The City of Monroe has prepared the following information to help the community understand the annexation process for the Davis properties including the actions taken by Snohomish County, the City of Monroe City Council, and the next steps. Next steps include the current proposed pre-annexation zoning for the Davis Properties. 

This page provides background on the Urban Growth Area (UGA) expansion, explains the purpose and process for pre-annexation zoning, summarizes infrastructure and service capacity considerations, and outlines the next steps in the annexation and Comprehensive Plan processes. The goal is to provide clear, accessible answers to common questions and support transparency throughout the review of this proposal.

1. Background: Urban Growth Area (UGA) Expansion

State and County Process

The Davis Properties were added to Monroe’s Urban Growth Area (UGA) through Snohomish County’s 2024 comprehensive plan update process. This process was conducted entirely by the County, as required under the Growth Management Act (GMA). GMA requires most cities and counties in Washington to plan growth in 20-year increments with updates every ten years.

The Monroe City Council was provided periodic updates on the County’s process for applications that would impact the City of Monroe. This included a presentation at the April 23, 2024, regular Monroe City Council meeting. See related documents: Monroe City Council 4-23-2024 Agenda Bill for Snohomish County Comp Plan,  meeting video4-23-24 Council Presentation,, and signed letter. It is noted that Davis’s made public comments at the beginning of this meeting regarding the MON2 application during the Public Comments portion of this meeting. At the conclusion of staff’s presentation during Council discussion, staff was directed to prepare a letter supporting the MON2 Snohomish County comprehensive plan application to expand the City of Monroe’s UGA, (Davis Handout from 4-25-24 Council Meeting).

Snohomish County conducted analysis, environmental review, public outreach, and legislative action, and the UGA expansion was adopted by the Snohomish County Council in late 2024 (Snohomish County Ordinances 24-031 and 24-032). According to Snohomish County staff, all property owners within 1,000 feet of the site were sent notices before the public hearings and posted the site.

According to Snohomish County staff, all property owners within 1,000 feet of the site were sent two notices, illustrated below, prior to the Planning Commission’s public hearing on October 24, 2023, in accordance with Snohomish County’s Code,  SCC 30.73.050. See official notice here.

This action:

• Placed the properties inside Monroe’s UGA, identifying them as areas where future urban development may occur, and changed the County’s zoning from Rural Residential 5 to Urban Residential 9,600.
• Did not annex the land into the City of Monroe.
• Did not approve or authorize development.
• Did not assign City zoning.
• Once land is placed inside a UGA, the City is responsible for planning for potential future annexation and urban services, including establishing pre-annexation zoning.

Is Pre-Annexation Zoning Premature?

No. Snohomish County added the subject properties to the Monroe UGA in December 2024. On July 24, 2025, the City of Monroe received a Notice of Intent to Annex. City staff presented this proposal to the City Council at the regular Council meeting on September 9, 2025 (Agenda Bill and Attachments,Minutes,Video). The Monroe City Council made five motions directing staff to prepare a resolution accepting the 10% Petition with several conditions, directing staff to commence the pre-annexation zoning process, coordinate with the applicants to meet with City staff to discuss the proposal, directing staff to coordinate with the applicants to prepare a Pre-Annexation Development Agreement, and finally directing staff to work with Snohomish County to prepare an Annexation Interlocal Agreement for the subject area. Pre-annexation zoning to be completed for this proposal before the annexation proceeds to the 60-percent petition phase.

Because these properties were added to the Monroe’s UGA through the County’s comprehensive plan process, they do not have an adopted Future Land Use Map designation. As part of its action accepting the 10-percent annexation petition, City Council required that pre-annexation zoning be established to provide clarity regarding the City’s long-term land use expectations before additional annexation steps move forward.

The subject properties were added to Monroe’s Urban Growth Area (UGA) through Snohomish County’s comprehensive plan process, which concluded in late 2024. Because the City’s Future Land Use Map has not yet been updated to reflect this UGA expansion, the properties currently do not have an adopted City land use designation.

Under MMC 22.76.030(B), when a property within the UGA does not have a specified Future Land Use Map designation, the City applies its lowest-density single-family residential zoning district as the default designation.

In Monroe, the lowest-density is the Single-Family Residential 7 Units per Acre (R7) zoning district, which is similar in density to the current Snohomish County zoning on the properties and is consistent with surrounding development patterns.

Then why do I see R15 being considered?

The City is proposing R7 – Single-Family Residential as the pre-annexation zoning for the Davis Properties. The applicant has also expressed support for R7 zoning. During staff’s analysis of the annexation provisions of the Monroe Municipal Code, MMC 22.76.030(B) was specifically reviewed. That section states that when a territory to be annexed does not have a specified Comprehensive Plan Future Land Use Map designation, the pre-annexation zoning shall default to low-density single-family residential per Chapter 22.14 MMC, Zoning Maps and Districts. Based on this requirement, staff continues to recommend R7 as the appropriate and compliant pre-annexation zoning designation.

At the November 10, 2025, Planning Commission meeting (Agenda, Video, Minutes) Commissioners asked staff to also evaluate R15 – Single-Family Residential to better understand the range of zoning options, potential impacts, and policy considerations. This request reflects the Commission’s advisory role and does not indicate that a higher-density zoning decision has been made.

Considering R15 as an alternative allows the Planning Commission and City Council to:

• Compare how different zoning concepts align with Comprehensive Plan policies
• Evaluate infrastructure and service capacity assumptions
• Understand long-term planning implications prior to annexation
•  This additional analysis is being provided solely to demonstrate due diligence and support informed policy discussion. Staff continues to recommend R7 – Single-Family Residential.

 Pre-Annexation Zoning Does Not:

• Approve any development
• Establish a subdivision layout
• Authorize construction
• Replace project-level environmental review
• Eliminate future public comment opportunities
•  Any future development proposal would still be subject to full project-level review, including SEPA, infrastructure analysis, design standards, buffering requirements, and multiple public comment periods.

 Pre-annexation zoning is a policy-level step that establishes a baseline zoning framework in advance of annexation, as directed by City Council, and does not predetermine whether or how a site will ultimately develop.

2. Infrastructure & Service Capacity

This section provides a consolidated summary from existing City infrastructure plans, the Comprehensive Plan transportation model, and school district planning documents.

2.1 Transportation Capacity

All project-level traffic studies occur only when a development application is submitted.

However, for planning purposes, the City utilizes the Monroe 2044 Comprehensive Plan transportation model to evaluate whether additional housing in the area would exceed adopted Levels of Service (LOS). Monroe has adopted a LOS standard C for local streets, which is defined by how long it takes to travel along a designated street corridor. A corridor can consist of several road segments and intersections. Chain Lake Road, from Brown Road to the roundabout at N. Kelsey Street, is one corridor. It is 1.2 miles in length and includes 10 intersections. Vehicles traveling along the entire corridor during the evening commute hours could average as slow as 17.5mph (LOS C), taking more than four minutes and still meet standards. Slower averages would necessitate corridor improvements to maintain acceptable speeds.  

Key findings:

• As of June 2022, the Chain Lake Road corridor (Concurrency Corridor 16)   had capacity for more than 1,000 additional daily trips during the afternoon commute hours (4:00pm-6:00pm) before adopted LOS thresholds would be exceeded.
• Under both the R7 and R15 zoning scenarios, this corridor is not projected to exceed the adopted LOS standards.
• Connecting local streets will be evaluated at the time of a development application through a project-level Traffic Impact Analysis (TIA).

 Any future development would be required to:

• Complete a Transportation Impact Analysis
• Mitigate impacts per City and WSDOT requirements
• Construct frontage improvements that would include sidewalks for pedestrian circulation
• Contribute to transportation impact fees

2.2 Water Capacity

The City’s adopted Water System Plan shows adequate system capacity to serve future development within the UGA, including this area. The City’s water service areaalready includes the subject properties.

Development would require:

• System modeling
• Infrastructure extensions
• On-site and off-site improvements based on project design.
• All costs for utility extensions are borne by the applicant.
• System Development Charges (SDC)

 2.3 Sewer Capacity

According to the City’s General Sewer Plan, Monroe’s wastewater treatment and collection systems have sufficient capacity to accommodate additional residential growth within the Urban Growth Area and will not create system deficiencies.  Although the subject properties were not specifically analyzed in the 2022 Wastewater Treatment Plant Engineering Report (available upon request) or the 2024 Utility Systems Plans (Monroe 2044 Comprehensive Plan Appendix 8C), the data and growth assumptions in those plans demonstrate adequate system capacity to serve anticipated citywide growth through 2040. Based on the location of the properties, gravity sewer is anticipated, and no off-site pump stations are expected to be impacted.

Any future project would require:

• Project Specific Engineering analysis
• Utility Infrastructure extensions
• On-site and off-site improvements based on project design and City Standards
• Payment of all required utility-related costs, including System Development Charges (SDCs), which are borne by the applicant

 2.4 Stormwater & Environmental Considerations

Because this is a non-project legislative action, no construction is approved.

A full environmental review will be required at the development stage, including:

• Critical areas delineation and buffers
• Habitat assessment
• Stormwater modeling per the City’s Stormwater Management Manual that currently requires compliance with the 2019 WA Department of Ecology Stormwater Management Manual for Western Washington
• Downstream analysis
• Erosion and drainage control
• Mitigation for any impacts
•  This is when detailed evaluation of flooding, runoff, slope stability, and stream protection occurs.

2.5 School Capacity

The Monroe School District maintains a Capital Facilities Plan (CFP) that documents enrollment trends, existing capacity, and planned improvements. The subject properties are already within the Monroe School District boundaries. The Monroe School District was notified of the Snohomish County’s 2024 comprehensive plan update proceedings. During the GMA 10-year periodic update, the City and Snohomish County coordinates with the district by proving revised population estimates.

Key points:

• The Monroe School District’s 2024-2029 Capital Facilities Element was adopted by reference in the Monroe 2044 Comprehensive Plan as Appendix 8-D, here is a link.
• The District is notified of all development proposals within its boundaries by the City or Snohomish County.
• School impact fees (amount determined by the District) are collected for each new housing unit.
•  The proposed zoning does not generate students—only actual development does.

 3. Zoning Context & Density Clarification

3.1 Current vs. Proposed Zoning

The properties are currently zoned by Snohomish County as Residential 9,600 sq. ft. (R-9,600). Snohomish County Code section 30.21.02, Intent of zones, states that single family zones within UGAs should achieve a minimum net density of six dwelling units per net acre .

City zoning is based on gross density, which calculates housing capacity from the full acreage before subtracting roads, critical areas, or open space.

R7 – Single-Family Residential

Detached homes: Up to 7 units per gross acre

Attached homes (townhomes/duplexes): Up to 14 units per gross acre

Lowest-density single-family zoning district in Monroe

Similar in intensity to existing County zoning once net-to-gross differences are accounted for

Creates logical consistency with SkyView Ridge, Eaglemont Phases, and nearby single-family neighborhoods

R7 remains the most appropriate and lowest-intensity designation available under City code.  However, Planning Commission asked staff at the November 10, 2025 Planning Commission meeting to review the pros and cons of R7 zoning versus R15 zoning.  This analysis was provided at the January 12, 2026 Planning Commission Public Hearing.

4. Public Benefits of Pre-Annexation Zoning

Assigning zoning before annexation supports several goals in Monroe’s Comprehensive Plan, including:

Consider pre-annexation sub-area planning for the unincorporated portions of Monroe’s UGA, with requirements that an analysis is completed of how the proposal meets the policy framework. (Policy LU-3.5.1.3)

Plan for the types, quality, and quantities of housing and commercial development to assure land use compatibility, enhance neighborhood character, and facilitate Monroe's long-term sustainability. (Goal T 4.2)

Provide and maintain public services and facilities that support Monroe’s growth projections through 2044 by maximizing safety and maintenance of existing facilities, utilizing financing efficiently, and increasing well-being and health of all residents(Goal T 8.1)

Manage open space, shorelines, and natural habitats to improve the environment and reduce conflicts with development. (Goal S-NE 10.4)

 5. Next Steps in the Annexation & Planning Process

• Planning Commission Public Hearing – Held 1/12/26 (see Meetings tab for documents)
  • Public Comment Opportunity
• Planning Commission Recommendation - Scheduled for 2/9/26
• City Council Review and Action on pre-annexation zoning
  • Public Comment Opportunity at the Public Hearing
  • Introduction before City Council - Tentatively scheduled for 2/24/26
  • Public Hearing Before City Council - Date not set
• Annexation Petition, Development Agreement & Snohomish County Boundary Review Board Process (BRB)
  • Multiple Public Comment Opportunity associated with the City Council public hearings to consider the 60% Petition and forthcoming development agreement.
  • Potential Public Comment Opportunity if the Snohomish BRB invokes jurisdiction if/when the annexation is submitted to the BRB for review.
• 2026 Comprehensive Plan Amendment (July 2025-July 2026)
  • Update the Future Land Use Map to reflect the UGA expansion
  • Public Comment Opportunity at the Public Hearing
• Future Development Applications (if submitted)
  • Full SEPA environmental review
  • Potential Public Comment Opportunity if development proposal requires Public Comment and/or a Public Hearing
  • Traffic impact analysis
  • Utility system analysis
  • Stormwater and drainage review

No development under City of Monroe regulations may occur until these separate processes are completed to annex the subject properties into the City of Monroe. If this annexation is not approved, it does not prohibit development under Snohomish County’s development regulations.

6. Endangered Species (Bald Eagles)

In response to concerns raised regarding the protection of bald eagles and migratory birds, City staff reached out to the Washington State Department of Fish & Wildlife and U.S. Department of Fish & Wildlife. Bald eagles are one of the success stories for the Endangered Species Act in Washington State. Bald eagles were removed from Washington’s list of endangered species in 2016.

Although there are no longer specific State regulations protecting bald eagles, they are still protected by the Federal Bald and Golden Eagle Protection Act, https://www.fws.gov/law/bald-and-golden-eagle-protection-act. This act applies when there is a nesting or roosting tree present on a property. The regulations do not prohibit development; instead, they require a 660-foot buffer from a nesting or roosting tree and limit construction activities during the breeding season. US Fish & Wildlife defines a roosting tree as , “a large, mature, or dead tree with strong, open branches used by eagles for resting, specifically for overnight, communal roosting during winter. These trees are typically in sheltered locations near open water and food sources, providing protection from wind, a vantage point for safety, and a social spot for communication and pair bonding.” There are no known or observed bald eagle nesting or roosting trees on the Davis properties or within 660 feet of the properties.

The Migratory Bird Treaty Act is like the Bald and Golden Eagle Protection Act with respect to the provisions that discourage development activities during the breeding season and near nesting sites for migratory birds, https://www.fws.gov/law/migratory-bird-treaty-act-1918.

Finally, Snohomish County concluded that no endangered species are present on the Davis properties as part of the environmental impact analysis for Snohomish County’s 2024 Comprehensive Plan update. This conclusion can be found on page 3-160 of Snohomish County’s Draft Environmental Impact State (EIS) that reads, “Docket request MON2 and Motion No. 22-099 would add approximately 90 acres to the UGA. The 90 acres of added area would be rezoned to allow for higher residential development compared to current conditions. No ESA-listed wildlife species or plants, other species of importance or other habitats of importance were identified within MON2 or Motion No. 22-099. Development within MON2 and Motion No. 22-099 has the potential to impact fish (including ESA-listed fish species), streams, and wetlands similar to those described under Impacts Common to All Alternatives, Unincorporated UGAs. Similar to the impacts in the UGAs, in the areas where changes to future land use designations are proposed, which result in increased development density, the risk of impacts on fish, wildlife, plants, and habits of importance would be higher than under Alternative 1 because the anticipated level of development would be higher.”

It should be noted that both Snohomish County and the City of Monroe have adopted Critical Areas Regulations that require the protection of critical areas including the steams identified in the County’s EIS. These regulations do not prohibit development but rather ensures the protection of said areas when a site-specific development proposal is submitted for review. Here is a link to the City of Monroe’s Critical Areas Regulations for reference, https://monroe.municipal.codes/MMC/22.80.

Questions?

For additional information or to submit comments, please contact:

Community Development Department
Amy Bright, Planner
City of Monroe
(360) 863-4533
abright@monroewa.gov