Operational and Capital Development Plan
PROJECTS and INITIATIVES

The Port of Coupeville has identified the following projects and initiatives to pursue in this twenty-year comprehensive plan. This comprehensive plan will be reviewed and updated every three years to ensure the Port is responsive to changing trends, conditions and opportunities in the District. However, the Port will remain open to opportunities that will improve the economic climate of the District as they arise, and will amend this comprehensive plan more often as needed.

1. Marine Education Center

The building on the Coupeville wharf has been renovated over time into four spaces that have historically housed the Harbormasters office, retail shops and food service. It is a long walk down the causeway to where the wharf retail shops and restaurant are located. It has been a difficult challenge for these businesses to attract sufficient customer base to be successful, especially during winter months. The Port believes that the best use of a portion of the current retail space would be the development of a marine education center that includes, but is not limited to, local marine history and interactive marine science exhibits. The inclusion of local natural history and environmental education exhibits, multi-media interpretive facilities, a center gift shop, limited kiosk-type food service or meeting rooms would create a facility that would be suited for use by a diversity of user groups throughout the entire year. Including such features in the centers business plan to broaden the appeal of the center and contribute to its financial stability would be positively considered by the Port. A marine education center would be a stable attraction of regional significance and an extremely positive economic driver for the Town of Coupeville. Its appeal for visitors, tours and boaters would overcome the access barrier related to the length of the causeway.

The Port will cooperate with the WSU Beach Watchers, Island County Historical Society Museum, Ebeys Landing National Historical Reserve Trust Board and other interested organizations in the planning and implementation of the marine education center. As current tenant leases in the wharf building expire over time, the spaces will be considered for the staged implementation of a marine education center.

2. Coupeville Marine Facility Marketing Plan

The Port of Coupevilles marine facility is under utilized. Maximizing the use of the facility would contribute positively to the economic health of the Town of Coupeville and Central Whidbey Island. The facility has a unique niche in the boating hospitality industry: a historic wharf in a historic seaport, with a scenic walk to shops, restaurants, accommodations and the Island County Historical Museum, and free bus service to Island attractions like the Greenbank Farm and Ebeys Landing Historical Reserve. The marine facility, its picturesque natural setting, and the diversity of nearby attractions, has never been actively marketed to the boating community. The Port will develop a comprehensive, aggressive marketing plan to increase the use of the marine facility by short-stay and small craft boaters, both residents and visitors, without compromising its environmental stewardship values. Possible links and partnerships with marketing efforts of Island County, the Town of Coupeville, Front Street businesses, and the marine facilities in Oak Harbor and Langley will be explored. The final plan will incorporate advertising in key boating publications and the development of a Port of Coupeville website.

3. Marine Transportation Links Passengers and Products

Historically, the wharf at the Port of Coupeville marine facility served as a vital link in the movement of passengers, and commercial products and materials, in Puget Sound. The need for passenger water links between Whidbey and Camano Islands is well documented. There is growing interest in a direct marine passenger connection from Island County to Seattle, and to other destinations. The economic impact of increasing the accessibility of Central Whidbey Island by providing a convenient, scenic and affordable marine alternative to passenger car travel via the Washington State Ferry system or the Deception Pass Bridge, would be dramatic. The Port will explore opportunities to establish the wharf as a link in a viable marine passenger transportation system. The Ports first objective would be to facilitate passenger travel between Coupeville, Camano Island, Greenbank, Langley and Oak Harbor. It is the intention of the Port to consider upgrades to its wharf which will facilitate the use of the facility for this purpose in its planning for wharf and moorage improvements, understanding that the upgrades will increase the viability of the wharf for regional tour boats as well.

Recognizing the Town of Coupevilles historic role as a commercial seaport, the Port will explore opportunities for re-establishing appropriate waterfront facilities to serve marine-based businesses. Creating a marine freight link to move commercial products and materials to and from Central Whidbey Island would support the growth of the existing marine businesses, and encourage new enterprises. The economic impact would be significant for the Port District, as well as for the Town of Coupeville and Island County. The Port will initiate discussion with both government entities to identify areas of potential collaboration.

4. Wharf and Moorage Recreational Boating Improvements

Expansion of the Port of Coupevilles marine facility is limited by shallow depths and west winds, as well as the Ports commitment to preserving the pristine waters of Penn Cove and the historic character of the wharf, which is listed on the National Register of Historic Places. The Port considers the development of a full-service marina or construction of a breakwater to be invasive and detrimental to the environment, and will not pursue these types of options. However, carefully chosen, environmentally sensitive wharf and moorage improvements would increase the appeal and usability of the marine facility for recreational boaters, kayakers, rowers and small boat sailors. These boaters are generally more environmentally friendly, require less dock space and fewer marine amenities, and they tend to seek out land-based hospitality services. This makes these boaters a perfect fit for the scale of the Coupeville marine facility. The Port of Coupeville will identify the services, amenities and facility upgrades which would attract such boaters, and develop a plan for implementation. The Port will consider such enhancements as a small boat mooring/launching float and/or storage racks for kayaks and other hand-carried boats.

In the 2004 winter storms the Ports outlying mooring buoys were damaged or lost. Restoration of these mooring sites is a priority for the Port of Coupeville to achieve its goal of consistently attracting more recreational boaters.

5. Front Street Entrance Improvements

As the owner of the wharf and a commercial building on Front Street, the Port of Coupeville is a member of the historic districts business community. It is in the Ports best interests, and in direct fulfillment of its economic development mission, to cultivate a collaborative partnership with other Front Street businesses and the Town of Coupeville in maintaining and enhancing the attractiveness, accessibility and sustainability of the business district. The Port will actively participate in the Front Street revitalization planning efforts of the Town of Coupeville and the Central Whidbey Chamber of Commerce. Concurrently, the Port will develop a plan for increasing the aesthetic appeal of the Front Street entrance to its wharf and the Ports administrative office utilizing low impact development standards. The elements of this plan will complement other Front Street revitalization efforts and the National Park Services plans to re-design their displays at the wharf entrance, and be developed in partnership with Ebeys Landing National Historical Reserve and the Island County Historical Society. The Port may consider a funding contribution to Front Street projects, or the Towns efforts to improve or increase visitor parking for the Front Street commercial district, if there is a significant and measurable contribution to the Ports economic development mission, and/or if the project increases access to the Ports marine facility.

1. Conservation Easement

The Port understands and accepts its responsibility to fulfill the public mandate to preserve the open space, environmental resources, and the historic rural and agricultural character, of the Port Tract of the Greenbank Farm. To this end, it initiated a Growth Management Act (GMA) amendment process which resulted in Island Countys adoption of a protective zoning ordinance in 2002. Understanding that this ordinance can be altered by another GMA amendment, the Port began a dialogue in 2005 with Island County government regarding the possibility of establishing a permanent conservation easement in the Port Tract.

The Ports purchase and sale agreement with Island County prohibits actions which would impact the stability of the underlying bonds. A conservation easement would restrict certain uses and development on the property, therefore affecting the value of the property. Since the property itself is collateral for the Island County bond purchase, the Port requested Island County seek an opinion from its bond counsel regarding the Ports desire to place a conservation easement on its property prior to full payment of the mortgage in 2017. It is the Ports intention to continue to work with Island County to determine if placing a conservation easement on the property is possible prior to full ownership. If so, the Port will explore the benefits and consequences, including cost, of placing permanent development restrictions on the property. Meanwhile, the Port will not consider any significant changes in the current zoning at the Port Tract.

2. Master Site Plan

The Port understands and accepts its responsibility to balance economic development, with environmental protection, and the preservation of the Port Tracts historic, rural and agricultural character. It is committed to a thoughtful and thorough review and planning process to develop a Master Site Plan for the property that achieves the appropriate balance. The Port has adopted a core set of values (See Introduction, Strategic Statements), and guidelines for project and initiative selection (See Introduction, Project and Initiative Selection Guidelines), as well as, approved the Greenbank Farm Management Groups organizational values. (See Appendix D-1: GFMG Strategic Statements) All of these will guide the planning process. The Port recognizes the communitys deep love and appreciation for the site and is committed to community involvement in the planning process. The Greenbank Farm Management Group is considered a key stakeholder, due to the lease and management services agreement with the Port through 2014. GFMG boardmembers, staff, volunteers and subtenants will be invited to participate in focus groups developing individual plan components.

The Master Site Plan will be consistent with the current Greenbank Farm Special Review District zoning (ICC 17.03.062), and any amendments the Port seeks in order to be consistent with the use and development restrictions of the conservation easement adopted by the Port.

The Port will use the Master Site Plan and individual plan components to guide its responsible stewardship of the Greenbank Farm and its decisions related to future uses and development. Prior to the adoption of the Master Site Plan, the Port will carefully review operational decisions in the Port Tract to avoid unplanned impacts on critical areas. Decisions regarding clearing, new trails, development, improvements or other actions at the Port Tract will be delayed when possible until the Port can adopt applicable components of the Master Site Plan.

The Master Site Plan will include, but not be limited to, the following components.

a. Asset Inventory

1. Cultural and Natural Resources: to include but not be limited to, an inventory of all aspects of the historic, archaeological, scenic and cultural landscape features, existing recreational locations and uses, wildlife and plant species habitat, critical habitat and environmental areas (including the wetlands), noxious and invasive plants, watershed features, and agricultural resources, including soils, drainage, infrastructure, climate, and historical, current and potential uses.
2. Capital Facilities and Utility Systems: to include but not be limited to, an inventory of the existing buildings and utility systems addressing structural integrity, capacity and limitations, uses, and capital and ongoing maintenance needs.

1. Environmental Resources Protection Plan: to include but not be limited to, identification of measures to protect, restore and enhance inventoried critical habitat and important wildlife areas and to control noxious and invasive plants. Protection planning shall be in cooperation with landowners who own critical habitat adjacent to the Greenbank Farm, at minimum, Island County, US Navy, Greenbank Beach and Boat Club, The Nature Conservancy, and any private landowners that choose to participate. This plan shall identify environmentally appropriate improvements that will facilitate public enjoyment of critical habitat and important wildlife areas without adversely impacting these resources. The Environmental Resources Protection Plan shall be developed in association with the Agriculture Plan to ensure a proper balance between environmental protection and agricultural use. The development and implementation of a Noxious and Invasive Plant Control Plan will receive immediate priority in planning to facilitate rapid implementation of control measures. It shall be considered in the development of the Agriculture, Recreation and Commercial Plans.
2. Agriculture Plan: to include but not be limited to, identification of feasible and desirable agricultural uses and locations, specific restoration and enhancement needs, and potential development partners. The plan will address the need for new structures, their potential uses, scale and location of each, and identify infrastructure needed to support agricultural and value-added agricultural activity. Restoring the agricultural fields to productive use will be the highest priority in planning and implementation. A primary objective of the Agriculture Plan will be to promote and encourage organic agricultural uses, and to ensure continued State certification of compliance with the National Organic Standards. Agricultural use and development will be consistent with the Environmental Resources Protection Plan.
3. Recreation Plan: to include but not be limited to, identification of community priorities for enhancements to the playground, and community priorities for the locations, extent, uses, enhancements, and maintenance of the public trail system. The plan will establish appropriate stewardship guidelines for the public trail system. The plan will address the need for infrastructure and/or structures to support passive recreational activities, and the potential uses, location and scale of proposed new structures or other improvements. Planning will include evaluation of historical, cultural or other assets which could be developed to enhance the sites attraction to visitors. The Recreation Plan shall be consistent with the Environmental Resources Protection Plan and the Agriculture Plan, to ensure that important environmental and agricultural resources are not adversely impacted by expansion of existing or new recreational uses.
4. Commercial Plan: to include but not be limited to, planning for balanced development of the commercial business center to attract visitors and locals, the communitys need for event and meeting venues, and the historic rural and agricultural character of the site. The plan should address the need for enhanced or new infrastructure, new structures, renovation of existing structures, their potential uses, the economic viability of the proposed uses, the location and scale of proposed new or renovated structures, and landscaping plans. The planning process will include consideration of the following: a visitor center, public restrooms with direct access from the outdoors, a structure that could accommodate a year-round farmers market and events with 250+ participants, a hub facility for the storage and delivery of produce and value-added agricultural products, and a hub facility for hand-craft boating activity. The stabilization and enhancement of the current retail core will receive the highest priority in planning and implementation. The planning process will include consideration of the need to improve circulation of visitors among the commercial buildings. This plan may also include components of the Marketing Plan, such as signage.
5. Emergency Preparedness Plan: to include but not be limited to, identification of the appropriate role the Port, and its Greenbank Farm facility, can and should play in a catastrophic public emergency (e.g., an assembly site, storage for emergency supplies, a site for potable water and food distribution). This plan will be a coordinated part of the Island County Comprehensive Emergency Management Plan, and will comply with State and Federal requirements. Planned activities shall not adversely impact the Greenbank Farms historic, rural and agricultural character, and its environmental features.

1. i. Marketing Plan: to include but not be limited to, the development of an advertising plan which will attract locals and regional visitors, evaluation and recommendation of signage which will maximize the site and individual business visibility while preserving the Farms historic, agricultural and rural character and its location along a designated Island County Scenic Corridor, and identification of the key attractions to focus highway/road signage on. The development of a marketing plan will receive high priority for planning and implementation, and will complement other Port marketing efforts.

3. Holmes Harbor Public Water Access

The Port is aware that the Island County Non-Motorized Trail Plan has established a priority for identifying and developing publicly-owned access points to the water on the eastern shoreline of Central Whidbey. There is significant public interest in the development of small scale hand-craft launch sites to Holmes Harbor. The Port intends to cooperate with Island County efforts to develop small scale hand-craft launch site(s) in the Greenbank area, and will consider developing a parking area at the Port Tract of the Greenbank Farm, if appropriate.

Recognizing the historic existence of a commercial marine transportation link for passengers and products in the Greenbank area, the Port will explore the possibility of re-establishing a marine transportation link in the area. A mid-Island, Greenbank area site is ideal, as it is strategically located across from the Wooden Boat Center on Camano Island. A marine link between the two popular tourist destinations would economically benefit both islands.

4. Transition Planning

The Port has a lease and a management services agreement with the Greenbank Farm Management Group (GFMG), a private non-profit organization which will terminate March 31, 2014. It is in the best interests of the Port District, its taxpayers and the Greenbank Farm to initiate an evaluation of the Ports options for the management and operations of the Port Tract well in advance of the termination of these two contracts. The future lease options of the majority of the Commercial Area property and its buildings must be carefully considered to ensure minimal impact on the subtenants of GFMG and Farm activities.

1. Agricultural Innovation Projects

The decline in Central Whidbey Island agriculture is of serious concern to the Port of Coupeville. The roots of the historic culture and character within the District are agricultural. Farming is a key factor in the Districts economic vitality. Its direct contribution is magnified by the intrinsic importance of the scenic vistas of open farmland to tourism. The Port is committed to participating in local initiatives to forestall the disappearance of working farms in the District, and re-build a sustainable local agricultural economy that capitalizes on the unique opportunities of Central Whidbey Island.

There is no single, simple solution. The average Island County farms market value of production is significantly less than a decade ago. Their operating deficits continue to increase. The economic factors driving this negative bottom line are well documented. The result is a dramatic decrease in the last ten years of the number of farms and the number of acres in production. Compared to other counties in our bioregion, the key indicators for agricultural health reflect a faster than average decline in Island County. Across the State and within this bioregion, projects to encourage and support local agriculture are being implemented. The community dialogue is stimulating new ideas and new ways to collaborate.

The Port will seek partnerships and collaborative opportunities with local, regional, state-wide and national efforts to reverse the decline in the number of farms, the amount of land in production, the market value of production and agricultural profitability within the District. The Port will actively participate in the ongoing assessment of the needs of agriculture in the District, and the identification of innovative projects with the potential to impact systemic change. It is the intention of the Port to play an active role in increasing the economic viability of local agriculture by funding such agricultural innovation, where appropriate and within its funding capacity.

2. Air Transportation Facility

The Port recognizes the synergistic benefit an airport has on a community, and the stability that public ownership can provide for such a facility. The Port views the possibility of the acquisition of an existing airfield as a fundamental enhancement of the vitality of the Port District.

Outlying Field (OLF) is in the Port District. It is under federal ownership and in active use by the Navy. There is always the possibility that OLF may be declared surplus at some point in the future. It offers an ideal site, location and infrastructure for a general aviation facility. The Port will pursue OLF as an opportunity to develop a publicly owned airport, solely or in partnership with Island County, if it should be come available.

Lupien Field, an existing civilian airport, is contiguous to the northern boundary of the Port District.

Its ownership is currently uncertain, as it is in court-appointed receivership. In 2006 Kenmore Air began limited passenger service from Lupien Field to Boeing Field in Seattle, and has a contract with the Navy to transport personnel. They are currently making capital improvements in order to meet minimum FAA standards to continue service. The Port intends to pursue the possibility of the acquisition of Lupien Field. At minimum, the Port acquisition would require resolution of the issues related to ownership, the emergence of broad community support for expanding District boundaries, establishment of public/private partnerships, and the availability of funding for acquisition, capital improvements and ongoing maintenance.

3. Light Industrial Development

The Port is aware that there is increasing pressure on rural areas of Whidbey Island to develop commercial and light industrial uses. Providing suitable facilities for such development is a common undertaking of port districts. The Port recognizes that light industrial businesses add diversity and stability to the local economy. They can create needed family wage jobs. Light industrial parks can provide flexible space for startup businesses, and also workshop and studio space for arts-based businesses that will contribute to the existing art-tourism attraction of Central Whidbey Island For these reasons, the Port intends to identify and acquire property to build a light industrial business park(s) in the existing Light Manufacturing or Airport zones in the District. However, it will pursue such infrastructure development with a commitment to preserving Central Whidbey Islands rural landscape by site choice and careful design. Light industrial parks, if properly designed and operated, will not detract from the rural and scenic character of the District. Sites will be chosen that are isolated from the scenic landscape that drives the tourism economy, or among existing light industrial development. Building and site design standards will incorporate environmental protection measures, as well as rural and historic elements, to mediate the visual impact of the bulding(s) and the site without diminishing the efficient and profitable use of the site.

4. Alternative, Sustainable Energy Projects

The Port is cognizant that the natural resources of its Island home are finite. It is committed to environmental stewardship as a key value, recognizing that it is essential to its long-term economic goals. The Port will actively seek projects which incorporate alternative/sustainable energy creation. It will give higher priority to sustainable energy projects that enhance the economic viability of local agriculture. The Port will not participate in energy projects which will mar the scenic landscape that our tourism economy depends upon. In addition, the Port is committed to utilize reasonable energy conservation practices in all its activities.

5. Keystone Harbor of Refuge

The Port has identified the Keystone Harbor as a potential site for a harbor of refuge for boaters. Marine travelers, especially small boat operators, have no safe harbor on the west side of the District in the event of a storm or breakdown. With the ongoing discussion by Washington State Ferries of re-locating or re-designing their Keystone ferry landing, the opportunity may arise to acquire the harbor and adjacent property or to develop services for small crafts in partnership with other organizations. If the site becomes available the Port will pursue the possibility of acquiring the property, or working with Washington State Parks, the Washington State Department of Transportation and/or others to ensure public access to the water, as well as, to establish the harbor as a marine refuge.

Port of Coupeville Comprehensive Plan 2007-2026