transportation system analysis and recommendations table of … · 2016-02-11 · •...

W H I D B E Y S C E N I C I S L E W A Y C O R R I D O R M A N A G E M E N T P L A N

Transportation System Analysis and Recommendations

Table of ContentsExecutive Summary

Overall Purpose.....................................................................................

Corridor Description.............................................................................

Contents of Plan.....................................................................................

Uses of the Corridor Management Plan.............................................

Vision Statement....................................................................................

Whidbey Scenic Isle Way Intrinsic Qualities.....................................

Summary of Transportation Analysis and Recommendations.........

Summary of Visitor Experience and Services Program...................

Summary of Preserving and Enhancing the Byway..........................

Summary of Signing and Wayfinding..................................................

Summary of Marketing and Promoting the Byway...........................

Summary of Action Plan........................................................................

Summary of Next Steps.........................................................................

1 Introduction

Overall Purpose.....................................................................................

Corridor Description............................................................................

A Typical Drive Along the Whidbey Island Byway...........................

Whidbey Island Byway - State Scenic and Recreational Highwayand Part of the Cascade Loop..............................................................

Contents of Plan....................................................................................

Uses of the Corridor Management Plan.............................................

Benefits...................................................................................................

Community Involvement......................................................................

1

2

3

4

4

5

6

7

ES-1

ES-2

ES-3

ES-4

ES-4

ES-5

ES-6

ES-6

ES-7

ES-8

ES-9

ES-10

ES-10

Table of Contents


Table of Contents

Completing this CMP is Only the Beginning....................................

2 Vision Statement and Goals

Vision.......................................................................................................

Goals.........................................................................................................

3 Existing Conditions Analysis

Whidbey Island - The Overall Experience.........................................

History......................................................................................................

Climate.....................................................................................................

Geology and Physical Characteristics................................................

Hydrology.................................................................................................

Vegetation...............................................................................................

Wildlife and Fish...................................................................................

Demographics, Land Use and the Regional Economy......................

Transportation Conditions...................................................................

4 Intrinsic Qualities Assessment

What are Intrinsic Qualities?..............................................................

What is Required for National Scenic Byway and All AmericanRoad Designation?.................................................................................

Whidbey Island Intrinsic Qualities....................................................

Visual and Scenic Character Analysis................................................

Historical Site Commemorative Project............................................

22

23

26

29

29

39

40

27

15

16

18

19

20

21

9

11

11


Table of ContentsTable of Contents

5 Transportation System Analysis and Recommendations

Introduction...........................................................................................

Regional Transportation......................................................................

Existing Roadway Analysis and Planned Projects............................

Other Transportation Services and Facilities...................................

Transportation Recommendations......................................................

6 Telling the Byway Story: An Interpretive Master Plan forWhidbey Island

Introduction............................................................................................

The Purpose of Interpretation.............................................................

Central Interpretive Themes...............................................................

Recommendations for Interpreting the Byway Story......................

Interpretive Media................................................................................

Historic Site Commemorative Project................................................

7 Visitor Experience and Services Program

Introduction............................................................................................

A Review of Existing Visitor Services and Facilities.......................

Preserving and Enhancing the Visitor Experience..........................

Emphasis on Stewardship and Education.........................................

Whidbey Island Residents are Byway Visitors Too!.........................

Balancing the Needs of Byway Users.................................................

The Importance of Multi-Modal Transportation...............................

Recommended Improvements and Enhancements...........................

65

66

67

67

68

69

70

71

51

52

52

41

41

41

44

46

54

60

62

Table of Contents


Table of Contents

8 Preserving and Enhancing the Byway’s Character

Introduction............................................................................................

Summary of Existing Design and Development Guidelines...........

Recommended Design and Development Guidelines......................

9 Signing and Wayfinding Recommendations

Introduction............................................................................................

Types of Signs........................................................................................

Signing Recommendations...................................................................

Implementing the Signing and Wayfinding Program.......................

Compliance with Outdoor Advertising Controls..............................

10 Marketing and Promoting the Byway

Introduction.............................................................................................

The Target Market................................................................................

Marketing Objectives and Strategies.................................................

Marketing Strategies and Tools..........................................................

Other Helpful Information...................................................................

11 Action Plan

How the Action Plan is Organized......................................................

Benefits of the Action Plan..................................................................

Important Issues and Considerations................................................

Recommended Action Items................................................................

Implementing and Updating the Action Plan....................................

Action Items...........................................................................................

98

103

85

85

86

90

92

75

75

78

95

96

96

107

107

109

110

111

113


Table of ContentsTable of Contents

12 Next Steps: Recommendations for Ongoing PublicParticipation, Management and Coordination

National Designation.............................................................................

Expanding and Strengthening the Byway Organization..................

Confirming the Identity of the Corridor Organization.....................

Broadening Interest - Bringing in More Stakeholders.....................

Potential Subcommittees/Focus Groups.............................................

The Contact List.....................................................................................

Building a Volunteer Support Base.....................................................

Ongoing Activities..................................................................................

Potential Funding Opportunities........................................................

The Importance of Ongoing Public Participation..............................

Appendices

• Community Involvement Tools

• Plant, Fish, and Wildlife Inventories

• Intrinsic Qualities Inventory Matrix

• Transportation Technical Information

• Potential Funding Sources Matrix

• Resources and Reference Materials

119

120

122

123

124

125

125

126

126

127


AcknowledgmentAcknowledgment

We would like to thank the following individuals for all their hard work, time, energy, and dedication on the CorridorManagement Plan:

Byway Steering Committee

Sarah Birger, Beach Watchers

Marshall Bronson, Ebey’s Landing National Historical Reserve

Helen Chatfield-Weeks, Oak Harbor History

Larry Cort, City of Oak Harbor

Roy Daniels, Island Transit

Terry Doran, Washington State Parks

Steve Ellis, Audubon Society

Sharon Hart, Economic Development Council

Priscilla Heistad, Oak Harbor Chamber of Commerce

Geoff Hornsby, Friends of Freeland

George Jackman, Whidbey Island Trails Council

Larry Kwarsick, Town of Coupeville

Project Manager

Mike MortonIsland County Department of Public WorksPO Box 5000Coupeville, WA509.679.7331

Jack Lynch, City of Langley

Rich Melaas, Naval Air Station

Norma Metcalf, South Whidbey Historical Society

Mike O’Neil, Island Transit

Malcom Brian Peters, RTPO Advisory Committee

Pat Powell, Whidbey/Camano Land Trust

Martha Rose, Island Transit

Chris Saxman, Resident of Whidbey Island/Architect

Dick Snyder, Island County Public Works

Tom Stacey, WSDOT, MT Baker Area

Larry Webster, Clinton Community Forum

Ron Wikinson, Island County Historical Museum

Consultant

Mandi Roberts, Project ManagerJodie Vice, Assistant Project ManagerOtak, Inc.117 South Main Street, Suite 400Seattle, WA 98104206.224.7221

W H I D B E Y S C E N I C I S L E W A Y C O R R I D O R M A N A G E M E N T P L A N ES-1

Executive Summary

ES

Overall PurposeThis document is a CorridorManagement Plan (CMP) created for thecorridor and state scenic byway thatconsists of the state highways (SR-525and SR-20) on Whidbey Island in theState of Washington. This CMP focuseson a collaborative community andorganizational approach to achieve the

goals of preserving and enhancing thequalities of the byway, whileaccommodating and enhancing the visitorexperience. This is done by emphasizingthe need for awareness, througheducation, of the unique settings andenvironments on Whidbey and theassociated stewardship of theseelements. To achieve this end, this planwas developed with a healthy respect for

the individual culture and historicalheritage cherished by island residents,which was integrated into the efforts ofa community-based Steering Committeecomposed of area residents and agencyrepresentatives. Consequently, the planis the result of a grass-roots, community-driven process that included extensivepublic involvement. The plan has beendeveloped in accordance with the

ES-2 W H I D B E Y S C E N I C I S L E W A Y C O R R I D O R M A N A G E M E N T P L A N

Executive SummaryExecutive Summary

Federal Highway Administration’s(FHWA) National Scenic Byway Programguidelines.

Corridor DescriptionFrom Deception Pass at the north end ofthe corridor to Clinton at the south end,and the spur connecting the ferry atKeystone, the corridor’s character offersan impressive variety of experiences.Sweeping vistas of water and sunsets,picturesque farmland seeminglyunchanged since the nineteenth century,tree-lined stretches of “green canyons,”and pockets of bustling commerce greetbyway travelers. The highway systemitself is an entrenched cultural blueprintthat is as much a part of island life as thehistoric communities it connects. Forthe purpose of the CMP, the corridorincludes areas visible from the highway,as well as recreational sites anddestinations either directly accessiblefrom the corridor or located within ashort driving distance - in essence, all ofWhidbey Island!

The Whidbey Island corridor is the onlyisland byway in the entire country. It isalso unique in that it begins and endsover waters of the Puget Sound: thebridge over Deception Pass as well as theferries providing the “marine highways”–the ferries from Clinton to Mukilteo and

from Keystone to Port Townsend (seemap of the byway on this page). For thisreason, byway travelers and residentsare surrounded by the Puget Sound, theStrait of Juan de Fuca, Skagit Bay, PennCove, Holmes Harbor, Useless Bay, andother prominent waterways. In thebackdrop of the waterways, some of themost impressive mountains and glaciersin the world, including the Olympics, Mt.Rainier, Mt. Baker, Glacier Peak, andother sentinels of the Cascade Mountainrange offer dramatic scenery fromvarious vantage points throughout theisland. Residents and visitors canappreciate, along with the sweepingviews, the serenity of a rural, small townlifestyle where remnants of life from thelate 1800s and early 1900s still exist.The byway can be pictured as a largepublic “parkway” threading together thecommunities and land along it into acohesive unit.

Those seeking a fast-paced, drive-through experience will be disappointed.Instead, travelers and residents move onwhat is known locally as “island time,”slowing their pace to enjoy the sceneryand to enhance the safety of highwaytravel. For not only does the bywayfunction to move travelers, it also servesas the ribbon of commerce andconnectivity for island communities.One of the few byways in the nation that

Whidbey Scenic Isle Way

DeceptionPass

Keystone



is entirely accessible by public transit,travelers will be encouraged to visitWhidbey without their cars and travelaround the island via a number ofdifferent modes (i.e. bus, bicycle, watertaxi, and walking).

This plan for the future of the WhidbeyScenic Isle Way provides a criticalopportunity to build awareness about theimportance of community partnerships,environmental stewardship, andpreservation of historic settings. TheCMP will become a catalyst for thefuture, shaping the way residents andvisitors relate to the lands and waters ofWhidbey.

Contents of PlanThis Corridor Management Plan hasbeen developed to create a vision for thefuture of the Whidbey Scenic Isle Way.This plan uses the Federal HighwayAdministration’s (FHWA) criteria forscenic byways. The FHWA criteriaensured that a comprehensive,community-driven planning process wasconducted to create the CMP andestablish a strong foundation for itsongoing management.

This plan includes many elementsrequired by the Washington State ScenicByway and the FHWA National ScenicByway programs. In addition to thisIntroduction, the plan includes thefollowing sections:

• Vision Statement and Goals• Existing Conditions Analysis• Intrinsic Qualities Assessment• Visitor Experience and Services

Program• Preserving and Enhancing the Byway’s

Character• Telling the Byway Story: Interpretive

Master Plan• Transportation System Analysis and

Recommendations• Signing and Wayfinding

Recommendations• Marketing and Promoting the Byway• Action Plan• Next Steps: Recommendations for

Ongoing Public Participation,Management and Coordination

Together, these components make up acohesive document to be used topreserve and enhance the byway’s uniquecharacter.

“…This is a heritage land. This iswhere the settlement of the PacificNorthwest began…. Here is the rootof statehood. Cherish it. Protect it.Pass it on to future generationsunspoiled. Let them find the Gardenof Eden … for this is a heritage land.”

Cook, Jimmie Jean. Foreword. A ParticularFriend, Penn’s Cove. By Cook. Coupeville:Island Historical Society, 1973.



Uses of the CorridorManagement PlanIt is envisioned that this CorridorManagement Plan will be used for thefollowing purposes:

• As a comprehensive description ofexisting conditions and intrinsicqualities - the description andassessment of these elements provide abasis for developing a unifying corridortheme and implementing interpretiveprograms that reflect the corridor’srich heritage;

• As a vision that will draw togetherpeople from all communities ofWhidbey Island, helping to make theplan a reality;

• As a tool that providesrecommendations for specificstrategies and actions that improve,enhance, and sustain the corridor’sunique intrinsic qualities and the manyenjoyable experiences it offers;

• As a guide for solving existingproblems along the corridor;

• As a resource for future corridororganization(s) to refer to and drawideas and information from related topotential funding sources, coordinationwith stakeholders, public involvement,

and project implementation processesand responsibilities;

• As a document that broadly andgenerally addresses a diversity ofinterests throughout the corridor – thisis a community-based planningdocument; and

• As a resource for local organizationsand a reference for residents andvisitors alike to learn about the byway.

Vision StatementThe Whidbey Scenic Isle Way willenhance visitors’ experience and preservethe quality of life enjoyed by islandresidents.

The communities and residents ofWhidbey Island are dedicated to thedevelopment of a scenic byway plan forState Routes 20 and 525 and the pursuitof projects and activities that:

• Preserve and enhance the sceniccorridor along the highway;

• Conserve the environment and openspaces of the island;

• Clarify the identity and qualities of theisland that set it apart from otherscenic highways and also create bothvisitor interest and community pride;



• Promote the collaboration andcooperation of communities along thescenic byway;

• Preserve the rural character and wayof life for the island communities; and

• Establish a long-term view of thevalues and qualities that are mostimportant to the island.

Whidbey Scenic Isle WayIntrinsic QualitiesIntrinsic qualities are the importantattributes of the byway that make itspecial – the significant features andplaces that attract people and also maybecome the focus of some combination ofenhancement, preservation, andpromotion. The Federal HighwayAdministration (FHWA) recognizes sixprimary categories of intrinsic qualities:natural, recreational, scenic, historical,cultural, and archeological. The WhidbeyScenic Isle Way possesses an abundanceof intrinsic qualities within all sixcategories. In fact, the SteeringCommittee inventoried over 300examples on the island. Below is the listof the top 25 intrinsic qualities that thesteering committee identified as key tothe mission of this plan. The qualitiesare listed in north to south order.

• Deception Pass StatePark

• Dugualla Bay• Oak Harbor Downtown/

Marina/City Park• Blue Fox Drive-In• Fort Ebey State Park• Fort Casey State Park• San De Fuca• Penn Cove• Ebey’s Prairie• Grasser’s Hill• Town of Coupeville• Crockett Lake• Keystone Spit/Ferry Terminal &

Crossing• Rhododendron County Park• Lake Hancock• Hastie Lake• Greenbank Farm• Double Bluff County Park• South Whidbey State Park/Smuggler’s

Cove• Meerkerk Gardens• Saratoga Woods and Goss Lake Woods• Bayview• Langley• Maxwelton Beach• Clinton Gateway/Ferry Terminal &

Crossing



Summary of TransportationAnalysis andRecommendationsThe purpose of this section is todescribe the existing conditions,scheduled projects, and proposedfuture conditions on and along theWhidbey Scenic Isle Way. This sectionalso describes transportation servicesprovided by the Washington StateFerry System and Island Transit, aswell as via various multi-use pathsand bikeways on the island.Opportunities for an enhanced non-motorized system are also discussed.In addition, this section includes a listof recommendations for improvementsalong the byway, including facilitiesthat accommodate bicyclists,pedestrians, and transit passengers.Other key improvements focus on thegateway communities of Oak Harborand Clinton. Some of therecommendations include:

• Seek funding for studies in gatewaycommunities to analyze existingbyway traffic patterns and evaluatepotential traffic calming and travelerwayfinding opportunities;

• Evaluate alternatives for lanewidening, embankment/side slope

design, horizontal and verticalcurvature, and other highway elementswith the intent to preserve the visualand scenic character of the byway;

• Enforce speed limit – Byway residentsand visitors have mentioned thatdrivers at speeds faster than postedspeed limits;

• Promote the “non-driving experience” -you don’t need your car to visitWhidbey Island!;

• Improve park-and-ride lots with theaddition of plantings and otheraesthetic elements;

• Expand multiuse trail system; and• Provide safe and convenient crossing

opportunities for pedestrians.

Summary of Visitor Experienceand Services ProgramThis section of the corridor managementplan assesses existing visitor facilities,as well as websites and information thatserve the needs of visitors. This sectionalso provides recommendations forimproving these services for bothresidents and visitors including:

• Gateways at Deception Pass StatePark, Keystone, and Clinton



• Comfort station/rest area at LakeHancock

• Interpretive facilities along the byway• Wildlife viewing platforms along the

byway• Recreational Pull-off Areas along the

Byway• Interpretive brochures• Multi-lingual provisions• Visitor surveys• Touring routes• Local resident involvement• Existing services

Summary of Preserving andEnhancing the BywayThis section of the plan provides asummary of the existing design anddevelopment guidelines in place alongthe byway as well as suggestions andrecommendations for additionalguidelines. It is important to note thatthis section is included solely for thepurpose of providing a set of guidelinesto retain the byway’s character and is notintended to be regulatory. For thisreason, there is a strong need to involveresidents, property owners, andbusinesses along the byway in being

“good stewards” ofthe byway.

Recommendationsfor preserving andenhancing thebyway include:

• Create an “annualawards program”that wouldrecognizeproperty owners,businesses, etc.who help preservecorridorresources;

• Design gatewaysign at DeceptionPass designed insuch a way toreflect the rusticCascadian style ofpark buildingsconstructed during the CCC era;

• Keep structures located along StateRoute 20 between Deception Pass StatePark and Oak Harbor relatively low inheight and scale to preserve thebeautiful views along this stretch of thehighway;

• Coordinate with WSDOT and others toensure that as much native vegetation

Corridor Enhancement Concept for Oak Harbor



and natural slopes are retained aspossible;

• The intersection of State Route 20 andPioneer Way is a key point along thebyway. It is recommended thatimprovements be made to thisintersection to encourage people totravel off of the corridor and intodowntown Oak Harbor;

• The corridor through San de Fuca andPenn Cove provides one of the mostspectacular experiences of the entirebyway. Roadway character shouldremain similar to its current condition;

• It is recommended that Ebey’s Reservecontinue to require design review andencourage developers to preservehistorical buildings and structures;

• New development in Coupeville isencouraged to be compatible with thehistoric architectural elements;

• The design of the Lake Hancockoverlook should be compatible with thehistorical architecture of GreenbankFarm;

• Pedestrian improvements should beinstalled between Freeland and Clintonto provide better connections to transitservice on State Route 525; and

• Improvements to State Route 525through Clinton should be completed toenhance the gateway experience forbyway travelers.

Summary of Signing andWayfindingThis section includes information onexisting signage that could be removed,consolidated, or improved whilerecommending areas where additionalsignage, such as byway and trail signs,could enhance the corridor.

Developing a unified and coordinatedapproach to signing on the byway willhelp reinforce the identity of thecorridor, assist the traveler withwayfinding, and minimize intrusions onthe scenic values of the corridor. Allsigns should be easy to read and clearlyconvey the intended information.

The Signing and Wayfinding Programaddresses several types of signs for theWhidbey Scenic Isle Way:

• Existing signs along the byway• Gateway signs• Scenic byway logo signs• Directional guide signs• Supplemental guide signs• Interpretive signs/panels and historic

markers• Special feature/name place signs



Careful consideration should be given toeliminating redundant informational anddirectional signs and consolidating signs.Where possible and practical, multiplesigns can be located on a single sign post,as long as the information presented stillconveys a clear message. As signs arereplaced due to maintenance, theyshould be consolidated where feasible.

All signing located within the SR 20 andSR 525 right-of-way will need to becoordinated with WSDOT.

Summary of Marketing andPromoting the BywayThis section includes marketingobjectives, strategies, and specificmarketing tools as well as a great deal ofhelpful information and resources thatare available for the byway organizationas it embarks upon marketing andpromoting the Whidbey Scenic Isle Way.

Marketing objectives include:

• Create partnerships, collaboration, andcooperation between bywaycommunities; and

• Continue relationships with existingefforts to promote Whidbey Island.

Marketing strategies include:

• Promote the Whidbey Scenic Isle Wayas the only island byway in thecountry;

• Promote the byway’s intrinsic qualitieswhile educating both residents andvisitors on the importance ofpreserving and enhancing thosequalities; and

• Retain the byway committee made upof various groups, businesses,organization, and governmentrepresentatives.

Marketing tools include:

• Targeting existing visitors;• Promoting the shoulder season;• Promoting shorelines, beaches, and

marine resources;• “Leave your Car at Home” campaign;• Promoting safety;• Promoting eco-tourism; and• Developing interpretive guides and

maps.

“It’s easy to get here, but difficult toleave. The prettiest seaside townslook across the water to mountainslit up in the afternoon sun.Charming shops, deluxeaccommodations, century-oldfarms, lighthouses, big trees, tendermussels, and military history arediscovered here.”

ExperienceWashington.com

Washington Tourism Council



Summary of Action PlanThe Action Plan of the Whidbey ScenicIsle Way contains the followingsubsections:

• Anticipated Benefits of the Action Plan• Summary of Important Issues and

Considerations• Recommended Action Items/Action

Plan Summary Table• Implementing and Updating the Action

Plan

The following action items arerecommended for the Whidbey ScenicIsle Way.

Byway Management and AdministrationActions

• Obtain funding for ongoing bywaysupport services

• Expand existing corridor organization;• Partner with local agencies• Obtain 501c3 organization status• Confirm scenic byway “brand identity”

and develop scenic byway logo• Reach final decision on pursuing

national scenic byway designation• Implement ongoing community

participation program

Byway-wide Programs, Initiatives, andProjects

• Organize and conduct a “Kick-off”event – Spring 2005 Byway Birthday

• Create byway website• Promote the “non-driving experience”

through a brochure and websitepostings

• Touring routes brochure• “Walks of Whidbey” Map/Brochure• Study needed transit facility

improvements and develop a masterplan

• Safety campaign – speed limitenforcement

• Maintain scenic roadway characterthrough roadway design

• Planting/revegetation projects (nativeplants) along the roadway; master planand implementation

• Expand multi-use trail system andimprove/enhance access to trails

• Media/speaker’s kit• Enhance safety at pedestrian crossings• Reduce and eventually eliminate the

use of herbicides and pesticides alongthe byway

• Develop highway beautification planfor SR 20 and 525

• Sign inventory



• Interpretive guide and map• Scenic easement master plan• Informational brochures

Location-Specific Projects (from North toSouth)

• Dugualla Bay Improvements• Oak harbor - Traffic calming and

wayfinding study in Oak Harbor andsubsequent improvements

• Hastie Lake Improvements• Crockett Lake Improvements• Comfort Station/Improvements at Lake

Hancock Pull-out• Traffic calming, circulation and safety

study in Clinton and subsequentimprovements (to SR 525)

Summary of Next StepsThe final section of this plan lists several“next steps” for ongoing bywaymanagement and coordination activitiesincluding:

• Expanding and strengthening thebyway organization;

• Confirming the identity of the corridororganization;

• Broadening interest by bringing inmore stakeholders;

• Creating byway subcommittees/focus

groups;• Creating and maintaining a contact list;• Building a volunteer support base;• Staying involved with ongoing

activities; and• Finding potential funding

opportunities.

There are many resources in thecommunity including volunteers, in-kindsupport, gifts of materials and printingcosts, etc. that can be “tapped into” aspart of a strong program of communityinvolvement and outreach.

W H I D B E Y S C E N I C I S L E W A Y C O R R I D O R M A N A G E M E N T P L A N 1

Overall PurposeThis document is a CorridorManagement Plan (CMP) created for thecorridor and state scenic byway thatconsists of the state highways (SR-525and SR-20) on Whidbey Island in theState of Washington. This CMP focuseson a collaborative community andorganizational approach to achieve thegoals of preserving and enhancing the

qualities of the byway, whileaccommodating and enhancing the visitorexperience. This is done by emphasizingthe need for awareness, througheducation, of the unique settings andenvironments on Whidbey and theassociated stewardship of theseelements. To achieve this end, this planwas developed with a healthy respect forthe individual culture and historical

heritage cherished by island residents,which was integrated into the efforts ofa community-based Steering Committeecomposed of area residents and agencyrepresentatives. Consequently, the planis the result of a grass-roots, community-driven process that included extensivepublic involvement. The plan has beendeveloped in accordance with theFederal Highway Administration’s

Introduction

1

2 W H I D B E Y S C E N I C I S L E W A Y C O R R I D O R M A N A G E M E N T P L A N

1. Introduction1. Introduction

(FHWA) National Scenic Byway Programguidelines.

Corridor DescriptionFrom Deception Pass at the north end ofthe corridor to Clinton at the south end,and the spur connecting the ferry atKeystone, the corridor’s character offersan impressive variety of experiences.Sweeping vistas of water and sunsets,picturesque farmland unchanged sincethe nineteenth century, tree-linedstretches of “green canyons,” and pocketsof bustling commerce greet bywaytravelers. The highway system itself isan entrenched cultural blueprint that isas much a part of island life as thehistoric communities it connects. Forthe purpose of the CMP, the corridorincludes areas visible from the highway,as well as recreational sites anddestinations either directly accessiblefrom the corridor or located within ashort driving distance - in essence, all ofWhidbey Island!

The Whidbey Island corridor is the onlyisland byway in the entire country. It isalso unique in that it begins and endsover waters of the Puget Sound - thebridge over Deception Pass and theferries providing the “marine highways”–the ferries from Clinton to Mukilteo andfrom Keystone to Port Townsend (see

Figure 1.1 for a map of the byway). Forthis reason, byway travelers andresidents are surrounded by the PugetSound, the Strait of Juan de Fuca, SkagitBay, Penn Cove, Holmes Harbor, UselessBay, and other prominent waterways. Inthe backdrop of the waterways, some ofthe most impressive mountains andglaciers in the world, including theOlympics, Mt. Rainier, Mt. Baker,Glacier Peak, and other sentinels of theCascade Mountain range, offer dramaticscenery from various vantage pointsthroughout the island. Residents andvisitors can appreciate, along with thesweeping views, the serenity of a rural,small town lifestyle where remnants oflife from the late 1800s and early 1900sstill exist. The byway can be pictured asa large public “parkway” threading thecommunities and land along it togetherinto a cohesive unit.

Those seeking a fast-paced, drive-through experience will be disappointed.Instead, travelers and residents move onwhat is known locally as “island time,”slowing their pace to enjoy the sceneryand enhance the safety of highway travel.For, not only does the byway function tomove travelers, it also serves as theribbon of commerce and connectivity forisland communities. One of the fewbyways in the nation that is entirelyaccessible by public transit, travelers

“And best, though not least of all,there are five thousand enthusiasticpersons who are of the opinion that,after all, the garden of Eden neverwas permanently established on theeast bank of the Mediterranean … butright here on Whidbey Island, andpreferably at Greenbank.”

The Westerner Magazine, November 1913



will be encouraged to visit Whidbeywithout their cars and travel around theisland via a number of different modes(i.e. bus, bicycle, water taxi, andwalking).

This plan for the future of the WhidbeyScenic Isle Way provides a criticalopportunity to build awareness about theimportance of community partnerships,environmental stewardship, andpreservation of historic settings. TheCMP will become a catalyst for thefuture, shaping the way residents andvisitors relate to the lands and waters ofthe island.

A Typical Drive Through theWhidbey Island CorridorAt the northern end in Deception PassState Park, Washington’s most visitedstate park, State Route 20 windssoutheast through seven miles of forest,pastoral fields, and water views to theisland’s largest city: Oak Harbor.Moving south from this city, the highwaypasses through a small number ofworking farms and cultural landmarkssuch as the Blue Fox Drive-in Theater.

Just north of Penn Cove State Route 20enters Ebey’s Landing National HistoricReserve, the first National Park Serviceunit in the nation dedicated to honoring

and preserving aculturallandscape. Anactive program bythe National ParkService topurchasedevelopmentrights iscomplemented bylocal efforts tobuild a strongrecord of landpreservation incentral Whidbey. Picturesquelandscapes of prairies and working farmswelcome travelers along this stretch ofthe byway.

Next comes the historic town ofCoupeville, the Island County seat, andthen in a few miles State Route 20 veerstoward the ferry landing at Keystone,which offers regular service connectingto Port Townsend on the OlympicPeninsula. Continuing south on WhidbeyIsland from the SR 20 ferry turn-off,State Route 525 continues the bywayroute to the south and meanders througha heavily forested portion of the island,which is interspersed with post-warsubdivisions only occasionally visiblefrom the highway. This six-mile stretchopens to display wide views of historic



Greenbank Farm on the east and LakeHancock on the west offer.

South of Greenbank the forest coverresumes and persists as far as Freeland,an unincorporated area with the secondlargest population center on the island.Between Freeland and the ferry landingin Clinton, State Route 525 begins totravel through a landscape of smallerfields, stands of trees, and neighborhoodcommercial centers to Langley, Whibey’sthird incorporated city. It is accessiblefrom three highway intersections alongSR 525. As the road nears the Clintonferry, it drops toward the ferry approachto reveal awe-inspiring views acrossPossession Sound to the CascadeMountains.

Whidbey Scenic Isle Way - StateScenic and Recreational Highwayand Part of the Cascade LoopState Route 20 and State Route 525,through Whidbey Island, wererecognized as Washington State Scenicand Recreational Highways in 1967. TheWhidbey Scenic Isle Way is a uniquesegment of a larger byway experienceknown as the Cascade Loop, a 400-mileroute encompassing Whidbey Island, SR20 through the North Cascades National

Park, SR 153 from Twisp to Pateros, US97 from Pateros to Wenatchee, and US 2from Wenatchee to Monroe. Figure 1.2shows the entire Cascade Loop. Thiscorridor is the last remaining portion ofthe Cascade Loop to complete a CMP.

Contents of PlanThis Corridor Management Plan hasbeen developed to create a vision for thefuture of the Whidbey Scenic Isle Way.This plan uses the Federal HighwayAdministration’s (FHWA) criteria forscenic byways. The FHWA criteriaensured that a comprehensive,community-driven planning process wasconducted to create the CMP andestablish a strong foundation for itsongoing management.

This plan includes many elementsrequired by the Washington State ScenicByway and the FHWA National ScenicByway programs. In addition to thisIntroduction, the plan includes thefollowing sections:

• Vision Statement and Goals• Existing Conditions Analysis• Intrinsic Qualities Assessment• Visitor Experience and Services

Program



• Preserving and Enhancing the Byway’sCharacter

• Telling the Byway Story: InterpretiveMaster Plan

• Transportation System Analysis andRecommendations

• Signing and WayfindingRecommendations

• Marketing and Promoting the Byway• Action Plan• Next Steps: Recommendations for

Ongoing Public Participation,Management and Coordination

Together, these components make up acohesive document to be used topreserve and enhance the byway’s uniquecharacter.

Uses of the CorridorManagement PlanIt is envisioned that this CorridorManagement Plan will be used for thefollowing purposes:

• As a comprehensive description ofexisting conditions and intrinsicqualities - the description andassessment of these elements provide abasis for developing a unifying corridortheme and implementing interpretive

programs thatreflect thecorridor’s richheritage;

• As a vision thatwill drawtogether peoplefrom allcommunities ofWhidbey Island,helping to makethe plan areality;

• As a tool thatprovidesrecommendationsfor specificstrategies andactions thatimprove,enhance, andsustain thecorridor’sunique intrinsic qualities and the manyenjoyable experiences it offers;

• As a guide for solving existingproblems along the corridor;

• As a resource for future corridororganization(s) to refer to and drawideas and information from related topotential funding sources, coordinationwith stakeholders, public involvement,and project implementation processes

Figure 1.2 - Map of the Casacade Loop



and responsibilities; and• As a document that broadly and

generally addresses a diversity ofinterests throughout the corridor – thisis a community-based planningdocument.

• As a resource for local organizationsand a reference for residents andvisitors alike to learn about the byway.

This document is not intended to be aplan that creates additional regulations,or restrictions on private property,beyond those that already exist underfederal, state, regional, and local plansand regulations. This plan is not aregulatory mandate, but arecommendation based on the hard workof the steering committee members andmany community representatives,stakeholders, and interested citizensfrom all areas of the island.

BenefitsThe Policy Board of the Island Sub-region Transportation PlanningOrganization determined the need forthis corridor management plan for theWhidbey Scenic Isle Way scenic andrecreational highway. The Policy Boardcreated a small-focus group to preparethe application for FHWA funding. TheSub-region Transportation Planning

Organization (RTPO), represents acollaboration between multiple agenciesand jurisdictions including: IslandCounty, FHWA, Washington Departmentof Transportation, Town of Coupeville,City of Langley, the City of Oak Harbor,Island Transit, and the Port Districts.As such, implementation of this CMPwill be supported by these agencies andongoing efforts of the Sub-region TPO.

The Policy Board established threedirections for the corridor managementplan. First, instead of focusing specificefforts to accommodate and enhance thevisitor experience to Whidbey Island, theplan gives equal emphasis to measuresthat preserve the quality of life enjoyedby island residents. This plan proposes anumber of ways to preserve the small-town, rural character that has beenWhidbey Island’s history. Secondly,exploration of and support foralternative transportation modesthrough the corridor is emphasized inthis plan. The popularity of WhidbeyIsland, as a place to live and to visit, haspotential to degrade the very intrinsicqualities that currently appeal to bothuses. This plan addresses enhancementsof public transportation, facilities fornon-motorized travel, and increasedpark-and-ride options. Finally, corridorpreservation will be entrusted to the



citizens of Whidbey Island. Recognizingthat each jurisdiction already has theauthority to regulate those aspects of thecorridor most valued by its community,this plan is aimed instead towarddeveloping a range of non-regulatoryoptions and guidelines. By allowingpeople and groups to invest inpreserving the intrinsic qualities of thecorridor a tradition of stewardship canemerge that will serve the islandcommunity and visitors for years tocome.

Community Involvement

Byway Steering Community

The Whidbey Island Steering Committee(BSC), made up of about 30 local citizens,stakeholders, agency representatives,and technical experts, worked closelywith a consultant team to prepare thisCMP in accordance with the FHWAguidelines for corridor managementplans. The first step for the BSC was thecreation of the vision statement andgoals for the corridor. Next, the BSCcompiled an inventory of sites that wererepresentative of the six intrinsicqualities that characterize corridormanagement planning: historic,archaeological, recreational, natural,scenic, and cultural. Members of the

BSC inventoried the sites that werelocated in the areas of the island wherethey reside, and the list soon grew toinclude 300 locations (See Appendix A –Intrinsic Qualities List). Of thoseidentified, 25 of the “outstanding”qualities have been further assessed andreviewed in Section 3 of this Plan.

Concurrently to the intrinsic qualityinventory and assessment, existingconditions along the corridor wereanalyzed. The BSC then sub-divided allthe elements of the corridor managementplan and contributed their ideas,thoughts, and suggestions for eachelement of the plan including: designguidelines, visitor experience,interpretive program, marketing andpromotions, and signing and wayfinding.Once the ideas and strategies for eachelement were established, the BSC begandeveloping the Action Plan. Theplanning process and BSC milestones areillustrated in Figure 1.3.

Community Involvement Activities

Extensive outreach to the islandcommunities took place during the CMPprocess.

• Project Information SheetA Project Information Sheet was

“Local residents can be yourbyway’s best ambassadors - theyare aware of your organization’spurpose and initiatives.”

National Scenic Byway Program.Making the Grassroots Grow.



created for the corridor and can beseen in Appendix, CommunityInvolvement Tools. The ProjectInformation Sheet was periodicallyupdated to reflect the latestinformation and progress throughoutthe CMP process. The firstdistribution of the Project InformationSheet occurred before the January 2004public workshops, discussed below.Project information sheets weredistributed throughout the island,displayed at libraries, visitorinformation centers, governmentalagencies, and various shops andbusinesses. An updated projectinformation sheet was distributed

before and during the community openhouse series in May 2004.

• Community Dialogue WorkshopsA “Community Dialogue” workshopseries took place on Whidbey Islandduring the week of January 26, 2004.During this week, the consultant teamtraveled to four communities along thebyway, including Oak Harbor,Coupeville, Bayview, and Clinton togather input and ideas for the CMP.The purpose of the interactiveworkshop process was to:- Build awareness of the corridor

planning effort and clarify thepurpose of the project;

- Confirm general goals andobjectives for the planning process, aswell as for the corridor;

- Report on the findings of theexisting conditions analysis andintrinsic qualities inventory and gainadditional input from the generalpublic;

- Inform the public on thedevelopment of strategies to enhanceand preserve the corridor’s intrinsicqualities, residents’ quality of life,and visitors’ experiences; and

- Engage the public in the planningprocess and build support for theproject as a whole.

Figure 1.3 - CMP Planning Process and Milestones



The consultant team and severalmembers of the BSC met with variouslocal agencies and community groupsduring the workshop sessions. Thisextensive effort resulted in broadparticipation and involvement of adiversity of community groups andorganizations throughout the island.The meeting notes are in the Appendix,Community Involvement Tools.

• Corridor Management PlanQuestionnaireDuring the workshop week in January2004, attendees and others interestedin the CMP process completedquestionnaires.

• Community Open HouseThe consultant team participated infour community open house meetingsduring the week of May 24, 2004. Theopen house displayed 15 presentationboards with the draft CMP elementsand recommendations. Questionnairesand comments were received duringthe open houses.

• Traveling DisplayThe Draft CMP was exhibited atvarious locations in all the communitiesalong the byway. Boards showing thecorridor map, photos from the corridor,and important aspects of this plan weredisplayed. Public comment forms were

provided with a special section invitingpeople to vote on the byway name.

• Press ReleasesPress releases for both the communitydialogue workshops and communityopen houses were distributed to all thelocal media. Copies of the pressreleases are in Appendix, CommunityInvolvement Tools.

• Byway Naming ProcessThe Steering Committee chose fournames for the byway:- Whidbey Island Scenic Byway- Whidbey Island Byway- Whidbey Island Scenic Passage- Whidbey Island Loop

After the four names were chosen, theprocess was open to the public inputand many creative contributions wereoffered. The vast majority of publicused the name “Whidbey”. The othertwo words the public offered again andagain were “scenic” and “isle.”

What’s in a NameBased on the input from the public, thebyway steering committee had to chose aname. The committee decided it wasimportant to use the word “Whidbey” asit locates us geographically. Scenic isappropriate because the scenery really is



the most striking thing you experiencewhile traversing Whidbey Island. Theword “Isle” appealed to the committee aswell. This is an older word with historicand cultural richness.

One thing the committee kept in mind isthat they were about to name anddesignate America’s only scenic bywaythat is on an island. Whidbey’s byway isuniquely different from all otherbyways..it is an isle way. The committeechose the “Whidbey Scenic Isle Way”asthe byway name.

From a marketing standpoint, this namehas a lot of richness and complexity thatcan be spun off in several directionsincluding “the island way of life”, “islandtime” or historic connotations andreferences. Even if people hear it as“aisle way” that would be appropriateconsidering the corridor-like nature ofthe byway.

Completing this CMP is only theBeginningThe completion of the Whidbey ScenicIsle Way Corridor Management Plan isonly the first step toward futureplanning and management of thecorridor. The future of corridor planningand management efforts will evolve overtime, but an important next step will bethe formation of an expanded corridororganization to carry the vision, goals,and action items forward.


Vision Statement and Goals

2

VisionThe Whidbey Scenic Isle Way plan offersto enhance visitors’ experience andpreserve the quality of life enjoyed byisland residents.

The communities and residents ofWhidbey Island are dedicated to thedevelopment of a scenic byway plan forState Routes 20 and 525 and the pursuitof projects and activities that:

• Preserve and enhance the sceniccorridor along the highway;

• Conserve the environment and openspaces of the island;

• Clarify the identity and qualities of theisland that set it apart from otherscenic highways and also create bothvisitor interest and community pride;

• Promote the collaboration andcooperation of communities along thescenic byway;

• Preserve the rural character and way of

life for the island communities; and• Establish a long-term view of the

values and qualities that are mostimportant to the island.

GoalsBelow is a list of goals developed by theByway Steering Committee (BSC).These goals provide the basis for theByway Action Plan, discussed in Section11. These goals assisted in defining theprograms, activities, and projects of theAction Plan.

2. Vision and Goals


2. Vision and Goals

• Strengthen community and agencypartnerships through collaborativeprograms and projects.

• Ensure that the CMP is consistent withapplicable local, state, and federalplans and regulations and implementadopted community visions, plans,initiatives, and programs through planobjectives and strategies. (Coordinatewith ongoing and overlapping planningefforts.)

• Leverage funding and resourcesthrough collaborative planning andpartnerships.

• Increase community pride andcooperative relationships betweencommunities along the byway.

• Broaden awareness of the need forpreservation, protection, andstewardship of sensitive and uniquebyway resources and intrinsic qualities:

- natural environments and habi-tats;

- forest and understory that en-hance the scenic quality andnatural attributes of the byway;and

- historic settings and buildings.• Increase business, tax revenue, and

carefully enhancing tourism in areasalong the byway that can adequatelysupport increased visitation.

• Promote and manage tourism in ways

that minimize impacts to citizens’ dailyroutines, traditional cultures, and“island life-styles,” as well as tominimize impacts to sensitive naturalresources.

• Promote year-round experiences of thebyway to travelers to dispersevisitation and expand economicbenefits throughout all seasons.

• Continue to provide and enhanceopportunities for multi-modal travelalong the byway (transit access, trails,pathways, etc.). Emphasize safe transitand touring programs as a means forreducing traffic congestion and impactsto resources.

• Enhance views and vistas along thebyway and the character of the corridoroverall (through vegetationmanagement and development ofoverlooks).

• Enhance ways to offer citizens andvisitors immediate access toundeveloped areas, while alsopreserving and protecting sensitiveresources.

• Expand educational and interpretiveopportunities for citizens and visitorsthrough wayside exhibits, historicalmarkers, and other programs andprojects.

• Strengthen character and visitorexperiences related to gatewaycommunities to the byway (i.e.

“…This is a heritage land. This iswhere the settlement of the PacificNorthwest began…. Here is the rootof statehood. Cherish it. Protect it.Pass it on to future generationsunspoiled. Let them find the Gardenof Eden … for this is a heritageland.”

Cook, Jimmie Jean. Foreword. AParticular Friend, Penn’s Cove. By Cook.Coupeville: Island Historical Society, 1973.


2. Vision and Goals2. Vision and Goals

Mukilteo, Clinton, Oak Harbor,Coupeville, Langley, etc.) anddisseminate byway information totravelers in gateway communities andat other recognizable locations.

• Enhance visitors’ traveling experience(convenience, comfort, safety, etc.)through the creation of additional pull-off areas, overlooks, traffic calmingtechniques, directional signsinformation and interpretive centers,restrooms/rest areas, “park-like” parkand ride areas, recreationimprovements, and other services andamenities.

• Build a cohesive “brand identity” forthe byway; creating a distinctivecharacter of signing, logos, brochures,etc. for the Whidbey Island Byway, aswell as blending, where beneficial, withthe identity of the Cascade Loop.

• Develop byway specific promotionalmaterials (driving tours, brochures,videos, etc.)

• Organize and conduct regularlysponsored byway events andcelebrations.

• Provide formal opportunities to fosterpublic interest, involvement, and“sense of ownership” in the health,welfare, and success of the byway.

• Ensure compliance with regulatoryoutdoor advertising and signingrequirements. Create corridor-specificdesign guidelines to ensure that thevisible roadside elements along thebyway maintain and enhance its uniquecharacter, are of lasting quality, andunobtrusive, blending in with thenatural environment.

• Restore, maintain, and enhance nativeplant communities adjacent to the statehighways, where feasible.

W H I D B E Y I S L A N D S C E N I C C O R R I D O R M A N A G E M E N T P L A N 15

Existing Conditions Analysis

3

Whidbey Island-The Overall ExperienceThe diverse landscapes, historical andcultural resources, and majestic views ofmountains and water offer anunforgettable experience for residentsand visitors traveling the WhidbeyScenic Isle Way.

From Deception Pass State Park at thenorth end of the island, to the ClintonFerry Terminal at the south end, and theshort spur to the Keystone Ferry, the

byway serves as a welcome mat to acollection of public and private lands,threading through national, state andcounty parks, forests, conservation lands,wetlands, working farms, pastures,prairies, rural homesteads, lightindustrial parks, naval air stationproperties, urban centers, and small,historic towns and communities.

The byway unites the lives of past andpresent island residents, and theabundance of cultural, historical, andnatural resources they have cherished

throughout time. A journey along thebyway is often one of discovery, leadingto experiences and destinations beyondthe highway corridor. The byway is onlythe beginning of the experience. Beyondthe traveled way, residents and visitorscan enjoy a multitude of recreational,historic, cultural, archeological, natural,and scenic experiences on WhidbeyIsland. Washington icons, including thesnow-capped peaks of the OlympicMountains, Mount Baker, MountRainier, and other Cascade peaks, andthe brilliant waters of the Puget Sound,


3. Existing Conditions Analysis3. Existing Conditions Analysis

Strait of Juan de Fuca, and many baysand coves provide stunning backdropsfor these experiences.

The island communities of Oak Harbor,Coupeville, Greenbank, Freeland,Bayview, Langley, and Clinton all havetheir own unique characteristicsincluding architectural style, culturalevents, and historical pasts. Each ofthese places offers a variety of facilitiesand services for byway travelers,functioning as important gateways andactivity hubs for the corridor.

Whidbey Island’s location within the“rain shadow” of the Olympic Mountains,creates a unique phenomenon of sunnier,drier weather conditions, particularly inthe central and north portions of theisland. The mild weather makes theisland an enticing getaway wherevisitors can enjoy year-aroundrecreational opportunities, includinghiking, wildlife viewing, biking,kayaking, camping, beach walking andfishing.

By looking at existing conditions of thebyway, including history, climate,geology, hydrology, vegetation, wildlife,land use and demographics, the regionaleconomy, and transportation conditions,the important resources of the byway canbe identified. With this knowledge,

suitable strategies can be developed topreserve and enhance the byway.

HistoryWhidbey Island showed its worth as aproductive and pleasant place to livewell before Europeans discovered itsadvantages. American Indians foundthat it suited their needs, and the SalishTribe established several settlementsaround Penn Cove.

Later, Whidbey Island was among thefirst parts of Washington State to bediscovered by Europeans. CaptainGeorge Vancouver’s expedition exploredthe Straits of Juan de Fuca in 1792. Hiscrew member, Master Joseph Whidbey,is credited for discovering DeceptionPass and venting down to examine theshore along Penn Cove. It was Whidbeywho named Penn Cove, for a good friendof his. Charmed with the beauty of theisland, Vancouver remarked that itreminded him somewhat of a few of thehuge estates in Europe, and he wassurprised by the amount of game he saw.

The first contact between the indigenousislanders and white men occurred whenWhidbey’s party landed in Penn’s Cove.Here more than 200 Skagits stared inrapt astonishment at the white skin ofthe visitors. Vancouver unbuttoned his

“People have lived in Island Countyfor millennia; their history therehas been inextricably tied with theislands and the waters thatsurround them.”

White, Richard. Land Use, Environment,and Social Change: The Shaping of IslandCounty, Washington. Seattle: Universityof Washington Press, 1980. 5.

Island County Historical Society Museum 2004Calendar—Native American Heritage: Tribal

Influences and History in Island County,photographer and year unknown



tunic and shirt to show that he and hismen were not painted with ashes, as theNative Americans thought. JosephWhidbey was the first known contact theSnohomish Indians had with white menon the south part of the island, althoughtheir land would be visited by trappersduring the early part of the 19th century.

In 1848 Thomas Glasgow took up aprairie claim on the western side of theisland, not far from present dayCoupeville. Intending to settle there,Glasgow planted some crops. It was notlong, however, before the Skagits becamedispleased, and Glasgow, thinking hislife in danger, fled the island. Two yearspassed before there was any otherattempt of settling. Then, under theOregon Donation Land Law, Isaac Ebeyclaimed the same land Glasgow hadabandoned. A month later three moremen took up claims on the prairie. Mrs.Isaac Ebey, her children, and anotherfamily arrived in 1851. As time passed,more settlers arrived, most of themtaking up claims on the prairie. By 1856seven blockhouses had been built atstrategic places for the protection of thewomen and children during Haidaattacks.

Thomas Coupe, a sea captain, took up aclaim in 1852 on Penn’s Cove, and it wason this property the town of Coupeville

grew. Coupe had the distinction of beingthe only man ever to sail a full-rigged shipthrough Deception Pass. In Coupe’s timemore than one thousand American Indianslived along the waterfront by his claim, afew of whom worked for the white settlers.

The population grew steadily, and by the1870’s there were several prosperouscommunities. Living was cheap; althoughimported food was high priced. Thecultural growth advanced with thepopulation: more schools and churcheswere established; lodges and clubsorganized; and some communities grewinto small towns.

The south end of the island was inhabitedpredominately by the Snohomish fordecades, until the 1850s when adventuresbegun arriving to exploit timber andfishing resources; and some seeking aplace apart from society. The communityof Clinton was born in 1875 and continuesto this day as the southern gateway accessto the mainland. By 1880, a handful ofsettlers had arrived and becomelandowners. By 1890s, Langley wasestablished but came under hardship in1894 when a storm destroyed the towndock. Logging camps employed manypeople, including a large group of Finnishlaborers in Greenbank, most of whom hadpreviously lived in Minnesota.



Freeland was originally a Socialistcommunity. Each member of the FreeLand Association paid $10 for 5 acres.The future payments were to come fromthe profit of the co-op.

At the turn of the century Fort Caseycame into being for the defense ofAdmiralty Inlet. By this time almost allthe prairie land was being farmed, and,as logging grew apace, new farmsdeveloped where tall timber grew.

Comparative prosperity arrived afterWorld War I. Farms producing grain,cattle, dairy products, poultry, andberries began to come into their own.The Comstocks brought fame and aworld’s record to Whidbey by raising arecord 1171/2 bushels of wheat to theacre. Selected potatoes, a foot or more inlength, were shipped East. A fine bridgetook the place of the old ferry acrossDeception Pass, and a regular ferryservice from Mukilteo to Columbia Beachreplaced the up-island ferry route fromEverett. A large farm for the breeding ofgame birds was developed by the state.

North of Oak Harbor lies a permanentUnited States Naval Air Station, AultField. Whidbey was chosen becausemeteorological studies showed sunlightprevailed 75% of all daylight hours, and

favorable flying weather existed 96% ofthe time.

Today, Whidbey Island has all the charmof the country, yet the facilities of thecity. There are few places where themajestic peaks of the Olympics orCascade Mountains cannot be seen. It isa place of forests, farms, and rail fences,windswept bluffs, sandy beaches coveredwith drift wood, and hidden corners thatwhisper of days long past, butnevertheless capturable in the smell ofthe wind.

ClimateThe maritime influence on WhidbeyIsland’s climate creates generally coolsummers and mild winters. Averagehighs during the summer months are inthe upper 70s with average lows in thewinter months in the mid-30s. Thetemperature at the northern end of theisland differs from that at the southernend by about three degrees. Fog iscommonly present from fall throughwinter throughout the whole island.

As noted above, the climate of WhidbeyIsland is heavily influenced by theOlympic Mountain “rain shadow” effect,resulting in relatively low rainfallamounts compared to other areas in the



Pacific Northwest. The rain shadow is aresult of the mountains interrupting theflow of moist air coming off of the PacificOcean. The Olympic Mountains form abarrier that protects the northeasternOlympic Peninsula, the San Juan Islandsand Whidbey Island from the heavy rainsthat move off the ocean.

The average annual rainfall on the islandis 25 inches, compared to 200 inches inForks, Washington, just 120 miles to thewest. Rainfall amounts vary on theisland, with south Whidbey receiving 30inches a year on average, and centralWhidbey receiving 19 inches a year onaverage. The Deception Pass areatypically receives about 26 inches ofannual rainfall. Some precipitation (atleast one hundredth of an inch) occurs anaverage of 139 days each year, andDecember is the rainiest month of theyear. Snow is unusual on the island with1.5 inches accumulating an average ofone day each year.

Geology and PhysicalCharacteristicsAt 45 miles long and one to ten mileswide, Whidbey Island is often consideredthe longest island in the contiguousUnited States (New York’s Long Islandmay be longer, but its separation from

the mainland by the East Rivertechnically makes it a peninsula). Theisland topography is diverse andincludes beaches, bluffs, rolling hills,prairies, and ridges. The island’selevation ranges from sea level atshorelines to 500 feet in the highestinland areas. Approximately fivepercent of the island consists of prairielands, and these areas are some of therichest farmland in the state.

Whidbey Island was once locatedbeneath a layer of ice approximately3,000 feet thick. Three waves of glaciershelped form Puget Sound. When theVashon Glacier - the last of the these -retreated some 15,000 years ago, much ofpresent day Whidbey Island was stillunder water. It took another 4,000 to5,000 years for the island to emerge afterthe waters of Puget Sound receded.

Whidbey Island soils were formed asglacial ground moraines were droppedover sandy glacial till. The characteristichummocky surface of a moraineproduced the hills and depressions thatmark the topography of the island. Thisis further scarred by the presence ofcraters, called kettles, which wereproduced when large blocks of ice buriedby the till melted. Today, this featurecan be observed at Lake Pondilla in FortEbey State Park.

It’s a place with a rich if turbulenthistory. The ice age bore down100,000 years ago, bulldozing awide, flat prairie out of the middleof the island and depositing a layerof rich soil, ideal for growing camasbulbs (tubers prized by NativeAmericans), potatoes, grain,enormous Hubbard squashes andeven peas, until the pea weevildevastated the crop during theDepression.

Smithsonian Institution. DestinationAmerica: Living Tradition. May 2004



HydrologyWater defines the experience of WhidbeyIsland located inland sea of Puget Sound.A visit to the island starts with a marinecrossing by bridge or ferry. Once there,numerous lakes, streams, wetlands, bogs,and other hydrologic features highlightthe diversity of the landscape and itswild beauty.

The west side of the island is bound bythe Strait of Juan de Fuca, AdmiraltyInlet, and Puget Sound. The east side isbound by Skagit Bay and Saratoga

including Cranberry, Swan, Hastie, Goss,Crockett’s, Hancock, Lone, and Deerlakes, to name a few. Crockett Lake isactually a 250-acre shallow saltwatermarsh. It is unique in that thefreshwater of the lake is separated fromthe saltwater of Admiralty Bay by a milelong gravel bar, known as the KeystoneSpit. Another important lake on theisland is Hancock Lake. Once anoperational area for Whidbey IslandNaval Air Station, the lake now supportsa high-quality wetland area, whichprovides significant wildlife habitat.

Passage. Deception Pass lies at thenorth end of the island, cutting off themainland from the island.

A dual layer flow of water occursbetween Puget Sound and AdmiraltyBay, as freshwater flows on the surfaceand more saline waters flow on thebottom. The freshwater tends to moveseaward and the more saline waters flowinland. Deception Pass, a shallow area,is one example of where these two layersconverge.

Several lakes are located on the island,



VegetationWhidbey Island’s many landscapes createopportunity for a wide array ofvegetation to flourish, much of it visiblealong the scenic corridor. Trees,including bigleaf and vine maples, alders,ash, Douglas firs, western red cedars,hemlocks, madronas, and other speciesprovide a green backdrop for thecorridor. Once heavily forested withmature conifers, the island is stillapproximately 58 percent forest,although little old growth remains. Thestand of old growth forest in DeceptionPass State Park is the second oldeststand in the greater Puget Soundlowlands. (The largest old growth standis located in Moran State Park on OrcasIsland [A Road Like No Other]).

Native understory vegetation includesthe beautiful Pacific rhododendron andother shrubs such as oceanspray,snowberry, Oregon grape, salmonberry,and red flowering currant. Groundcoveralong the corridor consists of speciessuch as sword fern, salal, and mockorange. Flat leafed cacti at PartridgePoint are particular to the area, andthere are many species of wildflowers,including false lily of the valley, yellowmonkeyflower, and lupine. Wetlandvegetation such as nettles, sedges,

cattails, skunk cabbage, and sphagnummoss can also be found on the island.

On Grasser’s Hill, the only community ofthe Rocky Mountain iris (Irismissouriensis) growing west of theCascade mountains can be found (A RoadLike No Other). Whidbey Island is alsohome to one of three known populationsof Golden Indian Paintbrush, which canbe seen at Fort Casey State Park.

The island’s prairies are significantbecause they did not develop forestcover; however, cahas, lomatium,chocolate lily, and other wild flowersprovide color to these treeless areas.Native grasses found on the islandinclude dune wildrye, velvet grass,yarrow, sand verbena, orchard grass,blue grass, and pea vine.

The variety of native species growingalong the corridor is impressive.However, nonnative, invasive species ofvegetation do pose problems along areasof the corridor. The Himalayanblackberry is the most predominant ofthese.

A listing of the plants found on WhidbeyIsland is included in the Appendix.



Wildlife and FishThe abundance of vegetation on WhidbeyIsland supports a variety of wildlife. Awide array of birds, including shorebirds,wading birds, waterfowl, raptors, andupland and forest birds live and migratein the area. Warblers, including theyellow-rumped, Townsend’s, black-throated gray, and orange-crowned takeadvantage of the native madrona tree forhabitat. Understory shrubs provideberries for birds such as thehummingbird, northern flicker, andAmerican goldfinch. The waters in andaround Whidbey Island provide keyhabitats for a myriad of birds and aquaticspecies.

Many types of ducks, geese, swans, andother waterfowl species use the wetlandsand shoreline for resting duringmigration, breeding, and nesting.Crescent Harbor marshes providehabitat for the black oystercatcher, anAudubon Society WatchList species.Birds such as the black turnstones,surfbirds, peregrine falcons, merlins, usePenn Cove and Kennedy Lagoon aswinter foraging areas. Crockett’s Lakeand the adjacent agricultural lands nearFort Casey State Park support a largepopulation of permanent and migratorywaterfowl. Bald eagles and great blue

herons are commonly seen throughoutthe area.

The seashore, marsh, and tidal lagoonstretching from Ebey’s Landing to PointPartridge, and the dense woods upland,are still minimally impacted by humanactivity. Thus, they offer safe shelter toblack-tailed deer, raccoons, red-tailedfoxes, and other common, smallwoodland creatures. Coyotes, cottontailrabbits, beavers, and additional smallmammals have colonized other parts ofthe island.

California sea lions, migrating graywhales, Orca whales, Dungeness crab,and various other aquatic species live inthe waters of the surrounding area. Inthe waters between Whidbey Island andPort Townsend, the largest species ofoctopus in the world lurks: the Pacificgiant octopus. Another of the world’slargest species, the gumboot chiton, livesin the Keystone jetty area (A Road LikeNo Other).

Fish that live and spawn in the areainclude coho (silver), chum, pink, andChinook salmon, as well as cutthroattrout. The marine waters adjacent toand within the island are very importantfor juvenile salmon rearing andmigration, particularly pink and chumfry.

Photo by Larry Webster



Significant commercial and recreationalfishery resources exist within or nearbythe island. Penn Cove is the site of oneof the major recreational fisheries forsurf smelt in Puget Sound, and much ofthe Penn Cover intertidal area is usedfor spawning.

Shellfish resources in the area aresignificant. Commercial resourcesinclude a substantial subtidal clam bedoffshore from Ebey’s Landing. The PennCove clam beaches are among the mostproductive in the state, and the musselculture in Penn Cove represents a majorindustry for the island.

There are several species that onceinhabited the land and waters ofWhidbey Island. Remnants of woollymammoths, including teeth, bones, andtusks have been found along theshoreline and cliffs near PossessionPoint to Double Bluff. Wolves, bears,and elk also used to live on WhidbeyIsland.

A listing of the birds, mammals andaquatic species that utilize WhidbeyIsland is shown in the Appendix.

Demographics, Land Use, andthe Regional Economy

Demographics

Whidbey Island is generally defined asthree areas: north, central, and south.North Whidbey includes Oak Harbor andthe surrounding area. It has apopulation of approximately 40,000people (2003). Central Whidbey includesthe Town of Coupeville, Island County’sseat, and the community of Greenbankand has a population of about 10,600people (2003). South Whidbey includesthe unincorporated communities ofFreeland, Bayview, Clinton, and theincorporated city of Langley and has apopulation of about 14,000 people (2003).

The Communities

The communities that make up thebyway are as different in character andculture as the natural landscape thatsurrounds them. Each community, fromOak Harbor to Clinton, offers a uniquecultural flavor.

Oak Harbor is the largest city on theisland. In addition to the late twentiethcentury look of the highway corridor, thecity also boasts a relatively intact earlytwentieth century and interwar mainstreet overlooking the protected bay of



Oak Harbor Although Oak Harbor’swaterfront is currently fragmented anddisconnected from the “old town,”opportunities exist to create a moreinviting community with connectivityand attractive streetscape designs,public art, landscaping, and otheramenities. Oak Harbor’s waterfrontoffers beach access, parks, and a fullservice marina while enjoying thesweeping views of the Cascade andOlympic mountain ranges. Oak Harbor ishost to several annual cultural eventsincluding Holland Happening, OldeFashioned 4th of July, and Race Week.

Coupeville is the oldest town onWhidbey Island and the second oldest inWashington. It is the center of the Ebey’sLanding National Historical Reserve,established “to preserve and protect arural community which provided anunbroken historic record fromnineteenth century exploration andsettlement of Puget Sound up to thepresent time” (Act of Congress in 1978).Many original structures in Coupevillestill exist along Front Street and in thesurrounding area. Coupeville is host to avariety of cultural events including theKite, Logan Berry, Harvest, and MusselFestivals.

Greenbank is a small community incentral Whidbey. Much of Greenbank,

exists today as it did back in the 1800s asa rural, farming community. GreenbankFarm is a unique partnership withworking farms, artists, and craftspeople.A cooperative market place supportslocal farmers and merchants, recreation,and a place for people to gather forspecial events.

Freeland is currently a vibrant andactive community in south Whidbey thatwas established in the early 1900s as autopian socialist society. Freeland is acommercial and retail hub that alsoprovides abundant recreational opportu-nities including beaches, parks, trails,and wetland.

Bayview is not classified as a town, butBayview Corner is a community hubmade up of small local shops, including agarden store, café, and historical commu-nity center. Bayview is host to manycommunity events, including a farmers’market, and gatherings. Several acres ofthe Bayview Corner are used for recre-ational activities, including open space,educational trails, and a wetland.

Langley is the only incorporated city insouth Whidbey. It is a charming, historiccommunity with a vibrant waterfront andboat harbor, quaint galleries, cafes, andretail shops. Langley also provides



passive recreational opportunities withmagnificent views of the SaratogaPassage and Olympic Mountains.

Clinton is an important gateway fortravelers to Whidbey Island. Severalmillion vehicles travel through Clintonannually as they disembark at the ferryterminal. Residents have expressedconcerns about the speed of traffic andthe divisive nature of the highwaythrough the core of the town. Clintonprovides many commercial and retailshops for island residents and visitors.Clinton’s waterfront is a valuable assetto the community and visitors alike, asbreathtaking views of the Olympics,Cascades, and Puget Sound can be seenfrom nearly every location in thesettlement.

Existing Management Plans andPolicies

Island County

The Whidbey Scenic Isle Way is locatedwithin Island County, Washington.Island County has a comprehensive planand zoning code.

Island County Comprehensive Plan

The Comprehensive Plan, adopted inSeptember 1998, contains ten elements:

land use, housing, historicalpreservation, natural lands,transportation, shorelines, parks andrecreation, water resources, andutilities. The Transportation Element ishighlighted in further detail in Section 8– Transportation Systems Analysis. TheComprehensive Plan contains goals,existing conditions, and future programsand projects for each element.

Other Plans

The local jurisdictions along the bywayand within Island County include OakHarbor, Coupeville, and Langley. Thesejurisdictions have their owncomprehensive plans and zoning codes.Design guidelines have also beendeveloped for the Freeland/Bayviewarea. Ebey’s Landing Natural HistoricReserve also has a comprehensive planthat focuses on preservation andmanagement of the rich farm and prairielands, protection of critical viewsheds,historical buildings, and shorelines, andinterpretation of the significanthistorical and cultural elements thatencompass the reserve. The Reserve’sComprehensive Plan serves the missionof the National Park Service, which is toprotect and enhance resources whileproviding a quality visitor experienceand serving the needs of the publicwelfare. Whidbey Island shorelines are



also protected and regulated through theWashington State ShorelineManagement Master Program.

Regional Economy

Over the past two hundred years,Whidbey Island’s economy has changeddrastically. In the early days of thenative peoples, fishing and trading werethe primary activities on the island. Asthe early settlers arrived this shifted tofarming, fishing, logging, and hunting.Today’s economy is much different fromeither of these situations, and inSeptember of 1939, 14 months beforeWorld War II began, the US Naval AirOperations chose to base operations onWhidbey Island. The Naval Operationcontinued to grow, and today the NavalAir Station is one of the economicleaders on Whidbey Island.

According to the 2000 US Census, 21percent of Island County residents(which includes Camano Island) are inthe education and health serviceindustry, while 12 percent are in

manufacturing and 12 percent in retail.Other industries, includingentertainment and arts, construction,and research, administration, andwaste management employ eightpercent of Island County residents,while the agriculture industryencompasses 1.7 percent of the workforce. 36.9 percent of Island Countyresidents are not employed, and thisincludes the large number of retiredcitizens.

Transportation ConditionsThe existing conditions of the island’stransportation system have beenassessed by the Washington StateDepartment of Transportation andOtak. An in-depth analysis of theseconditions is included in Section 5 –Transportation System Analysis andRecommendations.

“Platted in 1881, the town ofCoupeville grew quickly into themarket and service center of theisland.”

Gilbert, Cathy. Reading the CulturalLandscape: Ebey’s Landing NationalHistorical Reserve. Seattle: NationalPark Service, 1985. 40.



Intrinsic Qualities Assessment

4

WHAT ARE INTRINSICQUALITIES?Intrinsic qualities are the importantattributes of the byway that make itspecial – the significant features andplaces that attract people and also maybecome the focus of some combination ofenhancement, preservation, andpromotion.

Typically, when these outstandingresources relate to the highway, the

communities along the highway, and toeach other, thereby contributing to anunderlying theme or story, the bywaymay qualify for national designation.Such is the case with the Whidbey Islandcorridor.

Intrinsic qualities are not just landmarksand activities along the road, but ratherthe distinctive features that create anoverall sense of the corridor’s character,history, or culture. The Federal HighwayAdministration’s (FHWA) National

Scenic Byways Program defines intrinsicqualities as the “features that areconsidered representative, unique,irreplaceable, or distinctly characteristicof an area.”

FHWA recognizes six primary categoriesof intrinsic qualities: natural,recreational, scenic, historical, cultural,and archeological. FHWA Policy 5.18.95describes these categories as follows.



4. Intrinsic Qualities Assessment4. Intrinsic Qualities Assessment

Natural

Natural quality applies to those featuresof the visual environment that are in arelatively undisturbed state. Thesefeatures predate arrival of humanpopulations and may include geologicformations, fossils, landforms, waterbodies, vegetation, and wildlife. Theremay be evidence of human activity, butthe natural features reveal minimaldisturbance.

Recreational

Recreational quality involves outdooractivities directly associated with anddependent upon the natural and culturalelements of the corridor’s landscape.Recreational activities provideopportunities for active and passiveexperiences, including, but not limitedto, swimming, bird watching, boating,fishing, hiking, and camping. Driving thebyway itself also qualifies as apleasurable experience. Recreationalexperiences may be seasonal, but thequality and importance of the experienceas part of a seasonal activity must bewell recognized.

Scenic

Scenic quality is the heightened visualexperience derived from the viewing ofnatural and man-made elements of the

visible environment. The characteristicsof the landscape are strikingly distinctand offer a pleasing and most memorableexperience. All elements of thelandscape – landforms, water,vegetation, and man-made development– contribute to the quality of thecorridor’s visual environment.Everything present is in harmony andshares in the intrinsic qualities.

Historic

Historic quality encompasses legacies ofthe past that are distinctly associatedwith physical elements of the landscape,whether natural or man-made, and thatare of such historic significance that theyeducate the viewer and stir anappreciation of the past. The historicelements reflect the actions of peopleand may include buildings, settlementpatterns, and other examples of humanactivity. Historic features can beinventoried, mapped, and interpreted.They possess integrity of location,design, setting, material, workmanship,feeling and association.

Cultural

Cultural quality includes the evidenceand expressions of the customs ortraditions of a distinct group of people.Cultural features include, but are notlimited to, crafts, music, dance, rituals,

Virginia planters and NewEngland sea captains colonizedthe island in the mid-1800s.Many of the prairie houses areeven today inhabited by descen-dants of the original families.Other dwellings, legend has it,are haunted by their ghosts, likethe woman sometimes seen to bestaring from the downstairswindow of the 1853 CoupeHouse, the oldest in Coupeville.




festivals, speech, food, special events,and vernacular architecture that arecurrently practiced. The culturalqualities of the corridor may highlightone or more significant communities and/or ethnic traditions.

Archaeological

Archeological quality involves thosecharacteristics of the corridor that arephysical evidence of historic orprehistoric human life or activity thatare visible and capable of beinginventoried and interpreted. Thebyway’s archeological interest, asidentified through ruins, artifacts,structural remains, and other physicalevidence, have scientific significance thateducate the viewer and stir anappreciation for the past.

What is required for NationalScenic Byway and All AmericanRoad Designation?For official designation as a scenicbyway, the FHWA requires corridors topossess intrinsic qualities within one ormore of the six categories: natural,recreational, scenic, historical, cultural,and archeological. An All-AmericanRoad must possess intrinsic qualities inat least two categories.

Whidbey Island IntrinsicQualitiesThe Whidbey Scenic Isle Way possessesan abundance of intrinsic qualitieswithin all six categories. In fact, theSteering Committee inventoried over 300examples on the island. The complete listis included in Appendix A.

Out of the nearly 300 intrinsic qualitylocations inventoried, key examples werechosen and are described below. In somecases, these locations relate to oneanother. For example, unique naturalqualities of the corridor contribute to theabundance of recreation opportunitiesand scenic qualities. Historic elementscontribute to present-day culture.Figure 4.1 maps all the intrinsicqualities.

Deception Pass State Park(Historic, Scenic, Cultural,Archaeological, Recreational, Natural)

The dramatic entry to Whidbey Islandfrom the north begins in Deception PassState Park. This park encompasses thecharacter of the island, thus it is nowonder that it possesses all sixcategories of intrinsic qualities. Itsnatural qualities include secondary andold-growth forests including an eight-



hundred year-old Douglas Fir, the oldestin the park, growing at the Sand Dunes.Other natural qualities include lakes,sand dunes, wetlands, bluffs, marinebeaches, and tidal mud flats. Tidepoolsand a tranquil landscape are found onRosario Head. A plethora of wildlife isfound in the park and the surroundingwaters, including birds such as ospreyand peregrine falcons as well as animalslike whales, clams, and crabs.

Recreational opportunities abound atDeception Pass State Park. Passiveactivities include wildlife and birdwatching, picnicking, interpretiveactivities ranging from panels to amuseum, lectures and slide shows at theoutdoor amphitheater, and ranger talks.Active recreational activities vary fromboating, fishing, and swimming to hiking,beachcombing, clamming, and crabbing.

Scenic qualities found in the park consistof historic structures, such as theDeception Pass Bridge, incorporated intonatural features. Particularlycompelling is the western vantage pointon the east end of the bridge, as oneobserves the sheer, forested cliffsplunging into the turbulent waterschurning hundreds of feet below itselegant architecture. And while thislocation defines the park, the matureforests, rocky coasts, islands, and sunsets

over distant mountains are of theessence of this place, too.

Historic structures like the bridgeremind visitors of the park’s rich past.Instrumental in the development of thepark, the Civilian Conservation Corps(CCC) built several buildings and parkelements in the 1930s that are still usedtoday. These buildings include theinterpretive center at Bowman Bay aswell as buildings now used as kitchenshelters.

The archeological qualities date back6,000 years ago during the settling ofCornet Bay. The Samish, a Coast Salishtribe, settled the land and lived in whatis now the state park until the early1900s. In 1792, Captain GeorgeVancouver led the first Europeanexplorers into the area, leaving behindnomenclature still in use today.

Dugualla Bay(Natural, Scenic, Historic)

Intrinsic qualities present at DuguallaBay include natural, scenic, and historicqualities. The natural landscapeprovides habitat for wildlife while thesurrounding scenery includes impressiveviews of Mt. Baker. The historic natureof the area is derived from the rich



farming history begun with pioneerfamilies and continued today. It is inthis area that a singular culture ofmanaging resources for the use ofwildlife and farmers occurs.

Oak Harbor Downtown/Marina/City Park(Recreational, Scenic, Cultural, Historic)

Oak Harbor Marina and City Park offerrecreational, scenic, and culturalintrinsic qualities to visitors. A turn offthe highway on Pioneer Way leads todowtown Oak Harbor, sheertopographical slendor. Downtown riseson a gently slope overlooking a sparklingharbor, with a modern boat marina with404 slips. Recreational opportunitiesinclude sailing access to SaratogaPassage, easy access to the San JuanArchipelago, excellent salmon fishing,walks along the waterfront and beach,swimming, and bird watching. Ifrecreating is not what the visitor desires,beautiful scenery is readily available inviews out over the harbor and marina.Piled driftwood is also visible whenlooking towards the bay and Penn Cove,making a lovely setting for a photographto remember the area.

Oak Harbor was settled in 1853 by theIrish but also has a rich military andDutch heritage. Visitors can learnthrough an A-6 airplane display and awindmill replica Public art is exhibitedthroughout the town, including the Ladyin Waiting sculpture and a wooden eagle.

Blue Fox Drive-In(Historic, Cultural, Recreational)

Remember when movies were only tencents and a Coke was only five cents?Those days might be long gone, but theBlue Fox Drive-In theater remains as atestimony to this past. Adults love thedrive-in theater for the memories itevokes, while kids like it for itsirregularity. This blast from the pastexhibits three intrinsic qualities:recreation, history, and culture. Notonly are movie-goers at the Blue FoxDrive-In enjoying a good movie, they arealso becoming part of distinctlyAmerican history. The Blue Fox Drive-In is one of the only drive-in theaters inWashington and one of only 400 in theUnited States. This theater provides theopportunity for an individual to enjoy therural character of the island while alsoseeing the latest box office hit.



Fort Ebey State Park(Natural, Recreational, Scenic, Historic)

Visitors to Fort Ebey State Park witnessfirst hand Mother Nature’s impact on theland through their natural, recreationaland scenic experiences. Visible withinthe park are depressions, known askettles, left in the earth from retreatingglaciers. Over time, forests of hemlocksand firs have reclaimed the land,providing ample hiking trails throughthe forests and along the beaches.Visitors who choose to hike within thepark see first hand the stirring beauty ofthis forest type, which speaks of theresilience of nature.

Fort Casey State Park(Natural, Recreational, Scenic, Historic)

In the late 1800s, Fort Casey served aspart of the United States’ coastalartillery defense system. Today, FortCasey State Park furnishes visitors withnumerous recreational, scenic, historicand cultural opportunities. This statepark is a starting point for recreationaldestinations both locally and within thegreater San Juan Islands. Specifically, atthe park, visitors can enjoy boating,fishing, hiking, and public open space formore passive activities.

Fort Casey State Park contains perhaps

the most photographed site on theisland: the Admiralty Head Lighthouse.Originally built in 1861, the lighthousewas the sixth in Washington Territory.The current building was built in 1903and is on the National Register ofHistoric Places. A lighthouse keeperoperated the lighthouse until 1922. Hewas thought to have the mostcomfortable house in the territory, as heenjoyed an indoor bathroom and laundryroom.

Historically, the fort formed a triangulardefense system with Fort Flagler andFort Worden. The purpose of the fortswas to defend against hostile war shipsentering Admiralty Inlet, the entrance toPuget Sound, and to protect theBremerton Shipyard. Built with state-of-the-art weaponry, the fort included two10” disappearing guns. Visitors to thepark today can view these guns, the onlyones of this type on display in the world.

Although this fort never experiencedaction, it was used until World War I. Atthat time, technological advances inwarfare rendered the fort obsolete.Military influence on the islandcontinues today, however, with the USNavy base located at Oak Harbor.Visitors to this park can expect to learnabout past and present armies in thecomfortable setting of a state park.



San De Fuca(Natural, Recreational, Scenic, Historic.Cultural)

The scenic, historical and culturalattributes of San De Fuca attract visitorsyear around. This picturesque site is setagainst the backdrop of Penn Cove. Thearea was settled in the late 1800s as afarming community, and today itmaintains its rural character, offeringvisitors a glimpse of the past.

Penn Cove(Natural, Recreational, Scenic, Historic,Cultural, Archaeological)

From its natural beauty to itsrecreational opportunities and its richhistory, Penn Cove offers something forevery visitor. This naturally shelteredbay provides habitat for wintering birds.Looking closely, one might even see aneagle nesting here. Birds and varioustypes of marine life find shelter in thebay, and shellfish such as mussels havebeen in Penn Cove for centuries.

American Indians also lived in PennCove for centuries. They were drawn bythe cove’s natural shelter and vastshellfish beds, which provided a stapleitem for their diet. Visitors exploringPenn Cove can gain insight into this

aspect of ancient American heritage soprevalent on the island.

Another layer of history in Penn Coveincludes its function as a port of ocean-bound steam ships from Seattle. The ageand breath of experience found in thisarea illustrates the complexities of lifealong the coast.

Ebey’s Prairie(Natural, Recreational, Scenic, Historic,Cultural, Archeological)

As a part of Ebey’s Landing NationalHistoric Reserve, Ebey’s Prairiemaintains natural, recreational, scenic,and historic qualities. The naturalprairie has changed little over the last150 years, resulting in a tranquil farmsetting. Early inhabitance of the areadates back at least 9,000 years. TheSkagit Indians first used the land foragriculture and were followed by thepioneers. Today, farming is still animportant component of the prairie andof the economy of the area.

Not only has farming survived throughthe years, but so have the originally builtstructures. Homes, such as the JacobEbey Saltbox built in 1855, still standtoday in their initial locations. Otherhistoric locations include the SunnysideCemetery, barns, and outbuildings.

“A thousand places in WesternWashington could vie for the title of“quintessential Northwest view,”the one vista that seems to sum upwhy this is such a wonderful placeto live. Yet there is one place soaccessible, so historic, so panoramicand so representative that itperhaps deserves to be first amongequals. The bluff trail at Ebey’sLanding, in the middle of WhidbeyIsland, has been balm for tenthousand souls, a Mecca for urban-ites seeking renewal.”

Seattle Times, Whidbey Island’s Best KeptSecret, William Dietrich. June 2004



Roads, fencelines and hedgerows alsoremain in the same location; the last 150years have changed the management ofthe landscape very little.

Grasser’s Hill(Natural, Scenic, Historic, Cultural,Archeological)

The natural beauty of Grasser’s Hill isimmediately evident to all those whovisit. Only during the summer, though,does the hill’s most unique feature revealitself as a show of rare and unusualwildflowers blooms, including the nativeiris. The hill resembles a beautifulpainting in shades of pinks, purples,yellows, and whites. Raptors and otherwildlife also find the hill appealing.Although many cultures, includingAmerican Indians, cultivated this hill,the landscape remains nearly unaltered.

Town of Coupeville(Recreational, Scenic, Historic, Cultural,Archeological)

Established in the 1850s, Coupeville isthe second oldest town in the State ofWashington. As such, it draws visitorswith its medley of recreational, scenic,historic, cultural, and archeologicalqualities. A walk through Coupevillewill not only provide exercise, but it

illustrates the scenic and historiccharacter of the town. Walking downFront Street exposes one to thecommercial center of town. Make sure tostop at Town Park, which encompassesalmost two acres and features impressiveviews over Penn Cove. If one still feelslike walking, take the steps betweenToby’s Tavern and the Knead and Feedrestaurant to the beach where strollingand beachcombing are available. Whentired of walking, stop into one of themany choice restaurants or check intoone of the historic lodges or bed andbreakfasts for a good night’s rest.

For those visitors who desire more in-depth knowledge about the rich historyand culture of Coupeville, a visit to thelocal museum is a must. Here one canlearn about the water festival races inthe 1920s and 1930s, read about theCoupeville Wharf, and view the NativeAmerican canoes on display. Anotherway to enjoy Coupeville is to attend abandstand show. Regardless of one’sinterest, the Town of Coupeville offerssomething for visitors young and oldalike.

Crockett Lake(Natural, Recreational, Scenic)

Crockett Lake’s importance to migratingbirds provides recreational opportunities



for visitors interested in bird watching.This lake is one of Washington’s mostimportant habitats for shorebirds,waterfowl, and raptors during the springand fall migratory seasons. Its brackishwater and salt marsh environmentprovide biologically rich wetlands thatwaterfowl need. This environment alsoprovides learning opportunities forpeople in order that they mayunderstand the role a healthy wetlandplays in sustaining flora and fauna.

Besides its natural, recreational, andscenic qualities, Crockett Lake alsooffers visitors a historical perspective.Old homesteads still dot the area aroundthe lake. The site even reflects some ofthe military history of the island.

Keystone Spit/Ferry Terminal &Crossing(Natural, Recreational, Scenic, Historic,Cultural, Archeological)

The unusual land formation formingKeystone Spit exhibits all six intrinsicqualities. The spit was sculpted byglacial forces supplemented by tidaldeposition. The resulting soilcomposition of the spit supports avariety of flora, which adds to thepicturesque beauty of the area. Itslocation affords beach access as well as

opportunities for salmon fishing.Historically, the spit was developed as aresult of the building of Fort Casey;located here was the quartermasterdock, which serviced the fort. The USCorps of Engineers eventually built theKeystone Jetty and harbor in the 1950s.This enabled ferry service across to theOlympic peninsula, which still operatestoday. The Keystone Spit is owned byWashington State Parks and Recreation,which preserves the land in its naturalstate. This ferry crossing offers one ofthe most striking panoramas in thenation.

Rhododendron County Park(Natural, Recreational, Scenic)

Rhododendron County Park offersvisitors natural, recreational and scenicqualities. Native vegetation flourishes inthis park, demonstrating the variousnative species of the island. The key tothe luxuriant growth of therhododendrons is the ‘rain shadow’ affectproduced by the Olympic Mountainsprotecting much of Whidbey Island fromthe heavy rains typical of the PacificNorthwest. As a result, therhododendrons are able to compete withother species. For visitors who wouldlike to experience the rhododendrons upclose, hiking and camping opportunities



agreed to preserve the land as wildlifehabitat. Visitors can enjoy the beautifulviews of the lake and the sound,however, from a vantage point. Otherviews include those of the natural bog, adelicate environment shaped by glaciersand subsequent geologic activity overthousands of years.

Hastie Lake

(Natural, Scenic)

Hastie Lake serves is one of theflourishing wildlife habitats on theisland. Consequently, in encompassesseveral natural and scenic jewels and oneof the largest wetland along the byway.As one of the few freshwater bodies onthe island, it attracts a diversity ofwildlife, including flocks of birds, duringthe fall and winter months.

Greenbank Farm(Historic, Recreational, Cultural, Natural,Scenic, Archeological)

The goal of the Greenbank Farm includespreserving the farm as a “living-historyfarm, scenic recreation site, and culturalcommunity center”(www.greenbankfarm.com/history.cfm).As a result, this site shines as anexample of natural, recreational, scenic,historic, and cultural qualities. From theroad and the farm itself, amazingpanoramic views await the visitor.Trails exist for those who choose to seethe farm from a variety of angles, andthere are also wetlands and birdwatching platforms on the farm.

The farm began as a dairy in the early1900s but quickly turned to berryfarming. In 1972, the farm held thedistinction of the largest loganberry farm

exist.

Lake Hancock(Natural, Scenic, Cultural)

Natural, scenic and cultural qualitiesabound at Lake Hancock although theycan only be viewed from a distance. Thepublic is not permitted access to LakeHancock, because the area was once usedas an operational area for the US Navy.The Navy still owns the land but has



in the United States. A retail shop ofChateau Ste. Michelle operated on thefarm for a time, and then Island Countypurchased the farm. Currently, the farmis reintroducing organic farmingmethods. Users and visitors to the farmenjoy seasonal u-pick crops, certifiedorganic farm land leases, community peapatches, and research and educationopportunities. A retail shop in the redbarn showcases the Greenbank Farmproduct line as well as wine tasting andselling and food service.

Cultural events occur often at the farm.Among them include receptions,meetings, classes, and workshops. TheLoganberry Festival takes place everyJuly, bringing tourists in from far andwide. Local produce, crafts, art, and foodis available at the year round market.With all these activities available,regardless of the season, it is easy tounderstand why the Greenbank Farm isloved by Whidbey Island residents.

Double Bluff County Park(Scenic, Recreational, Natural)

With its two miles of publicly ownedbeach access, Double Bluff County Parkaffords recreational and scenic qualitiesto visitors. Recreational activitiesinclude clamming, hiking, kite flying, and

picnicking. With the expanse of beachaccess, views out across the water arephenomenal.

South Whidbey State Park/Smuggler’s Cove(Scenic, Recreational, Natural, Historic)

South Whidbey State Park offers adiverse system of natural, recreational,scenic, and historic qualities. Within thepark is the Classic U Forest, one of twoold growth forests remaining on WhidbeyIsland. The “Ancient Cedar” is abreathtaking example of the beauty, andconsequent value, of old growth. TheHobbit Trail provides for an excitingshort interpretive trail, intriguing for allages. An amphitheater allows formultimedia presentations as well asnighttime lighting for those infamouscampfire ghost stories. Tidelands lendthemselves to activities such as fishing,beachcombing, and picnicking. Whetherhiking through the forests or enjoyingthe scenic panoramas across the water,South Whidbey State Park is a thrillingplace to explore.

Meerkerk Gardens(Scenic, Recreational, Natural, Cultural)

On Mother’s Day families spreadblankets on the lawn of Meerkerk, listen



to the guestmusician perform,and drink in thecolors of thousandsof rhododendrons.Founded in the1970s, the non-profit gardens coverten acres within a43-acre woodlandpreserve. Besidesrhododendrons, theblooms of bulbflowers, perennials,and flowering treesscent the air for

visitors who may wander the paths in thegarden and preserve or shop at plantsales held in the spring and summermonths.

Saratoga Woods andGoss Lake Woods(Scenic, Recreational, Historic)

During the early settlement of the west,the United States government mandatedthat tracts of land be set aside in trustfor the support of local public schools.These lands on Whidbey Island werelogged in the early twentieth century.Today, the forests have grown again, andvolunteers have built trails for hiking,biking, birding, and riding throughout

over 600 acres of the preserve and someportions of private property. Thesewoods are home not only to manyanimals, but also a huge glacial erraticknown as Waterman Rock.

Bayview(Historic, Cultural)

Every Saturday morning in spring,summer, and fall farmers, gardeners,bakers, and artists gather, in theBayview hall or outdoors, to sell theirproducts at the Bayview Farmer’sMarket. This hall was built in the 1920sto accommodate community and socialevents, and it still functions as agathering place today. Down the roadfrom the hall stands the Bayview CashStore, which was built in 1924 andrebuilt in 1999 to house severalbusinesses and a community meetingroom. Bayview also holds the distinctionof being the location of one of the firstschools built on Whidbey Island.Formerly the elementary school, todaythe building houses an alternative highschool.

Langley(Historic, Recreational, Scenic)

For one weekend in February, Langley isplunged into crime and intrigue as



citizens host their annual “MysteryWeekend.” After the criminal isapprehended, one may visit Seawall Parkand look for whales or gaze acrossSaratoga Passage at Mt. Baker. Thetown is also filled with fine restaurants,art galleries, inns, bed and breakfasts,historic residences, and a winery.

Maxwelton Beach(Historic, Scenic, Recreational, Cultural,Natural)

Maxwelton was the last unsettled spoton Whidbey Island and was onlychristened in 1905 upon the arrival of itsfounders—the Mackie brothers. In spiteof its late start, Maxwelton was the siteof the first Northwest Chautuaqua in1912 and, in that same year, beganhosting an annual Fourth of July Parade,which has continued every year since,except during World Wars I and II. Thebeach in Maxwelton fronts Puget Soundand houses a public boat launch and theDave Mackie County Park.

The Maxwelton Salmon Adventure is acommunity effort to rehabilitate theMaxwelton Watershed for salmonspawning while maintaining the land foragriculture. Area residents and schoolchildren began the effort in 1993 andhave since purchased land and built anoutdoor classroom.

Clinton Gateway/Ferry Terminal& Crossing(Historic, Scenic, Recreational, Cultural)

The southern entry to the byway beginswith a ferry crossing and arrival atColumbia Beach in Clinton, offeringscenic, historic, cultural, recreational,and natural attributes. Whether on theferry crossing feeding the accompanyingseagulls, or at the Clinton Landing, theviews are spectacular. They include Mt.Baker to the north, east to the Cascades,south to Mt. Rainier, and west to thebluffs and shoreline of Clinton. The ferryterminal area is an excellent venue fortelling Clinton’s history, including itshistory as a entry point to WhidbeyIsland.

Visual and Scenic CharacterAnalysisThe scenic resources of Whidbey Islandperhaps represent the byway’s mostimportant and dominant intrinsicquality. The exceptional views andvistas and the changing character of thescenery throughout the island are theheart of the byway experience. Theexisting mood of the byway is defined bythe landscape that surrounds andencompasses the highway corridor. Likethe nature of Whidbey Island, the

“Many people credit the growth ofMaxwelton to the arrival of thecharismatic Mackie brothers andtheir large families in 1905. As theylearned to till the land, the Mackiesjoined hands with existing settlersto build homes and barns. Theyalso took an active role in convinc-ing people from Seattle to buy landand settle in this last frontier ofWhidbey Island.”Linnea, Ann. A Journey Through theMaxwelton Watershed; A Natural andSocial History. Whidbey Island: MaxweltonSalmon Adventure, 2002. 37.



roadway varies throughout its entirelength.

A “windshield” visual and sceniccharacter analysis was completed for theentire byway corridor, recordingnorthbound and southbound observationsof scenic character. The purpose of thisanalysis was to identify locations whereoutstanding and exceptional views andscenic qualities exist, as well as locationswhere buffering and screening may bemost needed and/or where voluntaryarchitectural design guidelines couldhelp to improve the visual quality.

Figures 4.2 depicts the preliminaryresults of the visual and scenic characteranalysis for the byway. The mapincludes the southbound/west side of SR20 and SR 525 and the west north side ofthe SR 20 byway spur to the KeystoneFerry and the northbound/east side of SR20 and SR 525 and the south portion ofthe SR 20 byway spur. The visualcharacter categories are displayedthrough a color coding system:

Red – Urban development areas - insome cases these areas include visualclutter and architectural style andcharacter that is not visually cohesive toa scenic byway experience, meaning thatthe visible elements do not necessarilyblend well with the surrounding

landscape or with the context or setting;

Orange – Suburban or rural pockets ofdevelopment dotted between forests,farms, or open land that in some casesare not visually cohesive to a scenicbyway experience;

Yellow – Urban, suburban, or ruraldevelopment that is visually cohesivewith a scenic byway experience andblends well with the surroundingcontext and landscape;

Green –Forested corridor, areas of“green canyons” - tree-lined, enclosedviews;

Turquoise – Rural, open areas withterritorial views of farmland, rollinghills, and prairie landscapes with forestsin the backdrop;

Blue – Rural, open areas with broadviews of farmland, rolling hills, andprairie; landscapes with forests, wateror mountain views in the background; orunique habitat including wetlands andmarshes in view; and

Purple – The highest quality scenicexperience - open areas with exceptionalbroad views of the surroundinglandscape and with water and mountainsin the viewshed and, in some cases,

interesting elements such as historicbarns (big red barns) and structures, orunique landscapes in the viewshed.

Historic Site CommemorativeProjectAn important project related tocommemorating historic sites withmarkers is underway on Whidbey Island.This project is described in more detailin Section 6, Telling the Byway Story.


Transportation System Analysis and Recommendations

5

IntroductionThis section describes the existingconditions, scheduled projects, andproposed future conditions on and alongthe Whidbey Scenic Isle Way. Thissection also describes transportationservices provided by the WashingtonState Ferry System and Island Transit,as well as via various multi-use pathsand bikeways on the island.Opportunities for an enhanced non-motorized system are also discussed.

Regional TransportationWhidbey Island is accessed by two ferriesand one roadway. State Route 20, via theDeception Pass bridge is the onlyroadway to Whidbey Island. The otheraccesses include a ferry from PortTownsend on the west side and fromMukilteo on the south end. Figure 5.1depicts a map of travel routes to WhidbeyIsland, including regional connections toInterstates 5 and 405.

Existing Roadway Analysis andPlanned ProjectsThe roadway review and highway designand maintenance standards element ofthe Whidbey Scenic Isle Way CorridorManagement Plan describes the existingconditions, scheduled projects, andproposed future conditions on and alongthe portions of State Routes (SR) 20 and525 traversing Whidbey Island. Thereview examines elements of roadway


5. Transportation System Analysis and Recommendations5. Transportation System Analysis and Recommendations

design such as functional classification,roadside development, horizontal andvertical alignment, lane and shoulderwidths, the provision of clear zones, andlevel of access control. All thesecomponents play a major role in theoperation of a highway. In addition, thereport briefly discusses structures(bridges), channelization, signalization,and speed limits. These components areonly discussed briefly in this section. Afull report is included in the Appendix.

Highway Designations

The highways we now know as SR 20 andSR 525 on Whidbey Island wereoriginally added to the state highwaysystem in 1937 as Secondary StateHighway 1-D (SSH 1-D). In 1964 themain trunk of SSH 1-D extending thelength of Whidbey Island betweenClinton and Deception Pass wasredesignated as SR 525, and the 3.4 milebranch extending from the trunk to theKeystone ferry terminal wasredesignated as SR 113. In 1973 SR 113from the Keystone ferry terminal to themain highway trunk, and the portion ofSR 525 from the intersection with SR 113north to the Deception Pass Bridge andon into Skagit County was redesignatedas SR 20.

State Routes 20 and 525 were namedWashington State Scenic Byways in 1967.In 1978 they became part of the CascadeLoop Scenic Highway Association,linking Whidbey Island’s Scenichighways with The North CascadesScenic Highway, the Methow Valley, theOkanogan, and the Stevens PassGreenway in a spectacularly diverse 440mile necklace of state scenic byways.

SR 20 and SR 525 are part of theNational Highway System (NHS),meaning they function as part of aninterconnected system of principalarterial routes that serve interstate andinterregional travel; they meet thenational defense requirements; and theyserve major population centers,international border crossings, ports,airports, public transportation facilities,other intermodal facilities, and othermajor travel destinations. SR 20 and SR525 are also designated as part of theStrategic National Highway Network(STRAHNET), as they link importantmilitary facilities to the NHS.

Roadside Classification

The WSDOT Roadside ClassificationPlan (RCP) is a policy tool used tocoordinate and guide the management ofWashington State Highway roadsides,including planning, design, construction

Figure 5.1 - Regional Connections to theWhidbey Scenic Isle Way



and maintenance activities. The intentof the plan is to provide a uniformframework for consistent, proactiveroadside management statewide, and tofacilitate cost-effective restoration ofstate roadsides. The RCP providesguidelines for roadside restoration, andit advocates the use of native plants,Integrated Vegetation Management, anda long-term management approach toachieve sustainable roadsides. For moreinformation on Roadside Classification,see Appendix.

Access Control / Access Management

SR 20 and SR 525 are controlled accessfacilities. Most of the corridor is in theManaged Access category with partialLimited Access established at severallocations. See Transportation Report inthe Appendix for the controlled accessclassifications for all of SR 20 and SR 525on Whidbey Island.

Pavement Conditions

The majority of the highway pavement onSR 20 and SR 525 is in good condition.Approximately 80% of the highway hasbeen paved within the past 10 years. SeeAppendix for pavement projects plannedand scheduled for years 2004 to 2008.

Bridge Structures

There are fourbridge structures inthe Whidbey Islandhighway corridor,most notable ofwhich are thehistoric and scenicDeception PassBridge and CanoePass Bridge, bothbuilt in 1935. TheAppendix includes alist of the highwaybridge structures onWhidbey Island.

Speed Limits

Nearly 90 percent of the 51-mile Whidbeyhighway corridor has posted speed limitsof 50 to 55 mph traversing mostly windingand undulating rural countryside. In theClinton commercial area, and theapproach to the Clinton ferry dock, SR 525speeds are reduced to between 30 and 40mph. In the vicinity of the Keystone ferrylanding the posted speed on SR 20 is 25mph. Posted speeds are also reduced tobetween 30 and 40 mph on SR 20 throughthe commercial area of the City of OakHarbor and again through Deception PassState Park lands and the Deception PassBridge. See Appendix for a complete listof speed limit postings for SR 525/SR 20.

The name “Deception Pass” derivedfrom Captain Vancouver’s realizationthat what he had mistaken for apeninsula was actually an island. Henamed that island “Whidbey” in honorof his assistant, Joseph Whidbey, whowas at his side when Vancouverrealized the mistake. The captainnamed the inlet at which he wasanchored “Deception Pass” tocommemorate the error.

Washington State Park website



Other Transportation Servicesand FacilitiesThe Whidbey Island corridor is unique inthat it is one of the few byways in thenation that can be accessed entirely bytravel modes other than automobile viathe Washington State Ferry System,Island Transit, and various trails andpathways throughout the island.

Washington State Ferries

There are two ferry routes that provideaccess to Whidbey Island. Both are partof the “marine highway” system. TheWashington State Department ofTransportation’s Marine Divisionoperates the Mukilteo to Clinton and thePort Townsend to Keystone ferries.According to Island County’sTransportation Element of theComprehensive Plan, ferry usage hadbeen steadily increasing since 1986.Total ridership on the Mukilteo-WhidbeyFerry was 4,215,400 (1996) and totalridership on the Port Townsend toWhidbey Ferry was 842,300 (1996).

The Mukilteo to Clinton ferry makesabout 40 trips per day at 30 minuteheadways and carries 130 vehicles. ThePort Townsend to Keystone ferry makes8-10 trips per day in the winter at 90 to

109 minute headways and 20 trips perday in the summer at 45 to 75 minuteheadways and carries 75 vehicles.

Other Water TransportationOpportunities

Several parks on Whidbey Island offerkayak docking and campingopportunities as part of the 140-mileCascadia Marine Trail. The CascadiaMarine Trail is one of only 16 designatedNational Millennium Trails.

Island Transit

Island Transit has been providing publictransportation services for IslandCounty, which includes both Whidbeyand Camano Islands, since 1987. Theseservices include Fixed Route, RouteDeviation, Feeder Route,Complementary Paratransit, Bike &Ride, and a very successful Vanpool andRideshare Program. Service is offeredthroughout all of Whidbey IslandMonday through Saturday. Eight Park &Ride lots are located along State Route20 and State Route 525, with connectionsfrom the ferry terminals to allcommunities along the byway. Residentsand visitors can enjoy a non-motorizedexperience for the entire length of thebyway.



Island Transit’s Mission and the Fare FreePhilosophy

As Island Transit’s mission states, it isthe transportation provider’s goal toprovide a package of ride-sharingservices which emphasizes rider use,safety and satisfaction, and results inincreased mobility opportunities, lessdependence on the automobile,decreased traffic congestion andimproved air quality for all people inthe service area, riders and non-ridersalike.

Island Transit’s Board feels thatcharging a fare is contrary to themission. Typically, for smaller or ruraltransit systems, collecting a faregenerates virtually no usable revenuebecause of the costs associated with thecollection. In addition, the fareboximposes an unnecessary inconveniencewhich is detrimental to ridership, andtherefore contrary to the mission.Island Transit is currently 100% pre-paid with 6/10ths of 1% local sales tax,and ridership has grown from 13,024 in1987, to over an amazing 1,004,267annually.

Multimodal Transportation Options

Island Transit riders can utilize publictransportation wherever they need togo in Washington State and beyond

without once setting foot in an SOV(single occupancy vehicle). An IslandCounty resident, or anyone visitingIsland County, can take an Island Transitbus to make various multimodalconnections to the Washington StateFerry system, other transit agencies, railand airporter shuttles. Immediateconnection destinations include: Everett,Seattle, Port Townsend, Anacortes / SanJuan Islands, Mt. Vernon andInternational connections into Canada -the routes and possibilities are endless!

Routes

Island Transit has many routes thatserve Whidbey Island. Figure 5.2 depictsall the transit routes.

The Island County Comprehensive Plan -Transportation Element - Bike andPedestrian

The Transportation Element of theIsland County Transportation Planoutlines additions to the existing multi-use trails, bike routes, and pedestriantrails in the county.

The Comprehensive Plan also outlinesimportant elements that should beconsidered when planning and designingnew pedestrian and bicycle facilities. SeeAppendix for a complete list.



TransportationRecommendationsBelow is a list of recommendations forgateway communities, highwayimprovements, transit, pedestrian, andbicycle facilities to improve overalltransportation for byway travelers.

Gateway Community Design and TrafficCalming Studies• The gateway communities of Oak

Harbor and Clinton should work withthe Regional Transportation PlanningOrganization, WSDOT, and others toseek funding for separate studies toanalyze existing byway traffic patternsand evaluate potential traffic calmingand traveler wayfinding opportunities.Traffic calming, in particular, is astated need within these communities.

• Clinton community representativesshould meet with WSDOT regionalrepresentatives to coordinate on thestatus of past planning efforts andproposed projects.

• Oak Harbor representatives shouldmeet with WSDOT regionalrepresentatives to coordinate onproposed projects and improvementswithin proximity to the city.

• Analysis of traffic calmingopportunities and appropriate

solutions for other important hubs andpedestrian activity areas along thebyway should also be completed.

Highway Improvements

There are a number of improvementsrelated to the highway that could beconsidered as projects or programs in theAction Plan that would enhance bywaytravelers’ experiences:

• Maintaining scenic character ofroadway through cooperative designprocesses with byway representatives(much like the current processinvolving design of highwayrealignment in the Ebey’s LandingHistorical Reserve). Evaluation ofalternatives for lane widening,embankment/side slope design,horizontal and vertical curvature, andother highway elements with the intentto preserve the visual and sceniccharacter of the byway should be apriority to all interests involved.Maximum efforts to preserve existingscenic, historic, cultural, archeological,and natural features along the bywayshould be integrated into all highwayimprovement design solutions.

• Bring the plantings to the roadwayedge: appropriate native vegetationshould be planted and maintained up tothe roadway edge. Current cooperativeefforts between WSDOT and the



various organizations on the islandrelated to the design and maintenanceof the vegetated edge of the highwayshould continue.

• Alternate off-byway tour routes shouldbe encouraged and promoted to theextent appropriate and acceptable tolocal residents. See Figure 5.3 forrecommended touring routes. Theseroutes will offer the byway traveler achance to experience more of theisland’s natural and historical beauty.This could potentially decrease trafficon the main byway corridor, as well.

• Speed limit enforcement – Bywayresidents and visitors have mentionedthat drivers are often traveling atfaster than posted speed limits. This isof particular concern in residential andurban areas where pedestriansfrequently cross the byway, but also ofconcern throughout the entire byway,which is a designated bike route.Enforcement of speed limits will allowpeople to enjoy “island time” andexperience the byway at the postedspeed limits.

• Traffic calming measures - asmentioned above, suitable trafficcalming opportunities and solutionsshould be considered for the gatewaycommunities and at other activity hubsalong the byway (park and ride lots,pedestrian crossings, etc.) A focused

designworkshopwithWSDOT staffandinvolvingrepresentativesfrom thelocalcommunitiescould help todefinepotential ideas.

• Establishing a cooperative programwith business and property ownersalong the byway to allow for all toparticipate in scenic byway projects,assisting with designs and vegetationmanagement and scenic improvements.

Water Related TransportationRecommendations

There are opportunities to provide“water taxi” service around the island.Langley, Coupeville, and Oak Harbor areport cities that could offer taxi servicesfor both residents and visitors. Taxiscould be small boats with carryingcapacity for 20 passengers includingroom for bicycles and other gear.

There are also opportunities foradditional kayak camping sites along theCascadia Marine Trail. Camp site



locations could be identified throughoutthe island. There could be opportunitiesfor kayakers to dock in one thecommunities and stay at a local bed andbreakfast. Secure kayak storage wouldneed to be available.

Transit Recommendations

There are a number of transitimprovements that could be consideredprojects or programs in the Action Planthat would enhance byway travelers’experiences:

• Promoting the “non-drivingexperience” - you don’t need your car tovisit Whidbey Island! Local chambersof commerce and tourism organizationsshould team with Island Transit topromote, educate, and encourage thenon-driving experience “WhidbeyIsland Experience – “Leave Your Car atHome.”

• Sunday service – Many travelers cometo Whidbey just for the weekend.Adding Sunday service would allowthem the opportunity to use transit allweekend long. Locals would benefitfrom Sunday service to accesstrailheads and recreationalopportunities. Island Transit willcontinue to seek and obtain fundingnecessary to provide Sunday busservice.

• Additional bicycle carrying capacityand bicycle amenities – adding bicyclecapacity would help increase ridership.Island transit should increase bicyclecarrying capacity for service onWhidbey Island.

• Park-and-ride improvements – it hasbeen stated that the these areas alongthe byway should be expanded asrequired and become “park and rideparks” with more emphasis onlandscaping, greens, public art,amenities for transit riders, andcommunity gathering and waitingspaces. These types of enhancementswould also elevate the overall sceniccharacter of the byway.

• Special tours and programs - Thebyway committee and local chambersand tourism organizations shouldcoordinate special tour routes forisland visitors with private buscompanies. Island Transit shouldassist in promoting and coordinatingconnections with the private tour-busroute activities. (Envision the “parks”tour bus, the “historic sites” tour bus,the “beaches” bus, the biking/hikingbus, etc.).



Bicycle Facilities ImprovementRecommendations

Bicycle improvement recommendationsto enhance byway travelers’ experiencesinclude:

• Promoting tour routes – Island Countyand local jurisdictions should considerpromoting local tour routes off themain byway corridor – see Figure 5.1for touring opportunities. These tourroutes could be promoted throughmaps distributed on the ferries,website information, tourism guides,and other means. Further coordinationand communication with localcommunity residents andrepresentatives will be importantbefore proceeding with thisrecommendation.

• Multiuse trail system expansion –provide additional trails and paths forexclusive use by bicyclists andpedestrians. Studies indicate thatrecreational bicyclists (such as familiesand people enjoying the scenery) preferoff-road trails compared to roadwayshoulders.

Pedestrian Facilities ImprovementRecommendations• Provide safe and convenient crossing

opportunities for pedestrians on StateRoute 20 and State Route 525 neartransit stops, activity centers, and inthe gateway communities

• Provide traffic calming to enhancesafety for byway travelers andpedestrians.

• Investigate the need for and identifynew trailhead opportunities andneeded improvements in thoselocations.

• Multiuse trail system expansion –provide additional trails, like theKettles Trail, along the byway. Provideopportunities for beach walks andhikes, along with beach walkingstewardship and education.

• Map – provide a map/guide/brochuredepicting the “top 20 recommendedwalks on Whidbey” that are available atstate parks, local libraries, schools, andrecreational centers, and visitorcenters.


Telling the Byway Story: An Interpretive Plan

6

IntroductionUnique qualities and significantresources surround the Whidbey ScenicIsle Way. This interpretive master planprovides ideas for communicating thesequalities to residents and visitors of thecorridor.

The most significant stories related tothe six intrinsic qualities (natural,scenic, historic, cultural, archeological,and recreational) can be tied togetherwith interpretive themes and presentedthrough a variety of media. These

themes and the relevant stories are theheart of an interpretive program. Theinterpretive program educates,entertains, and elevates the experiencefor people of all ages. From the existingconditions analysis and intrinsic qualityresearch, several reoccurring themesemerged that give the Whidbey ScenicIsle Way its unique character. Thepotential stories related to the specialplaces on Whidbey Island aresummarized in this section of theCorridor Management Plan.

Several agencies on Whidbey Islandhave already created their owninterpretive plans/programs. Many ofthe state parks, including DeceptionPass, Fort Ebey, Fort Casey, and SouthWhidbey, have their own interpretiveplans. Ebey’s Landing NationalHistorical Reserve, managed by theNational Park Service, also has aninterpretive plan. Interpreting theresources and historical stories ofWhidbey Island helps both the visitorand residents understand theimportance of preserving the area forpresent and future generations.


6. Telling the Byway Story: An Interpretive Master Plan6. Telling the Byway Story: An Interpretive Master Plan

Purpose of InterpretationThe purpose of interpretation is tobroaden visitors’ and residents’awareness of the byway story.Interpretation is the specificcommunication strategy that is used totranslate information from the technicallanguage of an expert to the everydaylanguage of all age groups, and, with thatgoal in mind, it should be creative andenjoyable.

Francis Tilden, a renowned expert oninterpretation provided this definition ofthe subject: An educational activity whichaims to reveal meanings andrelationships through the use of originalobjects, by firsthand experience, and byillustrative media, rather than simply tocommunicate factual information.

Interpretation can be accomplishedthrough a variety of media includingsigns, exhibits, visitor centers, audio/visual productions, publications, andspecial programs such as guided hikesand tours, living history reenactments,lectures, and other special events.Interpretation of the byway’s treasureswill foster an appreciation of the area byeducating people about the significanceof the island’s important resources.Stewardship messages to “tread lightly”on the natural environment should be

interwoven into the interpretiveprogram.

Central Interpretive ThemesSome overall interpretive themes,central to telling the story of theWhidbey Scenic Isle Way, have beendeveloped as part of this CorridorManagement Plan. These themes consistof elements that highlight the richnatural and historical aspects of - “islandlife,” - past, present, and, the future wesee for the byway.

Strategic Geography

Throughout prehistory, history, andpresent times, Whidbey Island hasplayed a seminal strategic role due to itslocation. Whether as a naturalenvironment supportive of a wide rangeof flora and fauna, as a gathering andsometimes contested, place forindigenous peoples, as an embarkationpoint for Puget Sound, as a nationaldefense stalwart armed during theSpanish American War and World WarII, or as a “do nothing here” respite fromthe rigors of urban life, the island storymust include a nod to this remarkablelegacy stemming from its geography.



People and Conflict

The advance of human occupation onWhidbey Island contributes a compellingchapter to the byway story, a chapter notwithout some conflict. Concentrations ofpeople linked by a common nationalorigin (as the Dutch in Oak Harbor), acommon understanding of social utopia(as in Freeland), or a common desire forfree land to farm (as the donation landclaimants in central Whidbey) areexamples of groups that give specialcharacter to local places. Likewise,tensions traceable to competing tribalinterests, racial intolerance towardChinese settlers, and entrepreneursseeking profit from land speculation,among others, are all well-documentedand must be part of the story.

Water First, Then Roads

An integrated road network was arelatively late arrival that was graftedonto a geography established andnurtured by water connections to pointsoff the island. The byway corridor hasshifted over the past hundred years fromoffshore to onshore, and most people areable to experience the island in a waythat would have been impossible untilquite recently.

Let’s Go To Whidbey

People have always been attracted toWhidbey Island. For thousands of yearspeople have visited the island and madethis special place their home. Throughchanging times and tastes, WhidbeyIsland has been able to offer succeedinggenerations the ability to provide fortheir own needs through its naturalresources. The island has always been adestination, whether for a day visit to afestival, or for a lifetime for those whoget hooked on life on the rock. Visitorsand residents are struck by the variety ofattractions available within a verydiscrete area, and it is perhaps thisconcentration that has contributed to theenduring ability of Whidbey to lurepeople to its shores and uplands. Thescenic byway offers indisputableevidence of this vast array.

A Place for All Time - The Preservationof Whidbey

Residents of Whidbey Island know howlucky they are to live on Whidbey Island.They cherish, respect, and take pride inthe beautiful, natural environment thatsurrounds them from all sides: water,prairies, working farms, flora, fauna, 100-year old homesteads, and numeroushistoric buildings and monuments. Thebyway is an individual one because these

“People have lived in IslandCounty for millennia; theirhistory there has beeninextricably tied with theislands and the waters thatsurround them.”

White, Richard. Land Use,Environment, and Social Change:The Shaping of Island County,Washington. Seattle: University ofWashington Press, 1980. 5.

Island County Historical Society Museum2004 Calendar—Native American Heritage:

Tribal Influences and History in IslandCounty, Ernest Hancock, year unknown



traits exist. The partnership between thecommunities and local, state, andnational agencies will ensure thatWhidbey Island residents and visitorshave opportunities to enjoy the “islandexperience” and all the particularattributes for years to come. What willmost of Whidbey Island be like 100 yearsfrom now? Hopefully, very similar tohow it is now.

Other sub-themes and importantmessages that should be interpretedalong the byway include:

• “Slow down, relax, you’re on islandtime.”

• A visit to Whidbey is a step back intime; please respect the island’s uniqueheritage and sensitive ecosystems sothis experience can preserved forothers.

• What makes islands unique? Why isWhidbey Island one of the most uniqueislands in the world?

• Whidbey is a place for all seasons -watch the changes throughout the yearwhen you visit your favorite places onthe island.

• No other scenic byway is on an island.

Recommendations forInterpreting the Byway StoryThis section outlines recommendedthemes and interpretation opportunitiesfor many of the places along the bywaythat travelers visit and enjoy. The ideaslisted below can be conveyed at thesesites through a variety of media,including signs, wayside exhibits,brochures, kiosks, maps, specialprograms, audio/visual media, and othermeans (living history demonstrations forexample). The collective stories of theseplaces come together to represent theoverall tale of the byway. As such,interpretation related to the WhidbeyScenic Isle Way should be organizedaround the central themes previouslypresented to the greatest possibleextent. See Figure 6.1 for interpretivethemes and locations.

Deception Pass State Park

Interpretive Messages, Themes, andIdeas:

• Deception Pass State Park has a richhuman history, dating back thousandsof years.

• Deception Pass State Park is home tomany diverse and fragile ecosystems.

• Many people travel to Deception Passeach year to partake in the numerous



recreational opportunities the park hasto offer.

• The story of Deception Pass is one ofhumans and the way they interact withtheir surrounding environment.

• The resources of Deception Pass canonly be preserved through the help ofall park visitors.

• The park’s handsome landscape wasshaped by the Civilian ConservationCorps, President Franklin Roosevelt’sNew Deal Era workforce.

• History of the Native American peoples– the story of the Salish - is interwovenwith the lands and waters of this area.

• The Deception Pass Bridge provides adramatic gateway to the WhidbeyScenic Isle Way.

• There are opportunities to provideenhanced interpretation throughoutthe park.

Dugualla Bay


• Dugualla Bay provides critical habitatto a diversity of wildlife species.

• A viewing platform with spottingscopes and interpretation about therole of the wildlife habitat of this areaand the diversity of species it supportsand supporting facilities, such asparking, could be provided in this area.

Hastie Lake


• A viewing platform with telescopes andinterpretation about the importance ofthe wildlife habitat of this area and thediversity of species it supports andsupporting facilities, such as parking,could be provided in this area.

Downtown Oak Harbor (Marina and CityPark)


• Oak Harbor is an important center forcommerce on Whidbey Island, and agateway community to the bywayoffering an assortment of facilities andservices to travelers.

• Navy history and military influencescould be interpreted.

• Oak Harbor past and present pieractivities – fishing, water taxi fleet,tours, etc. could be interpreted.

• Early twentieth century developmentshaped the city’s character andevidence of much of this era is stillvisible today.

• Trails map, water activities guide andother information could be provided tovisitors.

Photo by Helen Chatfield-Weeks

The uniquely designed, historic 1910 Neil Towerfell into disrepair but was re-constructed in 1989

by volunteers. It resembles a Dutch wimdmillwithout arms. A small museum is located at the

base, named after the major donors of thereconstruction effort, Orren and Ruth Ward.



Blue Fox Drive-In


• The Blue Fox Drive-In is one of the fewremaining outdoor movie theaters inthe country.

• The history of drive-in movie theatersas cultural experiences (old photos,movies, etc.) could be interpreted.

San De Fuca


• Historic setting/importance of historicpreservation could be interpreted here.

• The schoolhouse is an importanthistorical icon.

Penn Cove


• Mussel farming still plays an importantrole in Penn Cove.

• Story of the Salish villages/tribal usesof the area could be interpreted here.

• Reasons early settlers established inPenn Cove

• George Vancouver and Joseph WhidbeyExpedition

Grasser’s Hill/ Kennedy Lagoon


• Early use of the area by native peoplescould be interpreted here.

• Identification of aquatic life of theintertidal zone and importance ofproper beach use for protection ofresources could be interpreted.

• Historic settlement and earlygovernment of this area - whatremnants of that era still exist and canbe interpreted?

Fort Ebey State Park


• Glacial kettles can still be seen in thisarea today.

• Respect the park’s natural features –stay on trails, keep dogs on leashes,etc.

Town of Coupeville


• The rich history of the town and itssettlement is reflected in its uniquecharacter.

• Why does the town look so similar tohow it looked 100 years ago? The town



is a living example of the importance ofhistoric preservation and how it hasenhanced community pride.

• Coupeville should be experienced onfoot - opportunity to provide a walkingtour map.

• Coupeville is an important bywaycommunity - a place where travelerscan go for facilities and services.

Kettles Trail


• Map of trail/ interpretive waysidesalong the route could be provided.

• Why walking matters – health andenvironmental benefits of walkingcould be interpreted at the trailhead.

• Where are the other trail opportunitieson Whidbey? List /map of sites

Smith Prairie


• Introduction to a native prairieenvironment - plant species andimportance of preservation (one of thefew remaining habitats of this type inthe region);

• History of prairie land ownership andpreservation measures underway couldbe interpreted here.

Fort Casey State Park


• Fort Casey was a part of the U.S. ArmyCoast Artillery defense system.

• Admiralty Head Lighthouse was animportant navigational aide to the tallsailing ships.

Ebey’s Prairie


• Partnerships – How the reserveachieves success by working withsurrounding land owners to preservethe prairie and the agricultural uses ofthe land.

• Recreational opportunities – trailsmap: step out into the landscape andexperience the reserve on foot.

• Protect the natural resources – there isa diversity of habitats here for plantsand wildlife.

• Unique character: a visit to the reserveis like “stepping back in time” –prairies and farms, historic barns andhouses, lakes and ponds, beaches andbluffs, woodlands and wetlands –experience the range of this setting.

“It was fully intended, back inthe 1970s, that Ebey’s Prairieand adjoining farmland —nearly half of Whidbey’s total— would be turned into threesubdivisions, the windows ofeach new house jostling for ascrap of scenery that wouldthen be covered by anotherhouse. In other words, theAmerican Way.”

Bill Dietrich. Whidbey’s Secret.Seattle Times. June 2004



Crockett Lake


• The lake is home to many rare andendangered species such as riverotters, bald eagles, northern harrier,whistling swans, snowy owls, greatblue herons, and shovellers.

•Identified as one of the most importantbird areas in Washington – what canyou see? Identify bird species

• Important rest stop and wintering areafor shorebirds. These, and other birds,connect the island to Arctic tundra,Cascade Mountain slopes, and thetropics of Central and South America.“The Isle Way as a Flyway.”

Keystone Spit & Ferry Crossing/Terminal


• Keystone Spit is a unique land formthat has served many purposes.

• The spit provides habitat for anabundance of bird species.

• The ferry crossing is an incrediblyscenic journey and an importantgateway experience for the WhidbeyIsland Scenic Byway.

• Stewardship messages, respect for theisland’s resources, should start duringthe ferry crossing.

Lake Hancock


• Emergence of a wetland - the delicateand diverse ecosystems of the islandcould be interpreted here.

• What can you see from here?• Sharing the land - identify the wildlife

habitat prevalent in this area.

Greenbank Farm


• Who has owned and operated the farmover time – unique land ownershipchanges since the beginning

• Cooperation – the farm is operatedthrough cooperative efforts and is aliving, working example of theimportance of agricultural-basedlifestyles on the island.

• Trail map – experience the farm on foot- additional interpretive exhibits couldbe provided throughout the farm andalong the trail system.

• The farm is an important traveler hubalong the byway - centrally located onthe island.



Bayview Corner


• Cultural history of Bayview – story ofpreserving what is left and buildingcommunity pride.

• Organic farming – importance offarming community and why organicmatters

• Artists and craftspeople of this areacould be highlighted.

• Native plant species of Whidbey Islandcould be identified and interpretedhere.

• Why native matters- the benefit ofpreserving and using native plants inthe landscape.

South Whidbey State Park


• What is an old growth forest? Why is itimportant? This is home to one of thelast old growth forest on Whidbey (andin Washington)!

• Beach education – “respect yourbeaches,” messages of beach etiquettecould be interpreted here.

Freeland

InterpretiveMessages,Themes, andIdeas:

• ExperienceFreeland onfoot – wetland,trails, etc.

• Freelandbeginnings –socialism onWhidbey, history of the town’s name,etc.

• Value of retaining native vegetation inan urban setting could be interpretedhere.

Useless Bay


• The story of the Maxwelton watershed– its significance to Whidbey

• Salmon – why upstream matters couldbe interpreted here.

• Historical/cultural background – thestory of the Chautauqua communitycould be interpreted here.

Double Bluff


• Importance of beach restoration andprotection could be interpreted here.

• Visitor facilities, parking, pull-out, etccould be enhanced here.

City of Langley


• Local driving loop off the byway shouldbe promoted here.

• Historic town: picturesque setting &scenic views – an overlook could beprovided here.

• Tourism experience - an importantplace for traveler access to facilitiesand services.



Clinton Port Facilitiesand Ferry Terminal

InterpretiveMessages, Themes,and Ideas:

•Why islands areunique places –geologic features,people that live here,sense of isolationcould be interpretedhere.

•Community of Clinton – identity couldbe interpreted here.

• Clinton is an important center forcommerce on Whidbey Island, and agateway community to the bywayoffering a host of facilities and servicesto travelers.

• Ferry crossing is a dramatic gateway tothe byway - an exceptionally scenicexperience.

• Stewardship messages should beginduring the ferry crossing.

Interpretive MediaBelow are descriptions of generalinterpretive media that could bedeveloped at the places described above.

Maps

Maps of the entire byway can beprovided at the gateway locations:Deception’s Pass, Clinton, and KeystoneFerry. These maps would highlight thebyway, intrinsic qualities, andinterpretive opportunities.

Maps highlighting recreationalopportunities could be provided at somekey locations such as Greenbank Farm,Kettles Trail, Ebey’s Landing, OakHarbor, etc.

Brochures

Various brochures could be designed andpublished with the byway logo andthemes. One could highlight “touringroutes, while another could identify allthe native plant and animal speciesprevalent on Whidbey Island and wherethey can be viewed. Brochures shouldalso contain stewardship messages andpreservation opportunities open to thepublic (volunteering, donating toorganizations, etc.).

Interpretive Panels

Thematically designed interpretivepanels could identify, describe, andillustrate a variety of messages to becommunicated at any of the above sites.



Live Interpretive Programs and OtherCreative Events

Some themes could be interpretedthrough living history programs,reenactments, or other special events.These activities can be conducted incooperation with special groups andorganizations (local historical societies,etc.). An important phase of these typesof interpretive programs is the trainingof participants. Also, these types ofprograms provide opportunities tocoordinate with local schools, teachers,and students, who can play meaningfulroles in the events. Local residentscould participate in live interpretiveprograms at various sites, including ahistorical tour of Coupeville or Langley,or a wetland tour. The variety of specialactivities that can help interpret thebyway’s story is as broad as theimaginations of those developing andconducting these programs.

Audio Media

Audio CDs or tapes could be producedfor the entire byway length. Audiomedia should be centered around atheme. For example, one audio mediacould focus on the natural environment,one could focus on historical stories andstructure still present, and another couldfocus on “Whidbey today” and thecultural landscape.

Self-Guided Tours and Interpretive Trails

Self-guided tours provide anotheropportunity to interpret the byway.Visitors and residents can take self-guided tour using Island Transit, whichwould stop at various trailheads or thecommunities along the byway. Self-guided trails in certain areasaccompanied by a brochure, such aswetlands or prairies, could provide anopportunity to educate people on themerit of these areas.

Multilingual Information

Information and interpretive media fornon-English speaking visitors should beprovided as practicable. For example,audio media could be translated intomultiple languages.

Commemorative Markers and Signs

Less interpretive media and moremonumentation of historic activities,commemorative markers provide someopportunity to educate visitors about thepast through simple statements ofhistoric events that occurred at specificsites and buildings.

Experiences for Everyone

It is important that interpretiveprograms and experiences be asuniversally accessible as possible to



people of all ages and physical abilities.Providing tactile experiences (learningthrough touch), audio media, andgraphics designed to display simplemessages can ensure that the exhibitsappeal to the broadest audience possible.Firm, stable ground surfaces aroundoutdoor exhibits and the provision of aroute of access that does not exceedtypical maximum gradient standards forpeople in wheelchairs is also animportant consideration.

Other Interpretive Recommendations• The people who live and work on

Whidbey Island should be thestorytellers.

• Direct the highest concentrations/volumes of travelers to the places thathave capacity to handle their needs -the towns and villages on the island; allother places (especially sensitivehistoric and ecological environments)should be designed to handle lowerconcentrations/volumes of visitors.

• Encourage experiencing WhidbeyIsland by foot, bicycle, bus or by water.Encourage and direct visitors to leavetheir cars off the island or incommunities such as Clinton and OakHarbor (fits well with previous point.)

• Stewardship and environmentaleducation themes should be woventhroughout all interpretation and

visitor information displays and media(including beach etiquette).

Historic Site CommemorativeProjectAn important project is underway onWhidbey Island. This project willcommemorate several historical sitesand buildings across the island withhistorical markers. The local committeeinvolved in the project is currentlycoordinating with Island County andWSDOT on the placement of directionalsigning to help visitors find the locations.A brochure/map is also being created,and it is recommended that thisinformation also be provided on tourismwebsites. The following sites have beenidentified for commemoration throughthis project.

Current Sites in Process:• Greenbank Farm• Deer Lagoon Grange #846 - 5142

Bayview Rd. Langley, Wa. 98260• Langley — So. Whidbey Historical

Museum• Dog House - 230 1st St. Langley• Freeland Hall• Freeland (the story of Freeland, an

early Socialist development)• Historic Coupeville• Neil Barn and Water Tower - 98 N.E.



Barron Drive - Oak Harbor• St. Peter’s Lutheran Church - 6309 S.

Wilson Pl. - Clinton

Future Possibilities:• Admiralty Head Lighthouse• Ebey’s Landing view site end of

Sherman Rd. Coupeville• San De Fuca Schoolhouse• Alexander• Bayview School• Bayview Hall• Crockett Blockhouse• Glendale Store• Old Powder Plant - Glenndale• Old Indian and White graveyard <name

corner of Spyglass Dr and Bush Pt. Rd• Big Rock - Coupeville• Glendale Railroad


Visitor Experience and Services Program

7

IntroductionCreating additional opportunities topromote, educate, and direct visitors tothe unique qualities along the bwyay isan important aspect of this plan. Eachyear over a million people visit WhidbeyIsland to enjoy the numerous activitiesoffered along the byway and throughoutthe island, such as sightseeing, hiking,camping, bicycling, fishing, kayaking,shopping, and attending cultural events.

The visitor experience related to theWhidbey Island byway should bememorable, educational, safe, andenjoyable. Visitors should be providedwith a variety of opportunities to relishthe beauty of the island and to learnabout the rich history and culture of thepeople who have lived there throughoutthe ages. Island businesses shouldaccommodate visitor needs throughfriendly, hospitality-driven service.

This section of the corridor managementplan assesses existing visitor facilities,as well as websites and information thatserves the needs of visitors. This sectionalso provides recommendations forimproving these services for bothresidents and visitors.


7. Visitor Experience and Services Program7. Visitor Experience and Services Program

A Review of Existing VisitorServices and FacilitiesThe Whidbey Island Byway currentlyoffers several visitor services, such aschamber of commerce facilities, facilitiesat existing parks, and private businessesthroughout the island. However, thereare no public comfort station or rest areafacilities along the byway. Below is a listof existing visitor services located alongthe byway:

• Oak Harbor Chamber of Commerce/Visitor Information Center

• Central Whidbey Chamber ofCommerce in Coupeville

• Freeland Chamber of Commerce• Langley South Whidbey Chamber of

Commerce• Fort Casey Interpretive Center –

Admiral Lighthouse (part-time)• Washington State Ferries• Deception Pass Bridge

These existing facilities provide visitorswith information on entertainment,accomodations, eateries, and shoppingpublished in brochures. There areseveral tourist publications printed eachseason on Whidbey Island including theMacGregor “Newcomer and VisitorsGuide” and the Whidbey News-Times“Islander,” and Marketplace. Each

publication includes interesting facts andinformation about various places onWhidbey Island. Because the WhidbeyIsland Byway is a part of the CascadeLoop, the Cascade Loop Associationincludes information about activities,accommodations, events, and maps forWhidbey Island in the brochure itpublishes annually.

The World Wide Web is increasinglybecoming a research tool for visitorsfrom all over the world. Millions ofpeople use the web to gather informationabout vacation destinations, includingWhidbey Island. There are severalwebsites that promote Whidbey Island.These include:

• http://www.donothinghere.com –IslandCounty Tourism

• http://www.islandweb.org/ - IslandCounty Tourism

• http://www.oakharborchamber.org/ -Oak Harbor Chamber of Commerce

• http://www.whidbey.net/ - provideslinks to various Whidbey communities,organizations, and services

All of the state parks and Ebey’s Landingmaintain websites, and many of thebusinesses, including bed & breakfasts,hotels, motels, galleries, cafes, andrestaurants have websites. Information

“Doing nothing here takesseveral deceptively activeforms. The difference is inenjoying these things in anenvironment that demandsabsolutely nothing of you.”

www.donothinghere.com



about transportation options is also onthe web, including Island Transit and theWashington State Ferry System website.Before a visitor arrives to WhidbeyIsland, he/she can access much of theinformation needed for a visit.

Visitor Statistics

The majority of visitors coming toWhidbey Island for a day trip orovernight stay are from the greaterPuget Sound region. A survey conductedby Ebey’s Landing National HistoricalReserve in 1995 showed that 59% ofvisitors were from Washington, 29%were from other parts of the US, and 10%were from Canada. Of the 59% fromWashington, 37% were from KingCounty.

According to the Washington State ParksCommission 2,725,211 people visitedDeception Pass State Park in 2002,making it the most visited state park inWashington. In that same year 89,659people visited South Whidbey StatePark, 741,519 visited Fort Casey StatePark, and 305,734 visited Fort Ebey StatePark.

Preserving and Enhancing theVisitor ExperienceVisitors are drawn to Whidbey Island toexperience the majestic and beautifulscenery, history and culture, abundantnatural resources (such as the naturalforests, prairie landscapes, and beaches),extensive recreation opportunities, andthe distinctive rural character of theisland defined by the lifestyles of thepeople who live there. There would be notourist flow without the preservation ofthese qualities. Many of these intrinsicqualities are already maintained andpreserved through land management andland use plans; however, some of thesequalities are at risk. It is imperative thatthe preservation of these characteristicscontinues to be a priority for the county,state, and federal governments, as wellas the citizens of Whidbey Island. Moreinformation on specific guidelines forpreserving and enhancing the byway’scharacter are discussed in Section 8 –Preserving and Enhancing the Byway’sCharacter.

Emphasis on Stewardship andEducationIt is necessary for visitors to understandwhat makes Whidbey Island special, thuspart of the visitor experience should



include stewardship and educationalmessages that help visitors appreciatethe exceptional beauty of the ecology andgeology, historic buildings andlandscapes, and natural resources ofWhidbey Island. Below is a list of suchmessages that should be conveyed:

• A visit to Whidbey is a step back intime; please respect the island’s uniqueheritage and sensitive ecosystems sothis experience can be preserved for alltime.

•Beach habitat is fragile; please respectour beaches by picking up afteryourself and your pet.

•Island habitats, including prairies,lakes, forests, beaches, and wetlands,support an abundance of wildlife.Please respect the land and wildlifehabitats.

• Whidbey Island is home to a largevariety of wild animals and birds;please allow them to flourish.

• You are traveling a very special, uniqueisland byway; let’s keep it beautiful andlitter-free.

• Environmental and safety educationprograms – “Ride Transit” and “Sharethe Road with Bikes.”

• Make it your goal to leave no trace ofyour visit.

Whidbey Island Residents areByway Visitors Too!Whidbey Island residents travel thebyway more than visitors do. The bywayfunctions as the central transportationcorridor on the island, linking all thecommunities and important destinationsand origins. For this reason it isimportant that island residents also areencouraged to become stewards of thebyway. Ongoing byway programs andprojects should encourage residents topreserve and enhance the island not onlyfor visitors, but for themselves as well.

Another important aspect of bywayplanning is making sure that asexperiences for visitors are expandedand enhanced, the rural lifestyles andcommunity settings also are maintainedand preserved, and impacts related toincreased tourism are minimized. Thiscan be accomplished by directing visitorsto the areas of the island designed toaccommodate their needs - the towns,communities, and visitor informationcenters. Visitors should be encouragedto leave their cars behind or to park andride Island Transit to minimize trafficimpacts. Residents should be madeaware of the abundant of walking trailsavailable on the island. As mentionedpreviously, the importance of educatingvisitors about environmental

“Island County became knownas a place of old settlers andlongtime residents.”

White, Richard. Land Use,Environment, and Social Change:The Shaping of Island County,Washington. Seattle: University ofWashington Press,1980. 55.



stewardship, beach use etiquette,respecting private property rights, andother messages is critical to the successof this byway plan.

Balancing the Needs of BywayUsersState Route 20 and State Route 525 arethe main thoroughfares for all traffic onWhidbey Island, including freight,residents, and travelers. For this reason,it is important to look at the needs of allbyway travelers. Both residents andvisitors should be encouraged to usetransit, carpool, or vanpool along thebyway. Bicycle riders and pedestriansare also byway users. Wider shouldersand a “share the road” campaign couldhelp bicyclists feel safer sharing the roadwith freight trucks, recreationalvehicles, and cars. Recreational pull-offareas, passing lanes, turn lanes, andother features, discussed in this sectionand in the transportation section, willalso help alleviate some of the congestionalong the byway. Visitors will beencouraged to use the recreational pull-off areas to enjoy the scenic vistas andnatural beauty if Whidbey Island.Touring Routes, as discussed in Section 5– Transportation, will also dispersevisitors and bicyclists. These routes will

provide travel opportunities off the mainbyway.

It may be desirable to consideradditional facilities and improvementsthat will help balance the uses of theroadway. Recommended strategies foraccommodating all users include:

• Promote multi-modal transportation(discussed throughout this plan).

• Educate byway travelers, includingresidents, visitors, bus drivers, andtruck drivers, about bicyclists;Bicyclists are allowed on the roadwayand they deserve the respect of otherbyway travelers.

• Create recreational pull-off areas todisperse visitors and provide restingopportunities for byway travelers.

• Promote touring routes to create moreopportunities for visitors and dispersebyway travelers. The promotion ofthese routes needs to be closelycoordinated with island residents andcommunities to ensure that impacts tolifestyles and local access and mobilityare minimized.

• Encourage communities to designhighway treatments and traffic calmingtechniques, including medians, streettrees, crosswalks, etc. to enhance thesafety of pedestrian travel and whencrossing of the highway.



• Create and mazimize the visitors’ useof motorist services and businesses onthe byway.

The Important Role of Multi-Modal TransportationThe Whidbey Island Scenic Byway verywell may be the only byway in thecountry that can be accessed entirely bymodes other than an automobile,including the ferry, public transit,bicycles, kayaks, and other watercraft.

In 2008, construction is scheduled tobegin on a multi-modal transportationfacility in Mukilteo. This facility willinclude the ferry terminal, Sound Transitcommuter train station, bus center, and apassenger pick-up/off-load area. Thecompletion of the facility, in 2010, willoffer new possibilities for multi-modalbyway travelers. City dwellers will beable to hop on the train in Seattle,connect to the ferry, and travel thebyway using transit or bikes. The multi-modal facility offers an opportunity forbusinesses to provide shuttles to andfrom their places. For instance, B&B’scould co-operate a shuttle to transportguests to and from the ferry terminal.Once in town, visitors could use transitoptions to travel to various destinationsalong the byway.

Another opportunity would be a watertaxi to and from the communities alongthe byway. Oak Harbor, Coupeville, andLangly all have port facilities andmarinas that could accommodate a smallwater taxi fleet. The water taxi could beboth a tour opportunity andtransportation option.

In order to attract non-motorizedtravelers, pedestrian and bicyclefacilities should be a priority. Forexample, Deception Pass is the only statepark with bike racks. All the parksshould have bike racks to encouragebicycling to and from the parks andpedestrian travel should also beencouraged. Pedestrians should feel safecrossing the byway to access transit,otherwise they may be discouraged touse it. Safe and convenient access totransit will encourage use. Anassessment of crossings near bus stopsshould be completed, and crossingsshould be improved where possible.

A list of other recommendedtransportation improvements is includedin Section 5 – Transportation Analysisand Recommendations.



Recommended Improvementsand EnhancementsWhile there are several existing visitorservice centers located at the chamber ofcommerce offices on Whidbey Island,there are several potential areas of needwhere improvements and facilities couldenhance the visitor experience.

Gateways

Visitor information and educationcenters should be located in Whidbey’sgateways including Clinton, DeceptionPass, and Keystone. These visitorcenters could be self-guided and self-sufficient and provide visitors witheducation, interpretation, informationabout lodging, recreationalopportunities, historic sites, and otheritems of interest for visitors. Thesecenters should also provide informationabout transportation options, such asIsland Transit routes, bike maps, andpedestrian facilities. Visitor kiosks alsoshould be located in Mukilteo and PortTownsend since these communitieslikewise “gateways” to the byway.

Comfort Station/Rest Area

A comfort station/rest area should belocated at a central point on the byway.Assessing the feasibility of developing a

restroom and additional visitoraccommodations such as picnic facilitiesat the Lake Hancock Overlook isrecommended. This facility could alsoinclude interpretation about LakeHancock, see Section 6 for interpretivethemes for Lake Hancock.

Interpretive Facilities

Interpretation was discussed in Section 6– Telling the Byway’s Story. This sectionincluded recommended interpretationthroughout the byway. The themes ofthe byway should be clear in site-specificinterpretation which details the history,culture, and natural aspects of thelocation. Similarily, sensitive areasshould include environmental andstewardship messages.

Wildlife ViewingPlatforms

Thousands ofpeople visitWhidbey Islandto encounterwildlife and thediverse wildlifehabitats of thearea. Viewingopportunities

should be increased to improve visitors’wildlife viewing experiences. Below is alist of sites for recommended viewingplatforms:

• Crockett Lake is visited bymultitudes of birders each year.Platforms would enhance birdingopportunities for visitors and residentsalike. Partnering with WashingtonState Parks and Ebey’s LandingNational Historic Reserve is needed forthis effort.

• Hastie Lake – A viewing platformwould attract more nature enthusiasts.The design must discourage peoplefrom creating “social trails” to the lakeitself.

• Dugualla Bay Lake – A viewingplatform would be an asset.



• GreenbankFarm – A viewingplatform with aspotting telescope towatch whales wouldprovide additionalopportunities at theFarm.

Recreational Pull-offAreas

Creating recreationalpull-off areas or waysides along thebyway will allow visitors the opportunityto leave the highway and enjoy thebeauty of Whidbey Island. Formalizedpull-off areas create space for a smallnumber of cars or a bus. Bus stopsshould be added to the pull-off areas.These areas will also createopportunities to disperse visitationthroughout the island. Pull-offs shouldhave interpretive signage and smallsigns on the byway directing people tothem. Below is a list of potential pull-offsites:

• Hastie Lake – Create a pull-off area toaccommodate five or six cars (or a smallbus.)

• Grasser’s Lagoon – Improve theexisting pull-off area. This is a popularfishing and birding site for visitors andresidents. A strong partnership with

Ebey’s Landing should be encouraged.• Smith Prairie – A pull-off with

parking spaces is needed in this area.Each spring, people come out to viewand enjoy the native wildflowers inbloom. A visitor kiosk could tell thestory of the prairie. A partnershipwith the Au Sable Institute isrecommended.

• Double Bluff – create a pull-off withparking for a few cars. Also, createbicycle parking to encourage use.

• Possession Point – create a pull-offwith parking for a few cars. This areais used often by kayakers.

• Penn Cove – create a pull-off/viewingarea for mussel harvesting activities.

• Clinton – create a pull-off/viewingplatform near Clinton Beach projectcurrently underdevelopment by thePort of South Whidbey.

Brochures

There are several existing brochures forWhidbey Island. Most provideadvertising for businesses along thebyway. Educational and informationalbrochures could be made available forbyway travelers to learn about the manyunique aspects of Whidbey Island,including history, geology, vegetation,wildlife, and cultural events. Thesebrochures could be available at the



gateway kiosks and visitor centers aswell as local libraries and cafes for locals.Brochure information should be designedto be easily posted on web sites.Potential brochure topics are describedbelow. In addition to, or in lieu, of amultitude of brochures informationrelated to these topics could be madeavailable in displays, posters, and othertypes of media.

History of Whidbey Island

The history of Whidbey Island is rich,beginning with the early native peopleswho inhabited and visited the island. Abrochure with a chronological history ofWhidbey could be available for visitors.This brochure could also be available toschool groups visiting the state parks orEbey’s Landing.

Historical Structures

The South Whidbey Historical Society iscurrently working on a brochure tohighlight significant historical structureson Whidbey Island. This brochure willbe produced and made available tovisitors and residents so that they mayappreciate the preservation andrestoration of structures and theirassociated stories.

Geology

The formation ofWhidbey Island isunique. A brochureexplaining the glacialperiods that caused thiswould be educational forvisitors and schoolgroups.

Marine Life

An island is surroundedby marine life. It is apart of the everydayculture of WhidbeyIsland and a brochurecould explain theimportance of marine life to the island,provide a description of these creations,and places to see them. Emphasis on theproper use of the beach should beaddressed, together with information onhow to get involved in protection efforts(Beachwatchers, Maxwellton, etc).

Vegetation

The vegetation and landscapes changefrom north to south due to differingamounts of precipitation on the island. Abrochure could include line drawings anddescriptions of the flora and fauna thatmake up the various vegetationcommunities and landscapes on the island.



the dates of each event. All culturalevents are distinct and are linked to thehistory and natural environment ofWhidbey Island.

Multi-Lingual Provisions

Multi-lingual information andinterpretation should be provided forbyway travelers where feasible. Bywayinformation should be designed to beeasily understood by a broad audience.Graphics, maps features, symbols, anduniversally recognized words can help tobetter guide travelers.

Visitor Surveys

Knowing the visitors will aid in planningfor the types of facilities needed and theinformation visitors are interested inobtaining. It is useful to know whyvisitors are traveling the byway andwhat actvities they are interested in. Anannual or bi-annual survey would assistthe committee in planning for increasedvisitor service. The survey should beconducted at the state parks, Ebey’sLanding, Oak Harbor, Langley,Greenbank, etc. to capture the opinionsof a wide variety of byway users.

Touring Routes

The visitor experience should alsopromote touring routes (See Section 5 –

Transportation for touring routes.)These routes will not only dispersevisitor traffic but also provide additionalopportunities to experience Whidbey “offthe beaten path.” Destinations such asLangley, Double Bluff County Park, andseveral state parks are accessed usingalternative routes.

Local Resident Involvement

Local residents are very knowledgeableabout the cultural and historical storiesof Whidbey Island. Involve the localcommunity in the visitor experience. Forinstance, a local resident could providehistorical tours of Langley and/orCoupeville showing visitors treasuredstructures while educating them on theimportance of preservation. Residentscould also give tours of beaches or naturehikes containing elements of theprinciples of protection of valuableresources. Residents are the “stewards”of the byway and should pass alongimportant messages about preservationand protection of natural resources tovisitors.

Existing Services

Encourage travelers to use existingservices including visitor centers,chamber offices, etc. for information.

Cultural Events

One brochure should continue to includeall the cultural events that take place onthe island, including festivals in OakHarbor, parades in Coupeville,celebrations at Greenbank, bloomingrhododendrons at Meerkerk, art showsin Langley, etc. This brochure wouldneed to be updated annually to include


Preserving and Enhancing the Byway’s Character

8

IntroductionThe Whidbey Island Scenic Byway hasbeen recognized for is exceptional scenic,historical, cultural, natural, andrecreational qualities. These specialqualities should be preserved and, insome instances, enhanced to retain thebyway as a unique, attractive place.

Because the byway encompasses adiversity of landscapes, one set of designguidelines or development blueprintscannot be created for the entire byway.

Architectural styles differ as one travelsthrough the byway. For example, manybuildings in Oak Harbor arerepresentative of the 1950s, post-WW II,while the vernacular architecture ofCoupeville dates back to the late 1800s toearly 1900s farmhouses, cottages, andbungalows.

This section of the plan provides asummary of the existing design anddevelopment guidelines in place alongthe byway as well as suggestions and

recommendations for additionaldevelopment and design guidelines. It isimportant to note that this section isincluded solely for the purpose ofproviding a set of guidelines to retainthe byway’s character and is notintended to be regulatory.

Summary of Existing Design andDevelopment GuidelinesThere are several existing documentsthat have been created to help guide the


8. Preserving and Enhancing the Byway’s Character8. Preserving and Enhancing the Byway’s Character

design anddevelopment ofbuildings, structures,and landscape alongthe corridor. Belowis a brief summary ofthose documents.

North Whidbey

Deception Pass StatePark has its owncharacter in aforested landscape isretained andmanaged by theWashington StateParks and RecreationCommission.

Buildings, roadside railings, signs, andother elements have been designed inaccordance with the “rustic Cascadian”style of architecture. Many elements arethe result of Civilian Conservation Corpswork in the 1930s, which oftenincorporated creative, craftsman styledetails.

As the corridor transitions from theforest of Deception Pass State Park tothe burgeoning community of OakHarbor the character changesdramatically to a developed, urbanenvironment. Oak Harbor citizens havegone through a visioning process to

determine how the character of thecommunity could be enhanced and mademore attractive for tourists, businesses,and residents. The Design AssistanceTeam created a document to help makepositive design change in Oak Harbor.This document shows proposed changesto Pioneer Way and the potential formaking a connection to historicdowntown Oak Harbor from State Route20.

The waterfront is Oak Harbor’s bestasset and it is currently underutilized.The waterfront should connect todowntown. New buildings along PioneerWay should be designed and based onexisting architecture, scale, and mostimportantly, the pedestrian-friendlyatmosphere.

The City of Oak Harbor also regulatesthe design of signing, site development,landscaping, and other aspects throughthe City Zoning Code.

Central Whidbey

Ebey’s National Historic Reserve wasestablished to “preserve and protect arural community, which provides anunbroken historical record.” Ebey’sLanding encompasses 17,400 acres ofcoastal strip, prairies, woodland,uplands, and Penn Cove, thereby

Design Assistance Team Sketch,Oak Harbor Pride, 2000



covering most of central Whidbey.Within this district, historic blockhouses, barns, farm houses, bungalows,cottages, and other prominent historicalstructures are still intact, and theseelements represent the story of thesettlement of this area, a central piece ofthe byway’s history. 90 percent of Ebey’sNational Historic Reserve is in privateownership but the Central WhidbeyHistoric Advisory Committee, a designreview board, assists local and countyjurisdictions with review of historicbuildings and structures located on thereserve. Any addition, remodel, or newconstruction in the Ebey’s Reserveboundary is required to go through thedesign review process. This helpsensure that designs are compatible andconsistent with the architectural style ofcentral Whidbey.

Ebey’s Reserve has several documentsthat provide design suggestions andguidelines for the reserve. The designguidelines for the reserve are areflection of the landscape. The “VisualCompatibility Guidelines” provides in-depth design standards for signs,waysides, bollards, block houses, fences,etc. for the reserve. “DesignConsiderations for Historic Properties,”presented in a newspaper foldout format,outlines design considerations for thecultural landscape, barns, outbuildings,

residential structures, commercialstructures, new construction, andrecommendations for remodelingmaterials.

The cultural landscape of Ebey’s Reserveand Central Whidbey is a place unlikeany in the country its efforts related toland ownership, land management, andland preservation. It will be essential tocontinue preserving the cultural andnatural landscape along the viewcorridors surrounding the reserve. Morediscussion on recommendations forEbey’s Reserve is discussed later in thissection.

South Whidbey

The community of Freeland has createddesign standards for development withinits sphere of influence. The objective ofthese standards is to “establishpredictable and defined land usepatterns that support the communityvision, building a sense of community,improve and encourage economicdevelopment, protect environmentalquality, and enhance the unique visualidentity of the Freeland community.”The design standards includerecommendations for building heights,setbacks, visual appeal, and open spacefor new development. This documentalso examines parking, pedestrian-scale

Whidbey’s popularity could, ofcourse, engender itsdestruction—which is why theinhabitants have taken upprotecting what they love here,from the island’s social andeconomic diversity to its livingtraditions.




design, architectural elements, andsignage.

The Freeland area sub-committee alsorecommends creating a HighwayCorridor Overlay Zone in Freeland forSR 525. The goal of the Overlay Zone isto consolidate access for businesseswhile seeking to add trails, paths, andsidewalks to better connect pedestrianand bicycle environments, ultimatelyproducing a safer community. It isrecommended that the Overlay Zone alsoaddress commercial design along thehighway including setbacks, screening,and the need to preserve and maintainmature trees and landscaping.

Bayview Corner, in south Whidbey, is anexcellent example of development thatblends into the character of the ruralenvironment. Bayview Corner wasdesigned and renovated with anenvironmentally-sensitive design thatincludes geo-block parking lots,permeable asphalt walkways, waterlessrestroom facilities, composting toilets,water-cleaning aquatic plants andcreative ways to recycle graywater(source: http://www.bayviewfarm-garden.com/LPerennialTemplate.asp?cid=611).

The byway transitions to the gatewaycommunity of Clinton in South Whidbey,

an unincorporated town that is a hub ofactivity surrounding the ferry terminal.The architectural character of Clinton isa mix of Post WW II architecture andmodern commercial and industrialbuildings. There are no specific designguidelines in place for Clinton, but thetown and other unincorporated areasalong the byway are regulated by IslandCounty code with regard to signing,landscaping, site development, and otherrequirements.

Recommended Design andDevelopment Guidelines

General Recommendations

Given that these are only guidelines andnot regulatory, there is a strong need toinvolve residents, property owners, andbusinesses along the byway in being“good stewards” of the byway.

Citizens should be provided witheducational information on preservationand enhancement ideas for theirproperty. Brochures and/or pamphletscould be mailed to property owners andcontain information on a variety ofinformation including the importance ofnative vegetation and where to findnative plants, information about publictransit, etc.



Another way to involve residents wouldbe to create an “annual awards program”that would recognize property owners,businesses, etc. who help preservecorridor resources or develop propertiesusing good design techniques, includinggreen building and resource conservationefforts.

North Whidbey

Deception Pass State Park

New improvements along this segment ofthe byway should be designed in contextwith the forested character of the statepark. Features, such as a new bywaygateway sign, roadside pull-off areaswith interpretation, and otherimprovements, should minimizeintrusion into the landscape and bedesigned in such a way to reflect therustic Cascadian style of park buildingsconstructed during the CCC era. Thegateway sign should be designed toincorporate timber and mortared stone,like the existing historic guardrails alongState Route 20. Figure 8.1 shows adesign for the north gateway. Design forthe gateway and other elements, such aswaysides, interpretive signs, etc. shouldbe coordinated with Washington StateParks and Recreation Commission andWashington State Department ofTransportation.

Scenic Vistas, Overlooks, and Waysides alongState Route 20

Structures located along State Route 20between Deception Pass State Park andOak Harbor should remain relatively lowin height and scale to help preserve thebeautiful views along this stretch of thehighway. Native landscaping, trees, andshrubs adjacent to the highway could beinstalled to screen some existingcommercial and residential structures.

Figure 8.1: Deception Pass Gateway Sign Concept

“By the 1930s there were campaignsto save elements of the islandenvironment that seemed on thepoint of vanishing.”

White, Richard. Land Use, Environment,and Social Change: The Shaping of IslandCounty, Washington. Seattle: Universityof Washington Press, 1980. 148.



Any interpretivepanels and kiosksdeveloped in thisarea should beconsistent in designwith existinginterpretation atDeception PassState Park. Maturetrees in the right-of-way should also bepreserved.Coordination withproperty ownersand incentives topreserve landadjacent to thecorridor isencouraged. Sceniceasements could bepurchased toprotect landadjacent to thecorridor andpreserve viewsheds.

An important aspect of this area is theexisting native vegetation along theroadside. With any new highwaydevelopment, WSDOT should coordinatewith the Byway Committee and others toensure that as much native vegetationand natural slopes are retained aspossible.

Oak Harbor

Development along the byway throughOak Harbor should incorporate thedesign recommendations from the“Harbor Pride: A Blueprint for Change,”as know as the “DAT” document. Therecommendations in this documentprovide a solid foundation for positivechange to Oak Harbor.

The intersection of State Route 20 andPioneer Way is a key point along thebyway. It is recommended thatimprovements be made to thisintersection to encourage people totravel off of the corridor and intodowntown Oak Harbor. Figure 8.2depicts the intersection with aroundabout. The roundabout maximizesmobility, slowing traffic thatcontinuously moves through theintersection. Byway travelers in theroundabout have the choice of eitherproceeding on their journey orcontinuing round to access Pioneer Wayand the waterfront/downtown. Designguidelines for Pioneer Way, as shown inthe DAT should be followed to create aninviting downtown where visitors andresidents will want to shop, eat, andstroll down to the waterfront. Awaterfront connection is a vitalcomponent to the success of downtownand water amenities like the city dock,pedestrian path, and beach.

Figure 8.2: Corridor Enhancement Concept for Oak Harbor



Improvements along State Route 20through Oak Harbor are alsorecommended. Planted medians, streettrees, and landscaping could “soften” theurban landscape. Public art andwayfinding signs could also help toenhance this segment of the byway.Bike lanes are also encouraged throughOak Harbor. Adding these amenities toSR 20 would slow traffic down and createa safer, less congested experience formotorists, pedestrians, and bicyclists.

Central Whidbey

San De Fuca and Penn Cove

There are several prominent historicalstructures in San De Fuca that should bepreserved, including the old schoolhouse. These structures tell the story ofsettlers in the Penn Cove area.Interpretation is recommended for SanDe Fuca and Penn Cove. The design ofinterpretive elements should beconsistent with existing interpretivepanels, waysides, and overlooks forEbey’s Landing National HistoricalReserve.

The corridor through this area providesone of the most spectacular experiencesof the entire byway. Roadway charactershould remain similar to its conditiontoday. Speed limits could be reduced

and enforced to increase safety. Also,viewsheds should be maintained in theircurrent state as much as possible. Anynew improvements to the highwayshould be closely coordinated with theEbey’s Landing National HistoricReserve, the Byway Committee, andother local interests. Roadwayimprovement design should seek toretain and restore natural landscapesand slopes along the byway as much aspossible.

Ebey’s Landing National Historical Reserve

The reserve already has guidelines inplace to help preserve the culturallandscape of central Whidbey. It isrecommended that Ebey’s Reservecontinue to require design review andencourage developers to preservehistorical buildings and structures.Ebey’s Reserve should continue toacquire scenic easements and work withsurrounding partners, includingWashington State Parks, Whidbey-Camano Land Trust, the NatureConservancy, and others to preserve asmuch of the land in central Whidbey aspossible. The “working family farm” isbecoming lost in American culture. Thenatural and cultural landscape of Ebey’sReserve is a rare experience in thiscountry and should be preserved forgenerations. Interpretive elements Ebey’s Landing NHR. Design

Considerations for Historic Properties



should be designed to be compatible withthe design of existing facilities and thedesign guidelines for the Reserve.Coordination between Ebey’s Reserveand State Parks is encouraged to furtherdevelop a design standard to be used onlands under the jurisdiction of bothagencies or in proximity to each other.

Coupeville

Commercial and residential design inCoupeville should continue goingthrough the design review process andthe design style and character of featuresalong the byway should be consistentwith the design guidelines for the townand Ebey’s Reserve. New development isencouraged to be compatible with thehistoric architectural elements.Residential structures in Coupevilleshould follow existing style of vernacularfarmhouse: Italianate, Queen Anne,bungalow, and cottage. Remodels areencouraged to restore structures to theiroriginal condition through usage ofmaterials and colors. Context and scaleshould be considered in commercialdevelopments.

Coupeville to Greenbank

Much of the character of the corridorfrom Coupeville to Greenbank includesmature trees and shrubs mixed withpockets of rural development. The

roadside character should be retained inits existing condition as much as possiblethrough this area. Native plantings suchas low-lying shrub and rhododendronsshould to be planted in the right-of-wayto reinforce the natural vegetation edgealong the byway. The design of the LakeHancock overlook should be compatiblewith the historical architecture ofGreenbank Farm. Greenbank Farm is agem along the corridor that shouldalways be preserved and protected.

South Whidbey

Greenbank to Freeland

This portion of the roadway is mostly aforested corridor with a mix of deciduousand coniferous trees. Roadside characteralong this portion of the byway should beretained in a forested condition. Newdevelopment should be encouraged to besetback off the highway to continue theforested corridor. Native low-lyingplanting and shrubs should be planted inthe right-of-way along the byway toenhance the natural vegetative edge.

The phone booth located in this portionof the corridor should be protected andmaintained. This phone booth is acultural icon along the byway. Aninterpretive panel could be added nearthe phone booth telling the story of theits historical use and location, which



represents the dividing line betweennorth and south portions of the island.An informal parking lot should bedeveloped along with the interpretivewayside display to provide a safe pull-offarea for travelers.

Freeland

Design and development guidelines forFreeland have already been created. TheFreeland Design Review documentshould be incorporated into IslandCounty’s Comprehensive Plan. TheHighway Corridor Overlay Zoneprovides a blueprint for design alongState Route 525. This zone will help toenhance the character of Freeland andprovide a basis for preserving the rural,neo-traditional character of thecommunity. Beautification efforts shouldbe considered in all Freelanddevelopment projects.

Freeland to Clinton

The character of the roadway fromFreeland to Clinton includes forests,rural development, farmlands, rollinghills, mountain views, marshes,wetlands, and pockets of rural and urbandevelopment. A recent decision by theWashington Department ofTransportation (WSDOT) will eliminateherbicide use in the right-of-way for mostof this area of the corridor. According to

WSDOT, thisnew plan meansthat in manyareas grass willbe allowed togrow up to theedge of thehighway surfaceinstead ofkeeping thetypical three-footplant-free buffer.With springunderway islandresidents canexpect to seeWSDOT crewsmowing, pullingweeds and trees, planting native plantsand judiciously using herbicides.WSDOT’s plan is instrumental inprotecting the natural resources alongthe corridor and providing a betterexperience for motorists, bicyclists, andpedestrians.

Pedestrian improvements should beinstalled in this area to provide betterconnections to transit service on StateRoute 525. Currently, proper crossingsdo not exist in some areas of thisroadway. People will take transit if it iseasy and safe to access.




Clinton

Clinton is one of the gateways of thebyway, through which roughly twomillion cars per year travel.Improvements to State Route 525through Clinton should be completed toenhance the gateway experience forbyway travelers. Improvements couldinclude a planted median along withadditional street trees and landscaping.Also, a byway gateway sign should belocated in Clinton, perhaps at the top ofthe hill at an overlook point/waysidepull-off area on the right side of thehighway. Figure 8.3 shows a conceptualplan of State Route 525 throughWhidbey. Improvements for increasingpedestrian and bicycle safety andmobility are also encouraged. Thisincludes improved crossings andintersection signals. WSDOT iscurrently making changes to southboundferry lanes including the addition of awider shoulder. Other amenities forClinton could include increased

landscaping along the byway, public art,and wayfinding signs. The Clintoncommunity and Island County shouldwork closely together to evaluateexisting design requirements for thisarea and develop a new sub-area planwith design guidelines that recommendspecific character requirements, such assetbacks, parking design, and controlledaccess along the byway.

A park design for the port propertyadjacent to the ferry terminal iscurrently underway. Pedestrian accessto this park should be considered animportant element of the design. Localresidents should feel welcome andencouraged to use the park and beach,and byway visitors could start theirisland experience here, particularly ifan information kiosk was incorporatedinto the design.

Corridor Enhancement Concept for Clinton


Signing and Wayfinding

9

IntroductionSigning along the byway shouldeffectively communicate information totravelers while minimizing adverseimpacts on the scenic values of thecorridor. Signs serve many differentfunctions; they identify, inform, warn,advertise, direct, describe, and explain.The purpose of this Signing andWayfinding Program is to identifyexisting excessive signage along thebyway and potential for additionalsignage.

Developing a unified and coordinatedapproach to signing on the byway willhelp reinforce the identity of thecorridor, assist the traveler withwayfinding, and minimize intrusions onthe scenic values of the corridor. Allsigns should be easy to read and clearlyconvey the intended information. Signsmust be carefully designed and installedin accordance with all applicablerequirements to avoid creating hazards todrivers and bicyclists. Additional signsadded along the byway should becarefully designed and placed tominimize intrusions on the scenicexperience. Signs along the WhidbeyScenic Isle Way should be attractive and

informational. Redundant signs shouldbe avoided. Where possible, signs shouldbe consolidated to one location. Signsshould identify and provide direction topoints of interest and intrinsic qualitiesof the byway, but not necessarily allplaces and businesses along the corridor.

This section includes existing signagethat could be removed, consolidated, orimproved while recommending areaswhere additional signage, such as bywayand trail signs, could enhance thecorridor. All aspects of this Signing andWayfinding Program should be closelycoordinated with the WashingtonDepartment of Transportation (WSDOT),as well as other state, county, and localagencies as appropriate.

Types of SignsThe Signing and Wayfinding Programaddresses several types of signs for theWhidbey Scenic Isle Way:

• Existing signs along the byway• Gateway signs• Scenic byway logo signs• Directional guide signs• Supplemental guide signs• Interpretive signs/panels and historic


9. Signing and Wayfinding9. Signing and Wayfinding

markers• Special feature/name place signs

Regulatory signs that serve a safetypurpose are regulated by federal andstate agencies and organizations,including the Federal HighwayAdministration, the AmericanAssociation of State Highway Officials,the Manual on Uniform Traffic ControlDevices, and Washington StateDepartment of Transportation. As such,this plan does not address regulatorytypes of signs, other than to request thatthe agencies responsible for these signsconsider opportunities to minimize,consolidate, and eliminate signs as muchas possible.

Signing RecommendationsRecommendations for existing signsalong the byway, as well as for additionalsigns, are described below.

Existing Signs Along the Byway

Existing signs along the byway should beconsolidated as much as possible. Thereare many signs throughout the bywaythat could be added to existing signs or cremoved altogether. Below is a summaryof signing recommendations along thecorridor that could be consolidated orremoved. The inventory also shows

examples of signs that are sensitive tothe scenic character of the byway.

Ferry Terminal Signs

There are many ferry terminals signswhen approaching Clinton, some of thesesigns could be consolidated.

Tourist Activities

These signs could be removed orconsolidated. There are other ways toadvertise activities for tourists.

Old Signage

There are signs that could be eliminatedfrom the byway, such as the sign shownon the left.

Private Businesses

There are many examples of privatebusiness signs that blend into theenvironment. Here are some examples:

Remove or consolidate

Remove some signs

Remove old signs



Gateway Signs

Gateway signs should be located at ornear the beginning of the scenic byway tonotify travelers that they are enteringthe byway. These signs typically includethe byway logo, possibly in a larger size,and may be attached to a welcome panel/structure. There may be landscaping orother features, such as timber columns orstone bases installed as part of thegateway feature.

Some byways (such as the Cascade Loopand Stevens Pass) have installed“gateway” signs that consist of a largerstandard highway sign with a greenbackground. However, gateway signsdesigned and constructed to carefullyblend with the natural settings ofWhidbey Island are recommended forthis byway. Gateway signs may be back-lit, bottom-lit, or reflectorized for nightvisibility. Refer to WSDOT’s ScenicByway Logo Signing Guidelines foradditional design considerations.Coordination with WSDOT on the designof gateway signs is important.

Gateway signs for the Whidbey ScenicIsle Way should be placed at the threegateways to the byway: Clinton,Keystone, and Deception Pass StatePark. Smaller signs could also be placedwith the logo, name, and tagline, such as

“Welcome to the Whidbey Scenic IsleWay - slow down, relax, you’re on IslandTime” or “Welcome to the WhidbeyScenic Isle Way - where majesticmountain vistas and tranquil watersawait you.” A gateway is thecommunity’s front door to the world,thus the design should leave a lastingimpression that would be memorable.

Scenic Byway Logo Signs

Scenic byway logo signs identify thesignificance of the corridor as a scenicbyway to travelers and may also identifyit as a historically, culturally, and/oreducationally significant route.

Byway logo signs consist of the bywaylogo which is sometimes depicted on ashield or plaque affixed to a standardpost sign. The sign may be accompaniedby highway route markers or otherdirectional signage affixed to the samepost. The minimum suggested size forthe sign is 24 inches by 24 inches, and thesign should be reflectorized for nightvisibility.

The logo design for the Whidbey ScenicIsle Way should be placed at variouslocations along the corridor at intervalsof about 10 to 15 miles. Where possible,logo signs can be added to existing signposts that already hold a directionalsign. Consolidating signs along the



corridor will help to minimize visualintrusion

The scenic byway logo could be designed/developed by the residents of WhidbeyIsland. A competition among localartists, school children, or other groupswould spur interest in the project.Residents could vote on the byway logosign.

Directional Guide/Advance Notice Signs

Directional guide signs direct and orientvisitors to their destinations along thecorridor. These signs assist corridorvisitors with wayfinding and identifypoints of interest located along thecorridor or off the main route.Directional signs identify recreationalopportunities, visitor services andfacilities, cultural and historic sites, andother destinations and attraction alongthe corridor, such as recreational andhistoric sites.

Blue and white information signs andbrown and white recreational signs areincluded in this category. These signsare typically placed in advance of thesesites and sometimes include a referenceto the distance to the point of interest(i.e. “Heritage Marker - 1/4 mile ahead”with an arrow).

Directional signs should be highly visibleand constructed for long-term durabilityin accordance with all applicablestandards.

The Whidbey Scenic Isle Way alreadycontains many directional signs. A fullassessment of these signs should be donebefore choosing where to placeadditional signs and to determine if someof these signs could be consolidated.

There are many blue and white signsalong the corridor that provide an“advertising” function, aimed to directvisitors to various businesses. In orderto minimize visual intrusion along thescenic byway these signs should beconsolidated so all businesses are on onesign if the businesses are in the samegeneral direction. WSDOT shouldconsider the possibility of eliminatingthis program on Whidbey Island as apilot program to implement model scenicbyway signing. There are other potentialnegative consequences of these signs inaddition to visual intrusion, such asincreased competition among businesses(adding more signs); and redundancy insigns (some businesses may havemultiple signs). Also, the overall size ofthe blue and white sign is large in scaleto other highway signing, and in somecases, there are large blank areas on theblue signs that are unused because not



enough businesses are advertising.

Additional directional signs along thebyway may detract from the visitorexperience by cluttering the byway.Some signs directing visitors could beconsolidated. For instance, signsdirecting visitors to Crockett Lake,Keystone Ferry, and Fort Casey StatePark could be on one sign.

Additional directional signage for publictransit stops and park and ride lots isencouraged.

Supplemental Guide Signs

Supplemental guide signs direct visitorsto the byway from intersections withother state routes or major roadways.These signs would be useful in Mukilteo,Port Townsend, and Anacortes – thethree adjoining destinations leading tothe Whidbey Scenic Isle Way. Thesesigns typically have a green backgroundand must be designed in compliance withWSDOT requirements. It may bepossible to include reference to theWhidbey Scenic Isle Way (logo signs) onthese signs.

Interpretive Signs and Historic/HeritageMarkers

Interpretive signs, panels, and kiosks

communicate something about distictiveplaces and events that either currentlyexist or that existed in the past along thecorridor. Interpretive signs are typicallytied together with a unifying style that isrecognizable as a design elementthroughout the byway to reflect anoverall theme for the byway.

Interpretive signs and the structuresthat support the signs should beconstructed of materials thatcomplement the natural and culturalelements unique to the byway.Interpretive signs should be responsiveto context, setting, and special qualitiesof the sites, yet still provide unity to theoverall byway system.

Historic/heritage markers include signsor monuments that have been installedto mark a historical event. These signsusually provide less detail andillustration than an interpretive sign/panel.

Interpretive wayside exhibits are anexcellent medium to tell travelers aboutthe intrinsic values of the corridor.Multiple exhibits throughout thecorridor can be used to link various sitestogether through a strong theme andconsistent design. Interpretiveinformation can also be displayed onlarger kiosks, along with traveler



information and maps.

The corridor logo could be included in asmaller size on the interpretiveelements. Displays should use aconsistent color scheme, format and typestyle. Waysides and interpretiveexhibits could follow the same design asexisting panels used throughout thebyway in state parks and Ebey’s Landing.

Design of interpretive panels anddisplays should comply with the NationalPark Service Wayside DesignGuidelines, which include standardsrelated to accessibility. Refer to theTelling the Byway’s Story for moreinformation on where interpretationshould be located along the corridor.

Special Feature/ Place Name Signs

Special features and place names couldbe identified along the corridor withsmall signs. These small signs could beplaced in the right-of-way or on privateproperty with the permission of propertyowners. Examples of these signs for theWhidbey Scenic Isle Way include signingthe different flora and fauna presentalong the byway to help educate bywaytravelers of the native vegetation. Thesesigns could also recognize agriculturalgrowing (crops) along the byway.

Streams, lakes, bogs, wetlands, and othernatural features could also be identifiedwith small, discreetly designed and placedsigns.

Milepost Markers

WSDOT provides milepost markers alongthe byway corridor. However, it may bedesirable to consider replacing these withmore context sensitive milepost markersand to provide additional milepostmarkers for consistency. Milepost markerscould be important for developing anintegrated interpretive plan andinformational brochure. Interpretiveareas and other areas of significantinterest could then be easily identified,referenced in the publication, and readilylocated on the ground.

Implementing the Signing andWayfinding Program

Overall Benefits

The recommended Signing and WayfindingProgram will provide travelers andresidents with an informative andattractive series of signs along the bywaythat will supplement the existing signs,including regulatory and advisory signs.Consolidation of existing and potentialfuture signs will help minimize visualintrusion. Removal of unnecessary signs



and the adoption of specific signingregulations at the local level should beconsidered. The use of byway logo ongateway signs help to make visitorsaware they are on the scenic byway.

Reducing “Sign Clutter”

Implementing a Signing and WayfindingProgram provides an opportunity toavoid the overuse of signs, which cancreate “sign clutter” along the corridor.Careful consideration should be given towhere to eliminate redundantinformation and directional signs andwhere to consolidate signs. Wherepossible and practical, multiple signs canbe located on a single sign post, as longas the information presented stillconveys a clear message. As signs arereplaced due to maintenance they shouldbe consolidated where feasible.

As a means of avoiding the overuse ofsigns along the corridor directions to lessprominent destination and attractionscould be provided in brochures,pamphlets, and other informationavailable at visitor information centers.

A comprehensive inventory of existingsigns along the byway should becompleted. This inventory shouldaddress signs that should beconsolidated or removed. Potential signs

that need to be considered for removal, ifpossible include:

• Adopt-a-highway litter managementsigns

• Fire danger level signs• Business advertising signs (WSDOT

blue and white signs)• Abandoned signs• Duplicate signs “Do Not Block”• “Do Not Drink and Drive” signs• “Burn Barrels are Illegal in Island

County” signs

Although some of these signs containimportant public information, there maybe more appropriate ways to get themessage out. Local jurisdictions, such asIsland County, the City of Oak Harbor,and the Town of Coupeville shouldreview existing signing ordinances todetermine if the requirements andguidelines will provide the best possiblescenario for design and placement ofsigns to minimize visual intrusion and beset in context.

Signing Program Process

The basic steps for designing andinstalling the types of signs describedearlier in this section are as follows:

1.Confirm identity, logo, and gatewaydesigns to be used on the corridor;



2.Assign a “Signingand Wayfinding”subcommittee forthe byway withmembers who canfocus on signinganalysis, needs, anddesign suggestions;3.Develop acoordinated signingplan that includesadding,consolidating, andremoving signs;4.Coordinate andwork with WSDOTon the addition,consolidation, and/or removal of signs;5.Pursue fundingfrom the Federal

Highway Administration NationalScenic Byway Program and/or othersources to implement the signing plan;

6.Finalize design of additional signs (seeWSDOT’s Scenic Byway Logo SigningGuidelines);

7.Coordinate the manufacture andinstallation of the signs with WSDOT;and

8.Continue on-going coordination withWSDOT during sign maintenance.

Signing Design Regulations

All signing located within the SR 20 andSR 525 right-of-way will need to becoordinated with WSDOT.

The WSDOT Scenic Byway Logo SigningGuidelines contain design ideas that canbe used for the corridor. Some types ofsign, including directional guide signsand supplemental guide signs will needto be designed and installed inaccordance with the USDOT Manual onUniform Traffic Control Devices(MUTCD) and the WSDOT trafficManual, as well as the WSDOT SignFabrication and the WSDOT DesignManual.

Compliance with OutdoorAdvertising Controls• The Federal Highway Administration

requires outdoor advertising controlsfor designated scenic byways andspecifically prohibits billboards inWashington. The Scenic Vistas Act of1971, Chapter 47.42 RCW and Chapter469-66 WAC, were enacted to promoteand protect the natural beauty of areasadjacent to officially designated statescenic and recreational highways, aswell as primary and interstatehighways. The purpose of the ScenicVistas Act was to promote the pubic



health, safety, welfare, convenience,and enjoyment of public travel. Theexistence of the Scenic Vistas Actensures that the Whidbey Scenic IsleWay will be in compliance with theFHWA requirement of no billboardsand outdoor advertising controls. Localregulations at the county and city levelalso regulate outdoor advertising.

Specific Outdoor Advertising Controls ofthe Scenic Vistas Act

On-premise advertising signs arespecifically regulated by the ScenicVistas Act. An on-premise signadvertises an activity conducted on theproperty on which the sign is located.This type of sign is limited to identifyingthe establishment or the principal oradditional products or services offeredon the property.

All signing must comply with applicablegovernmental regulations and signsmust be located in accordance withWSDOT standards for clear zonesadjacent to the highway.

Other Applicable Regulations

In addition to Scenic Vistas Actrequirements, state scenic, primary andinterstate highways must comply withthe Highway Beatification Act, Title 23U.S.C., Section 131.

In addition to the federal and state lawsrelated to the placement of outdooradvertising that are administered by theWashington State Department ofTransportation, local governments alongthe corridor regulate signing andadvertising through local ordinances.

All property owners are expected tocomply with local, state, and federalregulations for outdoor advertisingcontrol along the corridor. Compliancewith outdoor advertising requirements,in accordance with the provisions of theScenic Vistas Act and other signingregulations, is verified on a regular basisby local authorities and WSDOT outdooradvertising inspectors and maintenanceworkers.

For more information related to existingadvertising and signing controls andguidelines refer to the followingpublications.

• WSDOT Highway Advertising Control:Scenic Vistas Act

• WSDOT Highway Advertising Control:Motorist Information Signs

• Island County Zoning Code• Oak Harbor Zoning Code• Coupeville Zoning Code• Historic Preservation Codes


Marketing and Promoting the Byway

10

IntroductionMarketing and promotional strategies,programs, and projects will help attractmore visitors to the area, but also can bevaluable tools in managing visitors andconveying important messages to thetraveling public. Along with marketingand promotional opportunities, there is aresponsibility to educate visitors about

the important resources, private lands,sensitive sites, view corridors, andintrinsic qualities of the corridor.Encouraging stewardship andconservation of these resources andqualities should be an integral componentof promotional programs related to thecorridor, for both the visitors andresidents who enjoy the qualities ofWhidbey Island.

Marketing and promotion of the bywaycan result in direct economic benefits toWhidbey Island. More travel translatesto more shopping, more overnight stays,more jobs, and more revenue generatedby sales and hotel/motel tax.

Promotional efforts should be aimed atexisting businesses, restaurants, shops,galleries, and motels, hotels, and bed

Photo by M.B. Peters


10. Marketing and Promoting the Byway10. Marketing and Promoting the Byway

and breakfasts. The abundance oflocally-owned establishments is part ofthe charm on Whidbey Island and shouldbe promoted as such.

Marketing plans should involve thepublic as much as possible. Includinginterested citizens, local businesses,public agencies, and special interestgroups will increase support for theprogram. Continual efforts should bemade to notify the public of corridormeetings, inform them of progress on theproject, and invite their input at eachstep of the way.

The Target MarketAs noted earlier, the majority of visitorsto Whidbey Island are from the PugetSound region including King, Snohomish,Pierce, and Skagit counties. Anincreasing number of visitors come toWhidbey Island from around the countryand the world. With additionalmarketing and promotion, the level ofvisitors from outside the area willincrease even more. Is Whidbey Islandready for increased visitation? Thismarketing and promotions plan, alongwith the corridor management plan as awhole, will help to ensure that the bywayis better equipped to handle increasingnumbers of visitors.

Below is a list of activities people engagein while visiting Whidbey Island:

• Driving/sight-seeing tour• Hiking and walking opportunities• Bicycling• Learning about history, culture, and

natural resources (interpretation)• Family outings and picnics• Shopping• Birding• Cultural events (parades, festivals,

races, etc.)• Fishing and clamming• Kayaking and canoeing• Kite flying• Garden viewing• Camping• Sailing

Marketing Objectives andStrategiesObjectives and strategies for marketingand promoting the byway are listedbelow.

Objectives •Create partnerships, collaboration, and

cooperation between bywaycommunities;

• Continue relationships with existingefforts to promote Whidbey Island;



• Develop new efforts to use theWhidbey Scenic Isle Way designationas a marketing tool;

• Encourage public and privatepartnerships in economic and tourismplanning and development; and

• Generate and identify fundingopportunities for marketing andpromotional activities.

General Strategies• Promote Whidbey Island as:

- A scenic island of green forestswith miles of coastlines, beaches,and natural tidelands;- A quiet place with friendlypeople, a mild climate, and year-round activities;- A recreational destination withone national, five state, numerouscounty and port district parkswith water access, and a variety ofaccommodations;- A place with rural characterwhere wildlife and birds abound;- A location at the mouth of thePuget Sound inland sea forboating, fishing, and whalewatching; and- A place to explore nature, findadventure along the byway andnearby trails, be awed by the

views of Puget Sound and both theCascade and Olympic mountainranges, find solitude in thesurroundings, and see a glimpse ofWashington’s past.

• Promote the Whidbey Scenic Isle Wayas the only island byway in the country.It begins on the south end with thelargest ferry system in the UnitedStates and is accessible entirely bytransit.

• Promote the byway’s intrinsic qualitieswhile educating both residents andvisitors on the importance ofpreserving and enhancing thosequalities.

• Retain the byway committee made upof various groups, businesses,organization, and governmentrepresentatives after the developmentof this plan with goals that should be:- Scenic conservation and viewcorridor planning,- Identifying the benefits of trails

and greenways for visitors andwellness,

- Vegetation restoration,- Visitor management planning to

minimize impact on localresources, and

- Enhancement of community pride.



• Develop partnerships to encouragepublic and private interests tomaintain the long-term viability of thisplan.

• Work with the environmentalorganizations on the island to promotethe CMP’s educational and stewardshipmessages.

• Partner with local schools and involvethe students in programs and projectsthat achieve byway goals, objectives,and strategies. This will help promotethe byway on a local level.

• Organize an annual event to promotethe byway and include invitations tolocal and state politicians.

• Identify methods to be used for publicinformation such as a website,brochures or visitor guides, kiosks,welcome centers at the islandgateways, telephone access for visitorinformation, alliances with otherorganizations, such as Cascade Loop,and cooperative advertising.

• Submit grant proposals to generatefunding to implement the identifiedprojects and support the currentinitiative beyond the fall of 2004.

• Seek funding from existing businesses,organizations, and local governments toimplement short-term projects andplans to sustain byway momentum.

• Maintain contact with the WashingtonState Department of Transportation’s

Byway Program in order to identifypossible partnerships and fundingopportunities.

Marketing Strategies and ToolsThere are several specific marketingstrategies and tools that could be used forthe byway. The list of strategies above aremore general in nature. More specificstrategies and tools to effectively promotethe Whidbey Scenic Isle Way arepresented below.

Specific Marketing Strategies

Target Existing Visitors

Deception Pass State Park has more thantwo million annual visitors, while FortEbey State Park receives about 700,000annual visitors. The byway plan includesprovisions for dispersing visitors to otherparts of the island to relieve congestionand the resulting impact occurring at the“loved to death” locations of the island.

The “island experience” of the byway couldbe promoted more strongly. Visitors couldbegin their journey with ferry crossings onthe “marine highway” and then visitorscould travel north to Deception Pass. Thiswould bring visitors to other areas of theisland and allow more economicopportunities for businesses along thebyway.

“Of course, doing nothing heretakes several deceptively activeforms - reading, golfing,beachcombing, rollerskating,swimming, shopping, hiking,dining, & more - the difference isin enjoying these activities in anenvironment that demandsabsolutely nothing of you.”

www.donothinghere.com



Promote the Shoulder Season

Whidbey Island is already busy andbustling during the summer months. Thebyway should be promoted as a “year-around” destination. The rain shadoweffect should be promoted in the PugetSound region. Hiking, birding, biking,and fishing are year-around activities onWhidbey. Market Whidbey Island as the“Best Kept Winter Secret.”

Promote Shorelines, Beaches, andMarine Resources

Much of Whidbey Island’s history,culture, scenic quality, and recreationinclude water. It will be important topromote these aquatic stories and therole of water transportation, includingferries, boats, kayaks, and possiblereturn of fleet water taxis to WhidbeyIsland.

Leave your Car at Home

The Whidbey Scenic Isle Way is perhapsthe only byway entirely accessible bytransit. This should be a promotionalpoint for visitors to the island. “Leaveyour car home and hop aboard IslandTransit.”

Promote Safety

There are opportunities to promotesafety along the byway from travelers,

bicyclists, and pedestrians. A campaignslogan could be added to signs along thebyway such as “Slow down and enjoy theWhidbey Experience.” A “Share theRoad” campaign would educate drivers ofthe presence of bicyclists on theroadway. Use of “Pedestrian Crossing”signs and other traffic calmingimprovements at intersections and areasnear bus stops would alert drivers ofpedestrians.

Eco-tourism

What is eco-toursim? According to theInternational Eco-tourism Society it is“responsible travel to natural areas thatconserves the environment and improvesthe well-being of local people.” TheWhidbey Scenic Isle Way could bemarketed as an eco-toursim destination.People from all over the world travel toareas specifically to experience naturalareas that are protected and cherishedby those who live near the resources.Eco-tourists have an appreciation andrespect for the natural environment, andthese are the types of visitors WhidbeyIsland should attract.

Marketing and Promotions Tools

Interpretive Plans

Interpretive plans have already beencreated for several of the state parks and




for Ebey’s Landing National HistoricalReserve. A cohesive approach tointerpreting the byway is envisioned,which would integrate the ideas, themes,and projects identified in existing plans.See Section 6 of this plan, Telling theByway’s Story, for more informationabout the interpretive plan.

Interpretive Guide and Map

As a primary promotional piece, thebyway organization could develop a full-color brochure in the form of aninterpretive guide and map. Thisbrochure could depict a map of thecorridor including the following features:

• Intrinsic qualities as identified inSection 3 of this plan;

• Photos of the corridor, including scenicvistas;

• Historic features and relatedinterpretive stories and themes;

• Parks, forests, and other public lands;• Trailing, camping, hiking, fishing,

biking, and other recreationalopportunities;

• Interpretive centers and informationsites;

• Scenic viewpoints, pullouts, and publicrestroom facilities; and

• Cultural events and information.

The brochure could also include:

• Calendar of special events,• Websites and regional contact

information, and• Stewardship messages.

This information may be excessive forone brochure. It may be better toconsider one brochure that is orientedtoward visitor interpretation and onethat is oriented toward recreation andscenic vistas.

Brochures should be professionallydesigned, produced, and distributed tobrochure racks throughout the state atvisitor centers, key tourist destinations,hotels, parks, and motor clubs.Brochures could be distributed throughtravel agencies, tour organizations,Island Transit, chambers of commerce,and other locations.

The brand identity of the Whidbey ScenicIsle Way should be reinforced by usingthe byway’s name, logo, and familiarthemes and story lines. Moreinformation on creating and reinforcing“Brand Identity” is discussed later inthis section.

Media Outreach

Involving the media is a very cost-effective way to get the word out to the

“It’s easy to get here, but difficult toleave. The prettiest seaside townslook across the water to mountainslit up in the afternoon sun.Charming shops, deluxeaccommodations, century-oldfarms, lighthouses, big trees, tendermussels, and military history arediscovered here.”

Experience Washington.com

Washington Tourism Council



public. The media program shouldinclude the following elements:

• Develop media contacts: list ofnewspapers, TV, and radio stations.

• Develop calendar of established specialevents and invite media to all events.

• Establish new opportunities for newscoverage such as ribbon-cuttings,ground-breaking ceremonies, andspecial byway tours (invite media andpublic and all involved groups).

• Write and distribute press releases tomedia list at project milestones; also besure to distribute newsletters and otherproject information to the media.

• Encourage local newspapers to do astory on the byway or write a regularcolumn on the byway and relatedheritage issues.

• Develop a press kit that contains thebyway name, logo, themes, story lines,and color photos of spectacular features– make the reporter’s or columnist’s jobeasier by giving him or her everythinghe or she needs.

• Put notices of meetings and activities onlocal radio and television communitybulletin boards.

• Promote the byway’s significance to theregion and stewardship activities with alocally-produced video or as a guest onlocal television talk shows or programs.

Traveling Display

A freestanding traveling displayprovides information to a wide variety ofpeople at a relatively low cost. A displaycould include a byway map, photographsof the byway, and information about keyfeatures.

Tailor the design of the display to fityour target audience, as different groupswill be interested in differentinformation.

A community-targeted display shouldfeature contact information and ideasabout how to get involved and supportthe program and some enticing picturesshowing how fun it is to be a part of thebyway partnership! This display couldbe set up at local retail shops, libraries,schools, community centers, chamberoffices, and other public buildingsthroughout the island.

A marketing and promotional display fora tourism audience would need tohighlight the main attractions of theregion. This type of display should inviteand entice visitors to experience thebyway. It may be more sophisticated indesign with video and/or audio features.The display could be designed for indooras well as outdoor environments andthen set up in a wide array of locations.

www.whidbeykites.org



The display could be located at visitorcenters, interpretive centers, and otherareas along the byway – as well aslocations out of the region, includingconferences, trade shows, airports, trainstations, and transit terminals.

Audio Tape/CD Tour

Audio tape and CD tours provide thebenefit of “on-the-go” bywayinterpretation and education. Travelerscan pick up an audio tape or CD at oneend of the byway, use it during their tripto learn more about the features theyencounter along the way, and then turnin the tape or CD at a destination at theother end of the byway. Tapes and CDscan be a fairly cost effective manner ofproviding meaningful interpretation andinformation to visitors on a continualbasis. The main themes of the byway canbe told throughout the island experience.“Voices” from the byway’s past andpresent can be reflected in the audio,along with interesting facts and triviaabout byway features. Tribal legends,island history, and cultural aspects of thebyway can also be interpreted.

Speaker’s Kit

Community members and supporters ofthe byway can get involved in promotingthe byway by developing a brief slideshow and presentation. This

presentation can be given at civic groupsand community meetings to promote thebyway. The speaker’s kit shouldemphasize the natural beauty of the area,the recreational opportunities available,and suggest ways to support theprogram. It should include an outline oftopics to be covered in a presentation, aslide show of key features along thebyway, and the interpretive map to bedistributed as a handout. This approachcan be particularly useful in the earlystages of byway promotion and whenthere might be specific questions fromthe audience that need to be answered bya “warm body.”

Design and Post a Website and PlaceInformation on Other Existing Websites

Byway information and scenicphotographs can be combined to create awebsite for the byway. This websitecould link to the website on scenichighways (“National Scenic BywaysOnline” www.byways.org). A specificwebsite should be designed for theWhidbey Scenic Isle Way to promoteassociated recreational, tourism, andinterpretive opportunities, as well as toeducate potential visitors about sensitiveresources in the corridor and the needfor stewardship.



Links to other local visitor centers,chambers of commerce, and othertourism organizations should be includedon the website.

Coordinate with Existing TourismPromotion Programs

As part of the outreach efforts inpromoting the byway, an attempt shouldbe made to inform and coordinate withexisting organizations and agencies thathave public information components totheir organization or agency, such as:

• Local, regional and state tourismorganizations, visitors’ bureaus, andchambers of commerce,

• Washington State Parks andRecreation Commission,

• National Park Service,• US Fish and Wildlife Service,• Educational organizations,• Recreational/sports facilities,• Environmental organizations,• Historical societies, museums, historic

preservation groups, and• Other relevant public agencies,

nonprofit, and private organizations.

Form a Subcommittee to Manage theOngoing Marketing and PromotionsProgram and Corridor StewardshipActivities

Once the byway organization isexpanded and more formally structured,marketing, fund-raising, and otheractivities may begin to overlapsomewhat. In order to accommodateboth efforts, subcommittees should beformed and assigned to specific tasks. AByway Marketing and PromotionsSubcommittee can help with severaltasks, including overseeingdevelopment of brochures, travelguides, displays, media relations,promotional campaigns, and otherprograms.

Other Helpful InformationA great deal of helpful information andresources are available for the bywayorganization as it embarks uponmarketing and promoting the WhidbeyScenic Isle Way.

Local, Regional, and State TourismOrganizations

The communities along the byway havechambers of commerce. Theseorganizations frequently do research onvisitor characteristics to determine howto better attract tourists to the area.




Many of these organizations are alreadypartners in the byway and will beinstrumental in implementing futuremarketing and promotional efforts.Some of the organizations that havespecifically been involved in bywaymarketing activities to date include:

• Island County Tourism,• Greater Oak Harbor Chamber of

Commerce,• Central Whidbey Chamber of

Commerce,• South Whidbey Chamber of Commerce,

and• North Cascade Highway Loop

In addition to local and regional tourismorganizations, Washington State Tourism(http://www.tourism.wa.gov/) hasextensive resources and information tohelp local communities. This websiteposts research and visitor statisticsinformation, as well as up-to-datemarketing reports.

National Scenic Byways Program

A current feature of the National ScenicByways Program website,www.byways.org, is a section entitledBranding America’s Byways, whichcontains useful information about brandbuilding, and, most importantly, anextensive Marketing Toolkit. The toolkit

contains over 300 pages of helpful advicecovering such topics as:

• Moving from product development tomarketing;

• Planning Your Party – A Checklist forMarketing Your Byway, which includesfun and helpful advice on “What kind ofparty should we have? Toga? Luau?”(What is the byway story or theme?);

• Key to marketing terminology;• Positioning your byway through

interpretation;• Profiling your byway;• Your Guest List (Identifying Your

Target Market Through Research);• Byway market planning: developing

strategies for marketing your byway(includes advertising suggestions);

• Implementing marketing plans;• Media relations;• Community awareness; and• Case studies.

The full toolkit can be downloaded at thewebsite, or is available by contacting theNational Scenic Byways Clearinghouseat 202-333-8936.

Building a Consistent “Brand Identity”for the Byway

Building an identity for the byway andthe byway organization is important.The National Scenic Byway Program



refers to the “branding” process as anopportunity to set a particular bywayapart from others. Branding is the act ofcreating a specific impression in theminds of your target market. Successfulbranding usually requires a combinationof elements, including:

• Byway name,• Byway story,• Byway logo,• Byway organization• Other elements such as the byway’s

partnerships, visitors’ expectations andperceptions, and products offered tovisitors.

The byway’s identity should continue tobe promoted and reinforced at the local,regional, state, national, andinternational levels. Activities that willreinforce the corridor identity include:

• Using the logo for all outreach andcommunications materials (letterhead,postcards, bookmarks, business cards,etc.); note: letterhead that includes thelogo and corridor name on stationarywould be good for official purposes,such as letters of support, fundingapplications, and endorsement ofspecial programs;

• Distributing a poster or flyer with thebyway name and logo;

• Developing and distributing maps andbrochures with the byway name andlogo;

• Sending out a quarterly or monthlynewsletter with the new name andlogo;

• Placing articles or notices innewspapers showing the logo; and

• Confirming a formal name for thebyway organization, such as theFriends of the Whidbey Scenic IsleWay, or the Whidbey Isle WayPartnership, and referring to this nameon all communications and collateralassociated with the byway.

What will Whidbey Scenic Isle Way’sstory and logo be? These elementsshould set the byway apart from all otherbyways in the country. Ideas for storiesinclude:

• The only island byway,• Majestic mountain vistas over

welcoming tranquil waterways,

The byway logo should be graphicallyenticing and include those specialelements of Whidbey Island. The logocould include graphics of one or more ofthe following:

• Water• Wildlife



• Historical structures• Prairie scenes• Farm scene• Mountain peaks• Festivals and events (Kite Festival)

The byway committee should work withlocal artists to create the byway logo. Aproject could include a “byway logo”competition throughout the island. Logodesigns could be published innewspapers or displayed at a publicgallery. Local residents could vote ontheir favorite logo and a “byway logounveiling” event could take place at alocation along the byway.


Action Plan

11

How the Action Plan isOrganizedThe Action Plan of the Whidbey ScenicIsle Way contains the followingsubsections:

• Anticipated Benefits of the Action Plan• Summary of Important Issues and

Considerations

• Recommended Action Items/ActionPlan Summary Table

• Implementing and Updating the ActionPlan

Anticipated Benefits of theAction PlanThe recommended action items for thebyway will result in many benefits. Thetypes of benefits that would result from

implementation of the Action Plan areorganized into four categories:

• Preserving and Enhancing the Byway• Balancing the Needs of Users and

Improving Byway Safety• Enhancing the Visitor Experience• Promoting and Marketing the Corridor

Each of these categories of benefits isdescribed below.


11. Action Plan11. Action Plan

Photo by Helen Chatfield Weeks

Preserving and Enhancing the Byway

Identifying methods to retain andsustain the byway is a primary purposeof byway management planning.Recommended actions that fit into thiscategory include elements such asbeautification plans and planting,promoting transit and “non-driving”experiences, signage plans, sceniceasement master plans, traffic calmingand gateway improvements along theroadway.

Balancing the Needs of Users andImproving Byway Safety

The benefits that result from projectsand strategies that improve byway safetyand operations are two-fold. Existingroadway deficiencies can be improved tobetter handle current traffic andoperational needs, and improvementswill also help to prepare thetransportation system for potentialincreased visitation and traffic. Forexample efforts to encourage tours bytransit and use of bicycling facilitiescould help to reduce tourist travel bycars and RVs. Multi-modaltransportation also plays an importantrole in balancing the needs of the users.Examples of these types ofimprovements include traffic calmingmeasures, safety campaigns, pedestrian

and bicycle improvements andenhancements, transit improvements,and scenic character designenhancements.

Enhancing the Visitor Experience

The byway provides many wonderfulexperiences for visitors, as well as forpeople who live and work in the area.This Action Plan focuses on enhancingthese existing unique experiences, aswell as creating new experiences. Therecommendations to create a comfortstation on the byway and expand someexisting parking lots and provideadditional interpretive signage willenhance visitor experience and provideeducational and interpretiveopportunities for visitors and residents.

Promoting and Marketing the Byway

Strategies and projects that providebenefits related to promoting andmarketing the byway are valuablebecause of the positive economic impactincreased tourism could have on theregion. Marketing recommendationsinclude promotional brochures aboutWhidbey Island and creating a media kitfor the byway organization.

Along with marketing and promotionalopportunities, there is a responsibility to



“...publicize your efforts with aneye toward continuouslyexpanding your base of support.Celebrate the progress as well asthe completion of the action.Success breeds support and futuresuccess.”

Riverwork BookNational Park Service

educate visitors about the importantresources and intrinsic qualities of thebyway. Promotional and marketingcampaigns can also help to reinforceimportant messages to byway travelers,such as the importance of environmentalstewardship, opportunities to visit theisland by ferry and transit, and otherimportant information. Encouragingstewardship and conservation of theseresources and qualities should be anintegral component of all promotionalprograms related to the byway.

Summary of Important Issuesand ConsiderationsSeveral important issues andconsiderations influenced thedevelopment of the Action Plan. Asummary of these issues andconsiderations is presented below.

A clear understanding of these issuesand considerations, as well as a thoroughknowledge of the existing conditions andintrinsic qualities of the byway, and aresponsiveness to the vision statementand goals, helped to shape the strategiesand projects recommended by this ActionPlan.

• Intrinsic qualities are abundant. Thebyway contains qualities within all sixof the categories: natural,

archaeological, historic, cultural,recreational, and scenic.

• The byway is already promoted as atourism and recreational destination.The abundance of intrinsic qualitiesand recognition as a state scenic bywayprovides tremendous opportunities forisland residents and tourists.

• Improvements made to the byway mustminimize impacts to the intrinsicqualities of the corridor and islandlifestyles.

• Improvements made to the byway mustminimize impacts to existing propertyowners, businesses, and land uses.

• Enhancements and improvements tothe byway and related increases intourism and recreation will bringpositive economic benefits to thesurrounding communities.

• There is a need for a public restroomfacility and additional roadsidepulloffs/interpretation along the byway.These should be strategically locatedand well planned.

• Better enforcement of currentregulations (speeding, etc.) along thebyway is needed.

• Byway segments in urban/town centerareas, such as Clinton and Oak Harborand other areas with highconcentrations of pedestrians,bicyclists, such as state parks,



trailheads, etc. should be carefullydesigned to respond to these settings.

· Byway segments that traverse throughsensitive natural, historic, and culturalresource areas also should be designedcarefully to preserve and enhancethese characteristics.

Recommended Action Items /Action Plan Summary TableAction items include strategies,programs, enhancements, andimprovements that when implemented,will help accomplish the vision and goalsfor the byway.

Byway-wide action items are listed firstand categorized by the timeframe goal.Many of the recommendations relate toongoing byway planning andmanagement will involve the futurebyway organization. Location-specificaction items are listed second and arecategorized by location from north tosouth along the byway. For each actionitem, information is provided under thefollowing subheadings:

• Action Item and Description• Roles and Responsibilities• Time Frame Goal

Potential funding opportunities for theseaction items are summarized in the listof potential funding sources in theappendix of the CMP, with more detaileddescriptions related to eligibility andapplication guidelines.

Time frame goals for implementation ofeach action item are identified accordingto the following categories:

• O =Ongoing: The action/strategy wouldoccur continuously throughout theduration of the corridor planning andmanagement process

• I =Immediate and Near Term: Initiateaction within 1 to 3 years

• M =Mid Term: Initiate action within 3 to 6years

• F=Far Term: Initiate action within 6 to 10

years

It is important to note that these timeframe references are goals. Actualtiming of implementation will depend onmany factors, including the availability offunding, the ability to obtain approvalsand permits, the level of detail neededfor design, and other influences. Actionitems identified as “Immediate” are



those projects and strategies that can beachieved in a short timeframe and allowthe byway organization to continue themomentum and enthusiasm of on-goingproject implementation.

In the future, once some of theimmediate action items areaccomplished, the list may be re-prioritized and other action items maybecome higher in priority. Also, withongoing planning and communityinvolvement, additional action items willlikely be added to the list in the future.

Action Plan Summary Table

The follow table includes provides thelist of action items for the WhidbeyScenic Isle Way byway.

Implementing and Updating theAction Plan

Identifying Potential Projects andStrategies Is Only the First Step

This Action Plan is intended to be aguide for future byway planning,management and implementationefforts. The recommended actions arebased on community input and aconceptual level of review of existingconditions. They are suggestions, notmandates or requirements.

If pursued, each action item will needfurther consideration and analysis aspart of the implementation process.Further coordination with applicableregulatory agencies and otherstakeholders, as well as ongoing publicparticipation will be necessary. Projectimplementation will be contingent onavailable funding sources and otherfactors. Projects potentially consideredfor funding through capital investmentprograms will be need to be furtherprioritized as part of city, county, orstate capital improvementsprogramming.

Individual project sites will need to beanalyzed in more detail as part of futuredesign efforts to identify land useapproval requirements, determinepotential sensitive areas and requiredmitigation, and identify environmentaland land use permitting requirements.Geotechnical analysis, biologicalassessments, wetland delineations,wildlife habitat analysis, and other typesof studies may be required as part ofproject implementation.

Projects will need to be designed andimplemented in accordance with all local,state, and federal standards andguidelines, including the Manual onUniform Traffic Control Devices(MUTCD), the Washington State



Department ofTransportation(WSDOT) DesignManual and otherstate regulations,A Policy onGeometric Designof Highways andStreets by theAmericanAssociation ofState HighwayandTransportationOfficials(AASHTO), theAmericans withDisabilities Act(ADA), applicablestandards and

code requirements of Island County,local jurisdictions, and other relevantdevelopment requirements. In the casewhere conflicts occur between thesestandards and guidelines, or betweenthese and the values and purposes of thiscorridor management plan, furtheranalysis and coordination with thegoverning agency should occur.

Updating the Action Plan

It is recognized that the priorities of thecommunity may change over time, andthe Action Plan should be reviewedperiodically, updated and amended asnecessary, adding new strategies andprojects, and removing those that havebecome reality. It may also be necessaryto reassign timeframe goals to therecommended strategies.



Action Item Des

crip

tion

of

Act

ions

to

beA

ccom

plis

hed

and

Step

s to

Impl

emen

tati

on

Rol

es a

ndR

espo

nsib

iliti

es

Tim

e F

ram

e G

oal

Byway Management and Administration Actions:

Obtain funding forongoing byway supportservices

Prepare a scope of work and obtain funding toretain administrative support for the byway(coordinating meetings, newsletters, websitedevelopment, etc.). Annual estimated fundingneed: $25,000.

Existing steering committee, Island County I & O

Expand existing corridororganization

Existing steering committee to recruit more localcitizens, organizations, businesses, and others tobe involved in the byway organization andcreates a non-profit with monetary assistance forone year.

Existing steering committee, Island County I & O

Partner with localagencies

Establish alliances with local community andeconomic development organizations on anongoing basis to help support byway activities.

Byway organization I & O

Obtain 501c3organization status

Obtain 501c3 (non-profit) organizationcertification/status and set up organizationalstructure for expanded byway organization;conduct ongoing meetings, etc. (See Section 12of the Corridor Management Plan - CMP.)

Existing steering committee I

Confirm scenic byway"brand identity" anddevelop scenic bywaylogo

The byway organization should meet to confirmappropriate themes and graphic imagery for thebyway's "brand identity" and then could hold anisland-wide competition for the creation of ascenic byway logo.

Existing steering committee/expandedbyway organization

I

Reach final decision onpursuing national scenicbyway designation

Through ongoing meetings with the bywayorganization, as well as public involvement andoutreach, determine whether or not the bywaywill pursue national scenic byway designation.

Byway organization, RTPO I

Implement ongoingcommunity participationprogram

Coordinate with and inform communityrepresentatives, special interests, and citizens ona regular basis. Stakeholders need to be keptinformed throughout the process. (See Section12 of the CMP.)

Byway organization I

Action Items - Byway Management



Action Items - Byway Wide

Action Item

Des

crip

tion

of

Act

ions

to

beA

ccom

plis

hed

and

Step

s to

Impl

emen

tati

on

Rol

es a

ndR

espo

nsib

iliti

es

Tim

e F

ram

eG

oal

Byway-wide Programs, Initiatives, and Projects:

Organize and conduct a"Kick-off" event – Spring2005 Byway Birthday

Plan a kick-off event celebrating the successful plan and getting peopleinvolved early in the process of implementing the CMP. This event couldinclude roadside clean up activities, revegetation projects, and/or a “BywayBirthday” celebration. Try to minimize costs through volunteer donations andassistance from current CMP consultant contract.

Existing Byway SteeringCommittee/Byway organization,Consultants, Adopt-a-Roadparticipants

I

Create byway website Create the byway website that includes byway logo and up-to-date programsand projects. Approximate cost: $30,000 to $75,000.

Byway organization I

Promote the “non-drivingexperience” through abrochure and websitepostings

Promote and advertise Whidbey Island as a “car-free” experience. Create abrochure about transit options, advertise alternative transportation on tourismwebsites. A public relations or marketing consultant could be retained toassist. Approximate cost: $50,000 to $150,000 depending on print quantity

Byway organization, IslandTransit, Chamber of Commerce,Island County Tourism

I

Touring routes brochure Create a touring route brochure with a map that includes the touring routes(by car, bicycle, transit, etc.) listed in the CMP. Approximate cost: $50,000to $100,000 depending on print quantity.

Byway organization, chamber ofcommerce, Island Countytourism

I

“Walks of Whidbey”Map/Brochure

Create an island-wide map showing the “Top 20 Walks on Whidbey Island."Approximate cost: $50,000 to $100,000 depending on print quantity.

Byway organization, WhidbeyIn Motion, Chambers, WhidbeyIsland Trails Council, IslandCounty Tourism

I

Study needed transitfacility improvements anddevelop a master plan

Complete a study and create a master plan to identify improvements neededfor transit facilities (park and rides, bus stops, transit center, etc.) includingthe addition of furnishings, beautification/planting plans, etc. Approximatecost: $80,000 to $100,000

Island Transit I

Safety campaign – speedlimit enforcement

Byway organization should work with police departments, schools, and safetyorganizations, etc. to organize a safety campaign and the importance ofobeying the speed limit. Approximate cost: $30,000 to $50,000 for printedmaterials.

Byway organization (coordinatewith Island County sheriff),Washington State Patrol, localjurisdictions, schools

I &O



Maintain scenic roadwaycharacter throughroadway design

The byway organization should continue to work closely with WSDOT on theevaluation of alternatives for lane widening, turning lanes and intersectionimprovements, side slope design, curvature, and other elements with the intentto preserve the visual and scenic character of the roadway.

Byway organization, WSDOT,Island County

O

Planting/revegetationprojects (native plants)along the roadway; masterplan and implementation

Plant native species along the corridor and continue to coordinate withWSDOT on revegetation efforts. This is an ongoing action that is a highpriority for the byway organization. The first step will be to create a masterplan for locations that need revegetation; the second will be to implementrevegetation projects on a location by location basis. Approximate cost:master plan could be completed as a project of the byway organizationthrough volunteer resources; implementation could also occur throughvolunteer resources and donated labor/materials

WSDOT and local communityorganizations

O

Expand multi-use trailsystem andimprove/enhance accessto trails

Extend existing multi-use trails and create new trails through Island County.Develop trailhead improvements and access opportunities (via transit) fromthe byway. This would be an ongoing action throughout the county; costs ofimplementation are analyzed by the county.

Island County – seeTransportation ComprehensivePlan for locations of trails - withthe support of the Bywayorganization and other areaagencies and organizations

O

Media/speaker’s kit Create a media /speaker's kit that includes byway logo, information, pressrelease, website information, presentation, etc. and develop an ongoingrelationship with media representatives to build awareness about bywayactivities

Byway organization O

Enhance safety atpedestrian crossings

Identify locations and make pedestrian improvements along the corridor,specifically in Clinton and Freeland. Approximate costs: depends on level ofimprovements, but minimal striping and signing likely could be accomplishedfor $20,000 to $50,000 per location

Byway organization, schools,town representatives, WSDOT

O

Reduce and eventuallyeliminate the use ofherbicides and pesticidesalong the byway.

Through native plantings and pest management, eliminate chemicaldependence along the byway.

Byway organization, WSDOT,Whidbey Island No SprayCoalition

O

Develop highwaybeautification plan for SR20 and 525

Identify locations for beautification projects and work with private propertyowners including businesses and industries. Approximate cost: $30,000 to$50,000 for developing the plan; costs per site will depends on the level ofimprovement needed.

Byway organization, WSDOT,private businesses, Mastergardeners

M

Sign inventory Complete a thorough sign analysis, inventorying all signs along the bywayand making recommendations for removal, consolidation, and additional signneeds. This could be done through volunteer resources; or perhaps agencystaff resources. Consultants could also be retained. Approximate cost:$25,000.

Byway organization, WSDOT,Island County

M



Interpretive guide andmap

This promotional brochure would highlight the intrinsic qualities, publicservices, interpretive stories, etc., providing a byway-wide perspective ofthings to do and see for residents and visitors. Approximate cost: $50,000 to$100,000 or more depending on print quantity.

Chambers, Island Countytourism organizations, Bywayorganization

M

Scenic easement masterplan

Collect data and inventory site-specific information for the opportunity topurchase scenic easements along the corridor. Approximate cost: $50,000 to$75,000 for the study and master plan.

Byway organization, Whidbey-Camano Land Trust, NatureConservancy, Trust for PublicLands, Ebey's Landing NationalHistoric Reserve

M

Informational brochures Educational and informational brochures about aspects of Whidbey Islandincluding history, geology, marine life, vegetation, and cultural events.Brochures could include maps and specific touring and transit opportunities tolocate the aspect – historical structures, geological features, cultural events,etc. Approximate cost: these could be smaller focused brochures andeducational pieces each produced for about $30,000 to $50,000 depending ondesired print quantity.

Byway organization, HistoricalSociety, Beach Watchers, IslandTransit, non-profit organizations

M

Action Items - Byway Wide cont.Action Item

Des

crip

tion

of

Act

ions

to

beA

ccom

plis

hed

and

Step

s to

Impl

emen

tati

on

Rol

es a

ndR

espo

nsib

iliti

es

Tim

e F

ram

eG

oal



Action Items - Location Specific (from North to South)

Dugualla BayImprovements

Provide a wildlife viewing platform with interpretive panels. Byway organization, IslandCounty, Audubon Society,Private property owners

I - Seek FundingM - Implement Project

Oak harbor - Trafficcalming and wayfindingstudy in Oak Harbor andsubsequent improvements

An analysis of traffic patterns and feasibility of trafficcalming measures and improvements includingwayfinding/signing improvements to strengthen connectionsto downtown/waterfront, planting medians, traffic circles,reducing lane widths, etc.

City of Oak Harbor, WSDOT,RTPO. FHWA, Bywayorganization

I - Seek Funding/StudyM to F -Implementrecommendations

Hastie LakeImprovements

Provide a wildlife viewing platform with interpretive panelsand a small pull-out to accommodate 5-6 cars.

Island County, AudubonSociety, Private propertyowners, Byway organization

M

Crockett LakeImprovements

Provide a wildlife viewing platform with interpretive panels. Washington State Parks,Ebey’s Landing, Audubon,Byway organization

M

ComfortStation/Improvements atLake Hancock Pull-out

Access feasibility of developing a comfort station at LakeHancock with interpretive, picnic, and other facilities.

Byway organization, WSDOT,Navy, Island County, others

I - Seek FundingM - Implement project

Traffic calming,circulation and safetystudy in Clinton andsubsequent improvements(to SR 525)

Complete an analysis of traffic patterns, safety needs, andfeasibility of traffic calming measures including plantingmedians, lane narrowing, signalized crosswalks, sidewalks,etc. Also consider opportunities to build identity andcharacter as part of transportation improvements in Clinton.Such opportunities could include additional landscaping,trees, public art, wayfinding elements/signing, and otherenhancements. Upon completion of study, design andconstruct recommended improvements. Improvementsshould also include evaluation of access opportunities(pedestrian, bicycle, transit, etc.) to the Port of SouthWhidbey's future beach park.

Island County, Clinton Forumand other Clintonrepresentatives, FHWA,WSDOT, RTPO, Port ofSouth Whidbey, Bywayorganization

I- Seek Funding/StudyM - Implement Project

Action Item

Des

crip

tion

of

Act

ions

to

beA

ccom

plis

hed

and

Step

s to

Impl

emen

tati

on

Rol

es a

ndR

espo

nsib

iliti

es

Tim

e F

ram

eG

oal


Next Steps: Recommendations for OngoingPublic Participation, Management and Coordination

12

National DesignationOne of the first steps the bywayorganization will need to proceed with isthe decision about whether or not topursue national designation through theFederal Highway Administration(FHWA). According to public comments,there are many pros and cons to movingforward with national designation. Onething is clear - the Whidbey IslandByway is a unique experience - adestination unto itself that possesses allsix intrinsic qualities. The bywayqualifies for national designation, but

deciding to pursue it will be a difficultdecision.

Pros of National Designation• The FHWA National Scenic Byways

Program and WSDOT give priorityfunding to nationally designatedbyways.

• National byways receive free marketingand promotion on the National ScenicByway’s official website(www.byways.org) and national map.

• Increased tourism would be expectedwith national recognition.

• Economic benefits would occurthrough increased tourism.

• Increased recognition, publicawareness, and opportunities toenhance and preserve the byway wouldlikely occur through nationaldesignation.

• National Scenic Byways can apply for$25,000 annual “seed” grants forongoing byway planning, management,and programs.

• The Whidbey Island Byway couldbecome a national model for thepromotion of transit use and


12. Next Steps12. Next Steps

alternative transportation along theentire byway.

Cons of National Designation• While increased tourism is a pro for

some, it can also be a negative forothers; many are concerned thatincreased visitation to the island willimpact the quality of life for islandresidents.

• The potential for increased traffic andtransportation concurrency issueswould need to be further evaluated.

• Increased tourism could result inoveruse of and impacts to the byway’sintrinsic qualities.

Increased development could occur as aresult of more people visiting andwanting to build seasonal and permanenthomes.

Becoming a national scenic byway will bea significant decision for the bywayorganization. Additionally, ongoingpublic involvement will be a vital part ofthis decision-making process.

Expanding and Strengtheningthe Byway OrganizationOn-going management and coordinationefforts associated with the corridor willrequire strong commitment by localcommunity representatives. In order forthe goals associated with the corridor

and the recommendations in this plan tobe fully achieved, a well-organized andenthusiastic group of people will need tocontinue to work together to coordinateand manage the ongoing planning andproject implementation of activitiesconnected with the corridor. Corridor“champions” will need to persist inbringing their energy and enthusiasmtoward implementation of this plan, justas they have towards its creation.

FHWA recognized that those most “intouch” with the existing conditions andneeds of a scenic byway are the localcommunities surrounding it. FHWAstrongly encourages management ofscenic byways by “grass roots” citizen-based organizations. Along with citizen-based management efforts, FHWArecommends building local supportthrough active community involvementat every stage of the corridor planningand management process.

The Whidbey Island Byway already hasan excellent start with the assistance of agroup of strongly committed supportersand partners. The resources and thedepth of experience of federal, state, andlocal agencies has helped to set thebyway on a successful course. Fosteringof specific byway partnerships hasalready occurred through thedevelopment of this plan. The ability to




successfully build on and strengthenthese partnerships will be a key elementin determining the future direction ofthe byway. Current partners andinvolved entities include:

• Audubon Society• Beach Watchers• Cascade Loop Association• Central Whidbey Chamber of

Commerce• City of Langley• City of Oak Harbor• Clinton Community Forum• Ebey’s Landing National Historical

Reserve/National Park Service• Economic Development Council• Friends of Freeland• Greater Oak Harbor Chamber of

Commerce• Island County• Island County Historical Museum• Island Transit• Naval Air Station• South Whidbey Chamber of Commerce• South Whidbey Historical Society• Town of Coupeville• Washington State Parks• Washington Department of

Transportation• Whidbey/Camano Land Trust

• Whidbey Institute• Whidbey Island Conservation District• Island County Trails Council• Countless other individuals,

businesses, and organizations who havesupported the efforts to develop thisCorridor Management Plan.

It is anticipated that the core group(existing byway steering committee)involved in ongoing corridor planningand management will grow and evolveover time. At the outset, it is importantthat the core group continue to include adiverse representation from the entireisland.

The primary objective of the bywayorganization will be to guide the work ofplanning and implementing theenhancements and interpretation alongthe corridor. The byway organizationshould also sponsor special programsand events to promote the corridor.Members of the byway organizationshould consider the types of skills andinterests most needed in theorganization as it grows and evolves.Here is a suggested process for formingand expanding the core group:

• Identify skills and interests needed(i.e. newsletter writing/editing, webdesign, speaking, marketing,stewardship, etc.);

http://www.oakharborchamber.org



• Identify key community people whohave the skills and who havedemonstrated interest in communityaffairs;

• Develop funding commitments toprovide for supporting resources tohelp the byway organization.

• Talk to those interested in person anddiscuss the corridor, including thevisions, goals, future prospects, and theimportance of community involvement;

• Try and reach a broader audience forparticipation. Often, those interestedare involved in other organizations andcan only dedicate a small amount oftime; and

• If the group is still too small, godirectly to community organizationsand solicit participation and leadershipas needed.

Below is a summary of the steps involvedin expanding the organization andconsolidating efforts.

• Continue to include interest andorganizations from entire corridor:Deception Pass to Clinton.

• Select the byway board or otherleadership and set a regular monthlymeeting schedule (may be morefrequent for the kick-off process). It

may be beneficial to establishstructure, including election of a chair,consistent meeting agendas, meetingminutes, etc.

• Determine the appropriatesubcommittees for the organization(see suggestions later in this section).

• Reach a consensus about next steps –What should the byway organizationfocus on first?

Confirming the Identity of theCorridor OrganizationOnce the core group develops and hasestablished a regular meeting schedule,one of the first items of business will beto reach a consensus about the identity ofthe byway. A somewhat concise, easy-to-remember name for the byway and theorganization will need to be identified.

According to public comment, mostpeople prefer the corridor to be namedThe Whidbey Island Byway or theWhidbey Island Scenic Byway. Thisname should continue throughout futureplanning and project implementation,helping to reinforce the “brand identity”of the byway.

The identity of the byway should bepromoted and reinforced at the local,regional, state, and national levels.Activities that will reinforce the corridor

“Getting your scenic byway is a bigchallenge. Keeping it going is another”

Community Guide to Planning andManaging a Scenic Byway. FHWA.



include:

• Working with a local island artist todevelop a logo for all outreach andcommunication materials. A local artcompetition could help draw local artistinto the process. Residents throughoutthe island could vote on the best logo.

• Distributing a poster or flyer with thename and logo.

• Developing and distributing a map andbrochure with the name and logo.

• Sending out a quarterly or monthlynewsletter with the name and logo.

• Writing articles for the localnewspapers.

• Creating letterhead that includes thename and logo on stationary used forofficial purposes (such as letters forgrants applications or specialprograms.)

• Working with WSDOT and localcommunities to install byway logo signsand gateway signs and improvements.

Broadening Interest - Bringing inMore StakeholdersIt is important to know who thestakeholders are along the byway and toinvolve them in corridor planning andimplementation activities as much aspossible. Who has not been involved to

date but shouldbe? There may besome valuable andimportantpartners outthere ready andwaiting to help.Typical majorstakeholdersshould include:

• Propertyowners andprivatelandowners andland managersalong the byway (identify names fromtax records) including timber andagricultural industry representatives.

• Local business people, especially thosewhose businesses would be affected byincreased tourism.

• Agencies and interests responsible formanagement activities in the corridor.

• Local community associations,chambers of commerce, visitors’bureaus, and other communityorganizations dedicated to promotingbusiness, quality of community life, ortourism.

• American Indian tribes who may nothave been represented to date.

• Organizations dedicated to specificintrinsic qualities of the corridor (such



as historical societies, local museums,outdoor recreational organizations,local or regional festival organizers,garden clubs, and scouting groups).

These stakeholders will play animportant role in the partnership. Thesegroups can become valuable, integralpartners in the byway’s future. Involvethem in the process by:

• Asking about their interests andconcerns;

• Asking the question: What can theWhidbey Island Byway do for you?

• Responding to their questions, fears,dreams, and anxieties without judgingor taking sides;

• Learning about the corridor from them;• Listening to their ideas and integrating

them into the plan;• Clearly understanding what is desired

from them and what the best role is forthem;

• Looking for common ground betweentheir concerns and the concerns ofothers;

• Showing them how some of their needscan be met through the enhancement ofthe corridor;

• Showing them ways they can beinvolved and how their involvement

will benefit them; and• Inviting them to join the corridor

project and work together to achievecommonly desired goals.

Potential Subcommittees/FocusGroupsThe working subcommittees of thecorridor organization or partnership willplay important roles in the future of thecorridor. These subcommittees will bethe “engines” behind the overall corridororganization, making things happen on adaily basis. Subcommittees should bestructured so that individuals areassigned appropriate responsibilitiesthat match their special skills andinterests. For example, someone withword processing and desktop publishingskills would be an ideal member of a“communications” or “newsletter”subcommittee. Subcommittees shouldmeet independently from and possiblymore often than the corridor leadershipboard and the overall corridororganization, depending on theirassignments.

Here are some of the potential subcom-mittees that may form out of the overall“umbrella” corridor organization:• Communications/Media Relations

(responsible for newsletters, meetinginvitations, flyers, press releases, etc.)



This is a very important subcommittee!• Grant Writing/Fund Raising• Marketing and Promotions• Project Implementation• Maintenance and Operations• Government/Political Liaison• Business and Industry Liaison (This

group would meet regularly withimportant industry representatives -including the Navy, agriculturalinterests, and other importantstakeholders.)

• Membership• Community Involvement

Other subcommittees may be needed.These are some of the most common onesfound in larger organizations.

The Contact ListIt is important to put someone in chargeof the byway contact/mailing list. Thisperson should be skilled with data basemanagement so that he or she canmaintain and update the list and producemailing labels. This will be one of themost important tools to be maintained inorder to keep people involved in ongoingplanning and management. Creating abyway listserve or “group” e-mail is animportant task as well. The e-mail listcan reach a broader audience without thecost associated with mailing. As people

are identified by the core group, placethem on a mailing list. At minimum,obtain their name, address/phone/e-mail,and organization or agency.

To maintain the e-mail/mailing list, keepup with changes in the leaders of com-munity organizations so that mailingsare received by the current leaders.Remove people who move or who indi-cate that they are not interested.Keep all established community organi-zations on the e-mail/mailing list. Get-ting announcements, newsletters, andmeeting notices out to community orga-nizations is an easy way to keep inter-ested people aware of the partnershipactivities and progress. An organizationmay want to contribute to the corridor orto a special project or program they haveread about by donating funds or provid-ing in-kind services.

Building a Volunteer SupportBaseTo successfully build a volunteer supportbase for the corridor:

• Register volunteers and record theirtime (volunteer time is often an eligiblein-kind matching source for grants);

• Identify their interests, skills, andavailability;

• Thoughtfully match project needs and



volunteers;• Make the work sessions enjoyable; and• Build “esprit de corps” by making the

work parties fun; plan food and musicby local people; plan time forsocializing and making friendships.

Productive projects, where one can seethe physical results when one is finished,such as building trails, planting trees,landscaping, and other activities, aretypically very rewarding and can helpbuild a strong, active volunteerorganization.

Ongoing ActivitiesThere are various ongoing activities onwhich the expanded byway organizationshould focus on a continual basis:

• Coordination with agencies andjurisdictions to adopt therecommended strategies and projectsfrom the Corridor Management Plan.Strategies and projects can be adoptedinto local comprehensive plans andcommunity plans of the localjurisdictions and communities alongthe corridor, as well as Island County,and into the Statewide TransportationPlan, as appropriate.

• Coordination with appropriateagencies to pursue funding for projectsand to manage planning, design, and

implementation of these projects.• Continual outreach - regular

communication of progress in meetingcorridor goals and completing actionitems through newsletters, possibly awebsite, newspaper articles (pressreleases), or other means.

• Sponsorship and support of activitiesand projects that reinforce the goals forthe corridor, such as stewardshipprograms, community clean-up events,and volunteer tree-plantings.

• Remember to look for fun andinteresting ways to keep members ofthe organization enthused and active –as discussed previously. Try to avoidadding too much complexity andformality to operations – this mightdiscourage people from gettinginvolved and staying involved.

• The Corridor Management Plan andAction Plan should be “livingdocuments” - updated, modified, andexpanded periodically as planningefforts progress and the corridorexpands.

Potential Funding OpportunitiesThe byway is eligible for various types ofgrants and government funding. One ofthe responsibilities of the corridororganization and leadership board willbe to continue to investigate possible



funding sources and to pursue fundingfor byway projects and programs on anongoing basis. Here are some ideasrelated to various funding sources andopportunities for which Whidbey IslandByway programs and projects may beeligible:

• Federal Highway AdministrationScenic Byway Grants

• Transportation Enhancement Grants• Public Lands Highway Grants• Other federal grant programs• State grant and capital funding

Programs• Regional and local governmental and

nonprofit organization fundingopportunities

• Public/private partnerships• Private foundations and corporate

giving programs (do some internetsearching – there are lots of programsout there that contribute to theadministration, programs, and projectsof nonprofit organizations.)

• Private donations and developmentprojects

• Community fund-raising – communityclubs/organizations (i.e. Optimists,Elks, Rotary Clubs, etc.)

• Volunteers and in-kind resources

The Importance of OngoingPublic Participation

The Need for Broader Input

Ongoing public participation is essentialto the success of future corridor planningand project implementation. Thecorridor organization will represent theviews of local communities and interests,but at key decision-making points andimportant milestones in the future therealso will be a need for broadercommunity input and involvement.Citizens and special interest groupsthroughout the corridor can providevaluable information and input. Theyare the local experts – they can describein detail the existing conditions,problems, and potential solutions thatare best suited to their specificsituations.

Tools for a Successful Public InvolvementProgram

There are several successful tools toinform and involve the public. It isrecommended that the publicinvolvement tools and correspondingschedules be used with long-termplanning and management of thecorridor.



Recommendations about how and whento use these public involvement tools areguidelines only. The ongoing programfor the Whidbey Scenic Isle Way shouldbe tailored to fit the preferences andneeds of the byway organization andcommunities. Depending on eventstaking place within the corridor atvarious times, it may be necessary toadjust meeting schedules and/or pressrelease publishing dates. If there is aperiod of heavy activity it may be a goodidea to hold meetings more frequently orto look for other ways to engage theinterest of the communities. Keep inmind that summer vacation schedulesmay impact meeting attendance andparticipation levels.

Advantages of Public Workshops andCharettes

It may be necessary to help certaincommunity groups see the points of viewof other community groups orstakeholders. One of the best methods toaccomplish this is bringing all interestedgroups together for planning and designcharettes workshops to discuss issuesand work together on resolutions. In a“forum setting” people are able to betterunderstand the concerns andperspectives of others. It is stillimportant to understand and address thespecific needs of each person or group,

and it may be necessary to hold separatemeetings with special interests, but theworkshop setting is best for broadcommunity participation.

It may be necessary to hold variouspublic meetings along the WhidbeyIsland Byway corridor, given that peoplelive in different communities. Workshopannouncements should be placed in localand regional newspapers, and workshopsshould be held at convenient andaccessible locations within thecommunity. Inviting the general publicto participate through workshops willhelp ensure that community membersand stakeholders are not left out of theprocess.

Reaching out the Community

People lead busy lives, and it is oftendifficult to attend public meetings andworkshops because family and personalschedules take priority. Often, publicmeetings and workshops are not wellattended if the issues being discussedare not controversial. Time is a preciouscommodity and, with that in mind,sometimes it may be necessary to reachout to the public in other ways besidesmeetings. Websites and e-mail lists are agood way to keep people informed and toencourage dialogue through e-mailcorrespondence.



A successful way to foster participationis to attend meetings that are alreadyset-up through local chambers, tourismgroups, environmental organizations, etc.This method could be successful becauseinformation can be obtained throughmeetings that are already attended by agroup of devoted volunteers orcommunity representatives, rather thanadding another meeting to their busyschedules.

Presentations to elected officials andcommissions can also provideopportunities for input and involvementin corridor activities, as well as buildingawareness and gathering support forneeded improvements. Work sessionswith senior citizens and school groupsprovide another opportunity forcommunity outreach and obtaininginsightful input. Byway projects could beincorporated into school projects forstudents or preservation projects couldbe a part of high school curriculum orafter school activities.

There are many resources in thecommunity including volunteers, in-kindsupport, gifts of materials, printing costs,etc. that can be “tapped into” as part of astrong program of communityinvolvement and outreach.

transportation system analysis and recommendations table of … · 2016-02-11 · •...

Documents