Planning commission advances new park zone, approves park-related code and map changes

Mercer Island Planning Commission on May 28 advanced a package of code and comprehensive‑plan amendments to create a new “park zone,” approving a set of development standards and map changes while directing staff to refine remaining language.

The commission voted on multiple motions during a nearly four‑hour meeting. The body approved the set of minor code edits, adopted several major changes recommended by staff or commissioners, removed an exemption for synthetic turf athletic fields, and approved two new lighting rules intended to limit shoreline glare and protect fish and birds. The commission also voted to change the zoning and the land‑use designation for Aubrey Davis Park from public/institutional/linear park references to the new park category and to add “boathouse” to the recreational‑facilities definition.

Why it matters: the new park zone and the companion comprehensive‑plan edits are the city’s tool for translating the PROS (parks, recreation and open space) master plan into enforceable rules on what can be built in parks, how large structures can be, how trails and lighting are treated, and how shoreline access is configured. Commissioners said the amendments are intended to protect park character while clarifying review processes for future improvements.

Key outcomes and what was approved - Minor amendments: The commission approved the staff package of minor wording edits to the draft park zone, excluding three items (log items 1, 2 and 6) for separate consideration (motion passed; roll call recorded as: Commissioner Perez Aye; Vice Chair Gibson Aye; Commissioner Neece Aye; Commissioner Hughes Aye; Chair Dan Thompson Aye; Commissioner Kuse Aye). That vote carried the staff‑recommended baseline language into the draft recommendation.

- Purpose statement clarified: The commission approved an amendment to the park‑zone purpose statement inserted language reading, in part, “the purpose of the park zone is to preserve and maintain parks, which provide green space, shoreline access, and conservation opportunities,” as moved by Commissioner Acuse and approved by roll call. Commissioner Acuse described the edit as intended to align the code with the PROS plan and to explicitly note shoreline access and conservation opportunities. Commissioner Acuse said, "the purpose of the park zone is to preserve and maintain parks, which provide green space, shoreline access, and conservation opportunities." (motion passed.)

- “Social spaces” language: The commission added the phrase “social spaces for individuals and gatherings” to the purpose statement to recognize spaces that can be programmed or used for gatherings; that amendment passed on roll call.

- Public art / arts process: The commission adopted staff’s alternative wording expanding the definition of public art to clarify installations can be standalone or incorporated into other structures. The motion to add a broader new term ("arts amenities") failed; instead the commission voted to amend the public‑art definition as the staff recommended (motion passed 4–1). The staff advised that existing arts‑council bylaws and review processes remain the primary administrative path for art in parks; commissioners asked staff to coordinate with the Parks & Recreation Commission (PRC) and the Arts Council if the groups want shared review processes.

- Uses and facilities: The commission added “multipurpose facilities” to the list of permitted park uses and added a specific line to the recreational‑facilities definition to include boathouses and boat launches (motion passed 4–1). Commissioners said the change was intended to reflect existing park buildings and to allow the PROS plan’s boathouse/rowing‑club concept to be implemented through normal permitting and master‑planning processes.

- Parking: The commission amended the draft code to say that parking in parks should be limited to park‑related uses; that motion passed on a 3–2 vote. Commissioners discussed temporary staff uses and the city manager’s temporary‑use authority as exceptions.

- Setbacks and parking adjacent to residences: The commission adopted a staff alternative requiring a 20‑foot setback for parking areas located adjacent to certain residential zones (approved 5–0). Staff explained the rule differentiates residential zones from other zones and noted exemptions and clarifying language will be refined in follow‑up drafts.

- Trails: Commissioners deferred final rulemaking on trail width and terminology, asking staff to return with a clear definition of “trail,” examples of trail types (shared‑use, single‑track, boardwalks), and recommended measuring conventions (what counts as “trail” vs. shoulder). A motion to treat shoulders as included in a 12‑foot maximum trail width was withdrawn to allow staff time to draft clarified definitions.

- Building size and multipurpose structures: A proposed amendment to change the gross‑floor‑area cap for multipurpose facilities (to prevent very large new buildings in parks) failed; commissioners debated whether to preserve the existing large, lawful buildings (for example at certain sites) and whether the charted limits should be adjusted. The body rejected one proposed rewrite and left the table as edited in other votes.

- Concession stands: Commissioners concluded concession stands are already covered by the recreational‑facilities definition and agreed staff should review whether specific concessions language is needed; a standalone concession‑stand motion was withdrawn.

- Synthetic turf: The commission voted unanimously to remove the draft exemption that would have expressly allowed synthetic turf athletic fields (motion passed 5–0). Commissioners cited environmental concerns (stormwater and pollutant runoff) and community character in support of removing the explicit exemption.

- Shoreline‑ and bird‑sensitive lighting: The commission added two new lighting provisions for shoreland/shoreline parks. One subsection sets limits on lighting “within the shorelands” and requires shielding, low mounting, and curfews for shoreline fixtures; a second subsection applies a bird‑ and wildlife‑sensitive lighting standard (directional shielding, limits on canopy lighting, and restrictions on high color‑temperature sources). City staff and consultants noted dark‑sky and salmon‑friendly design principles during discussion. Both lighting measures passed unanimously (5–0).

- Shoreline recreation and waterfront facilities: Commissioners discussed a package of ideas for shoreline parks — improving public access, pedestrian ingress/egress (accessibility), and the possibility of a single public pier and a single boathouse among shoreline parks consistent with the PROS plan. Multiple proposals and a commissioner‑sponsored package were discussed; the detailed shoreline section was withdrawn and returned to staff for redrafting to ensure consistency with the Shoreline Management Act, recently adopted marina code language, and the PROS plan. Commissioners specifically asked staff to reconcile draft code language with state shoreline rules and the city’s existing marina and dock regulations before bringing a revised proposal back to the commission.

- Aubrey Davis Park (zoning and land use map): The commission voted to change Aubrey Davis Park’s zoning designation on the draft zoning map from Public Institution (PI) to Park (motion passed 3–2) and subsequently voted to amend the comprehensive‑plan land‑use map to change Aubrey Davis Park from Linear Park to Park (motion passed 4–1). Commissioners acknowledged WSDOT owns the underlying property and that leases and turnaround agreements limit what can be built; staff and the city attorney explained the current WSDOT leases and state statutes affect negotiation and implementation and advised the council will need to coordinate with WSDOT during any lease renegotiation.

Votes at a glance (selected motions recorded in the transcript) - Approve April 23 minutes — passed (roll call: Perez, Gibson, Neece, Hughes, Thompson, Kuse recorded Aye). Outcome: approved. - Approve minor amendments as presented in PCB‑25‑09 excluding log items 1, 2 and 6 — passed (roll call recorded Ayes). Outcome: approved. - Approve log 1 amendment (purpose statement text) — passed (roll call recorded Ayes). Outcome: approved. - Add phrase “social spaces for individuals and gatherings” to purpose — passed (roll call recorded Ayes). Outcome: approved. - Adopt staff alternative to public art definition ("Public art can be implemented in standalone art installations or incorporated into other structures") — passed 4–1. Outcome: approved. - Limit park parking to park‑related uses — passed 3–2. Outcome: approved. - Add multipurpose facilities as permitted use — passed 4–1. Outcome: approved. - Require 20‑foot setback for parking adjacent to specified residential zones — passed 5–0. Outcome: approved. - Remove “public trails” from the impervious‑surface exemption (i.e., make new trails governed by the no‑net‑new‑impervious rule unless included in a master plan/PROS/CIP) — passed 4–1. Outcome: approved. - Remove draft exemption for synthetic turf athletic fields — passed 5–0. Outcome: approved. - Add shoreland lighting restrictions to protect fish (subsection 2) — passed 5–0. Outcome: approved. - Add bird‑ and wildlife‑sensitive lighting language (subsection 3) — passed 5–0. Outcome: approved. - Add boathouses and boat launches to the recreational‑facilities definition — passed 4–1. Outcome: approved. - Amend zoning map to change Aubrey Davis Park from PI to Park — passed 3–2. Outcome: approved (forwarded to council recommendation). - Amend comprehensive plan land‑use map to change Aubrey Davis Park from Linear Park to Park — passed 4–1. Outcome: approved (forwarded to council recommendation). - Notable defeated or withdrawn proposals: a proposal to remove the 3,500‑sq‑ft limit for multipurpose facilities (or restructure the cap) failed (motion failed 3–2); proposed language to add a broad "arts amenities" term failed and staff wording was adopted instead; several other motions were withdrawn for staff redrafting.

What remains for staff and next steps Commissioners asked staff to: (a) return with clarified definitions for "trail" (including whether shoulders count in any width standard and categories for shared‑use paths versus walking trails), (b) reconcile shoreline‑park proposals with state shoreline rules and the city’s marina/dock code, (c) prepare refined language tying park installations referencing arts review processes to the Arts Council/PRC review pathways, and (d) update the draft park‑zone code to incorporate approvals voted tonight. Staff said they will return on the commission’s special meeting scheduled for June 10 with a revised draft and with any additional research the commission requested (for example, legal analysis on whether a council super‑majority could be required for park rezones). City Attorney Kim Adams Pratt summarized relevant statutory language for voting thresholds, telling commissioners the statutes refer to the need for "the affirmative vote of at least a majority of the whole membership of the council" for certain ordinance actions.

Quotes recorded during the meeting - Commissioner Acuse on the park‑zone purpose revision: "the purpose of the park zone is to preserve and maintain parks, which provide green space, shoreline access, and conservation opportunities." - City Attorney Kim Adams Pratt on council voting thresholds: staff legal review noted the statutes require "the affirmative vote of at least a majority of the whole membership of the council."

Ending: The commission will reconvene on June 10 to finish the park‑zone recommendation and to consider remaining items, including staff‑redrafted language and any additional clarifying materials requested at the May 28 meeting. The packet and a revised draft will be posted in advance of that meeting.