

94
 Ferndale Parks, Recreation, and Trails Master Plan - 2021 Update

APPENDIX 8: PUBLIC INVOLVEMENT 2021 UPDATE

As part of the 2021 update to the Parks Master Plan, the City conducted a robust
outreach to the community to seek input. In February 2021, the City launched a survey
advertised through all city channels (social media, print newsletter, electronic reader
board) that asked about preferred activities in the park, park usage and needs for the
future park facilities. The City received 235 responses and used this data to shape the
update to the 2021 Parks Master Plan.

The Parks, Recreation, and Trails Advisory Board (PRTAB) held a series of public
meetings from February 2021 until November 2021 to discuss each section of the Parks
Master Plan with mailed invitations to specific neighborhoods as each area of the city
was discussed. 47 community members participated beyond the nine person PRTAB
membership.

The draft parks master plan was also distributed to the Ferndale Chamber of Commerce,
the Ferndale Kiwanis Club, and the Ferndale School District for comments and feedback
and the City received fourteen substantive comments which were then incorporated
into the final draft. The draft plan was also presented to the Planning Commission for
initial feedback

95
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN
ECONOMIC DEVELOPMENT ELEMENT:
CONTENTS SUMMARY OF CONCLUSIONS

•Purpose  The Ferndale economy includes the

•Existing Conditions “Ferndale Market Area,” consisting of the
•Summary of Local Economy Ferndale School District boundaries, the
Existing Economy- Relevant Indicators Lummi Nation and Cherry Point.
Average Income
 Ferndale’s existing economy is based
Sales Tax Base
primarily on manufacturing within and
Major Employers in Ferndale
outside of the City limits, service
Business Sectors
industries, and construction.
What if Analysis:
Loss of Major Employer  Retail sales in Ferndale are significantly
Climate Change Refugees lower than the average for a community of
•Strengths its size, reflecting Bellingham’s higher-
•Weaknesses than-average capture of retail sales.
Ferndale Rising
What if Analysis:  Ferndale’s location, access to markets
Large Format Retail and infrastructure, and an educated
•Ferndale’s Future Economic Development Prospects workforce makes it ideal for new
•Opportunities and Programs Intended to Foster Economic Growth businesses wishing to expand locally or
What If Analysis: develop locations in Northwest
Regulation Reduction Washington.
British Columbia Economic Collapse
 Residential growth in Ferndale will make
•Implementation
it increasingly attractive to retail users
•Goals and Policies
within the next twenty years – closing the
retail sales gap.

 Jobs to population ratios will improve in

PURPOSE the next twenty years, decreasing
“bedroom community” factors.
This element of the Ferndale Comprehensive Plan is intended to
provide the community, applicants and decision-makers with a general  Specific economic development
background and a basic understanding of the local Ferndale economy programs intended to achieve the goals of
and the manner in which that economy may evolve through 2036 and this element are not included in this
beyond. This element shall not stand in place of, but is to be used in element.
support of, reasoned decision-making, programs or strategies that are
employed for the purpose of preserving or enhancing Ferndale's
economy throughout the twenty-year planning period.

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 1
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN
Ferndale's Economic Development Element includes that information that is required by the
Washington State Growth Management Act. The element briefly describes local economic history
followed by an analysis of the existing economy. Future changes are then considered.

Rather than focusing on potential threats or weaknesses, this element also seeks to expand "what if"
statements found throughout this comprehensive plan by exploring potential significant changes within
or outside the City's control that could impact the local economy. These questions reflect the City’s
understanding that the majority of decisions that will have an impact on Ferndale’s economy may be
influenced in some way by City regulations, but will ultimately be made by private interests. The
questions are intended to help position the City to take proactive measures (or informed reactive
decisions) in periods of transition or turmoil.

The element concludes with goals and policies that are intended to guide future decision-making, with
the expectation that individual projects or programs may greatly expand on this very general economic
development chapter.

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 2
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN
EXISTING CONDITIONS:

As shown in Figure X, below, Ferndale’s economy has evolved over the last century, and it will continue
to change over the next twenty years as the community continues to change.

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 3
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN

Summary of Local Economy

Ferndale’s economy is closely tied to industries at Cherry Point, while its character remains associated
with resource extraction industries (fishing and agriculture). The City’s location at the geographic center
of Whatcom County’s population – and along its major transportation corridors – creates an existing and
potential influence area far wider than the municipal city limits. This Ferndale Market area, defined by
the Ferndale School District boundaries and shown below in Figure 1, is that area in which Ferndale is,
has been and can be the primary population, shopping, entertainment and employment center. The
shopping and employment decisions made by residents and workers of this area have the most
influence on the City of Ferndale, and in turn the City of Ferndale has the most influence on these
residents and workers.

Figure 1: Ferndale
Market Area

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 4
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN

Existing Economy – Relevant Indicators

While there are many ways to evaluate the relative strength or weakness of a local economy, this
element analyzes average incomes, sales tax base, major industry types and number of businesses.

Average Income

INCOME COMPARISONS
SOURCE: US CENSUS BUREAU

$60,000
$50,000
$40,000
$30,000
$20,000
$10,000
$0
Per Capita Income Median
(2013) Household Income
(2013)
Ferndale $23,718 $55,579
Whatcom County $26,530 $51,939
Washington State $30,742 $59,478

Per capita incomes in Ferndale are below those in both Whatcom County and Washington State, while
household incomes are above the County (but below the state) average. This is likely due to more dual-
income households in Ferndale than in the County as a whole – particularly Bellingham, which has a
median household income of $40,648 and is largely influenced by college-age students and one-person
households.

The Cost of Living in Whatcom County is 23.3% higher than the US average, and is higher than the
average in Washington State (which is 17.3% higher than the US average). However, the Cost of Living is
far less than King County – which is 43.2% higher than the US average (source – Sperling’s Best Places –
www.bestplaces.net, accessed October 19, 2015). This means that Ferndale is generally less-affordable
than Washington State as a whole, and is somewhat less-affordable than Whatcom County as well.

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 5
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN

Sales Tax Base

Sales tax is utilized by local government for a range of uses, and is one of the few revenue sources that
are considered discretionary – meaning that it is not obligated to specific budget items (salaries, streets,
parks, etc.). However, sales tax may fluctuate significantly from year to year, which may make it difficult
to project future revenues.

While retail sales are most frequently associated with sales tax (and in most jurisdictions are the
principle
source of
sales tax
revenues), a
wide variety
of sectors
generate
sales taxes
(see Figure X,
below). As
expected,
retail sales in
Ferndale are
responsible
for a
significant
portion of
overall sales
tax revenue
(nearly 35%).
However, the actual retail sales tax - $585,398 – is relatively low for a city of Ferndale’s size. This
suggests that Ferndale has a relatively small number of retail businesses – a fact borne out by a basic
inventory of businesses.

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 6
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN

Another important indicator of Ferndale’s sales tax base is the sales tax associated with construction. In
2014 – a relatively slow year in terms of construction in Ferndale – sales tax from construction
represented over 19% of all sales tax collected in Ferndale. This reflects the fact that Ferndale is
growing quickly. However, the nature of this construction – primarily single family residential
development – may strain City resources in the long-term. Single family development typically does not
generate sufficient taxes to pay for the corresponding demand in services. In other words, a city that
relies on the sales taxes generated by new residential construction will require ever-increasing
construction to pay the bills.

Meanwhile, small cities must often reach a “critical mass” of residences (or “rooftops) to draw retailers
that will depend on the larger market for customers and employees. Provided that retail shopping

$600,000.00
$500,000.00
$400,000.00
$300,000.00
$200,000.00
$100,000.00
$- $500,000.00 - $600,000.00
$400,000.00 - $500,000.00
$300,000.00 - $400,000.00
$200,000.00 - $300,000.00
$100,000.00 - $200,000.00
$- - $100,000.00

Source: Washington State

opportunities and family wage jobs follow this residential construction, high construction-related sales
tax is a positive indicator. The task for the City is to leverage this residential growth to result in
additional growth in retail sales and family-wage jobs.

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 7
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN

The figure below depicts the top ten businesses for sales tax generation in 2015. Sales tax is dynamic
and fluctuates from year to year. The City expects to update these figures frequently.

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 8
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN

WHAT IF: LOSS OF MAJOR EMPLOYER

While this element seeks to define ways in which the Ferndale economy could expand and become
more sustainable, it must also explore the possible impacts related to the loss of a significant
employer (greater than 50 employees).

When a major employer announces they're closing, the community can expect an interim period
during which attempts may be made to preserve the business. In some cases, it may also be in the
City's best interest to try to influence decision-makers in hopes of keeping the business in the area. In
many cases, though, it may not be possible to preserve the business, and the City must then
determine the economic impact the closing will have on City revenues, quality of life, home prices,
etc. During this period, it may also be beneficial to identify other supporting industries and
businesses that may be directly impacted by the closing and work with them to mitigate those
impacts.

The City will also act as a liaison between individual workers and any resources available to them,
from unemployment benefits to retraining opportunities. The City will work with the Ferndale
Chamber of Commerce, the business itself, employee unions, the Port of Bellingham, and other local,
State, and Federal agencies to schedule and host events, disseminate information, etc. to help the
affected employees land on their feet.

While the closure of any major business is rarely a positive event for a community, changes in
business models can be more easily sustained in a diverse economy. Boom and bust cycles in regions
or cities where one industry dominates, such as Detroit (automobiles), Northern California
(technology), and Dallas (oil), are significantly more pronounced than in regions with more diverse
economies such as Los Angeles, New York, or Chicago. That is why Ferndale will continue its efforts to
bring new, diverse businesses to the community, ensuring that no one closing or industry downturn
will have a catastrophic impact on the local economy.

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 9
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN

WHAT IF: CLIMATE CHANGE REFUGEES

While climate change projections vary, they tend to show that changes in Northwest Washington
weather will be less severe than other parts of the world, and other parts of the country. In
particular, climate change in California and other southwest states may result in an increase in
climate change “refugees” arriving in Northwest Washington.

In some ways, these climate refugees would simply represent an accelerated increase in Ferndale’s
growth, resulting in changes to the City’s planning, capital facilities, and funding expectations. This
growth would likely accelerate the need for a variety of projects.

However in practical terms this additional growth would be very different, as it would arrive in
Ferndale at a time when scarce resources are stretched ever-thinner. As an example, water
resources are already in short supply and are split between urban uses, agriculture, tribal uses, and
basic natural functions systems. As projected, temperatures would be too high to sustain existing
glaciers and mountain snow - creating drought conditions extending for longer periods of time. In
this scenario it would be almost certain that the City will need to establish secondary water
sources, especially if the existing aquifer is no longer able to provide water sufficient for the
population. These sources may not be able to rely on surface water but instead may depend on
non-traditional methods such as desalination, aggressive water rationing and water re-use.

Outside of the cities it is probable that the regions agricultural lands will shift in order to partially
replace lost agricultural lands in the southwest. This shift would utilize additional water resources -
but could also shift market forces in favor of the preservation or expansion of agricultural lands. In
some cases, the close proximity of agricultural lands to urban densities would likely create conflicts
between dissimilar uses.

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 10
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN

Major Employers in Ferndale

The vast majority of Ferndale businesses are micro businesses employing twenty people or less. As of
2015, there are over 450 businesses in Ferndale, plus nearly one hundred home-based businesses
(home occupations). Within the city limits, there is no one business or industry that is large enough to
be considered an overall barometer for the health of the local economy.

However, Ferndale (and the Ferndale market area) is home to several larger employers that are among
the 25 largest in Whatcom County:

Employer* Business Type Employees (2016)

BP Cherry Point Refinery Refinery 810
Lummi Indian Business Council Tribal 693
Alcoa Intalco Works Aluminum Smelter 583
Lummi Commercial Company Casino, Retail 749
Ferndale School District Education (K-12) 534
Northwest Indian College Higher Education 236

Cascade Dafo Orthotics Manufacturer 220

Phillips 66 Refinery 450

*Source: Port of Bellingham (retrieved 10/16/2015)

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 11
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN

Business Sectors

To the right, Figure X shows TOP FERNDALE INDUSTRIES:

Finance andNUMBER OF BUSINESSES (2015)
the ten highest employers by Insurance, 22 Other, 16
business type, while Figure Y
shows the ten most common
Professional Manufacturing,
business types, all based on 40
Services, 48
US Census data.
Retail Trade,
Health Care, 41 45

Wholesale
Trade, 23

Administrative,
19
Accomodation
and Food
Service, 33
Source: US Census Bureau

TOP FERNDALE INDUSTRIES: EMPLOYEES BY BUSINESS TYPE (2015)

Transportation
Health Care, and
Professional Warehousing, Other, 71
300
Services, 244 226 Arts, 59
Wholesale
Trade, 325
Accomodation
and Food
Service, 375
Administrative, Manufacturing,
443 2071

Retail Trade,
555

Source: US Census Bureau

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 12
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN
STRENGTHS
Ferndale provides an attractive location for businesses of all sizes for a number of reasons.

AVAILABLE REPUTATION DIVERSITY OF PROXIMITY TO

LOCATION LAND
ACCESS TO Ferndale has earned BUSINESS CANADA
Over 6.1 million TRANSPORTATION Few jurisictions the reputation as a
people live within The Ferndale Market Area Ferndale is located just
along the west small city that views 16 miles from the Peace
100 miles of Ferndale is adjacent to the growth as a positive is home to many
coast of the Arch Border Crossing,
Ferndale - 2.5 third-largest passenger influence on the successful businesses, the
United States the third busiest border
million more than airport in Washington community and the adjacent Cherry Point
feature Ferndale's crossing in the US. This
Vancouver, BC State, is bisected by local economy, Industrial Area, and Lummi
inventory of makes Ferndale a retail
and over 1 million Interstate Five and the where new Nation. This diversity
available land in destination for
more than Seattle BNSF railway, and is development is moderates ebbs and flows
close proximity to Canadian shoppers and
nearby major marine viewed as an in the local economy and
transportation and an economic partner
industries opportunity - not a provides a wide range of
population for Canadian
threat. growth alternatives.
centers. businesses.

FERNDALE HAS…..

WEAKNESSES

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 13
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN
Several factors have limited, and may continue to limit, the growth or diversity of the City’s economy.

FERNDALE RISING

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 14
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN
While there are many ways to measure improvements or declines in Ferndale’s economy – the most
basic being the addition or elimination of jobs – this plan anticipates that sustainable economic growth
and prosperity will result from the six elements shown in Figure X, below.

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 15
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN
- A robust retail environment will provide a range of shopping choices for the local
community and visitors to Ferndale. Prior to the end of the planning period, Ferndale expects to
fully capture its anticipated retail sales, from the current capture rate of 18%. This increased
sales tax capture will better-enable the City to fund municipal improvements and may reduce
the City’s reliance on the residential community to offset these costs.

- A Diversified Economy will allow the community to prosper during challenging economic
times and the ebbs and flows of the Cherry Point Industrial area. While the community will not
be constrained from exploring new ventures, it will not attempt to re-envision itself as a
“themed” community for the primary purpose of attracting tourists and visitors.

- Local Jobs are an essential part of retaining a distinctive sense of community. For decades,
many of Ferndale’s best and brightest citizens have been forced to leave their hometown in
order to pursue their dreams – or to simply find living-wage jobs.

- Business Friendly: Ferndale prides itself in its streamlined development review process,
and its flexible but innovative requirements.

- Unique Identity: Despite Ferndale’s proximity to Bellingham, the two communities have
uniquely different histories, philosophies, and economies. On a local level, this reputation has
been hard-earned and is sometimes difficult to maintain. On a regional or national level,
Ferndale has struggled with identifying itself separately from Bellingham, which has created
both opportunities and challenges.

- A Return to Downtown will preserve and enhance the essential character of the City by
providing a dense population cluster in close proximity to jobs, retail, entertainment and dining.

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 16
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN

WHAT IF: LARGE FORMAT RETAIL

The City's Main Street Master Plan (link, 2012) was developed as a way to forecast environmental and traffic
impacts resulting from major retail expansions at Exit 262. The discussion below is intended to address some of the
economic impacts that may occur should large-format retail be developed in Ferndale.

The advent of large-format retailers in the late 1980's, and the expansion of such stores as well as a regional
shopping mall into the Bellingham market during the 1990's, transformed Ferndale's retail economy. Many local
retailers could not compete with large or grouped stores offering shopping convenience, selection, and lower
prices. As a result by 2016 the majority of Ferndale's remaining retailers focused on specialized or niche products,
or convenience retail within drug or grocery stores.

As Ferndale's population has increased and changed over time, so has the retail market. Online retailing has grown
in popularity while shopping at regional malls has declined. Large format retail has also shifted, as many large
retailers have not been able to compete with online sales and others have found that primary markets have
become saturated with retail options. This means that by 2016 there were relatively few markets that could be
served with new retail without cannibalizing business from nearby stores in the same chain - and there were few
chains that remained capable of sustainable expansion.

Northwest Washington remains a tantalizing market for large format retail: it is a fast growing market that is
adjacent to one of the most populous and wealthy metropolitan areas in Canada. Ferndale may be especially
attractive, as its location along transportation systems and the fast growing number of in-place residents may
provide an alternative to shopping in Bellingham, which has become increasingly inconvenient and congested.

Should one or more large format retail businesses arrive in Ferndale, local businesses that sell similar products may
be at a competitive disadvantage in terms of price and convenience. However as noted above, the Ferndale retail
market has already been impacted by large retail and regional shopping in Bellingham - in fact, Ferndale residents
do the majority of their retail shopping in Bellingham. As a result it is unlikely that large format retail will impact
local Ferndale retailers as dramatically as did the retail expansions to Bellingham in the late 1980's and 1990's.

More likely, large format retail will bring with it one or more national complimentary retail, food or financial
franchises in the area surrounding the larger store. In some cases a second large retailer may locate in the same
area in an effort to increase shopping in a localized area and foster productive competition between the two stores.

Employment at large format stores varies widely. In general, these businesses employ a significant number of
people, often on a part time basis, with starting wages and health care that is not substantially higher than
government-mandated minimums - and often below “living wage job” standards. Should a significant number of
employees or their families depend on these jobs as their sole income, it is possible that additional pressure on
of Ferndale – Comprehensive Plan Economic Development – Chapter VII
local City
agency services will be required to fill the gap between income and living needs. However, these industries
June 2016 Page 17
provide significant opportunities for individuals or families that have other means of support.
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN

FERNDALE’S FUTURE ECONOMIC DEVELOPMENT PROSPECTS

Based on allocations discussed in the Land Use Element, an additional 4,000 jobs are anticipated within
the City of Ferndale by 20361. Additional jobs are forecast at the Cherry Point industrial area, and a
similar number of jobs are planned within the Lummi Nation, split between expansions of the Silver Reef
Casino, a planned marina project and Gooseberry Point, and various economic development efforts
throughout the Lummi Reservation. In total, nearly 5,000 new jobs may be created within the Ferndale
Market in the next twenty years.

Ferndale’s economic development prospects are somewhat different from those of many jurisdictions
within the
greater Puget
Sound region
which
continue to
rely heavily on
professional
services
(Finance,
Insurance, Real
Estate and
Other Services)
– specifically
high tech, for
growth.
Ferndale’s
economic
growth will
likely be split
into four or five sectors: Manufacturing tied to Cherry Point, a mix of manufacturing and service jobs
associated with the relocation or new development of business headquarters from Bellingham, Canada,
or other locations, Construction jobs linked with general growth in Ferndale, and Retail jobs intended to
serve the local and regional population. Ferndale can also expect to receive relatively solid growth in
health-related industries, a subset of the Finance, Insurance, Real Estate and Other Services sector. The
City does not anticipate significant growth in the Education and Government sector of the economy
unless school funding is dramatically increased in order to decrease class sizes.

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 18
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN

OPPORTUNITIES AND
PROGRAMS INTENDED TO WHAT IF: REGULATION REDUCTION

FOSTER ECONOMIC GROWTH Could Ferndale increase growth by reducing fees and regulation?

Streetscape Beautification: To a great Over-regulation of business has been blamed for the misfortunes of
extent, the City’s ability to influence the individual enterprises and entire industries in the United States.
built environment ends at the edges of the This, combined with businesses leaving the United States for other,
public right of way. Traditionally, the less-regulated countries has given the impression that the United
public right of way has been States has been weakened.
conceptualized as purely a transportation
or utility corridor. Yet the public right of While this plan cannot answer the question, it is worthy of
way is also perhaps the most visible discussion.
element of the built environment. A
The majority of City (and other) regulations are intended to ensure
coordinated system of landscaping
that specific actions do or do not occur. Frequently, these
improvements along the right of way has
regulations are put in place in reaction to an action – positive or
the ability to unify disparate districts and
negative – that has occurred in Ferndale or elsewhere.
to create a sense of place which reflects
(and can be reflected by) the built Too often, these regulations become outdated, are redundant, are
environment. poorly constructed, or are misunderstood or misrepresented by their
administrators. These regulations should be reduced or eliminated.
Economic Elements Addressed: Unique
Identity, Business Friendly City fees are developed in order to pay for the City’s cost to conduct
business as well as to pay for new development’s reasonable share
Strengths Addressed: Reputation,
of growth-related expenses. The City cannot profit from the fees it
Available Land
collects.
Weaknesses Addressed: Lack of Identity,
Still, the City must be a good steward of those revenues – spending
Competition
money wisely, on projects that are identified in long-range plans and
are necessary for the public good, by performing maintenance that
will prevent costly replacement and by maintaining employee
Efficient Public Improvements Program: salaries and benefits that are competitive but not exorbitant.
The City’s ability to coordinate
infrastructure improvements prior to or Ferndale believes that growth will occur in cities that provide clear
concurrent with private development – guidance in regulations, that boast a transparent fee structure and
and to anticipate the needs of private that spend money on wise and planned-out infrastructure choices.
development – has a tremendous impact Development must trust their host city.
on the economic growth of the City. As a
rule, the greatest risk for new projects

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 19
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN
occurs within the first twenty-four months of occupancy, so the ability of the City to avoid significant
infrastructure impacts post-occupancy is of significant benefit.

As part of these efforts, the adoption of policies that would ensure that recently-annexed areas are
served by City services within a specific timeframe following annexation will enable these areas to be
rapidly developed. Integration between the City’s Annexation Blueprint and Capital Improvement Plans,
as well as the establishment of Latecomer payback areas or Local Improvement Districts, will aid in these
efforts.

Efforts to continue to publicize the purpose, phasing and goals of major capital improvements to offer
assurances to business owners and potential developers regarding the City’s commitment toward
providing a quality infrastructure system are another major component of this section.

Economic Elements Addressed: Business Friendly

Strengths Addressed: Available Land, Reputation, Proximity to Canada

Weaknesses Addressed: Lack of Utilities

Main Street Master Plan: The City’s Main Street Master Plan/ Planned Action area (adopted by
reference to this Comprehensive Plan) has been designed to significantly streamline the permit and
review process for new development at Exit 262. The City’s ability to attract and retain businesses in
this area, combined with Ferndale’s long-range transportation plans, will dramatically change Ferndale’s
economic development outlook.

Economic Elements Addressed: Business Friendly, Robust Retail

Strengths Addressed: Available Land, Reputation, Proximity to Canada

Weaknesses Addressed: Lack of Utilities

Downtown: Dense multi-family and mixed use development will result in an in-place market within
walking distance of convenience shopping, services, entertainment and dining within the core. This in
turn will lure additional residents and visitors to the core area. Development regulations that are
unique to Ferndale’s downtown core, combined with zoning and fee structures that permit mixed land
uses to flourish, are also necessary for a sustainable downtown.

Economic Elements Addressed: Return to Downtown, Unique Identity

Strengths Addressed: Reputation, Available Land

Weaknesses Addressed: Lack of Identity, Customers, Competition

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 20
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN
WHAT IF: BRITISH COLUMBIA ECONOMIC COLLAPSE
Stabilize Code and Fee Changes:
The City of Ferndale has sought to British Columbia’s lower mainland is one of the most dynamic areas in North
establish codes and fees that are America and is projected to grow from approximately 2.3 million to 3.4
innovative and flexible – two of the million by 2041, a growth rate of nearly 50%. Many forecasts project that
development community’s most- recent trends towards higher incomes in the lower mainland will continue,
requested elements. However a creating a wider and larger customer base just over the Canadian border.
third request is consistency.
While British Columbia’s potential market - and its impact on Ferndale and
Constant changes to the City’s Northwest Washington - is significant, it varies significantly. Over 10 million
regulations does not promote people crossed the Canadian border at Blaine in 1995; 9.7 million crossed in
consistent reviews and may lead to 2014 despite the fact that the Vancouver population had grown by over 50%.
the inefficient processing of
applications. The City must reach an Cross border traffic is heavily influenced by the relative value of US and
equilibrium where codes remain Canadian currency, wherein a Canadian dollar at or close to par with US
currency will result in an increase in Canadian shopping visits (and spending
consistent but do not stagnate.
on real estate and other goods) - and a Canadian dollar valued well below will
Economic Elements Addressed: result in a decrease from the average.
Business Friendly
A collapse of the British Columbian economy and/or a collapse in the
Canadian dollar (to 50% or less value of the US dollar) would likely reduce
Strengths Addressed: Reputation
Canadian visits and spending in Whatcom County. Shopping impacts in
Weaknesses Addressed: Ferndale may be less pronounced than in other cities, as Blaine and Sumas (as
border towns) receive substantial cross-border convenience shopping traffic
Competition, Lack of Utilities
and Bellingham’s status as the retail center of Whatcom County receives the
majority of destination shopping trips. Ferndale’s visits are consist primarily
of day trips and gas or food purchases.
Marketing/Tourism: For outsiders
Of possibly greater long-term significance, the collapse of the Canadian
(and many residents), Ferndale’s
economy would have an effect on Canadian land holdings and businesses in
identity is closely tied to Bellingham,
Ferndale. In most cases these land holdings exist due to the strength of the
with mixed results. Programs that Canadian business or the wealth of the property owner - and do not and
highlight the fact that Bellingham cannot depend on the value of the United States holding to sustain itself
does not encapsulate the total alone. In these situations it is likely that properties will be placed on the
Northwest Washington experience market and that businesses will either be sold, reduce in scope or shut down
for visitors or businesses, and that due to lack of capital and/or a lack of cross-border business.
promote Ferndale as both a
As of the 2016 Comprehensive Plan update, there is no indication that
destination city on its own right and Canadian owned businesses or land represent or depend on Canadian
as an alternative to Bellingham business to the extent that a collapse of the British Columbian economy
should be considered. would trigger a collapse of the Ferndale economy. However, a Canadian
collapse may have a dramatic impact on other Whatcom County jurisdictions
Economic Elements Addressed: which may in turn impact Ferndale’s economy as well.
Unique Identity, Return to
Downtown, Robust Retail

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 21
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN
Strengths Addressed: Access to Transportation, Proximity to Canada, Location

Weaknesses Addressed: Location, Lack of identity, Competition, Customers

Innovation: As a small city subject to many of the growth pressures and market forces that affect larger
cities, Ferndale is uniquely suited to react to changing conditions rapidly, without the burdens of a larger
bureaucracy. This may allow the City to consider unique zoning, design standards, transportation
solutions and other strategies without substantial backlash. The City’s use of the LEAN model
encourages these approaches.

Economic Elements Addressed: Diversified Economy, Business Friendly

Strengths Addressed: Reputation, Available Land

Weaknesses Addressed: Lack of Utilities, Competition

Acceptable Risk: Ferndale is not a rich city, and the City has a fiduciary responsibility to protect the
public’s investment. However, the City also has the choice to determine whether certain risks are
acceptable in order to improve the quality of life and economic development within the City. Within
this context, risk may take many forms, from testing untried methods, as noted in the innovation section
above, to investing public funds in infrastructure, to participating in long range plans such as the City’s
Main Street Master Plan or building open public facilities such as the Ferndale Library and parks.

Economic Elements Addressed: Diversified Economy, Business Friendly

Strengths Addressed: Reputation, Available Land

Weaknesses Addressed: Lack of Utilities, Competition

Additional Living Wage Jobs: Economic Development in Ferndale must be measured not only be the
quantity of jobs, but their quality as well. Jobs that provide living wages sufficient to ensure that
individuals and families have the ability to have choices in housing, food, recreational activities,
education and disposable income are an integral part of creating a more sustainable economy and
overall community. Where practical, the City will identify programs and policies intended to attract,
promote, and retain living wage jobs to Ferndale across all industrial sectors. The City will also consider
opportunities to recognize businesses or business activities that take action to reduce living costs for
their employees or tenants.

Economic Elements Addressed: Local Jobs, Diversified Economy

Strengths Addressed: Reputation, Available Land, Proximity to Canada, Lummi Nation

Weaknesses Addressed: Competition, Location, Customers

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 22
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN
Targeted Business Outreach:

Targeted Business Outreach: In addition to attracting living wage jobs, the City expects to adopt
programs and practices that will identify businesses or business sectors that are growing and that may
complement existing businesses or sectors within the Ferndale Market Area. Once these business
sectors are identified, the City expects to aggressively pursue these opportunities, and will consider the
range of incentive options that may be available for such recruitment.

Economic Elements Addressed: Diversified Economy, Business Friendly, Return to Downtown

Strengths Addressed: Location, Available Land, Access to Transportation, Reputation, Proximity to

Canada, Lummi Nation

Weaknesses Addressed: Location, Lack of Identity, Competition

IMPLEMENTATION
This document represents the City’s first Economic Development Element – and its first economic
development strategy. Much of this document is intentionally general in nature and anticipates that
economic development programs will be considered based on the text of this document and the goals
and policies listed below. With this document, the City has established a framework for economic
development without being so precise as to limit constant innovation. For example, this document
generally does not seek to establish goals such as adding a specific number of new jobs or targeting
specific industries – as such growth goals should be established based on subsequent analysis.

The City expects to evaluate its progress towards the Vision and Desired Goals at least once every three
years in order to measure its performance and to identify specific programs or areas of focus. This
evaluation may include both short-term and long-term strategies and programs. In turn, these short
and long-term strategies and programs will be communicated to the City’s stakeholders and partners for
further implementation.

If necessary, the City may create an Implementation Plan as a supplement to this chapter, and may also
establish an Economic Development Commission that will recommend economic development programs
and initiatives to the City Council. The Implementation Plan may describe specific strategies and
programs in more detail, and may also include project leads, resource requirements, and other
partnership opportunities. This Implementation Plan is expected to be a living public document that is
not formally adopted by the City Council, though it may be used in support of budget items.

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 23
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN
GOALS AND POLICIES
I. RETURN TO DOWNTOWN: Preserve the unique character and historical significance of
Downtown Ferndale by promoting an economically healthy downtown that is attractive and
offers a variety of retail, residential, office, service, cultural, civic and recreational opportunities.

Return to Downtown Policies:

i: Establish Downtown infrastructure based upon the unique needs of niche and small
retail, restaurants, entertainment, office space, and multifamily development.

ii: Seek to coordinate Downtown improvement strategies advocated by private business

with City functions and programs.

iii: Promote public and private improvements and maintenance to the physical
environment within downtown that are attractive to customers and visitors.

iv: Seek to establish unique zoning and land use types within Downtown Ferndale, in
particular, encourage additional residential development within the Downtown core in
order to create a vibrant center on days, evenings, and weekends.

v: Seek to utilize the Downtown core as the center for cultural and civic events.

II. UNIQUE IDENTITY: Accept Ferndale’s accessory role to Bellingham in some areas, but
boldly establish Ferndale as a unique and competitive community.

Unique Identity Policies:

i: Recognize that the arts, recreation and tourism are vital components of Northwest
Washington and create/market opportunities for residents and visitors to participate in
recreation opportunities during each season.

ii: Encourage high-quality urban design in new public and private development projects
through the adoption and application of design standards.

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 24
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN
III. BUSINESS FRIENDLY: Ferndale’s economy depends on the development, retention,
expansion, and recruitment of private business. Establish Ferndale as the first choice for new
businesses hoping to locate in Northwest Washington.

Business Friendly Policies:

i: Build and maintain Ferndale’s positive and competitive business-friendly climate that
will retain, grow and attract high-quality businesses.

ii: Consider programs that reduce or eliminate fees and costs associated with façade
improvements, sidewalk beautification and efforts which add vibrancy to public and
private spaces within the Downtown core.

iii: Support startup efforts to make it easier for businesses to get started in Ferndale by
supporting access to forms of financial assistance to encourage entrepreneurship,
innovation and business growth.

iv: Develop incentives for business to locate and stay in Councidesignated target areas.
Encourage Council-designated target industries to locate, stay and expand within the
City, particularly in target areas.

v: Work with the Washington State Legislature to approve regulations that will give small
cities the same access to incentive programs as larger cities for the purpose of
encouraging new development and retaining existing businesses and developments.

vi: Insure citizen involvement when making decisions to target certain areas or
industries, or when considering incentives for such areas or industries.

vii: Encourage community leaders and private initiatives intended to support and
enhance the City.

viii: Establish measures and methods for gathering performance data and periodically
review data to assess progress towards Ferndale’s economic development goals.

ix: The City will aggressively pursue inbound recruitment of new industrial users through
a robust online presence, collaboration with the Port of Bellingham and other economic
development agencies, and periodic recruitment on a regional or national level.

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 25
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN
IV. ENVIRONMENT: The growth of Ferndale’s economy shall at all times anticipate and
mitigate environmental concerns.

Environment Policies:

i: Consider the recruitment of clean energy or environmental companies to Ferndale.

ii: Establish public sector recycling programs.

iii: Promote flexibility in building and site design that will benefit the environment.

V. LOCAL JOBS: Benefit the community and economy by reducing the loss of qualified
employees, businesses and entrepreneurs to other areas by creating employment opportunities
which allow Ferndale residents to live and work in Ferndale and the Ferndale market area.

Local Jobs Policies:

i: Develop or support programs that seek to provide an increased supply of workforce

housing.

ii: Develop or support programs that identify business requirements and expectations,
and strive to meet those needs.

iii: Facilitate and manage a mix of land uses in the appropriate locations which
contribute to a balanced economic base and improve the balance between jobs and
workers residing in Ferndale.

iv: Implement long-term programs that will provide new and existing employers with
demographic information necessary to remain sustainable and to grow.

v: Continually measure jobs to population ratios throughout the planning period.

VI. DIVERSIFIED ECONOMY: The City seeks to create a local economy that does not depend
on a small number of primary industries.

Diversified Economy Policies:

i: Support the efforts of business and educational institutions to train workers to meet the
current and future needs of local businesses.

ii: Adopt development regulations that are capable of reflecting changing business
needs, types of business, and business locations.

iii: Promote awareness of and niche markets for emerging local craft industries.

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 26
CHAPTER 7: ECONOMIC DEVELOPMENT ELEMENT
FERNDALE COMPREHENSIVE PLAN
iv: Support international trade by assisting Canadian businesses seeking a US based
presence and Ferndale seeking access to the Canadian market.

VII. ROBUST RETAIL: The City recognizes that robust retail development may occur with or
without “large” retail development and would strive to achieve the Washington State average for
retail sales tax capture by 2026.

i: Retail development policies shall be established within the Ferndale Municipal Code
and Development Standards.

ii: The City shall be flexible in enforcing design guidelines and standards for retail and
other commercial development – and shall expect the same flexibility from potential
applicants.

iii.: The City shall continue to explore mechanisms through which the City’s character
will be preserved or enhanced as retail opportunities increase.

City of Ferndale – Comprehensive Plan Economic Development – Chapter VII

June 2016 Page 27