S-0488.4           _______________________________________________
                                  SENATE BILL 5321
                   _______________________________________________
State of Washington               56th Legislature             1999 Regular Session
By Senators Patterson and Rasmussen
Read first time 01/20/1999.  Referred to Committee on State & LocalGovernment.
     AN ACT Relating to public facility siting and planning; amending
RCW 36.70A.030, 36.70A.200, 36.70A.210, 43.21C.031, 43.21C.060, and
82.02.090; adding a new section to chapter 36.70A RCW; and creating a
new section.BE IT ENACTED BY THE LEGISLATURE OF THE STATE OF WASHINGTON:
     {+ NEW SECTION. +}  Sec. 1.  The legislature finds that current
processes for the siting and operation of major regional public
facilities often fail to adequately address regional and localized
impacts and benefits of such facilities.  Throughout the state there
are proposals for siting major public facilities in which surrounding
neighborhoods and communities will be disproportionately impacted while
the benefits of the facility are provided to the larger region or to
the entire state.  These facilities include major transportation
facilities such as highways, bridges, airports, and rail lines, and
other nontransportation facilities such as prisons and landfills.  The
legislature also finds that although the growth management act provides
procedures for establishing county-wide policies for coordinated
planning of such facilities, those procedures do not include all public
entities that provide such facilities and do not provide sufficient
guidance to local jurisdictions to ensure consideration and mitigation
of impacts to surrounding communities and participation in siting
processes by those communities.
     Therefore, it is the intent of the legislature to ensure that these
considerations are incorporated into the county-wide planning policies
required under the growth management act, and to provide sufficient
authority so that siting decisions and mitigation measures adopted
through using such policies may be fully implemented.
     Sec. 2.  RCW 36.70A.030 and 1997 c 429 s 3 are each amended to read
as follows:
     Unless the context clearly requires otherwise, the definitions in
this section apply throughout this chapter.
     (1) "Adopt a comprehensive land use plan" means to enact a new
comprehensive land use plan or to update an existing comprehensive landuse plan.
     (2) "Agricultural land" means land primarily devoted to the
commercial production of horticultural, viticultural, floricultural,
dairy, apiary, vegetable, or animal products or of berries, grain, hay,
straw, turf, seed, Christmas trees not subject to the excise tax
imposed by RCW 84.33.100 through 84.33.140, finfish in upland
hatcheries, or livestock, and that has long-term commercial
significance for agricultural production.
     (3) "City" means any city or town, including a code city.
     (4) "Comprehensive land use plan," "comprehensive plan," or "plan"
means a generalized coordinated land use policy statement of the
governing body of a county or city that is adopted pursuant to thischapter.
     (5) "Critical areas" include the following areas and ecosystems:
(a) Wetlands; (b) areas with a critical recharging effect on aquifers
used for potable water; (c) fish and wildlife habitat conservation
areas; (d) frequently flooded areas; and (e) geologically hazardousareas.
     (6) "Department" means the department of community, trade, and
economic development.
     (7) "Development regulations" or "regulation" means the controls
placed on development or land use activities by a county or city,
including, but not limited to, zoning ordinances, critical areas
ordinances, shoreline master programs, official controls, planned unit
development ordinances, subdivision ordinances, and binding site plan
ordinances together with any amendments thereto.  A development
regulation does not include a decision to approve a project permit
application, as defined in RCW 36.70B.020, even though the decision may
be expressed in a resolution or ordinance of the legislative body of
the county or city.
     (8) {+ "Essential public facilities" are those public facilities,
and their expansion, that are typically difficult to site, and include:
(a) "Local essential public facilities" planned for the primary purpose
of serving the residents of the jurisdiction in which the facilities
are planned to be located, and (b) "regional or state-wide essential
public facilities,"  which include airports, state education
facilities, state or regional transportation facilities, sewage
treatment facilities, solid waste handling facilities, and additional
facilities that may be defined in a county-wide planning policy
developed pursuant to RCW 36.70A.210.  "Essential public facilities" do
not include facilities whose siting is governed by chapter 80.50 or70.105 RCW.
     (9) +} "Forest land" means land primarily devoted to growing trees
for long-term commercial timber production on land that can be
economically and practically managed for such production, including
Christmas trees subject to the excise tax imposed under RCW 84.33.100
through 84.33.140, and that has long-term commercial significance.  In
determining whether forest land is primarily devoted to growing trees
for long-term commercial timber production on land that can be
economically and practically managed for such production, the following
factors shall be considered:  (a) The proximity of the land to urban,
suburban, and rural settlements; (b) surrounding parcel size and the
compatibility and intensity of adjacent and nearby land uses; (c) long-
term local economic conditions that affect the ability to manage for
timber production; and (d) the availability of public facilities and
services conducive to conversion of forest land to other uses.
     (({- (9) -})) {+ (10) +} "Geologically hazardous areas"  means
areas that because of their susceptibility to erosion, sliding,
earthquake, or other geological events, are not suited to the siting of
commercial, residential, or industrial development consistent with
public health or safety concerns.
     (({- (10) -})) {+ (11) +} "Long-term commercial significance"
includes the growing capacity, productivity, and soil composition of
the land for long-term commercial production, in consideration with the
land's proximity to  population areas, and the possibility of more
intense uses of the land.
     (({- (11) -})) {+ (12) +} "Minerals" include gravel, sand, and
valuable metallic substances.
     (({- (12) -})) {+ (13) +} "Public facilities" include streets,
roads, highways, sidewalks, street and road lighting systems, traffic
signals, {+ airports, bridges, +} domestic water systems, storm and
sanitary sewer systems, parks and recreational facilities, (({- and -
})) schools{+ , correctional facilities, solid waste handling
facilities, and in-patient facilities +}.
     (({- (13) -})) {+ (14) +} "Public services" include fire protection
and suppression, law enforcement, public health, education, recreation,
environmental protection, and other governmental services.
     (({- (14) -})) {+ (15) +} "Rural character" refers to the patterns
of land use and development established by a county in the rural
element of its comprehensive plan:
     (a) In which open space, the natural landscape, and vegetation
predominate over the built environment;
     (b) That foster traditional rural lifestyles, rural-based
economies, and opportunities to both live and work in rural areas;
     (c) That provide visual landscapes that are traditionally found in
rural areas and communities;
     (d) That are compatible with the use of the land by wildlife and
for fish and wildlife habitat;
     (e) That reduce the inappropriate conversion of undeveloped land
into sprawling, low-density development;
     (f) That generally do not require the extension of urban
governmental services; and
     (g) That are consistent with the protection of natural surface
water flows and ground water and surface water recharge and dischargeareas.
     (({- (15) -})) {+ (16) +} "Rural development" refers to development
outside the urban growth area and outside agricultural, forest, and
mineral resource lands designated pursuant to RCW 36.70A.170.  Rural
development can consist of a variety of uses and residential densities,
including clustered residential development, at levels that are
consistent with the preservation of rural character and the
requirements of the rural element.  Rural development does not refer to
agriculture or forestry activities that may be conducted in ruralareas.
     (({- (16) -})) {+ (17) +} "Rural governmental services" or "rural
services" include those public services and public facilities
historically and typically delivered at an intensity usually found in
rural areas, and may include domestic water systems, fire and police
protection services, transportation and public transit services, and
other public utilities associated with rural development and normally
not associated with urban areas.  Rural services do not include storm
or sanitary sewers, except as otherwise authorized by RCW36.70A.110(4).
     (({- (17) -})) {+ (18) +} "Urban growth" refers to growth that
makes intensive use of land for the location of buildings, structures,
and impermeable surfaces to such a degree as to be incompatible with
the primary use of land for the production of food, other agricultural
products, or fiber, or the extraction of mineral resources, rural uses,
rural development, and natural resource lands designated pursuant to
RCW 36.70A.170.  A pattern of more intensive rural development, as
provided in RCW 36.70A.070(5)(d), is not urban growth.  When allowed to
spread over wide areas, urban growth typically requires urban
governmental services.  "Characterized by urban growth" refers to land
having urban growth located on it, or to land located in relationship
to an area with urban growth on it as to be appropriate for urbangrowth.
      (({- (18) -})) {+ (19) +} "Urban growth areas" means those areas
designated by a county pursuant to RCW 36.70A.110.
      (({- (19) -})) {+ (20) +} "Urban governmental services" or "urban
services" include those public services and public facilities at an
intensity historically and typically provided in cities, specifically
including storm and sanitary sewer systems, domestic water systems,
street cleaning services, fire and police protection services, public
transit services, and other public utilities associated with urban
areas and normally not associated with rural areas.
      (({- (20) -})) {+ (21) +} "Wetland" or "wetlands" means areas that
are inundated or saturated by surface water or ground water at a
frequency and duration sufficient to support, and that under normal
circumstances do support, a prevalence of vegetation typically adapted
for life in saturated soil conditions.  Wetlands generally include
swamps, marshes, bogs, and similar areas.  Wetlands do not include
those artificial wetlands intentionally created from nonwetland sites,
including, but not limited to, irrigation and drainage ditches, grass-
lined swales, canals, detention facilities, wastewater treatment
facilities, farm ponds, and landscape amenities, or those wetlands
created after July 1, 1990, that were unintentionally created as a
result of the construction of a road, street, or highway.  Wetlands may
include those artificial wetlands intentionally created from nonwetland
areas created to mitigate conversion of wetlands.
     Sec. 3.  RCW 36.70A.200 and 1998 c 171 s 3 are each amended to read
as follows:
     (1) The comprehensive plan of each county and city that is planning
under this chapter shall include a process for identifying and siting
essential public facilities.  (({- Essential public facilities include
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 abuse facilities, mental health
facilities, and group homes. -}))  {+ The processes for identifying and
siting regional or state-wide essential public facilities shall be
coordinated through the county-wide planning policy adopted under RCW
36.70A.210. +}
     (2) The office of financial management shall maintain a list of
those essential state{+ -owned and state-operated +} public facilities
that are required or likely to be built within the next six years.  The
office of financial management may (({- at any time -})) add facilities
to the list{+ , following consultation with the governing bodies of the
cities or counties under consideration for siting of the facilities.
No county or city shall be required to amend its comprehensive plan to
meet the requirements of this section due to the listing of a facility
by the office of financial management, prior to the next scheduled plan
revision +}.
     {+ (3) +} No local comprehensive plan or development regulation may
preclude the siting of essential public facilities.  {+ This subsection
does not limit the authority of a local government to require the
avoidance or mitigation of impacts of a proposed essential public
facility under chapter 43.21C RCW or other applicable authority, and
the imposition of requirements to avoid or mitigate such impacts shall
not be construed as precluding the siting of an essential publicfacility. +}
     Sec. 4.  RCW 36.70A.210 and 1998 c 171 s 4 are each amended to read
as follows:     (1) The legislature recognizes that counties are regional
governments within their boundaries, and cities are primary providers
of urban governmental services within urban growth areas.  For the
purposes of this section, a "county-wide planning policy" is a written
policy statement or statements used solely for establishing a county-
wide framework from which county and city comprehensive plans are
developed (({- and -})){+ , +} adopted{+ , and implemented +} pursuant
to this chapter.  This framework shall ensure that city and county
comprehensive plans are consistent as required in RCW 36.70A.100{+ ,
and that such plans and the planning for public facilities by the
county, cities, and special districts are consistent as required by
subsection (9) of this section +}.  Nothing in this section shall be
construed to alter the land-use powers of cities.
     (2) The legislative authority of a county that plans under RCW
36.70A.040 shall adopt a county-wide planning policy in cooperation
with the cities located in whole or in part within the county asfollows:
     (a) No later than sixty calendar days from July 16, 1991, the
legislative authority of each county that as of June 1, 1991, was
required or chose to plan under RCW 36.70A.040 shall convene a meeting
with representatives of each city located within the county for the
purpose of establishing a collaborative process that will provide a
framework for the adoption of a county-wide planning policy.  In other
counties that are required or choose to plan under RCW 36.70A.040, this
meeting shall be convened no later than sixty days after the date the
county adopts its resolution of intention or was certified by the
office of financial management.
     (b) The process and framework for adoption of a county-wide
planning policy specified in (a) of this subsection shall determine the
manner in which the county and the cities agree to all procedures and
provisions including but not limited to desired planning policies,
deadlines, ratification of final agreements and demonstration thereof,
and financing, if any, of all activities associated therewith.
     (c) If a county fails for any reason to convene a meeting with
representatives of cities as required in (a) of this subsection, the
governor may immediately impose any appropriate sanction or sanctions
on the county from those specified under RCW 36.70A.340.
     (d) If there is no agreement by October 1, 1991, in a county that
was required or chose to plan under RCW 36.70A.040 as of June 1, 1991,
or if there is no agreement within one hundred twenty days of the date
the county adopted its resolution of intention or was certified by the
office of financial management in any other county that is required or
chooses to plan under RCW 36.70A.040, the governor shall first inquire
of the jurisdictions as to the reason or reasons for failure to reach
an agreement.  If the governor deems it appropriate, the governor may
immediately request the assistance of the department of community,
trade, and economic development to mediate any disputes that preclude
agreement.  If mediation is unsuccessful in resolving all disputes that
will lead to agreement, the governor may impose appropriate sanctions
from those specified under RCW 36.70A.340 on the county, city, or
cities for failure to reach an agreement as provided in this section.
The governor shall specify the reason or reasons for the imposition of
any sanction.
     (e) No later than July 1, 1992, the legislative authority of each
county that was required or chose to plan under RCW 36.70A.040 as of
June 1, 1991, or no later than fourteen months after the date the
county adopted its resolution of intention or was certified by the
office of financial management the county legislative authority of any
other county that is required or chooses to plan under RCW 36.70A.040,
shall adopt a county-wide planning policy according to the process
provided under this section and that is consistent with the agreement
pursuant to (b) of this subsection, and after holding a public hearing
or hearings on the proposed county-wide planning policy.
     (3) A county-wide planning policy shall at a minimum, address thefollowing:
     (a) Policies to implement RCW 36.70A.110;
     (b) Policies for promotion of contiguous and orderly development
and provision of urban services to such development;
     (c) Policies for {+ identifying and +} siting {+ regional and
state-wide essential +} public (({- capital -})) facilities (({- of a
county-wide or state-wide nature -})), including transportation
facilities (({- of state-wide significance as defined in RCW 47.06.140
-})){+ .  Such policies shall include the procedures and provisions
required by subsection (4) of this section +};
     (d) Policies for county-wide transportation facilities andstrategies;
     (e) Policies that consider the need for affordable housing, such as
housing for all economic segments of the population and parameters for
its distribution;
     (f) Policies for joint county and city planning within urban growthareas;
     (g) Policies for county-wide economic development and employment;and
     (h) An analysis of the fiscal impact.
     (4) {+ The county-wide planning policy for identifying and siting
regional or state-wide essential public facilities shall be developed
collaboratively by the county, the cities, the state agencies with
regulatory jurisdiction over the siting of such facilities, and special
purpose districts that are located within the county and provide one or
more types of such facilities.  Participation by special purpose
districts shall be limited to districts that provide one or more types
of regional or state-wide essential public facilities or additional
types of facilities proposed to be included in the county-wide policy.
The policy shall at a minimum address the following:
     (a) Criteria and procedures to determine which facilities will be
subject to the policy;
     (b) Creation of a regional entity to apply the policy and make
regional decisions regarding the siting of a facility.  The policy
shall ensure the fair participation or representation of all
jurisdictions that may be impacted or benefited by the facility.  The
policy shall ensure an active public participation process in which the
public may propose siting dispute provisions and may comment upon
proposals by the regional decisional entity.   The decisional
procedures shall define circumstances in which alternative dispute
resolution mechanisms may be employed.  The procedures shall also
include criteria for determining when a decisional impasse hasoccurred;
     (c) Provide criteria and procedures by which the decisional entity
considers whether the facility:
     (i) Unreasonably interferes with the objectives of the adopted
comprehensive plan of a jurisdiction adversely impacted by thefacility;
     (ii) Is consistent with the adopted comprehensive plan and
development regulation of a jurisdiction adversely impacted by thefacility;
     (iii) Fairly apportions the relative burdens and benefits of thefacility;
     (iv) To the extent practicable, avoids or minimizes the impacts
upon local jurisdictions, and if avoidance or minimization of the
impacts is not practicable, provides other mitigation measures that
compensate for the impacts;
     (d) Provides procedures by which impacted local jurisdictions with
the approval of the regional decisional entity may ensure the
implementation of mitigation conditions or compensation, including the
imposition of such conditions upon the permits issued by the permitting
jurisdictions, including local governments and state agencies; and
     (e) Funding of mitigating measures on a regional basis, including
the contribution of funding from multiple jurisdictions that will be
benefited by the facility.
     (5) +} Federal agencies and Indian tribes may participate in and
cooperate with the county-wide planning policy adoption process.
Adopted county-wide planning policies shall be adhered to by stateagencies.
     (({- (5) -})) {+ (6) +} Failure to adopt a county-wide planning
policy that meets the requirements of this section may result in the
imposition of a sanction or sanctions on a county or city within the
county, as specified in RCW 36.70A.340.  In imposing a sanction or
sanctions, the governor shall specify the reasons for failure to adopt
a county-wide planning policy in order that any imposed sanction or
sanctions are fairly and equitably related to the failure to adopt a
county-wide planning policy.
     (({- (6) -})) {+ (7) +} Cities and the governor may appeal an
adopted county-wide planning policy to the growth management hearings
board within sixty days of the adoption of the county-wide planningpolicy.
     (({- (7) -})) {+ (8) +} Multicounty planning policies shall be
adopted by two or more counties, each with a population of four hundred
fifty thousand or more, with contiguous urban areas and may be adopted
by other counties, according to the process established under this
section or other processes agreed to among the counties and cities
within the affected counties throughout the multicounty region.
     {+ (9) In a county with an adopted county-wide planning policy
adopted before July 1, 1999, the county shall adopt an element
governing the siting of regional or state-wide essential public
facilities pursuant to subsection (4) of this section in the next
scheduled comprehensive revision of its policy, but not later than July
1, 2001. +}     {+ NEW SECTION. +}  Sec. 5.  A new section is added to chapter
36.70A RCW to read as follows:
     The department shall adopt minimum guidelines for the development
of county-wide planning policies on the siting of essential public
facilities under RCW 36.70A.210(4).
     Sec. 6.  RCW 43.21C.031 and 1995 c 347 s 203 are each amended to
read as follows:
     (1) An environmental impact statement (the detailed statement
required by RCW 43.21C.030(2)(c)) shall be prepared on proposals for
legislation and other major actions having a probable significant,
adverse environmental impact.  The environmental impact statement may
be combined with the recommendation or report on the proposal or issued
as a separate document.  The substantive decisions or recommendations
shall be clearly identifiable in the combined document.  Actions
categorically exempt under RCW 43.21C.110(1)(a) do not require
environmental review or the preparation of an environmental impact
statement under this chapter.  In a county, city, or town planning
under RCW 36.70A.040, a planned action, as provided for in subsection
(2) of this section, does not require a threshold determination or the
preparation of an environmental impact statement under this chapter,
but is subject to environmental review and mitigation as provided in
this chapter.
     An environmental impact statement is required to analyze only those
probable adverse environmental impacts which are significant.
Beneficial environmental impacts may be discussed.  The responsible
official shall consult with agencies and the public to identify such
impacts and limit the scope of an environmental impact statement.  The
subjects listed in RCW 43.21C.030(2)(c) need not be treated as separate
sections of an environmental impact statement.  Discussions of
significant short-term and long-term environmental impacts, significant
irrevocable commitments of natural resources, significant alternatives
including mitigation measures, and significant environmental impacts
which cannot be mitigated should be consolidated or included, as
applicable, in those sections of an environmental impact statement
where the responsible official decides they logically belong.
     (2)(a) For purposes of this section, a planned action means one or
more types of project action that:
     (i) Are designated planned actions by an ordinance or resolution
adopted by a county, city, or town planning under RCW 36.70A.040;
     (ii) Have had the significant impacts adequately addressed in an
environmental impact statement prepared in conjunction with (A) a
comprehensive plan or subarea plan adopted under chapter 36.70A RCW, or
(B) a fully contained community, a master planned resort, a master
planned development, or a phased project;
     (iii) Are subsequent or implementing projects for the proposals
listed in (a)(ii) of this subsection;
     (iv) Are located within an urban growth area, as defined in RCW36.70A.030;
     (v) Are not essential public facilities, as defined in RCW (({-
 36.70A.200 -})) {+ 36.70A.030 +}; and
     (vi) Are consistent with a comprehensive plan adopted under chapter
36.70A RCW.
     (b) A county, city, or town shall limit planned actions to certain
types of development or to specific geographical areas that are less
extensive than the jurisdictional boundaries of the county, city, or
town and may limit a planned action to a time period identified in the
environmental impact statement or the ordinance or resolution adopted
under this subsection.
     Sec. 7.  RCW 43.21C.060 and 1983 c 117 s 3 are each amended to read
as follows:     {+ (1) +} The policies and goals set forth in this chapter are
supplementary to those set forth in existing authorizations of all
branches of government of this state, including state agencies,
municipal and public corporations, and counties.  Any governmental
action may be conditioned or denied pursuant to this chapter:
PROVIDED, That such conditions or denials shall be based upon policies
identified by the appropriate governmental authority and incorporated
into regulations, plans, or codes which are formally designated by the
agency (or appropriate legislative body, in the case of local
government) as possible bases for the exercise of authority pursuant to
this chapter.  Such designation shall occur at the time specified by
RCW 43.21C.120.  Such action may be conditioned only to mitigate
specific adverse environmental impacts which are identified in the
environmental documents prepared under this chapter.  These conditions
shall be stated in writing by the decisionmaker.  Mitigation measures
shall be reasonable and capable of being accomplished.  In order to
deny a proposal under this chapter, an agency must find that:  (({- (1)
-})) {+ (a) +} The proposal would result in significant adverse impacts
identified in a final or supplemental environmental impact statement
prepared under this chapter; and (({- (2) -})) {+ (b) +} reasonable
mitigation measures are insufficient to mitigate the identified impact.
Except for permits and variances issued pursuant to chapter 90.58 RCW,
when such a governmental action, not requiring a legislative decision,
is conditioned or denied by a nonelected official of a local
governmental agency, the decision shall be appealable to the
legislative authority of the acting local governmental agency unless
that legislative authority formally eliminates such appeals.  Such
appeals shall be in accordance with procedures established for such
appeals by the legislative authority of the acting local governmentalagency.
     {+ (2) In the siting of essential public facilities through the
procedures of a county-wide planning policy under RCW 36.70A.210, the
governing body of a city or county may identify mitigation measures in
the environmental impact statement and impose those as conditions upon
the siting decision. +}
     Sec. 8.  RCW 82.02.090 and 1990 1st ex.s. c 17 s 48 are each
amended to read as follows:
     Unless the context clearly requires otherwise, the following
definitions shall apply in RCW 82.02.050 through 82.02.090:
     (1) "Development activity" means any construction or expansion of
a building, structure, or use, any change in use of a building or
structure, or any changes in the use of land, that creates additional
demand and need for public facilities.
     (2) "Development approval" means any written authorization from a
county, city, or town which authorizes the commencement of developmentactivity.
     (3) "Impact fee" means a payment of money imposed upon development
as a condition of development approval to pay for public facilities
needed to serve new growth and development, and that is reasonably
related to the new development that creates additional demand and need
for public facilities, that is a proportionate share of the cost of the
public facilities, and that is used for facilities that reasonably
benefit the new development.  "Impact fee" does not include a
reasonable permit or application fee.
     (4) "Owner" means the owner of record of real property, although
when real property is being purchased under a real estate contract, the
purchaser shall be considered the owner of the real property if the
contract is recorded.
     (5) "Proportionate share" means that portion of the cost of public
facility improvements that are reasonably related to the service
demands and needs of new development.
     (6) "Project improvements" mean site improvements and facilities
that are planned and designed to provide service for a particular
development project and that are necessary for the use and convenience
of the occupants or users of the project, and are not system
improvements.  No improvement or facility included in a capital
facilities plan approved by the governing body of the county, city, or
town shall be considered a project improvement.
     (7) "Public facilities" means the following capital facilities
owned or operated by government entities:  (a) Public streets (({- and
-})){+ , +} roads{+ , and other transportation facilities +}; (b)
publicly owned parks, open space, and recreation facilities; (c) school
facilities; and (d) fire protection facilities in jurisdictions that
are not part of a fire district.
     (8) "Service area" means a geographic area defined by a county,
city, town, or intergovernmental agreement in which a defined set of
public facilities provide service to development within the area.
Service areas shall be designated on the basis of sound planning or
engineering principles.
     (9) "System improvements" mean public facilities that are included
in the capital facilities plan and are designed to provide service to
service areas within the community at large, in contrast to projectimprovements.
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