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11/03/04 AGENDA
FILE 239 4th Street · Bremerton, WA 98337 · Phone {360) 478-5280 · Fax (360) 478-5251 NOVEMBER 3, 2004 CITY COUNCIL MEETING AGENDA 1. PRE-COUNCIL STUDY SESSION: 5:00 - 5:30 P.M. in Council Conference Room A. General Council Business B. 15-Minute Executive Session to discuss "Personnel" 2. CALL TO ORDER: 5:30 P.M. in Council Chambers A. Pledge of Allegiance B. Invocation 3. PUBLIC SERVICE ANNOUNCEMENTS 4. CONSENT AGENDA A. Claims & Check Register (#AB04-227) B. Approval of Public Works Trust Fund Loan for Repair of Brentwood Avenue Storm Drain (#AB04-228) C. Approval to set Pay Band for Director of Financial Services at Band 20; and approval to hire Laura Lyon as Financial Services Director at Pay Step 8 of Band 20 (#AB04-229) 5. NEW BUSINESS - There are no New Business Items this week... 6. PUBLIC HEARINGS - ORDINANCES AND RESOLUTIONS A. Ordinance [First Reading] Establishing the Property Tax Levy Amounts to be collected for 2005 (#AB04-230) B. Ordinance [First Reading] Adopting a new Bremerton Comprehensive Plan and rescinding /..~ existing plans (#AB04-231) C.Public Hearing on Proposed Fiscal Year 2005 City of Bremerton Budget (#AB04-232 (No action will be taken on this item) 7. PUBLIC RECOGNITION 8. COUNCIL MEMBER REPORTS 9. ADJOURNMENT OF CITY COUNCIL BUSINESS MEETING [] Americans with Disabilities Act (ADA) accommodations provided upon request. Those requiring special accommodations should contact the City Clerk's Office at (360) 473-5323 by noon on the Monday preceding the Council meeting. E-mail: cih/council@ci.bremerton.wa.us · Web: www.ci.bremerton.wa.us CITY COUNCIL MEETING SPEAKERS LIST PLEASE NOTE THAT ALL REQUESTS FOR INFORMATION FROM THE CITY OF BREMERTON MUST BE SUBMITTED IN WRITING. THANK YOU. PLEASE PRINT YOUR NAME BELOW IF YOU PLAN TO SPEAK DURING THE COUNCIL MEETING TONIGHT DATE SUBMITTED: BILI~ AGENDA BILL - CITY OF BREMERTON CITY COUNCIL SUBJECT: Approval of Claims and Checks Connnittee Meeting Date: Register COUNCIL MEETING Date: Department: Financ~l Se~'~ ides Presenter: Cathy Jolmson Phone: 473-5296 SUMMARY: Consent agenda item. Approval of payroll checks and electronic fund transfers. ATTACHMENTS: ]FISCAL IMPACTS (Include Budgeted Amotmt):. APPROVALS: DEPARTMENT DIRECTOR: CITY ATTORNEY: FINANCE DIRECTOR: MAYOR: FISCAL/BUDGET: OPERATIONS: CONSENT AGENDA COUNCIL PRESIDENT: RECOMMENDED MOTION: Move to Approve: ~ fit" y sTo ff &, 5--/ ,.-a. 1) Check#'s througl~:'~?5'-0~}_andEFr's ~ff-~TZSthrough ~'~0 ~--Ip_~[ 3 in the amount of $ 2) Regular Payroll for the pay period ending /6~---/5"--O i,~ in the amount of $~ 3) Retiree Payroll for the pay period ending ./t')- ~/'-~_ y in the amount ors COUNCIL ACTION: ~ Approve ~ Deny ~ Table ~ Continue ~ No Action DATE SUBMITTED: October 27, 2004 BILL # AGENDA BILL CITY OF BREMERTON q B CITY COUNCIL SUBJECT: Brentwood Avenue Storm Committee Meeting Date: November 3, 2004 Drain - Acceptance of Public Works Trust COUNCIL MEETING Date: November 3, 2004 Fund Loan Department: PW&U, Engineering Presenter: Thomas Knuckey Phone: 473-2376 SUMMARY: The City has been awarded a Public Works Trust Fund Loan in the amount of $250,000.00 for design and construction of a cure-in-place repair to the 42-inch Brentwood Storm Drain. Installation of the cure-in-place pipe will be by Insituform Technologies, Inc. Cleaning and preparation of the existing storm main, traffic control, and other activities required for the project will be performed by City Forces. ATTACHMENTS: 1. Council Summary 2. Resolution No. 2944 FISCAL IMPACTS (Include Budgeted Amount): This project is not included in the current budget - the stormwater budget will be increased by $250,000 in the 2004 year-end amending budget ordinance. APPROVALS: DEPARTMENT D IRECTOI~~~c--~-- CITY ATTORNEY: FINANCE DIRECTOR: ~-%~ ~...~------"~ FISCAL/BUDGET: hlCard ,zl' 19r~_- (7o~n,: [/~/Offoq CONSENT AGENDA [] OPERATIONS: ~lgard at' IPr,. (Jotul Io/~'~b? ~ .... COUNCIL PRESIDENT: [..~ RECOMMENDED MOTION:Move to approve the emergency loan from the Public Works Trust Fund for Two Hundred and Fifty Thousand Dollars ($250,000.00) and authorize the Mayor to finalize and execute the loan agreement. COUNCIL ACTION: [] Approve [] Deny [] Table [] Continue [] No Action ab, Agenda Bills 2004, PWTF Emergency Loan Brentwood Ave Storm Drain BRENTWOOD STORM DRAIN ACCEPTANCE OF PUBLIC WORKS TRUST FUND LOAN Council Summary Summary On October 13, 2004, the City Council declared an emergency and authorized application for an emergency loan from the Public Works Trust Fund, and fur[her authorized repair of the Brentwood Avenue storm drain. The City has obtained three quotes for the pipe repair as follows: Geico Services - $206,000 (sales tax not included) Columbia Pumping and Construction, Inc - $291,360 (sales tax not included) Insituform Technologies, Inc. - $124,360 (sales tax included) in addition to the cure-in-place pipe repair to be constructed by Insituform Technologies, Inc., City Forces will perform miscellaneous activities including cleaning the pipe, installing material into the invert to re-establishment the pipe shape, removing the top portions of manholes, erosion control, traffic control and other minor work. The City has been awarded a Public Works Trust Fund Emergency Loan for $250,000 to fund design and construction of the repair to the Brentwood Avenue storm drain. The loan will fund all City costs associated with the repair. Loan terms are as follows: Loan Amount = $250,000 Match Required = $0 Term = 20-years Interest Rate = 4% Annual Debt Service (Approx) = $18,280 This project was not anticipated during development of the 2004 budget. The Stormwater Utility Fund will be amended to appropriate $250,000 for this project in the 2004 year end amending budget ordinance. RESOLUTION NO. ~q ~tt/ A RESOLUTION of the City Council of the City of Bremerton, Washington declaring an emergency condition exists and authorizing the Mayor to take necessary steps to arrange funding for and make emergency repairs to approximately 670 feet of Brentwood Avenue storm drain as provided in RCW 39.04.280(1)(c) and BMC 2.76.600(a)(3). WHEREAS, Brentwood Avenue storm drain is a critical and necessary element of the City's stormwater conveyance system; WHEREAS, approximately 670 feet of the Brentwood Avenue storm drain was recently inspected and found to be in a near failure condition requiring immediate repairs throughout its length; and WHEREAS, without these repairs this line could fail during a large storm event; and WHEREAS, total failure of the Brentwood Avenue storm drain is likely to affect public health and safety and cause significant damage to both public and private property; and WHEREAS, RCW 39.04.280(1)(c) specifically authorizes a municipality to waive competitive bidding requirements for purchases in the event of an emergency; and WHEREAS, BMC 2.76.600(A)(3) provides the City is not required to seek competitive bids when the City contracts for materials, goods and equipment in order to effectively respond to emergencies affecting public health and safety; NOW THEREFORE THE CITY COUNCIL OF THE CITY OF BREMERTON, WASHINGTON DOES HEREBY RESOLVE AS FOLLOWS: SECTION1. That an emergency condition exists due to unforeseen circumstances beyond the control of the City that presents a real, immediate threat to the proper performance of the essential function of the City's stormwater system and will likely result in material loss or damage to property and the environment. SECTION2. That the Mayor is hereby authorized to apply for funding from the Public Works Trust Fund Board and cause the immediate, permanent repair or replacement of approximately 670 feet of Brentwood Avenue storm drain in accordance with the provisions of RCW 39.04.280(1)(c) and BMC 2.76.600(a)(3). SECTION3. Competitive bidding requirements are hereby waived and are not required for securing contracts for materials, goods, equipment and services necessary to respond to the emergency referenced 'hq this resolution. SECTION4. The Mayor is hereby authorized to award all necessary contracts on behalf of the City in order to effectively respond to this declared emergency. SECTION 5. Severability. If any one or more sections, subsections, or sentences of tkis Resolution are held to be unconstitutional or invalid, such decision shall not affect the validity of the remaining portion of this Resolution and the same shall remain in full force and effect. SECTION 6. Effective Date. Tiffs Resolution shall take effect and be in force immediately upon its passage. PASSED by the City Council of the City of Bremerton, Washington this day of (.~P'~ ,2004. ~'ATREN NYGREN, Council President APPROVED. AS__ TO FORM: ATTEST: /q R'~ PAU~A J~21~TON, City Clerk 2 4 DATE SUBMITTED: 10-27-04 BILL # AGENDA BILL CITY OF BREMERTON CITY COUNCIL SUBJECT: Approval to set Pay Band Committee Meeting Date: 10-27-04 assignment for the Director of Financial COUNCIL MEETING Date: 11-3-04 Services at Band 20 of the Management Pay Depamnent: Executive Plan; approval to hire a new Director above Presenter: Mayor Bozeman Step 1 of the pay band and to confirm her Phone: 473-5266 appointment to the position. SUMMARY: It is the Administration's recommendation, based upon a salary survey (attached hereto) of the pay for the position of Financial Services Director, to reassign the position from Pay Band 19 to Pay Band 20 of the Management Professional Pay Plan. BMC Chapter 2.50, Section 2.50.032 (a) requires Council confirmation for the appointment of a Department Director and approval for an initial salary rate which exceeds Rate 1. Council confirmation and approval is requested to hire Laura Lyons as Director of Financial Services at Pay Rate 8 of Band 20. Ms. Lyon's is a Certified CPA, whose work experience spans 20+ years in both the public and private sectors, 18 years of which were with the Public Utility District No. 2 of Grant County. Her current position is Assistant General Manager and Chief Financial Officer. The District is a major generating utility that owns and operates 2 large hydroelectric power plants on the Columbia River. The District's operating budget is approximately $300 million annually with approximately 475 FTEs. Ms. Lyons received only the highest of recommendations from her current employer and other references. ATTACHMENTS: Salary survey, Resume and Memo outlining the negotiated terms of her employment with the City of Bremerton FISCAL IMPACTS (Include Budgeted Amount): Position is fully funded per approval of 2004 budget. APPROVALS: DEPARTMENT DIRECTOR: ~~ /~~" FINANCE DIRECTOR: MAYOR: FISCAL/BUDGET: ~,~<~:~/__~ __ ~~ - CO~CIL P~S~ENT: "~'~ ~COMMENDED MOTION: Move to reassign the Pay B~d for Director of Fin~cial Se~ices from Pay Band 19 to Pay B~d 20 of the Management PI~ Plan, and to confi~ ~d approve the hiring of Laura S. Lyon as Director of Financial Se~ices at Pay Step 8 of B~d 20. COUNCIL ACTION: [] Approve [] Deny [~] Table [] Continue [] No Action *FINANCE DIRECTOR September 2004 JURISDICTION Population JOB TITLE MIN MAX Auburn 45,355 Finance Director 7,202 8,853 Bellingham 69,850 Finance Director 7,662 Burien 38,700 Fin. & Admin Svcs. Director 6,851 8,329 Edmonds 39,580 Admin. Svcs. Director 7,903 9,879 Kirkland 45,630 Finance Director 7,622 9,834 Lacey 32,240 Finance Director 7,878 Lakewood 58,940 Finance & Systems Director 6,763 8,410 Longview 35,290 Finance Director 5,420 7,317 Lynnwood 34,500 Finance Director 7,415 9,380 Puyallup 35,490 Finance Director 6,328 8,226 Redmond 46,480 Finance Director 7,440 10,471 Shoreline 52,730 Finance Director 7,193 8,751 University Place 30,720 Finance Director 6,123 7,750 Bremerton 38,700 Financial Svcs. Director 6,276 7,646 Average 6,878 8,599 Median 7,022 8,370 Based on max salary, Bremerton ranks 13th out of 14 cities surveyed. *Taken from AWC 2004 Salary survey 6 · AUDA . S . LYON, CPA Strong public utihty experience as the chief financial offices. Excellent communication skills that are regularly utilized in presentations to a governing board, fiae general pubhc, and various business underta'kings. Responsibiliues have been expanded beyond traditional fmanciai officer duues to include work on strategic issues such as long term power sale contracts, fiber opUc business expansion, and FERC hydro relicensing. Effective leadership sMlls based upon clear communicaUon, accountablilitT, and personal enthusiasm and focus. PROFESSIONAL EXPERIENCE Public Utility District No. 2 of Grant County P.O. Box 878, Ephrata, Washington 98823 Assistant GeneraJ Manager and Chie£Financial Officer- May 2004 to Present Treasurer/ControZler and Division Director - December 2001 to April 2004 Co~troHer/Depury Treasurer - April 1997 to December 2001 Ctu'efAccountant - 1994 to 1997 FinanciM A~alyst-1991 to 1994 Accountant (Jr. tl~rougt~- Acct. 1) - ~9a6 to 1991 Public UdliU, District No. 2 of Grant County is a municipal corporation in the state of WasbSngton. The District is a major generating utihtT t~at owns and operates two large hydroelectric power plants on fl~e Columbia R/vet. The District's electric system operates 3,913 m/les of lines and serves approximately 40,000 retail customers. The telecommunication system provides xvholesale fiber optic services to many areas of Grant County and is currently expanding to meet demand. Tlae District's operating budget is approximately ~/300 annually and employs approximately 475 fall me regular employees. Current duties as Assistant General Manager and Chief Financial Officer include leadership for 75 individuals in the Strategic Operations Divisions of Accounting & Finance, Strategic Planning, Power Management, and Commu~cations & External Affairs. As the Cliief Financial Officer provides technical oversight and direction to ensure compliance witb debt covenants, power sales contracts, and regulatoU, requirements. Responsible for the satisfactory' complete'on of all external financial reports and audits. Perform cash management and investing of all District and Trustee held funds. Responsible for the development of fl~e District's budget, financial forecasts, and retaiJ rates - ensuring revenue reqmrements are adequately met and financial parameters maintained. Develop financial planning scenarios to analyze issues, present alternative solutions, or to describe financial consequences of proposed actions. Member of the District's senior management team which is comprised of the ten Division Dn'ectors, [xvo Assistant General Managers, and the General Manager. Regularly represent the Disuict in negotiated financings, regional forums on specific utilfit matters, and in punic workshops and Cornmissmn hexrings. KESUN,EB OF I~\U~{_% LYON PAGE 1 ON 2 7 · Semor Managemen~ Team - Estabhsh policy and oversight for ~ u~, ~unc~ons · Budget, Forec~sm~g & Strategic Planning = ~ods, Business Pl~nning, Future ~;orld Scenmos~ Average District Budget oF ~300 ~on · Ret~U R.tes - Desi~ & Implement~6on · ~encrM Accoun~ng ~ Tre~sm~ Operations - Financial Reporting end Cash M~nagemen[ ~sk M~n~ement - Energy ~sk M~n~gemem ~nd Insurance Cl~s & A&mnism~on Seidman & Seidman BDO, CPAs 601 West ~verside Avenue ~ Suite 900, Spohne, Washington 99201 Junior Accountant - 1984 to Accounting Intern - 1983 to 1984 , Conducted Au&ts O f Pubic & Private Compares Financial Statemem Development And Disclosures Inmrnsl~p Dmmg Co,ese Perfo~ng Tax Work And Financial Se~lces CERTIFICATION AND PROFESSIONAL MEMBERSHIPS Cer~fied Pubic Accountant ~ the State of~Vasl~ngton - ~cense ~ 10450 Member of fl~e ~Vast~gton State SocieS~ of CPA's P~esident (2004) - Umted Way Board of Dkectors for Grant Member o~ fl~e F~ance Office~s Co~ttee of flue Was~gton PUD Association Accoun~g & Finance Co~ttee Member - American Pubic Power Assodafion EDUCATION Eastern Washington University Cheney, Washington 99004 Graduated June 1984 23../1. Business Administration, Major - J~rofessional Mccountineg · G=ad~ated Cum Laurie ~ GPA 3.6 · Completed Four Year Degree in Three Years · BetaAlphaPsiAccoun~xgSocieq~- 19$4Member Of TheYear Reference sheet provided upon request. ILESUME OF LAU1L~_ LTON PAGE 2 OF 2 8 DATE SUBMITTED: October 21, 2004 BILL AGENDA BILL CITY OF BREMERTON ~ CITY COUNCIL SUBJECT: Public Hearing & Ordinance Committee Meeting Date: October 27, 2004 Establishing the Property Tax Levy Amounts COUNCIL MEETING Date: 11/3/04 & 11/17/04 to be Collected in 2005 Department: Financial Services Presenter: Michael R. Wilson Phone: 473-5590 SUMMARY: This ordinance will establish the regular property tax levy in the mount of $5,275,463 and EMS levy in the amount $873,482 to be collected in 2005 which represents a percentage increase of 1.0% from the previous year. In addition, the Ordinance will establish an excess property tax levy in the amount of $912,030 for debt redemption of the voter-approved 2002 Public Safety UTGO Bonds and $150,085 for debt redemption of the voter-approved t 997 UTOO Fke Refunded Bonds. ATTACHMENTS: Property Tax Ordinance FISCAL IMPACTS (Include Budgeted Amount): The above noted levy amounts are included in the Proposed 2005 Annual Budget APPROVALS: DEPARTMENT DIRECTOR: [..~____ ___~-~ · CITY ATTORNEY: (.] FINANCE DIRECTOR: MAYOR: ( -- ~,, - . CONSENT AGENDA [] OPERATIONS: COUNCIL PRESIDENT: RECOMMENDED MOTION: I move to approve an ordinance on first reading setting the property' tax levy amounts to be collected in 2005. I move to pass Ordinance # on second reading. COUNCIL ACTION: [] Approve [] Deny [] Table [] Continue [] No Action 9 ORDINANCE NO. AN ORDINANCE of the City Council of' the City of Bremerton, Washington, establishing the amount to be collected in 2005 by taxation on the assessed valuation of taxable property within the City limits of Bremerton and setting the property levy rate. WHEREAS, the City Council of the City of Bremerton attest that the population of the City of Bremerton for 2004 is 36,840; and WHEREAS, the City Council of the City of Bremerton has properly given notice of the public hearing held on November 3, 2004, to consider the City's revenue sources for the City's General Fund budget; and WHEREAS, the City Council of the City of Bremerton after hearing and duly considering all relevant evidence and testimony presented, has determined that the City of Bremerton requires a regular levy in the amount of $5,275,463 and EMS levy in the amount of $873,482, which includes an increase in property tax revenue from the previous year, and amounts resulting from the addition of new construction and improvements to property and any increase in the value of state-assessed property and all allowable levies, and amounts authorized by law as a result of any annexations that have occurred and refunds made, in order to discharge the expected expenses and obligations of the City and in its best interest; NOW THEREFORE, THE CITY COUNCIL OF THE CITY OF BREMERTON, WASHINGTON, DOES HEREBY ORDAIN AS FOLLOWS: SECTION 1. That an increase in the regular property tax levy is hereby authorized to levy property taxes to be collected in 2005 in the amount of $5,275,463 which represents an increase of $51,752 at a percentage increase of 1.0% from the previous year. This increase is exclusive of additional revenue resulting from the addition of new construction and improvements to property and any increase in the value or state assessed property, and any additional amounts resulting from any annexations that have occurred and refunds made. SECTION2. That an increase in the EMS property tax levy is hereby authorized to levy property taxes to be collected in 2005 in the amount $873,482 which represents an increase of $8,569 at a percentage increase of 1.0% from the previous year. This increase is exclusive of additional revenue resulting from the addition of new construction and improvements to property and any increase in the value or state assessed property, and any additional amounts resulting from any annexations that have occurred and refunds made. SECTION3. That a property tax levy for debt redemption of the 2002 Public Safety UTGO Bonds, as previously authorized by the voters, is hereby authorized to levy property taxes to be collected in 2005 at a rate sufficient to provide $912,030 needed to meet debt service obligations in 2005. 1 2005 Taxes 20 .SECTION 4. That a property tax levy for debt redemption of the 1997 UTGO Fire Refunded Bonds, as previously authorized by the voters, is hereby authorized to levy property taxes to be collected in 2005 at a rate sufficient to provide $150,085 needed to meet debt service obligations in 2005. SECTION 5. Severabilit¥. If any one or more sections, subsections, or sentences of this Ordinance are held to be unconstitutional or invalid, such decision shall not affect the validity of the remaining portion of this Ordinance and the same shall remain in full force and effect. SECTION 6. Effective Date. This ordinance shall take effect and be in force ten (10) days from and after its passage, approval and publication as provided by law. APPROVED by the City Council the day of _, 2004 PASSED by the City Council the day of ., 2004 DAREN NYGREN, Council President Approved this day of ,2004 CARY BOZEMAN, Mayor ATTEST: APPROVED AS TO FORM: PAULA JOHNSTON, City Clerk ROGER A. LUBOVICH, City Attorney PUBLISHED the day of ., 2004 EFFECTIVE the day of _, 2004 ORDINANCE NO. R:\LEGAL\Ordinances\Finance~2005 Property Taxes.ord.doc 2 2005 Taxes CITY OF BREMERTON Regular Levy - Tax Year 2005 Previous Year Amount 5,175,219 Highest allowed levy since 1986 5,175,219 1.01000 Increase = 5,226,971 Difference: 5,226,971 -5,175,219 = 51,752 New Construction AV 16,015,597 Annexations/New Construction AV 0 New Construction Before Annex 16,015,597 x Prior rate 3.027784 48,492 Current Utilities AV 65,996,367 Prior Utilities AV 65,996,367 Change in Utilities AV 0 x Prior rate 3.027784 0 Total AV 1,860,078,939 REGULAR TAX LIMIT 5,275,463 Annx AV 0 x Calc/Max rate 2.836150 0 AV Before Annx 1,860,078,939 LIMITFOR ANNEXATION 5,275,463 Budget 0 Tax Refund 0 Override Budget 5,275,463 LEVY LIMIT AMOUNT 5,275,463 5,275,463 (2005)- 5,175,219 (2004) = 100,244 CITY OF BREMERTON EMS Levy - Tax Year 2005 Previous Year Amount 854,856 Highest allowed levy since 1986 856,905 x 1.01000 Increase = 865,474 Difference: 865,474 - 856,905 = 8,569 New Construction AV 16,015,597 Annexations/New Construction AV 0 New Construction Before Annex 16,015,597 x Prior rate .500000 8,008 Current Utilities AV 65,996,367 Prior Utilities AV 65,996,367 Change in Utilities AV 0 x Prior rate .500000 0 Total AV 1,860,078,939 REGULAR TAX LIMIT 873,482 Annex AV 0 x Calc/Max rate .469594 0 AV Before Annx 1,860,078,939 LIMIT FOR ANNEXATION 873,482 Budget 0 Tax Refund 0 Override Budget 930,039 LEVY LIMIT AMOUNT 873,482 873,482 (2005) - 856,905 (2004) = 16,577 DATE SUBMITTED: October 27, 2004 BILL # AGENDA BILL CITY OF BREMERTON CITY COUNCIL SUBJECT: Public Hearing and Ordinance Committee Meeting Date: Sept 7, 2004 adopting new 2004 Bremerton COUNCIL MEETING Date: November 3, 2004 Comprehensive Plan and rescinding existing Department: Community plans. Development Presenter: Chris Hugo Phone: 473-5243 SUMMARY: The proposed ordinance adopts the new 2004 City of Bremerton Comprehensive Plan. The Comprehensive Plan is the result of nearly three years of community participatory activity conducted under the City's Shaping Bremerton "Public Participation Program" adopted by Council in 2002 to guide development of the Plan. The proposed new Plan represents a completely new direction for the development of the City over the next 20 years and relies on a growth strategy that employs new "centers" of growth as a primary method for bringing new vitality to Bremerton. The 2004 Comprehensive Plan meets all requirements for updating comprehensive plans under the Growth Management Act (GMA). The GMA sets a deadline of December 1, 2004, for plan updates. The ordinance also rescinds all prior plans that are inconsistent with the direction of the new Plan. ATTACHMENTS: Drat~ 2004 Bremerton Comprehensive P~a~ Supplemental EIS (g~po,¢gd-¢[y 1'5o 0cc Staff Report FISCAL IMPACTS (Include Budgeted Amount): No immediate direct impacts, although the proposed Plan, in time, should produce higher efficiencies in service delivery and attract new growth and investment to generate additional local tax revenues APPROVALS: DEPARTMENT DIRECTOR: CITY ATTORNEY: FINANCE DIRECTOR: MAYOR: FISCAL/BUDGET: q/'1/°5~ CONSENT AGENDA [] OPERATIONS: [Je~ rd q/~ /o ~ COUNCIL PRESIDENT: , ,L~,~ RECOMMENDED MOTION: Move to approve an ordinance adopting the new 2004 Bremerton Comprehensive Plan on first reading. Move to pass Ordinance # on second reading. COUNCIL ACTION: [] Approve [] Deny [] Table [] Continue [] No Action ORDINANCE NO. AN ORDINANCE of the City Council of the City of Bremerton, Washington, adopting a new Bremerton Comprehensive Plan. WHEREAS, the City of Bremerton adopted a revised Comprehensive Plan in 1995; and WHEREAS, the Growth Management Act of 1990 (GMA) requires update of the Comprehensive plan by December 1, 2004; and WHEREAS, the GMA established statewide goals, guidelines, and procedural requirements to guide the development, coordination, implementation and financing of long- range comprehensive plans; and WHEREAS, in 2002 the City initiated a public process to create an entirely new Comprehensive Plan to pursue a more effective growth strategy; and WHEREAS, the new plan process was based on a land use inventory, a build-out analysis, and the City's capacity to deliver urban services to support desired growth; and WHEREAS, the new plan process was guided by the GMA as well as centers growth strategies adopted by the Puget Sound Regional Council and in updated Kitsap Countywide Planning Policies; and WHEREAS, the Shaping Bremerton public participation program was established in 2002 and directly guided the review of the t 995 Comprehensive Plan and the drafting of a new plan; and WHEREAS, all preliminary Comprehensive Plan drafts were openly discussed during a series of advertised public meetings before being forwarded to the Planning Commission; and WHEREAS, a Citizens Coordinating Council comprised of active Shaping Bmmerton participants deliberated many months during 2003 and 2004 in helping to prepare a draft Comprehensive Plan ("Draft Comprehensive Plan" or "Plan") for the Bremerton City Planning Commission's consideration; and WHEREAS, in accordance with RCW 43.21(c) and WAC 197-11, a draft Supplemental Environmental Impact Statement (SEIS) was filed on October 22, 2004; and 1 2004 Comprehensive Plan WHEREAS, copies of the Draft Comprehensive Plan and SEIS were made available to citizens and organizations and were distributed to local jurisdictions, libraries, and state agencies for the mandatory sixty-day review period; and WHEREAS, following the required comment period, the final SEIS based on the draft SEIS dated October 22, 2004 (incorporated herein by reference) was issued on November 24, 2004, and became final on December 1, 2004; and WHEREAS, the Bremerton Planning Commission held public study sessions and public hearings on the Draft Comprehensive Plan ("Draft Comprehensive Plan" or "Plan") as presented by staffand the staff report dated July, 15, 2003, as initially presented and subsequently updated (the updated staff report hereby incorporated by reference), before finalizing the Draft Comprehensive Plan and recommending it to the City Council; and WHEREAS, the Bremerton Planning Commission held numerous public hearings on the Draft Comprehensive Plan which concluded on May 18, 2004, at which time the Commission approved a preliminary recommended Draft Comprehensive Plan with revisions as reflected in the updated staff report and updated Plan; and WHEREAS, the Bremerton Planning Commission held an additional public hearing on October 26, 2004, and after considering the public input, the presentation from staff, the updated staff report on the Plan and the updated Draft Comprehensive Plan as presented, (attached hereto as Exhibit A and incorporated herein by reference), and following Commission deliberations, the Commission approved a final Draft Comprehensive Plan as presented for recommendation to the City Council for adoption; and WHEREAS, the Bremerton City Council held public study sessions and public hearings, considered the public input, the presentation from staff, the updated staff report on the Draft Comprehensive Plan, the hearings records and the Planning Commission recommendation on the Draft Comprehensive Plan as set forth in Exhibit A; and WHEREAS, the Bremerton City Council finds that the Draft Comprehensive Plan as recommended by the Planning Commission meets the goals and intents of the Growth Management Act; is consistent with the Puget Sound Regional Council's regional growth strategy based on Centers; is fully consistent with Kitsap County Countywide Planning Policies; reflects the early, open and continuous input of Bremerton citizens through the Council-approved Shaping Bremerton Public Participation Program; is supported by environmental analyses that conclude that the Plan's centers growth strategy offers environmental benefits; furthers the City's interests in efficient delivery of urban governmental services; and offers expanded choices for housing, transportation, and economic growth, consistent with the quality of life values of the community; NOW THEREFORE, THE CITY COUNCIL OF THE CITY OF BREMERTON, WASHINGTON, DOES HEREBY ORDAIN AS FOLLOWS: 2 2004 Comprehensive Plan SECTION 1. Findings and Recitals Incorporated. The findings and recitals set forth above are hereby incorporated by reference. SECTION2. New Bremerton Comprehensive Plan adopted. The Draft Comprehensive Plan attached hereto as Exhibit A as recommended by the Planning Commission, is hereby adopted as the new Bremerton Comprehensive Plan. SECTION3. 1995 Comprehensive Plan superseded. The 1995 Revised Comprehensive Plan (as adopted by Resolution No. 2508 and thereafter amended by Resolution Nos. 2702 and 2752 and Ordinance Nos. 4525, 4545, 4570, 4572, 4594, 4597, 4606, 4707, 4544, 4722, and 4783, and any other resolution or ordinance not referenced herein amending the 1995 Revised Comprehensive Plan) is hereby superseded and replaced and of no further force or effect by the adoption of the new Bremerton Comprehensive Plan pursuant to this ordinance. The fact that the 1995 Revised Comprehensive Plan is superseded and replaced herein does not repeal or affect the existence or validity of the resolutions or ordinances referenced in this section relating to the adoption and amendment of the 1995 Revised Comprehensive Plan. SECTION 4. Savings Clause. In the event of a conflict between the provisions of this ordinance and the comprehensive plan as adopted by this ordinance and the provisions of any previously adopted resolution or ordinance, the provisions of this ordinance and the comprehensive plan as adopted herein shall prevail. SECTION 5. Severabilit¥. If any one or more sections, subsections, or sentences of this ordinance are held to be unconstitutional or invalid, such decision shall not affect the validity of the remaining portion of this ordinance and the same shall remain in full force and effect. SECTION 6. Effective Date. This ordinance shall take effect and be in force ten (10) days from and after its passage, approval and publication as provided by law. APPROVED by the City Council the day of ,2004 PASSED by the City Council the day of ,2004 DAREN NYGREN, Council President Approved this day of ,2004 CARY BOZEMAN, Mayor 3 2004 Comprehensive Plan ATTEST: APPROVED AS TO FORM: PAULA JOHNSTON, City Clerk ROGER A. LUBOVICH, City Attomey PUBLISHED the day of ,2004 EFFECTIVE the _day of ,2004 ORDINANCE NO. R:\LEGAL\Ordinances\Community Development\2004 Comp PLan Adoptionl.doc 4 2004 Comprehensive Plan ~.7 The City of Bremerton DRAFT COMPREHENSIVE PLAN Picture taken from the Environmental Review Station, At the "Charette: Mapping Our Future" Event, April 2002 The complete, comprehensive recommendation of the City Planning Commission, developed through the "Shaping Bremerton" Comprehensive Plan Update Process, 1/16/2002 - 10/26/2004. EXHIBIT A To Comprehensive Plan Ordinance No. The City of Bremerton DRAFT COMPREHENSIVE PLAN TABLE OF CONTENTS I. Introduction to the Plan, "The Planning Framework", including Eventual Growth Map II. Community Character, Summary of the Plan, including Design Review Goals and Policies III. Land Use Element, including Open Space Map (pg. LU24) and Land Use Map (pg. LU44) IV. Housing Element V. Transportation Element VI. Environment Element VII. City Services Element, VIII. Technical Appendices, including Land Use, Transportation, Housing, and City Service Appendices, as well as the Public Participation Program for the "Shaping Bremerton' process, January 2002 - December 2004. Bremerton Comprehe~sive Plan Page 1 INTRODUCTION TO THE PLAN: "The Planning Framework" This comprehensive plan is the umbrella policy document that guides virtually ali decisions made by city gove~mment - and in many cases - by local organizations and individual citizens. ~l'£m~,J~toFt it seeks to assure that each community decision, expenditure, and action is consistent with our shared vision, values, and goals. What makes Bremerton a special place - a place that attaches itself to the hearts of its citizens ? What makes people want to become part of this community? What attracts new vigor and activity to our community? What are the qualities that make Bremerton unique in the world and special to its citizens - both new and old? Although the answers to these questions are, in many ways, unique for each individual, there is evidence that core values are held by most community members. These values provide a sense of membership in a stable supportive communihy - a sense that is absolutely necessary for a satisfying life. Local core values define the positive .community we see about us today and the community that we wish to preserve and enhance for the future. Our collective vision for the fitture, built on these values, ensures 'that every decision we make brings us closer to that future - not farther away. Comprehensive planning is about identifying such community values and agreeing on strategies to maintain them, improve them, and adjust them to the new realities of the future. Following an overarching Plan assures efficiencies, reduces steps in the wrong direction, and coordinates decision-making to the community's desired outcomes. Introduction- 1 Ci~d of Bremerton Comprehensive Plan Page 2 Making Vision Into Reality: might be implemented by policies requiring Comprehensive Planning pedestrian linkages be~veen housing and shopping areas, specific types of pedestrian The construction of this plan is hierarchical - features, or architectural compatibility between each layer linked to and dLrectly related to the commercial buildings and surrounding uses. previous layer. One way to understand the Comprehensive Plan is to see it in the form of At the very bottom of the inverted pyramid are an inverted pyramid, the regulations, budget decisions, and programs that the City adopts and employs in Planning's Inverted Pyramid daily operations. Continuing the example, this level might include the adopted zoning Community Vision regulations allowing commercial uses with2n each neighborhood, City budget items for street GENERAL VISION furniture or pathway improvements within the Community Goals new mixed use neighborhood, or design review standards that ensure compatibility of Community Policies commercial uses in a residential area. Community-based/ The pyramidal organization communicates the Regulations, / essential, democratic nature of planning. The ~ Budgets / pyramid describes a public process in which refine it in increasing detail to the point that policy and regulato~' guideI/nes are provided SPECIFIC ~ ACTION to public officials. Each policy is based on community goals, and each community goal is based in turn, on community' vision. The Inverted Pyramid Model demonstrates two At the top of the pyramid is the statement of very important things: 1) how the community's communit3~ values contained in a vision vision is translated to action, and 2) the basis. statement. The vision statement expresses for the regulations, budget decisions, and citizens' wishes for the future in a general programs that the City should implement. sense. It is the basis for all that follows. The Comprehensive Plan completes the first Moving down the pyramid, one finds a set of three levels of the inverted Planning Pyramid. more specific goals. These goals give additional It is based on community vision statements that focus and detail to the vision. For example, if grew out of intense participation by a wide- the vision is for convenient neighborhoods, a range of community members. Its planning goal might be to encourage small scale goals were developed by a working committee shopping and services within easy walking of citizens. Finally, the plan adds detailed distance of residences, policies that the comrmttee leaders felt Farther down in the inverted pyramid model, provided for implementation. there are more specific statements called The Plan sets the stage for the final, most policies. Policies detail the kind of actions that detailed, level of community work depicted in it will take to accomplish the goal, essentially the pyramid. This final stage is the adoption of providing the "means" for the "ends" regulatory, budgetary, and programmatic tools suggested in goal statements. For example, the that fully implement the Plan. This final stage goal to encourage services near neighborhoods will follow adoption of the Plan. introduction-2 21 City of Bremerton Comprehensive Plan Page 3 The Format and Form of the Comprehensive ~ Plan In addition to the primary task of implementing the community's vision for the future, the comprehensive plan must also respond to the real challenges facing a The Growth Management Act community. In other words, the goals and policies must address the obstacles and actual In 1990, the Washington State LegislaVare conditions that are predicted to face the passed the Growth Management Act, largely as a response to the realization that "business as conununity as it attempts to move toward its usual" was leading to significant problems. The desired future. How many people will come to live in the community? What will traffic be GMA provides a framework for communities to address the challenges of growth in a more like? What types and amounts of housing will realistic and sustainable way. It also recognizes be required? What services will be needed? that central issues exist for all communities and How will the costs of development be covered? that these issues have implications for the State The goals and policies contained in this plan as a whole. At the heart of the GMA is a respond to these challenges, requirement that each cornmunity deal with the trend of sprawling development patterns. It The Plan is organized into seven chapters recognized that urban sprawl is central to the called elements . Pmnarily, this organization . . , responds to requirements of the State of problems that are facing Washington s communities, including rising traffic Washington's Growth Management Act (GMA or Act) which asks that each community plan congestion, environmental degradation, loss of the natural resource lands, and costly create an element to address the areas of Land regulatory/property rights conflicts. Use, Transportation, Housing, Utilities, Economic Development and Capital Facilities. The Growth Management encourages each In response to community input, Bremerton's community to respond to these issues (and plan addresses the areas of uiillties and capital others) in a way that is consistent with its facilities within a single element entitled City unique needs and community vision,.values, Services and adds an Environment Element which is not specifically required under GMA. and goals. The Act also encourages the creation of local plans that address key values After leading with a vision statement for that of the people of the State as a whole with subject area, each Plan Element includes coordination from one jurisdiction to the next. sections describing current conditions, changes An important measure to assure this planning that are expected, needs, and projected approach is the requirement that all plans conditions. This information presents the basic constructed u~der GMA address the following challenges that the goals and policies must subsequently address in pursuit of the 13 basic planning goals. community's vision. Introduction-3 22 City of Bremerton Comprehensive Plan Page 4 The Thirteen Basic Goals of GMA, Environment. Protect the environment and Hereby endorsed by this Plan: enhance the state's high quality of life, including air and water quality, and the Urban Growth. Encourage development in availability of water. urban areas where adequate public facilities Citizen Participation and Coordination. and services exist or can be provided in an Encourage the involvement of citizens in the efficient manner, planning process and ensure coordination Reduce Sprawl. Reduce the inappropriate between commurdties and jurisdictions to reconcile conflicts. conversion of undeveloped land into Public Facilities and Services. Ensure that sprawlLng, Iow density development. Transportation. Encourage efficient those public facilities and services necessary to support development shall be adequate to multimodal transportation systems that are based on regional priorities and coordinated serve the development at the time the with county and city comprehensive plans, development is available for occupancy and Housing. Encourage the availability of use without decreasing current service levels affordable housing to all economic segments of below locally established minimum standards. the populal2on of this state, promote a variety Historic Preservation. Identify and encourage of residential densities and housing types, and the preservation of lands, sites, and structures encourage preservation of exisffng hsg. stock, tt?_t...h..a..v_~_.~h~.s_?_{!~..~.~_c_~.a.e_.o_.l_o.~_c.~l~._s.!~_i.~ance. Economic Development. Encourage economic development throughout the state that is consistent with adopted comprehensive plans, promote economic development opportunity for all citizens of the state, especially for unemployed and for disadvantaged persons, and encourage growth in areas experiencing insufficient economic growth, all within the capacities of the state's natural resources, public services, and public facilities. Property Rights. Private property shah not be ~,. taken for pubhc use without just compensation ight f having been made. The property r s o landowners shall be protected from arbitrary and discriminatory actions. Permits. Applications for both state and local In addition to responding to these thirteen permits should be processed in a timely and goals, the GMA asks that each community address certain additional core issues. Some of fair manner to ensure predictability. Natural Resource Industries. Maintain and the key issues addressed by the Plan and enhance natural resource based industries, required by GMA are discussed in the including timber, agricultural, and fisheries following sections: industries. Encourage the conservation of Citizen Participation Protection of Natural Resources/Critical Areas productive forest lands and productive Urban Growth Areas agricultural lands, discourage incompatible Coordinated Policies uses. Concurrency and Levels of Service Open space and Recreation. Encourage the retention of open space and development of Agency Compliance recreation opportunities, conserve fish and Relationship to Regulations wildlife habitat, increase access to natural Periodic Review and Update of the Plan resource lands and water, and develop parks. Introduction-4 City of Bremerton Comprehensive Plan Page 5 Citizen Participation The Act requires "early and continuous" citizen participation throughout the planning process. The first comprehensive plan developed in response to the Act, Bremerton's 1995 Comprehensive Plan, was adopted through an intensive citizen committee process. The preparation of this 2003 Plan Update was again guided by community participation, following the Coundl-approved Public Participation Program, found in Appendix X. The vision statements and the f~ndamental goals and policies of each element, forming the basis for the entre updated Plan, were developed by open-membership citizen committees following Coordinated Policies workshops held around the city. Moreover, Cities and counties are required to work numerous public events, including a Design together to establish Countywide Platming Charette highlight~g mapping ideas, were Policies, which provide a regional policy held throughout the update process to allow framework. By working to assure that their the broader community to comment on the plm-rs address a common framework, work of the citizen committees. Finally, neighboring jurisdictions create consistency adoption of the plan, is accomplished only after between their plans. This interjurisdictional intensive public hearings before the Bremerton consistency meets the requirement of the plarming Commission and the City Council. Growth Management Act and also provides benefits to each community. These benefits Protection of Natural Resources and include less conflict between the activities and Critical Areas decisions of one jurisdiction to another, more The Act requires jurisdictions to identify and predictable regulatory environments across protect steep slopes, wetlands, aquifer recharge political boundaries, and a more coherent and areas, fish and wildlife habitat, and other understandable growth s~rategy. critical areas as well as forest, agriculture and mineral resource lands. The Kitsap County-wide Planning Policies are included in the technical appendices that Urban Growth Areas accompany this Plan in Appendix XX CWPP. Following suggestions from its cities, Kitsap County was required to identify existing urban areas, determine 20-year urban growth needs, and establish Urban Growth Areas (UGA's) as needed to accommodate urban growth. The existing cities and UGA's are intended to accept the vast majority of the County's new growth, as directed by the Countywide Planning Policies, thus relieving development pressures in rural areas. These policies now include the challenge to associate all UGAs with the long-range growth of incorporated cities in Kitsap County. Introduction-5 24 City of Bremerton Comprehensive Plan Page 6 Concurrency and Levels of Service Plans must be realistic and workable. Providing for new development, the Plan must indicate how the needed public services and utilities will be provided within a reasonable amount of time. If adequate public resources are not identified in the Plan, development can not be allowed. Agency Compliance Not only are local plans required to be In order to deal with traffic and congestion that consistent with each other, but State agencies results from new development, transportation are also required to comply with local plans planning requirements now include the and development regulations. measuring of Levels of Service (LOS). The Level of Service measurement for Relationship to Regulations transportation planning requires an account of Land use regulations, such as Zoning the current, expected, and acceptable levels of provisions, are the primary tools that congestion and service qualities for the local implement the Comprehensive Plan. commurdty. There must be discussion within Therefore, they must be consistent with the the community that leads to adoption of future Plan. If the Plan shows high-density residential standards and a plan that assures that - as development in a particular location, the development occurs -the adopted standard will Zoning Map should also accommodate such. If not be violated. This is called the concurrency the Plan calls for street development standards requirement. Plans may also require that other within Iow-density neighborhoods, urban services, such as police protection, water these standards must be crafted, adopted, and and sewer service, library services, etc., be applied as new development occurs. maintained at a LOS set by the community, "concurrent" with growth. Periodic Review and Update of the Comprehensive Plan Following adoption of the updated Comprehensi-de Plan and related development regulations, the City will continually monitor their effectiveness and document needed amendments. A major review of the Plan is anticipated at five-year intervals while biannual amendments wfi2 be considered, in accordance with the process established in the Public Participation Program and in implementation regulations. Lntroduction-6 City of Bremerton Comprehensive Plan Page 7 The Parameters of Change: Population and Employment Growth Projections The population projection is guided by several key parameters. There must be consideration of past trends showing very little population growth in Bremerton over several decades. However, historical growth patterns are not consistent with local, regional, or State goals that include increasing proportion growth in existing urban areas. Under the Growth Meeting the Challenge of Growth Management Act, as well as the regional strategy agreed to within the Kitsap Count~T By state law, the Washington State Office of County-Wide Plannirtg Policies, stagnant Financial Management (OFM) is tasked with population levels within Bremerton will be providing a range of population projections for broken. Finally, this plan proposes changes in each county in the State. It is left to the County, corrtmunity design ethic, and emphasis on and the jurisdictions within it, to cooperatively regulatory incentives, which should attract decide where and how the population growth larger portions of projected population growth will be accommodated. This leads to questions to the City than in the past. about the portion of growth to be directed to cities and the capacity of urban services to The Plan's key urban design concept is "The accept growth. It should be understood from Centers Concept", detailed in the Land Use Element. Population growth for the City is the outset that the OFM growth range - while mandated by State law (GMA) - is quite broad, largely calculated on the ability of the strategically-placed-rnixed-use activity centers to attract new residential, comanercial and Kitsap County and its jurisdictions, including industrial uses. the City of Bremerton, agreed that each jurisdiction should conduct a community dialogue about its desired future, decide how it wants to grow, and calculate its ability to accommodate some portion of the county population allocation. Bremerton has conducted just such a process through this Plan's update. Citizens have clearly spoken regarding the type of future community they envision. The City has employed that vision to determine localions for new growth and set development intensities. The resultant land use map and policies accommodate new population growth and endeavor to attract new commercial and industrial activity. The following population projections grow out of that design and, in turn, guide the form and content o£ much of this Plan. Lntroduction-7 City of Bremerton Comprehensive Plan Page 8 Appendix LU includes five tables that more then looked at the relative availability of key specifically detail both the population and services such as water, sanitary sewer, storm employment projections that drive this plan. The sewer, and transportation at each proposed following is a summary only. center location. The proposed centers were "rated" as to what proportion of the full build Population and employment projections were out could be expected within the next 20 years. analyzed for 125 different zones in the city. For These calculations are reflected in Tables 1, 2, convenience and consistency, Transportation and 3 of Appendix LU. Analysis Zones (TAZs), used by Kitsap County, were employed for projections. Existing 2000 Population projections for the Employment statistics for each TAZ were projected forward Centers were based on discussions with the to the year 2023 - the end of the 20 year owners of the sites. A modest buildout of 750 plan_rffng horizon of tl~s plan. That projection persons was assumed for each employment was made by assuming that the rate of center over the twenty year plarmmg period. residential development in most TAZs would That number was assigned to the appropriate continue at approximately the same rate as TAZ. It should be noted that these calculations reflected by the 1995-99 growth. The viability of assume that no portion of the population in the this growth was checked by referring to the Employment Centers will occur within the first 2002 Kitsap County Buildable Lands Analysis. six years of the planning period. As a result, Analysis confirms that more than sufficient total population and employment figures developable property exists to accommodate employed for purposes of capital facilities this level of "background" growth throughout finm~ce planning - including that for the City of Bremerton and its Urban Growth transportation and growth flnpacts - do not Area. include any portion of the 1,500 additional people for growth expected in new centers. In addition to this "backgrotmd' growth, new Twenty year centers populations were employment and residential uses associated disaggregated to appropriate TAZs and added with expected buildout in "centers" were to the non-center population projection for the added in appropriate TAZs. Expectations for TAZ. This results in the final year 2023 . the new population in the centers were population projections for each TAZ, indicated calculated as follows: on Table 4 of the Land Use Appendix. Population projections for Neighborhood and Total projected City population in 2023 is District centers were based on commonly projected at just over 50,000 (Table 4, colurrm accepted models for the size and proportion of 10). This is an increase of approximately 13,000 residential uses in centers. The potential over the 2000 census figure of 37,165 for the residential acreage of each center was City. Of this increase, 7,574 people, or calculated. Multiplying each center's residential approximately 58 % of the growth, occur in the acres by assumed residential densities and new Neighborhood or District Centers (see household sizes yields a potenflal population Table 4, column 8). Population in the City's within the center at full build-out. The fail current UGA reaches over 58,500 compared to build-out was then reduced to a number that an estimated 2000 UGA population of 44,815. corresponds to the expected population growth within the twenty year planning time frame. Total Employment is calculated in essentially This step was accomplished through a the same manner. Year 2000 Kitsap County Geographic Information System/aerial photo TAZ employment data was used to make based analysis of the proportion of land within projections of year 2023 employment by the center that was undeveloped or applying the growth rate data from the significantly underdeveloped. The analysis Wash2ngton State Department of Employment Lntroduction-8 27 City of Bremerton Comprehensive Plan Page 9 Security. Employment forecasts for each center ~ were added to the appropriate TAZ. Appendix LU Table 5 provides the resultant projection for each TAZ. In sum, employment forecast indicates that overall employment in the City will rise from its current level of approximately 45,000 to approximately 54,000 jobs over the next twenty years. Of that total growth of 9,000 jobs, about 4,000 or 45% will be in the centers. Significant vacant and developable land area are provided for new employment generating activities. It should be noted that those areas are already part of the City. The projections employed by this Plan are the most accurate estimates possible of these key measures of the scale and scope of the future. These estimates are the result of employing base data that does not always match completely with the City's ideal needs and they utilize multiple steps that, in turn, rely on the best estimates available of projected growth rates. They further attempt to make predictions in a world affected by political and societal change that will happen in future years. One of the base rules of planning is that such predictions wkll need constant monitoring, reassessment, amd recalculation. introduction-9 28 City of Bremerton Comprehensive Plan Page 10 Eventual Growth Intent different growth future for the community. The City has a legitimate interest in land to grow - the future will not be a continuation of the past. Initially, growth will continue to focus on the There is a broadly-accepted notion - although a urbanizing neighborhoods at the edges of the greatly n~splaced one - that the growth of cities city, and these areas will put increasing is fueled by their "greed" for land and tax demands on City services. This pattern is most revenues. Geography and money do figure into evident along the Highway 303 corridor from the growth equation, but not in the way those East Bremerton to Silverdale where the capacity just outside the City may appreciate, and inertia for growth are greatest. Most of this large area was designated for urban growth in There are two prime reasons why cities may the County's 1998 Comprehensive Plan - some need to expand their city limits: 1) more land is of it in the East Bremerton Urban Growth Area needed because new people or businesses are (UGA) south of Riddell Road that was moving to the city and there is little available "assigned" to Bremerton, some of it in the Silverdale UGA, and much of it in a "non- land for development, and 2) the tax base of adjacent urbanizing areas that generate associated" UGA. The question that the "non- increasing demand on city services may be associated" UGA designation did not answer in needed to pay for those services. This.second that plan is, "What urban jurisdiction.should be reason - having the financial ability to dehver both responsible and accountable for the urban services to expanding urban areas - is delivery of required urban services to this perhaps the more significant of the two. A urbanizing area?" city's financial ability is driven by efficiency - efficiency determines the cost of services to Bremerton will be affected more by urban users and taxpayers, determines the level and growth levels outside its city limits than within quality of services delivered, and influences them for many years. With the continuing growth patterns and quality of life interests of urbardzaton outside the city comes increased the entire region. Bremerton's decision about demand for services. This demand wili be met growing into unincorporated areas is primarily somewhere, sometime, by someone. If not met one of cost-efficiency, locally, the demand £or some urban services such as neighborhood parks, schools and Bremerton did not grow in population for libraries will be satisfied by driving (or busing) several decades, and the loss of significant to other communities. Bremerton can Ln_rluence retaiJ activity was a part of this stagnation. The whether growth has positive or negative city's physical expansion could not be justified effects, and the degree of influence that can be by past growth trends. However, changing exercised is largely linked to who ultimately demographics, downtown revitalization, and assumes responsibili~, to plan for and provide regional growth policies suggest a much urban services. introduction-lO City of Bremerton Comprehensive Plan Page '11 the late '80s. It is the higher tax base - both in property and sales tax - of these con~mercial uses that helps pay for the urban services residents require. In addition to the City's existing Urban Growth Area, discussed in the Land Use Element, the City of Bremerton recognizes that its long-term health is tied to a larger area of interest, such as the Rocky Point Peninsula in West Bremerton. The Eventual Growth Intent Map on page INT13 depicts the C~ty area of long-term interest. The If land use patterns and intensity of development City recognizes the need for more detailed are not planned to promote efficient delivery of planning in such areas and coordination urban services, either of two things happens: 1) with Kitsap County. In addition, detailed levels of service decline, or 2) taxes increase. How analysis regarding the provision of urban does Bremerton insure efficiency if the city is not services in the City's UGA will be in control of the land use patterns that it is accomplished in the near future. In the assigned to serve? interim, this Eventual Growth discussion Service efficiency is determined by revenues and sections recognizes that the already urban or urbanizing areas in the County should, service costs. Service costs are a reflection of what under growth management precepts, be types of service and how much of those services associated with a city. The exist-ing are provided (commonly referred to as "level of Bremerton-associated Gorst UGA sets the service" or LOS). Set~ng level of service is one example with its inclusion in the City of side of a policy decision: "What LOS does the Bremerton's Urban Growth Boundaries. community expect for ~ts desrred quality of life. Th~s is answered by the public stating expectations The Barker Creek drainage area, just west of in the policies of the Comprehensive Plan. The the County Fairgrounds in East Bremerton, . other side is "How does the city afford to provide is designated as a non-urban environment that desired LOS?" This is answered by the City that could separate Bremerton and promoting "econorrtic" growth and development - Silverdale's long-term growth areas. This setting land use patterns, intensities and densities drainage feature is a valuable ecological in the Comprehensive Plan that allow service resource as it retains a vestige of the natural efficiencies and produce adequate city revenues to systems that prevailed across East maintain services at the desired LOS. Bremerton until suburbanization took hold ' in the 1970s. It also provides open space as a This discussion of eventual growth areas balance to the expanding urban areas, as recogrdzes that the entire urban area in central ' the Growth Mana Act. Kitsap County has a shared future. Routes of travel, responsiveness of emergency services, disposal of waste, opportunity for recreation, access to goods and services and all other urban functions are common to the entire East Bremerton area. Eventual addition of these areas to Bremerton's UGA and the incremental incorporation into the City will help the City recoup some of the retail activity that "bled" to the unincorporated suburbs, beginning in the introduction-Il City of Bremerton Comprehensive Plan Page 12 Bremerton's interface with Port Orchard City's UGA as that land is needed for reflects the natural separation created by additional growth. Depending on rates of Sinclair Inlet and the experience that visitors growth, these conversions may or may not have approaching Bremerton by car from the happen within the current 20-year GMA south. At Gorst, where two State highways planning horizon. The City of Bremerton meet, Port Orchard is behind the traveler and believes that such urbanizing areas around the the focus is ahead to Bremerton. Gorst is the City should instead be associated with its real entry to Bremerton. growth future, and will work toward demonstrating it's capacity to be the provider As Sinclair Inlet ends in the shallows of the of urban services to these areas. Gorst Creek inlet, the landscape continues south as a wide valley with an undulating floor Eventually, Bremerton's demonstration of along Highway 3. The existing Bremerton City ability to serve will answer questions left Limits follow the west side of the highway for unsettled in Kitsap County's 1998 several miles. The industriaI lands in this area Comprehensive Plan designation of UGAs provide some of the prime venues for the City's surrounding Bremerton - to who's future is this economic growth - they have excellent area fled, and who will provide the required transportation access, can be linked by transit urban services? to nearby residential growth areas, and are largely free of critical area lands. Between this area and urbanizing lands outside of Port Orchard, the SunnysIope rural area provides a beneficial separator between the two cities. By agreement among Bremerton, Port Orchard, and Kitsap County, the Surmyslope separator provides long-term certainty about each communi~,'s ultimate growth, without the need for either city to "push" its respective UGA in the short term to protect future interests. Initially, the portion of the Gorst area designated as a UGA in the County's 1998 Plan could be included in the Bremerton UGA. Over time, other unincorporated land between Gorst and Bremerton will be added to the Introduction-12 31 Fa~12004 City of Bremerton Eventual Growth Map Sh.p,ogB,eme~o. -- City Lim~s ~ ~ ~ i Feet ~ E~Jsting UGA boudarie~ 4,900 9.800 19,600 29,400 39,200 ~ Cit7 Fu'~ure UGA Prop~ 32 City of Bremerton Eventual Growth Pro Legend County Plan Desingations Interim Rural Forest ~ Open Space Parks .-,.~. ' ..... Rural Protec[ion r--~ RuralResidential ~:~:::*::'::::::;"::::~':' :::'::: ~ Urban Restricted Urban Study Area City Future UGA Proposal (2006) I I I I r [ r ] Feet 0 5,000 10,000 20,000 30,000 40,000 33 City of Bremerten Comprehensive Plan Page I COMMUNITY CHARACTER ELEMENT "This element aspires to summarize and clarify the issues of growth and to elevate the importance of planning of the city's physical future." The Vision for Bremerton's Future The citizens of Bremerton embrace their city, with pride in its assets and accomplishments, and with optimism about the opportunities it affords. Bremerton is a progressive, active city zoith diversity in its residents, and its economic, residential and recreational opportunities. Founded and shaped by a maritime legacy and its stunning natural environment, Bremerton's setting is unique and spectacular. Moreover, as the metropolitan center of West Sound, it provides a convenient middle ground between the regional amenities of Seattle and Tacoma and the recreational treasures of the Kitsap and Olympic Peninsulas. Bremerton's location provides both vistas of-- and unparalleled access to -- the metropolis and the wi[de,mess. While the city's location is ideal, the heart of the community is found in Bremerton neighborhoods and newly designated urban centers. Urban centers, servicing either a neighborhood, a larger community, or a largely employment focused settinb provide walking convenience to employment, recreation, amenities, goods, and se~'oices. Downtown is at the core of the inter-connected centers with a vibrant unique concentration of services, public resources, and attractions. In conjunction with building such mixed use urban settings, the qualities of single family areas and other cohesive and healthy neighborhoods will be preserved and protected. Bremerton promotes and encourages responsible business and professional services based on solid state-of-the-art- infrastructure. Technology and extensive transportation systems connect Bremerton residents and businesses to the world while flexibIe codes assist in the marketing of prime real estate for corporate and industrial developments. Healthy growth over the next twenty years will showcase Bremerton's opportunities, while preserving its assets, accomplishments, and the city's friendly, personable atmosphere. CCd 34 City ofBremerton Comprehe~tsive Plan Page 2 Introduction The City of Bremerton is emerging from a period of stagnancy, even losing population in the last decennial census, despite unprecedented growth in surrounding Kitsal0 County and the greater Puget Sound region. Previous comprehensive plans and city efforts to encourage growth in the city, such as enticing zoning capacities and plan compliance with the mandates of the The Community Character Element State's Growth Management Act, failed focuses on the physical result expected to attract significant new investment or from the implementation of this Plan. population to Bremerton. In the Its Goals and Policies frame the City's interim, planners and citizens alike have on-going discussion on the urban desioma recognized the many encumbrances to issues that citizens identified during the the city's growth. These include the creation of the overall Comprehensive lack of significant sized sites for Plan. Providing a discussion of the redevelopment, inflexibility in codes for desired look and feel of the "future creative development practices, and a ,, f Bremerton , readers o this Element are persistent negative perspective of best able to understand the common Bremerton as an obsolete commercial threads that wind through the hub. While addressing these particular remainder of the Plan's elements. encumbrances, the Comprehensive Plan introduces the Community Character The Community Character Element is element to ensure quality in the city's organized around the "themes" of the future development Shaping Bremerton update process: The Community Character Element calls 1. Distinctive Growth out the goals and polices from this 2. Enticing New Development Comprehensive Plan that focus on the 3. Supportive Transportation quality of future growth in Bremerton.. 4. Improved Accessibility Its is the response to the citizens call for 5. Quality Housing new growth to enhance and highlight 6. Business Support the extraordinary setting and well 7. Environmental Management documented quality of life enjoyed in 8. Community Service Bremerton. In sum, it provides citizens 9. Design Review and city officials the manner in which the city will grow, and, most specifically, a foundation to prescribe design parameters, incentive programs for new development CC-2 City of Bremerton Comprehensive Plan Page 3 Shaping Bremerton Themes standards - will ensure compatibility of new development with surrounding During the development of this qualities. This is particularly importmat in the newly designated "centers", Comprehensive Plan, citizens groups . created goals and policies related to which are strategic locations integrated functional subjects - such as land use, throughout the city to offer and promote transportation, economic development, higher density lifestyles. Transitional and the environment. The participants zones and designated buffering will of the public process soon realized a further protect the qualities of series of distinct themes emerging in exclusively residential-use this work. These themes, described neighborhoods from the mixed use below, encapsulate the community's centers, neighborhood activity areas, aspirations for the future. The and transportation corridors. following sections elaborate on those The city will demonstrate a leadership themes, attitude towards achieving cohesive, 1. Distinctive Growth, with Viable stable neighborhoods, with a majority of homeowners. The City will do this by Neighborhoods and Centers that delivering responsive public actions to provide greater choice and improve neighborhood policing, code convenience enforcement, and other public services. Communities (a collection of neighborhoods and activity areas) within the City will also enjoy new vibrancy with a wider v~iety in residential zoning designations. This will allow greater diversity of housing choices throughout the city, such as row-houses or new oversized houses that can accommodate multiple units, befitting the adaptive re-use of many of Bremerton's grand historic homes. Designated centers, as well as Bremerton's neighborhoods and traditional neighborhood businesses, communities direct the city's future will allow convenient commercial and growth. Their architectural styles and employment services, helping to reverse scales, established boundaries, and the loss of residents and commercial central features provide criteria for activity to other jurisdictions. At the organizing and designing new same ttrne, the City will be on guard development. Central features, such as a communit3 s viewshed, neighborhood against traffic impacts to neighborhoods. The City will establish park, or shoreline access - whether a traffic control program with standards existing or desired - will guide the for maximum desirable traffic volumes orientation of new buildings, facilities, and control responses, based on the and plans. Design elements used in severity of the disturbance to the new buildings - to be encouraged neighborhood. through new incentives in development CC-3 36 City of Bremerton Comprehensive Plan Page 4 For more information and specific dedicated public space, artwork, or policies, please see: special development incentives for retail Land Use Element, Goals LU1 and LU2; services along the ground floor of new Transportation Element, Goal T4 residential projects. Housing Element, Goals H5, H6, H7; Economic Development Element, Goal Parking availability for commercial needs is critical but must be ECl Environment Element Goals E8, E12; accompanied by increased sensitivity to City Services Element Goal CS19 arterial circulation and residential needs through efforts such as shared off-street parking facilities. This is particularly 2. Enticing new Development, with a important in pursuing a full-service Downtown Regional Center that will Focus on the Downtown Regional bring primary attractions to draw Center people back to downtown. An inventory of developable sites, with phased Lrffrastructtrre plmTs, will be established and monitored. In key areas for economic expansion, developable sites should be prequalified for environmental permitting as "planned actions." This strategy will extend to rehabilitation programs, such as grant The City of Bremerton will position funding to clean-up the City's itsel~ to attract development, especially challenging brownfield sites. Special opportunities for new employers. This accommodations, such as advanced requires the modification of existing utility planning and upgraded and the zoning categories' to provide sufficient availability of cutting edge technology, industrial, commercial, and mixed use will further encourage use of these sites. designations for business opportunities In capital improvement plans, the throughout the city. Newly designated allocation of city resources wllI centers will ensure appropriate locations strengthen the economic base, mostly by for business zoning, supported by a leveraging private investment whenever critical mass of customers and a quality possible - especially for projects that will setting for a mix of uses o_nd high diversify industrial and employment density residential development, enterprises in Bremerton. The proactive centers approach yields For more irdormation and specific immediate focus on downtown policies, please see: Bremerton as the Downtown Regional Land Use Element, Goals LU5 and LU6 Center. The mix of uses in centers Transportation Element, T13 emphasizes the need for design Economic Development Element, Goals guidelines and incentives to maintain a ECl, EC3 friendly, welcoming atmosphere. The Environment Element, Goal E city's unique marithne heritage will thus City Services Element, Goals CS9 and be highlighted through such things as CS21 CC-4 37 City of Bremen'ton Comprehensive Plan Page 5 3. Supportive Transportation, with 4. Improved Accessibility, especially Seamless, Efficient, and Varied for the Pedestrian Choices Bremerton's transportation system is well positioned for innovative development, especially expanded use of alternative travel options, enabled by existing transit and ferry system. Additionally, newly designated centers will be strongly characterLzed by walkable designs, with linkages to one another and integration into their surrounding corrtmunities. A non- motorized plan will emphasize safety on Bremerton's smaller city size and the trails, especially for bicyclists, with City's role as a regional hub, provide the engineered bike lanes and uniform foundation for an exemplary signage. Along the city's trail system, transportation system, with diverse and there will be new recreational convenient mobility options. The City opportunities, encouraging green-space of Bremerton will work with and open vistas as pleasant connections transportation providers to enhance throughout the city. Set-backs, services and facilities that build on that landscaping requirements, and diversity, reducing the dominance of stormwater drainage developed in single-occupant automob~Ies. The conjuction with trails, will further development review process itself will support these purposes. Likewise, incorporate transit, pedestrian, and non- street ends, parks, and open space will motorized transportation elements, offer special opportunities to improve requiring measures such as bus pull access to the shoreline for everyone's outk in the city's rights-of-way. Another enjoymentl review consideration will be minimal walking distance between buildings, For more information and specific streets, safe road crossings, and transit policies, please see: and transfer stops, especially within Transporation Element, Goals T2, T6, newly designated centers. Extensions of Tll existing pedestrian, bicycle, and grid Land Use Element, Goals LU3 and LU4 street systems will also provide frontage or parallel alternative routes, especially to regional transportation or mass transit corridors. Such corridors will be prioritized for expedient linkages between the downtown and other designated centers throughout the city For more information and specific policies, please see:Transporation Element, Goals T1, T6, T10 Land Use Element, Goals LU3 CC-5 38 City of Bremerton Comprehensive Plan Page 6 5. Quality Housing, with Broader Bremerton's unequal share of the regnon publicly subsidized (rental) Choices housing yields a weaker tax base despite the correlated need for community services. New strategies will focus on concentrated low quality housing areas as opportunities for revitalization of the City, including using subsidized rental housing as transitional housing for new, creative homeownership opportunities. Public resources will break concentrations of poverty to remove or The city will focus its housing programs abate blighting influences, with priority and investments in quality housing for to those instances which contribute to all residents. For example, the City will the blight of the city's neighborhoods. evaluate the credit-worthiness of a Rehabilitation of substandard structures structure before supporting its to be competitive on the market will rehabilitation, weatherization, or only occur when the cost of qualification for home ownership rehabilitation is less fftan the cost of programs. A higher quality housing replacement housing. The one stock will also result from the new City exception to this factor for furore codes encouraging a larger variety of funding efforts will be preservation new housing types. In these efforts, the work associated with structures of City will promote quality, affordable, historical/architectural significance. housing for all ages, family types, and incomes, including mid and upper Bremerton will promote private and income households. New creative · , public efforts to secure adequate capital housing projects, such as artist s lofts for affordable housing projects at and secondary dwelling units, will meet competitive and favorable market costs, the needs of special populations, with priority going to projects that including short term residents and advance owner-occupied units. Such citizens in need of transitional housing, projects will also benefit from the elimination of regulatory impediments The city will work through partnerships whenever possible, improved certainty that distribute quality below-market in development regulations, and an housing and pursue new capital for expedited permit process. Infill quality private and pubhc housing opportunities on vacant or projects done at favorable market costs underutilized parcels, to be built at the to ensure affordability. Priority, high end of allowed residential densities however, will be given to family in locations close to infrastructure housing in privately owned capacities and employment, will yield developments, containing a mix of cost efficiency, further benefiting new market-rate and below market rate developers and residents. units. Alternatively, new inter- jurisdictional pohcies will encourage For more information and specific publicly-owned subsidized housing to policies, please see: be dispersed and in small, Housing Element, Goals H1, H3, H5 neighborhood scale buildings. CC-6 39 Cit~d of Breme~on Comprehensive Plan Page 7 6. Business Support, with increased permit and development process and publish condensed development guides with greater clarity and sensitivity to customer needs. The City will be proactive in giving general education to property owners of development opportunities, especially when there are commercial interests for homeownership sites or improvements that can contribute to a marketable quality of life in existing neighborhoods. LLkewise, Bremerton's exceptional labor pool wLll be promoted by the City, with The City of Bremerton will grow a more support for worldorce training diversified economy, with greater programs and business training initiatives. opportunities for its businesses and residents. The city w~ll go beyond the For more information and specific marketing of its ~ralned labor force, convenient setting, and relatively low policies, please see: Economic Development Element, Goals land cost, to address residual barriers to economic growth. State of the art digital EC2, EC5, EC6 communication lines, already City Services Element, CS9, CSll throughout Bremerton, will be integrated into the city's utility and infrastructure planning. The City and its partnering jurisdicitions wilI apply tax strategies that attract and retain businesses. The City will also regularly review its policies and operations to provide incentives for economic investment. In these efforts, the City will demonstrate its interest in securing primary businesses. There is a need for developable sites for securing new primary businesses and employment opportunities. This is also one of the critical factors for the pursuit of future annexations which will have to yield economic gains for the City of Bremerton. The main indication of the City's supporting businesses will be a sense of welcome, customer service, and teamwork with property owners and tlie development community. For example, City staff will expedite the CC-7 40 City of Bremerton Comprehensive Plan Page 8 7. Environmental Management, stormwater, the City will demonstrate natural ~tems and welcome responsible business practices. Citizens w~ll benefit from a fully developed open-space system that increases the amount of green-space in a manner that complements habitat protection goals, public safety concerns, and recreational needs. For example, t_he system will integrate active community gardens, as well as passive areas that preserve the integrity of To ensure the long-term health of riparian corridors and steep slopes. Bremerton, the City will promote Well maintained city owned properties sustainable growth and activities, will also be strateg4cally incorporated in making the city more live-able with this system. With citizen participation, reduced waste and less environmental Bremerton will protect, revitalize and pollution. In this effort, the City staff expand native vegetation and tree will ensure the monitoring of pollution supply thxough the incorporation of levels, establish goals for reduction and suitable native plants in urban protection of resources such as landscapes and removal of invasive groundwater, and introduce new non-native vegetation. The development standards, including transportation system is key to the effort outdoor lighting and water run-off of integrating the natural environment limitations. This will require education with a quality urban experience, efforts and public involvement, especialiy rrutigatmg velxicle impacts especially regarding conservation of on air and water quality. Finally, the critical areas, habitats, and diverse City will encourage a systemS ecosystems and of nonrenewable philosophy in decision making, realizing the multiple benefits of such resources, things as use of alternative fuels, To aid this process, the City will invest pervious surfaces, and increased in inventorying and mapping its critical walkability within the city. environmental resources, including implications of shoreline management, For more information and specific protected near-shore habitats, and the policies, please see: proposed establishment of Marine Environment Element, Goals El, E3, Protected Areas. A grant-funded E4,E6, E7, ES, El0 approach to brown-fields will identify Transportation Element, Goal T3 and restore potentially valuable City Services Element, Goal CS18 properties that currently lay fallow and detract from a healthy natural environment. Coupled with code flexibility to enable and encourage environmentally sensitive development, such as onsite infiltration for CC-8 41 City of Bremerton Comprehensive Plan Page 9 8. Community Se~ffce, focusing on revenue allows, the City wili be assets proactive in enforcing ordinances, especially in relation to Code Enforcement, Emergency Management, and Community Policing. Public safety for residents and visitors is primary, with enhanced development standards for improved lighting for pedestrians, sidewalks, and street crossings throughout the city. A special effort will be to encourage under-grotmding of future and existing utilities. Growth strategies, with cost- effectiveness criteria, will necessarily Collaborating with citizens and local assert the city's economic expansion, agencies, residents will benefit from especially in decisions to annex or proactive community services that extend service areas or infrastructure enhance the quality of life in Bremerton. capacities. Likewise, Bremerton will Public facilities m~d services will be pursue alternative and creative funding conveniently and equitably located mechanisms for public services and throughout the community, chiefly facilities, such as more reliance on through the prescription and licensing and user fees for specialized monitoring of service levels that reflect services. The City will also work corrmxunity values in areas such as law towards a strategic impact fee program, enforcement, fire protections, and recognizing the responsibility of the sardtary sewer. These "levels of service" development community in providing will be regularly monitored, assuring for the costs of new growth. Ultimately, that capital facilities are provided however, the success of these efforts is conct~rrent (at the same time as) with dependent oft partnerships with citizens new development, particularly and local associations. The city transportation facilities, acknowledges this fundamental thrust Beyond a safeguard against potential in effective community development, negative impacts of growth, these and will welcome public involvement, standards also empower more spec/tic especially in the monitoring, review, planning processes, such as and planning of all city services and comprehensive plans for more focused facilities services such as utilities, schools, and recreation. The use of technology, For more information and specific especially the capacity of internet, will policies, please see: further enhance efforts to make city City Service Element, Goals services and public information more Housing Element, Goals H6 accessible and convenient for citizens. Promoting a leadership attitude in delivering responsive public actions will be an ongoing challenge in light of limited fiscal resources. As far as CC-9 42 Cit~d of Bremen'ton Comprehensive Plan Page 10 9. Design Review: Advancing quality urban development The major themes of the Comprehensive Plan all relate in some way to nrban design issues as they define the desired look and feel of the City. To evaluate progress towards the community's vision, the desired community character must be detailed and supported by the Plan, which becomes empowering legislation for new development. The goals and policies found in this Community Character Element, beginning on page 12, encourage quality in the physical development of the City of Bremerton. To implement these goals and policies, the community hereby embraces a design review process to · advance quality urban development in Bremerton. For more information and specific policies, please read the following section, "Overview, Shaping Corrtmunity Character and the Goals and Policies contained in the Element. CC-10 43 City of Breme~on Comprehensive Plan Page 11 Overview, Shaping the "When a co~nmunity' s Community's Character urban design values Cities have a certain feel to them. When are considered, a you walk down the street, you receive development projectis cues about community heritage and Stl engthened. aspirations from your surroundings. It can be the feel of certain building material choices - such as cobble stone project is strengthened. In the process, underfoot, the smell of saltwater tides, new projects are enabled to meet broad viewsheds of mountains and community expectations and autumn trees - that together, suggest a complement the desired character for a sense of place. Over time, we identify quality urban settings. our immediate surroundings as an extension of our individual lives. Our Urban design operates on various homes, neighborhoods and scales. It can help orientate people cormmunities represent a familiarity in a through the layout of streets and fast-changing world, and the places we buildings or place new value on certain spend time in, invest in, and show off to building materials, such as picture visitors, windows at the street level which allow for a visual connection between the We each have favorite spots in the city, indoor and outdoor environment. be it a friend's front porch, a coz), cafe, a street bench overlooking the water, or playing fields at a city park. Our Design Review Process Desclqbed children gravitate to well-designed places quic 'kly, putting wide sidewalks, Design review is a process to apply a overhead canopies, or bike paths to fast ' community's The ideas to proposed work. Adults show similar preferences, behind design review can be applied to searching out places that are sheltered, buildings, streets, land uses, park with a sense of security, intrigue, or development, or any physical elements welcome. Like the chair chosen in order that are part of everyday life. Design to sit comfortably at a table, the Review is not a series of rules as much "furniture" of our cities can also be as it is a process to evaluate how a more or less comfortable when there are project can be best integrated into the considerations for surroundings and the community. preferences communicated in the community. Design, itseff, suggests care, association, and sense of identity. When applied in Urban design ideas can bring a fresh the development of a new project, the way of perceiving streets, buildings, and community benefits with improved city spaces. Familiarity with good urban neighborhoods, streets, parks, and designs also provides insights into why compatible businesses. Compatible and certain places are and are not appealing, complimentary design also assures When a community's urban design public investments such as enhancing values are considered, a development sewer lines, burying power lines, CC-11 44 City of Bremen'ton Comprehensive Plan Page 12 passing bonds, etc. The resulting, established, desirable character ultimately helps increase community b~tt,:ou~ ~ N pride, rlo,,er ~ The design review process should be Jill,ts flexible, encouraging builders to ~ propose innovative designs. For this m~d~ll~ ! ~ reason, design provisions should be tile~vork mostly qualitative rather than quantitative statements. Quantitative approval criteria is to be avoided to help t,/inth sill kickplate / pede~'trtat~ stg'n ensure that the design review process does not dictate design or introduce a Ali three tiers are considered part of a regulatory burden. This resulting Design Review process; however, only flexibility, however, should not be Design Guidelines require a new public construed as merely advisory or to review process, administered by City otherwise dizninish the legal effect of staff during a project's permitting stage. basic design standards as approval Guidelines are a means for developers criteria for certain projects, to demonstrate general compliance with local design values in specific areas. For There are potentially three tiers of example, an approved neighborhood approval criteria for qualifying projects, plan might establish localized design First, the Community Character Goals guidelines and review committee to and Policies (beginning on page 13) augment the City's permit approval. should be addressed by every new Guidelines with a pubJ-ic review process development project within the City of can also work as a substitute for related Bremerton. Second, Design Standards, compulsory, standards when agreed based on the Community Character upon by reviewers. goals and policies, can be applied as requirements to projects that meet certain thresholds. Finally, Design Guidelines, developed through subarea planning processes, would be required in certain areas of the City, such as the newly designated centers. CC-12 45 City of Breme~ton Comprehensive Plan Page 13 Community Character Goals CC1B Ensure that new development is and Policies of a type, scale, orientation, and design that improves upon the neighborhood's desired and defined character, aesthetics, and qualifies. Discussion: A common concern expressed by neighborhood residents about new, infill development or redevelopment is that projects will not "fit" the neighborhood. The failure of traditional zoning practices to produce buildings of compatible scale, architecture, and function have made neighborhoods wary of new development. CC1 Demonstrate excellent urban design qualities in new development In the Centers strateg3, of this plan, the acceptance and successful community CCIA Utilize urban design guidelines, integration of centers, especially within standards, and project review or adjacent to strictly residential procedures to promote high-quality environments, is greatly dependent on development that enhances the positive development rules and procedures that effects of new investment in insure projects will add to neighborhoods, neighborhood quality. Among the most critical elements to neighborhood Discussion: New and remodeled projects quality are keepIng new buildings to a can impact an area either positively or similar scale, insuring that land uses negatively. The application of design serve the surrounding neighborhood(~), guidelines and standards for building maintaining traffic patterns and speeds and site development and utilization of that promote pedestrian activity, a design review process helps insure Insuring privacy of exisling residences, that the effect of new development is minimizing the effects of light, noise positive. These practices also provide m~d glare on surrounding properties, assurance that new or remodeled and creating structures and buildings are developed in a manner improvements that enhance the visual that does not diminish residents' quality quality of the neighborhood. of life. This would apply to all new commercial, multifamily (attached) structures, PUDs, and exterior remodels of existing commercial structures. CC-13 46 City of Bremerton Comprehensive Plan Page 14 CC1C Ensure on-premise business as any unique district character, such as signs are of size, number, quality, and a historic neighborhood. Exclusively style to provide identification of the residential areas should be free of businesses they support while business signs entirely, except for small, contributing a positive visual character unobtrusive signs to identify legal home to the community, occupations. CC1D Prohibit new construction of billboards aaxd eliminate existing billboards over time using various means. Discussion: Visual quality of the urban environment is one of the distinguishing characteristics of communities. The reputation of some cities is based largely on their good or bad visual image. Because of its scale or location, off- prerrdse advertising including ' billboards can be among the biggest contributors to negative imagery. This Discussion: On-premise signs provide an advertising detracts from the important public funcl2on by identifying surrounding setting and distracts the sources of desired goods and services, attention of motorists. Off-premise Cities where business signs provide advertising is not related to identification of on-premise businesses identification of the adjoining business use so does not share that public value without degrading the visual · environment are noted for their high of on-premise signs. In all locations, the quality community character, large size of billboard advertising Collectively, the effectiveness of dominates the immediate visual business signs is enhanced when they environment as well as reduces the are not too large, too numerous, or too effectiveness of adjacent on-premise business signs. To avoid extreme distracting in visual character, financial hardship to owners of existing On-premise signs should be of high billboard structures, eventual elimination by amortization is quality and managed in all urban environments to reduce visual clutter, encouraged. which contributes to a distracting and unsafe experience for motorists and CCIE Identify and Lmplement ways to control forms of off-premise advertising visual blight for citizens, especially in other than billboards. proximity to living environments. Business signs in residential settLngs should relate to the smaller scale and Discussion: Small off-premise signs lower-intensity activity of these designed to catch the eye of motorists environments. Sign area and design add visual clutter to streetscapes and are guidelines should reflect the relative particularly intrusive in residential intensity of commercial arterials as well settings. Signboards placed CC-14 47 City of Bremerton Comprehensive Plan Page 15 "temporarily" near the street edge often CC1G Insure that display, flood and direct encroach on the sidewalk, impede the lighting of properties and structures meets safe movement of pedestrians, and safety, circulation, and architectural distract motorists. These signs should be erthancement without creating light and prohibited along ali streets. However, in glare impacts to adjacent properties or the pedestrian-oriented setting of reducing public enjoyment of viewing the centers, A-frame sandwich boards night sky. should be allowed as a helpful feature to Discussion: Lighting on buildings and sites attract customers on foot into can have a dramatic effect on the form, businesses, provided that they are sited mood, quality, and character of an area. to retain the capacity of sidewalks for Lighting contributes to the convenience of circulation and ADA accessibility, the user and increases the safety and security of a site, the street, and CCIF Support the expansion of wireless surrounding properties during night hours. communication networks without creating Indirect Lighting visual impacts of telecommunication ~.zmmpAe,2 facilities on surrounding properties, the Light ~ - city skyline, and, in particular, residential Fixture /.~f'-~ign neighborhoods. Discussion: Il I Building Side ~iew Telecommunication facilities, including F×~,~,~, 2 wireless communication Fixtur Sign support towers, can be '' visually obtrusive. For Landscape Sign Side View this reason, efforts should be made to place them as ~ Although the color, amount, intensity, and efficiently and hs type of lighting are m~ijor factors effectively as possible, contributing to the form and character of thus minimizing the total the city, poorly managed lighting is a number of such sites. For nuisance. Careless use of outdoor lighting example, maximum use damages the aesthetics of the nighttime should be made of existing structures that environment and decreases security and can support unobtrusive telecommunication safety by creating hazards through reduced facilities before new stand-alone facilities contrast, increased glare, and distraction. are constructed for this purpose. The city Lighting on buildings, parking and should require telecommunication sites to landscaped areas and the site in general utilize visually unobtrusive technology, should not brightly illtrminate or create landscaping and screening techniques glare, either directly or indirectly, beyond whenever possible, the property's boundaries. The use of directional or "cut-off" lighting saves In residential districts, telecommunication energy and resources, allows enjoyment of antennae should be mounted on existing the night sky, a_nd gives the city an public facilities such as above-ground water attractive night appearance. reservoirs or taller building facades rather than on new towers. CC-15 48 Ci~l of Bremerton Comprehensive Plan Page 16 CC1H Utilize development standards to ensure that land uses or structures that are accessory to a principal use are developed in a manner compatible with the principal structure and the character of the surrounding area. Discussion: Accessory dwelling units can increase the amount of available, affordable housing and can provide income for elderly homeowners or other owners of large homes. These dwelling units should be created in a manner that does not adversely affect the neighborhood. The conversion or creation of new accessory units is made more acceptable by establishing parking Discussion: An accessory structure that is requirements and specific siting and of a greater bulk, larger scale, or greater design controls that ensure height than the principal structure or neighborhood character be maintained the typical structures of the immediate or enhanced. area would generally detract from the visual character of the particular area and may be considered an "eyesore." As a general rule-of-thumb, an accessory structure should be of a lesser square footage and volume and should utilize materials and colors less dominant than the principal structure. An accessory land use that does not include a structure should be located and designed to be subordinate to the principal use. CCII Require accessory dwelling units in residential districts to be designed to be physically and visually compatible with the main structure. CC-16 49 City of Bremerton Comprehensive Plan Page 17 Discussion: h'tfill construction can represent a benefit to the communiU, when done in a manner that does not detract from the area. Flexible desigm standards can encourage infilI development to be sensitive to the context of the affected area by permitting higher intensity activities conditioned so to not detract from the existing character of the area. CC2C Encourage building and site design that allows a variety of housing CC2 Assure that new development forms while being compatible with the relates to surrounding uses and character of the immediate surrounding provides for urban liveability, area, thereby generating community support for development at planned CC2A Utilize zoning and design densities. standards that have flexibility and incentives to ensure excellence in urban design ~md which are compatible with surrounding land uses. Discussion: Complimenting a neighborhood's character, quality, and property value is a benefit to the residents and business owners and provides greater confidence for Discussion: Increasing housing densities community stabili~-. Adopted standards and innovative development protects that are adhered to, even in areas where special sites, and enables the efficient use guidelines provide flexibility, protect of remaining buildable land, the efficient and instill assurance for established and and cost effective provision of city prospective residents and investors. The facilities and services, the provision of standards should address traffic, affordable housing, and the promotion of parking, loading control, structrtral increased ridership on mass transit. A mass, open space, green areas, lighting, variety of housing types, such as landscaping and buffering, and safety of townhouses, courtyard buildings, and persons and property, as well as noise, housing clusters, contributes to housing vibration, dust, and odors impacts, diversity and interest, and provides more opportunities for prospective residents. CC2B Ensure that infill construction Design that is compatible with the and area redevelopment are done in a surroundings helps make increased mariner that reinforces the densities acceptable to the current neighborhood's desired and defined residents. Higher residential density in character and that architecturally commercial areas can provide additional compliments or improves upon the stability for businesses while lessening surrounding existing commercial and automobile dependence. residential areas. CC-17 50 City of Bremerton Comprehensive Plan Page 18 CC2D Promote consistent massing of CC2F Work towards creating and buildings, improving urban open spaces. Discussion: Projects could contribute in-lieu share of cost for a neighborhood or center's improved or developed open space amenities such as a common, a green, a square, a plaza, tree planting program, or an urban park, which is or is plarmed to be can be centrally located. Discussion: Divergent building scales Landscaping should be planned to establish can be moderated between adjacent a planting strip at least 5 feet wide with uses, employing stepped building indigenous plants between the road and heights and softening architectural sidewalk in all projects. Fences and walls in features. It is particularly important to the front setback area should be designed to maintain well designed transitions enhance the quality of open space for both a between designated open spaces and building's occupants and the person on the built-up areas, street by maintaining as much visual contact between public and private zones as CC2E Buildings should demonstrate possible. efforts to accommodate a human scale and urban livability. CC2G Discourage loading, building systems, and outdoor storage areas from the street side of a building and/or provide for ~.tS~:t~[ the screening from view of streets and adjacent properties. cc,~a~ 'Discussion: Screening of loading areas and Discussion: Human scale can be further outdoor storage from any public right-of- achieved through architectural detailing way with use of materials similar to the front and by variation in the three dimensional faCade can mitigate any conflicts. The screen character of the building as it rises may consist of a permmnent architectural skyward. Monolithic, vertical extrusions of feature and landscape elements such as a maximum building footprint are strongly walls, berms, trees, and shrubs. Utility discouraged. Lower levels should be meters and other utility apparatus, including differentiated architecturally from the rest transformers, should be located to the rear of of the building. Designs that place active the structure and screened from the view of uses along the first floor are encouraged, public streets and adjoining properties. Roof Aparl2nents should be on the second or top mechanical installations shall be higher floors, for buildings that front appropriately screened so as to block the streets (collector streets or arterials). There view from adjacent public and private should be clear articulation of different streets and properties. Screening shall users that occupy the lower building levels, compliment the overall theme of the Ground floor street-oriented building areas building. shah be occupied by active residential or commercial uses CC-18 51 City of Bremerton Comprehensive Plan Page 19 requirements for all trmzsportation modes, become features of well- designed centers. Features such as canopies, seating, street trees, and well- maintained, wide sidewalks contribute to the attractiveness of centers for walking. CC3C Encourage attractive pedestrian- oriented development. CC3 Provide for a safe, pleasant, and rich pedestrian experience. CC3A Encourage a sense of neighborliness and community by orienting one or more building entrance of commercial buildings toward the pedestrian sidewalks and pathways that Discussion: Creating attractive pedestrian-oriented development requires attention to detail. For example, the provision of ample sidewalks, street furniture, landscaping, street level physical and visual access, detailing, building colors and textures makes the pedestrian feel more comfortable. Discussion: Orienting the business Buildings in pedestrian oriented entrance for pedestrian access in environments, particularly centers, can addition to discouraging placement of be designed to provide street-level, parking between the entrance and the pedestrian oriented uses on ail street. sidewalk, attracts the business of the fronts. Direct access into building from surrounding neighborhood as wee as the public sidewalk encourages walk-in the motoring public, traffic. In addition to these measures, the pedestrian environment is erutiched CC3B Promote pedestrian-oriented by buildings with a higher level of environments in centers through the architectural detail in the street level creation of streetscapes and building facades. designs that make walking an attractive and convenient transportation mode. Discussion: Streets that are with special attention for pedestrians on top of code CC-19 52 City of Bremerton Comprehensive Plan Page 20 CC3D Encourage attractive transit- and at above or below grade, so that street frontages areas avoid parking use. Surface parking for commercial uses should generally not be placed between the building facade and the street curb. Discussion: For transit users, the distance to transit stops, location of shelters, lighting, and safety, as well as accessibility to goods and services contribute to increased transit use. The city should consider development incentives, such as increased building height, greater site coverage, or reduction iv parking as exchange to promote transit and pedestrian-oriented development. CC3E Mitigate the effect of parking lots in centers and other pedestrian-oriented If locating a parking structure on the environments, interior of the site is not feasible, it should ~ be oriented towards commercial nodes with the shortest dimension fronting the street where possible. Where above ground structured parking is located at the perimeter of a building, this should be screened in a way that cars are not visible ' ~ from the street or adjacent buildings. CC3F Mitigate circulation conflict points for pedestrians, especially at primary Discussion: Non-associated surface entrances, in front of buildings. parking lots within centers should be planned to be no larger than 25 spaces Discussion: It is safer and more inviting for per lot, parking lots serving businesses pedestrians when choke points for motor adjacent to each other should be vehicles are located within the lot, as far connected to one another, surface away from the street as possible. Sites with parking lots with more than 100 spaces on site parking can be improved with are prohibited between the building landscaped "throats" for cars, allowing faqade and the street. Wherever stacking (line of cars) on the lot, rather than possible, parking will be sited internalJy on the street. CC-20 53 City of Breton'ton Comprehensive Plan Page 21 design expertise and community values in setting guidelines and in reviewing the decision of the Community Development Director. CC4B Utilize design guidelines that are understandable, enforceable, predictable, and consistent when applied to sub-areas, centers, and individual neighborhoods in order to evaluate proposed development. CC4 Promote the development of Appropriate Rear-Loaded~ Facade Design areas of special character, encouraging ~:,=,=__~_.~.~ ..~ a diversity of communities within the .......... ~,- / ~. ..... city .... ,.~ ~ ~ ~ .... CC4A Ensure efficacious application of ........ / ~ .... ,~ the Design Review process through the ......... existing time parameters of the permit ..... process that relies on the expertise of ~ ~...~..,,.~, ~,~,_ ~::~-,._-,= ~=v= design professionals and other ....... community interests. Discussion: Urban design guidelines include text and graphics that illustrate Discussion: Design guidelines provide the desired character of development the direction needed to reach design within a center, community, or solutions that meet the intent of the neighborhood. Guidelines are used to Comprehensive Plan, especially the avoid arbitrary application of Community Character's goals and prescriptive design requirements during policies. The flexible application of project review. They may address such specific development standards to features as building scale, fa¢ade achieve a qualitative instead of treatment, streetscape design, design quantitative result may be appropriate and performance of lighting and in specific cases and, when signage, and any other physical incorporating an innovative solution, characteristic of structures and the will lead to a more compatible project spaces around them. and livable community. The authority to negotiate enforceable design By State law, design review processes performance, and the flexible must occur within statutory time application of specific design standards, limitations. To the greatest extent when based upon adopted design practical, design review should be guidelines, should be vested the conducted concurrently with other conununity, through a specific area project approval activities such as plarming process. Such a process review of building plans or processing should include design professions and of land use applications. community interests to provide a mix of CC-21 54 City of Bremerton Comprehensive Plan Page 22 CC4C Utilize design guidelines and CC4E Ensure that buildings in designated criteria that are based on local centers are built to the property line to the community participation and the greatest extent possible. particular character and development issues of each special district or neighborhood. Discussion: Due to inherent differences in neighborhoods and particular needs of recognized special districts, each may need to develop a set of area-specific guidelines that augment the citywide standards. Local input and the existing characteristics of an area or special district are the basis for design guidelines used for the evaluation of Discussion: Buildings in designated Centers specific projects in that particular area. will provide the urban form that will Area-specific guidelines should be strongly characterize an urban setting. flexible enough to allow for some Sub-area planning processes and creative interpretation, development practices should work towards orienting building facades, CC4D Include design guidelines in especially within the lower three floors, neighborhood planning processes to parallel to the street on which it fronts. address local urban design issues and make neighborhoods attractive, safe CC4F Discourage strongly thematic places architectural styles associated with some chain restaurants, gas stations, big box, Discussion: Neighborhood residents are and service stores should be avoided. the best equipped to determin~ what and, if utilized, purposely modified to neighborhood design details and be compatible with regional elements represent the particular characteristics of their specific area. Citywide guidelines may not adequately address issues that are of concern to their specific neighborhood. The inclusion of development design guidelines in the neighborhood planning process helps ensure that these issues are addressed and that future construction projects are compatible with the neighborhood and preserves neighborhood characteristics. Discussion: Local character should be demonstrated in the design, especially through the use of quality building materials. CC-22 55 City of Bren~erton Comprehensive Plan Page 23 Conclusion The city has, in fact, historically Individual dtizens ultimately define the developed in distinct ways, taking into community's character; however, the account viewsheds and topography for physical setting is either a critical aid or example. Sloped terrain, such as In hindrance to how citizens identify Manette, yields lower intensity projects themselves and their city. Additionally, whereas as more level ground develops the built environment demonstrates with greater Intensifies, as has occurred pride and opportunity, as it represents in Charleston. Moderate slopes allow a local culture, assets, and weaknesses, comfortable street grid whereas steep The citizens of Bremerton realize the hilis result in meandering routes and influence of the environment on such less traditionally proportioned city things as new Investments, civic blocks. This chapter attempts to raise engagement, and personal security. As that consciousness and acknowledge the evidenced In their goals and policies in Comprehensive Plan's charges for new this Comprehensive Plan, citizens seek a growth to bring vibrancy to the city proactive approach to community while beIng compatible and development and quality growth. The complimentary to the city's desired character. policies specifically suggest quality over quantity, especially In encouraging new housing development and higher The maritime and historical legacies of density development around central Bremerton, coupled with its natural features and public amenities, beauty and its unique geographical position in the Northwest region, create No longer will the city or even the the backbone for a promisIng future. visitor perceive the city's neighborhoods Citizens express deep admiration and and commercial areas as places "where pride in the City's history, especiatly its things just happen." The relationships legacy of service to the nation. between places and pe.ople, too often Structures such as the Admiral Theater, minimized, will instead be hightighted, the Downtown Library, World War I acknowledging their association, federal kit bungalow housing, and the purpose, or inherent organization, grand homes seen upon arrival in Neighborhood and District Centers witI Bremerton by ferry, speak to the city's best demonstrate this concept, designed history and the lasting quality of the kind of development this chapter to provide convenient services among a unique identifiable setting that advances. Bremerton's community compliments the character of character ultimately reflects the city's surrounding communities, aspiration to preserve its attributes while welcoming quality new growth. CC-23 City of Bremerton Comprehensive Plan Page LAND USE ELEMENT ... "working to integrate diverse citizen interest into planning maps and set of "mapping instructions," depicting the city will develop into the future." Land Use Vision Bremerton is a metropolitan city that provides for economic vitality and diverse lifestyles. Throughout the city, there is a broad variety of jobs, housing, transportation options, convenient services, and strategically dispersed commercial activities. Communities and established neighborhoods within the city each have a distinctive focus, yet ail are walk-able and well connected to each other, including a vibrant downtown with a mixture of activities. Accessible waterfronts, water and mountain views, and urban parks add to the city's setting for everyone's enjoyment. New development merges with established styles, protecting the charming, historical character of the city and its cultural heritage. :~i~i~ ~re fou,~d Starting on page LU-1 57 Cit~d of Bremerton Comprehensive Plan Page 2 Introduction Over the past century, Bremerton firnily established itself as the primary city within the larger West Sound community. Centrally located and well connected to the region, Bremerton has well established urban character and distinctive neighborhoods. Bremerton remains the hub of the county despite The Plan's land use strategy emerged growth patterns in suburban development, occurring in formerly from almost two years of community discussions, producing a bold new rural places like Sllverdale..Looking to the next century, Bremerton must attract direction for the City of Bremerton. The new quality development with clear community decided that the approaches opportunities that take advantage of the of the past do not work. Business-as- city's superior setting. Citizens fully usual would likely result in continuing recognize the importance of the loss of growth and vitality away from moment, stepping forward in the the City. The new land use strategy Comprehensive Plan process to advance seeks to return Bremerton's vitality, their concerns and aspirations. This is economic strength, and desirability as a seen in this Land Use Element and place to live and work. Called the Centers Concept, it also capitalizes on especially in its recommended land use new demographic trends and new maps. opportunities. The Centers Concept is The Land Use Element has the broadest described in detail in a later section of scope within the Comprehensive Plan. this Land Use Element. It works to bring together diverse citizen interest into a single set of The foundation of this Land Use "mapping instructions," called "Land Element is its goals and policies created Use Goals and Policies." These goals through intense community and policies detail how the city will participation. - However, the Element develop into the future. Citizen must also quickly address two other priorities emerged in the public process, areas. These are: 1) the concerns of a including friendlier walk-ability, more wider public, and 2) a teclmical diverse housing types, enhanced single response to the the City's projected family neighborhoods, and greater dally growth. conveniences for citizens. These priorities are at the core of this element, especially in the areas identified for redevelopment and in new growth areas best served by the City of Bremerton. The Land Use Element serves as one of the best places to see the level of consistency that exists within the larger Comprehensive Plan. LU-2 58 City of Bremerton Comprehensive Plan Page 3 Concerns ora wider public: State and Regional Issues Two plan requirements that ensure wider public interest frame the plarming process. First, the Plan must respond to general goals, shared by the people of the State of Washington. The State's Growth Management Act states those goals, with related planning requirements Second, the Plan must show be consistent with a regional aside for each type of land use in this planning approach. In Kitsap County, the County-wide Plaxming Policies set Element responds to the need for such lands due to the projected growth. forth planning principals adopted and ratified by all jurisdictions within the County. This ensures general consistency between comprehensive plans as welt as regional concerns. A discussion of key requirements of the Growth Management Act and all county-wide plmming policies is located in the techrdcal appendices, supporting this Plan (see City of Bremerton, Technical Appendices - 2003 Comprehensive Plan, land use section). Responding to the technical challenges This Land Use Element - like other sections of this Comprehensive Plan - responds to the type and scale of change expected over the next twenty years. In the simplest terms the Land Use Element must accommodated the projected population growth with sufficient areas for housing, businesses, and industry. The technical appendix provides a detaiied discussion of population projections, resultant land needs, and other calculations and discussions that support this Element (see City of Bremerton, TechrdcaI Appendices - 2003 Comprehensive Pimp, land use section). Those technical sections demonstrate that the land set- LU-3 59 CihJ of Bremerton Comprehensive Plan Page 4 The Centers Concept: The Foundation of the Land Use Element As citizens examined their aspirations for the future, a new community realization emerged. An overwhelming portion of the of the community's shared ideas, dreams, and vision for the future described a very ,. ,.J*"' 7 specific type of development. That Centers are walkable (~/4 mile radius average) & development type differed from existing in walking distance of neighborhoods(lmile area) separated land uses, automobile dominated landscapes, and homogeneous In general a center is a mixed-use area. It neighborhoods. Bremerton's citizens places residences, basic services for residents, employment opportunities, and desire walkable communities, where residents could access services without amenities such as public spaces and parks, driving across town. They desire to live In In a well-designed area. Centers will have a more intimate atmosphere where homes, the "look and feel" of a small downtown with moderate to high density uses at their small businesses, and public gathering spaces were all within easy reach. They core, transitioning out to surrounding want to find ways to reduce traffic, create a single family areas. quieter and more sociable atmosphere, and encourage a more pleasing urban Common Center Characteristics: experience. 1) a core area This new approach to urban planr4ng in characterized by Bremerton matches a nation-wide interest well-designed in mixed-use "urban villages" - also called mixed-use Urban the "Centers Concept". As a result, this structures featurIng Comprehensive Plan largely focuses on the residential uses implementation of centers· The following above street level sections describe the philosophy, benefits, commercial or office uses ............... and application in Bremerton, of this widely recognized approach. 2) a walkable environment that Gree~, " t" begins with friendly "Centers" or "the Centers k,oncep refers to a general development model. It calls active streetscapes for creabon of new ' downtown village extending to the · · ' " less dense areas of areas. These "centers" are each unique, the center and into requiring specialized plans and development standards. Each proposed surrounding center in Bremerton is described separately neighborhoods, 3 ublic athermg with particular attention to the types of ) P g heights, densities, and uses that fit the places such as parks plazas, proposed location. 4) associated plans for public transit. LU-4 60 City of Bremerton Comprehensive Plan Page 5 Why Centers? Centers," described as r~dxed use The centers concept addresses the vision "villages" with green areas, shops, civic embodied in the Plan's goals and buildings, and mixed use residential policies as well as several key and commercial streets. They clearly demographic trends. As such, the rejected strip malls and traditional, far- concept is the best response to both the flung, suburbs. In 1998, The Brookings community's desired future and the Institution and Fannie Mae Foundation demographic patterns of the future, explored a trend showing resurging populations in downtown areas. They Demographics are in constant change, discovered increasing numbers of Past patterns of development will not people who desire easier access to jobs serve the future. In study after study, and transportation, urban amenities demographers predict that new such as restaurants, museums, galleries, population groups will heavily and parks, and a pedestrian friendly influence the American landscape in the environment with walking access to near future. During this Plan's 20-year basic services. planning horizon, four principal household groups will become a In short, there is overwhelming dominant portion of the population: evidence of interest in new urban living seniors, singles, starters, and single environments for a large portion of parents. In fact, these four groups are Americans. Developers now seek already a significant force in society and opportunities in intimate walkable, today's development markets, communities. Planners also embrace this movement away from the post-Modern Interestingly, these groups have many separation of land uses, minimal density similar preferences for living neighborhoods, and the automobile environments. As early as 1997, culture sprawling across the landscape. Intercommunications, Inc., asked home buyers what amenities they wouId most like in a new community. People surveyed say they prefer "Town LU-5 61 City of Bremerton Comprehensive Plan Page Currently, developers who depend on transit and pedestrian access run a high risk of failure, resulting in reliance on automobile traffic and strip development. '.~'.q ~l~r...~.5'q ~ ~V.~..*~ ~ ,~ No ~Onnoato~z Pedes~ian-oriented public i~ras~uc~re ~ ~; ~' ness between helos make intersections into foci for ~ansit ~~? g businesses users and nmghborhood businesses. H~ ~ ~ .'~ ,,'~ No vi,ual ~~ ~ connect,ohS ~t ~ th~ b~f~ts of c~t~Fs 7 Centers are ~so more susta~able enviro~enta~y. Improved access to ~e previous sec~on speaks to ~e most ~ansit and walkable se~ice areas reduce d~ect benefit of ~e center s concept - ne reli~ce on automobiles for daily tasks, ~v~g areas needed ~ ~e lucre. Centers wi~ also capture a Jarge~ share of ~tsap ~educ~g ~e most co--on source pollu~o~ ~d ~se of ~on-renewable fgels. Count's general growth p~ojec~ons, F~a~y, centers address a widely expressed especia~y ~ough pI~ed Employment desire for "friend~er" places to ~ve. ~e Centers. Bremerton is ~quely posi~oned ~ ~e West 5ound re,on Lo provide ~e somewhat less easgy demons~ated, widely ~derstood ~at acEve s~eet J~e, urb~ enviro~ent sought by residents co--on mee~g ayeas, and urban a~d employers. New residents wffi br~g densi~es are keys to ctea~g a more econo~c ac~vi~', jobs, ~d a marke~lace that supports des~ed urban ame~es. ~te, neighborhood. Mixed use centers demons~ate a~ of ~ese factors. Centers pl~ for growth ~ ~e most Centers are no~ for everyone. T~s efficient m~er possible, from a l~d use reco~zes a prevafl~g ~terest perspec~ve. Concen~ated ~gher de~i~es at loca~o~ where ~ere is ~gh capaci~ ~adi~onal s~gle fa~ly neighborhoods. ~ras~uc~re bears efficient use of roads, In fact, centers are located to serve as a pu~c ~ves~ents, ~ifies, ~d f~e ~d nearby "downtown" for these po~ce resources. Traffic genera~on (car ~adifional neighborhoods, w~]e ~ips ~d ~les ~aveled per day) is s~eld~g ~hem f~om ~sive l~d uses. lessened ~ the co~u~ - reduc~g Tradi~onal residen~a] ~owth, through ~ill and moderate de~i~ ~creases demand for expensive new, o~ expanded s~gle fa~ly neighborhoods, acco~ts road syste~. T~s makes sense to taxpayers who often pay for expansion of for nearly ha~ ~e tesiden~al projec~ons du~g t~5 ~l~'s ~a] ~en~-yea~ these syste~. Spraw~g t~d use pa~erns, on ~e other h~d, create ever period. ~tensffy~g demand for new roads and new public services, at ~e taxpayers cos . LU-6 62 City of Bremerton Comprehensive Plan Page 7 Centers Descriptions Introduction While this plan employs four types of centers; neighborhood centers, district centers, employment centers and an urban center (downtown Bremerton), no t~,o centers are envisioned to be exactly alike. While the centers types are based on sound planning principals that assess proper mixes of uses, necessary quantities of residential and corrmrercial Neighborhood Centers -General description uses, and proven design principals, there is a range of rr~xes, quantities, and Neighborhood centers are the smaller of the design approaches that can be two general types. Neighborhood centers successful provide a focus for a single neighborhood area of approximately one square mile. Key Within that range, then, each center will services are provided within a walkable vary somewhat as it responds to its distance to the served neighborhood. neighborhood environment, its specific function within the larger fabric of the Neighborhood centers place services in City, and local preferences. The centers locations and within a design paradigm descriptions that follow serve to that encourage walking and reduce describe what is unique about each dependence on automobile travel. This center. More detailed planning for each serves to reduce use of automobiles and center's implementation will further reduces congestion and pollution in recognize the pmrticular quahty of each Bremerton. In the early stages of center, implementation of the centers concept in .~!~ , 1,. ~t I Bremerton, the first neighborhood centers may be expected to serve a somewhat ~' larger area until additional neighborhood centers become viable. Size and Internal population and commercial bases for a neighborhood center are calculated to combine with ~ ~; nearby residential areas to provide a market base for businesses. Small groceries, shops, and professional and public services '=~;~ are encouraged. Moderately intense residential use is incorporated above the corrtmercial spaces within mixed use structures or near the center's core to create ,~': ~"~t~ a busy, pedestrian oriented, activity center. Centers should have an "inward" focus, Design reference is given to pedestrians to oriented towards public space, not the greatest degree possible. surrounding roads. LU-7 63 City of Bremerton Comprehensive Plan Page 8 Neighborhood centers typically have at Predominant uses will be convenience least one "focus amenity" such as a businesses providing basic services to park/open space, community center or neighborhood residents. Small one and civic space, post office or other public two story apartment structures will facility, or a school. In sum, neighborhood surround the core with duplex, triplex centers place convenient and attractive and fourplex residential units nearer the nodes of mixed uses within easy walking center edge. Haddon Park, along the distance of a majority of Bremerton's western side of the center, provides a citizens, adding a place for social contact, focus amenity for Haddon and a pleasing urban experience. Neighborhood center. More intense uses may infill the area between the center core and Haddon Park. Similarly, higher Haddon density residential uses will be appropriate south of the center core as this area provides a link to the nearby Charleston District Center. The Haddon Neighborhood Center serves neighborhoods in the northern portions of West Bremerton. This center generally surrounds a center core at the intersection of Callow Avenue and North 15th Street. Nestled in an established single family area, but near the more intense Charleston District The Haddon Neighborhood Center is 27 Center, the Haddon center provides acres in size. The center population will neighborhood commercial and reach about 1080. Commercial and professional services to residents in the professional space will be approximately Marine Drive, Rocky Point, and 126,000 square feet with a potential Lafayette Avenue North areas as well as employment base of 350. to neighborhoods in closer proximity. Recognizing that some market energy will be directed to the nearby district center, this center will be characterized by a relatively small core area. The core will provide mixed use structures of two or three stories with residential uses above and commercial at street level. LU-8 64 City of Bremerton Comprehensive Plan Page 9 Center protected. Duplexes and triplexes and four-plexes will be placed nearer the edge of the center. In addition to the tuzique shopping, dining, and living opportunities that the Manette Neighborhood Center will offer, the focus amenities most enjoyed will be ...... The Manette Neighborhood Center serves the well-defined Manetre neighborhood east of Port Washington Narrows. The Manette peninsula is characterized by dense single family residential neighborhoods that enjoy spectacular views to The Narrows, Sinclair Inlet, downtown Bremerton and other points. The scale and design characteristics of this center will respect both of these characteristics. Perhaps more than any other center in Bremerton, this center will have the feel and look of a traditional small-town downtown. In the core of the center, along llth Street and in a few nearby The Manette Center will accommodate locations, residential uses above approximately 1320 residents within its 33 traditional sidewalk facing storefronts acres. Employment will rise to up to as many will be encouraged. Heights at the core as 430 persons. will not typically exceed three of four stories. The core area w21 provide an attractive environment for small shops, restaurants, and specialty businesses. Essential neighborhood services such as small grocery, and professional offices will also be accommodated. This area will become a destination for people from the entire community and beyond as it develops a unique character. Immediately outside of the core area, this center will encourage an increase in residential density by strategically placing small apartment structures and townhomes such that the areas views are enjoyed but the views of others are LU-9 65 City of Bremerton Comprehensive Plan Page 10 ~rhood Center. southern bom~daries of the center - making transition to the single fanfily areas beyond easier. Primary uses in the center will be residential, and commercial and office uses that support the center population and serve the neighborhood population in the surrounding areas. The Perry Avenue Neighborhood Center will be established near the intersection of N.E. Sheridan Street and Perry Avenue. A significant portion of the center is currently occupied by a shopping center. Potential redevelopment of this shopping center presents an opportunity to create an attractive civic space as a focus for this center. The "hilltop" nature of this location will enable significant increases in building height to be accomplished without negatively impacting existing views in the area. Conversely, higher The Perry Avenue Center is approximately residential structures will become 27 acres in size with a population of about attractive view homes in their own 1080 and employment of approximately 350 right. Surrounding the civic space, persons. mixed use structures of from four to five stories will be encouraged. Residential uses above street level storefronts and offices will bring fairly high levels of pedestrian activity to the Perry Avenue center. While both Perry Avenue and Sheridan Street are important secondary arterials, alternative circulation routes within the center, and parking under or behind core structures can be created to increase the pedestrian orientation of the center. Uses outside of the core area will be lower mixed use structures and small apartment buildings. Significant amounts of mid-density residential uses exist today beyond the east and LU-10 66 Cit~d of Bremerton Comprehensive Plan Page 11 ~d Center. The Sylvan/Pine Neighborhood Center in the vicinity of the namesake intersection in the area west of Wheaton The Sylvan/Pine Neighborhood Center is Way. The center serves large areas of approximately 30 acres in size. It residential development in that region, accommodates roughly 1200 persons. Total The center location today is employment is about 390 persons. characterized by two or three story apartment complexes. Redevelopment under the center designation will focus Oyster Bay Neighborhood on introducing mixed use structures Center that add commercial and professional ~ services to the area. Focus amenities are ~ provided by an attractive wetland complex and by the Armin Jahr School i. and Blueberry Park - both located within the center designation. Redevelopment at the boundary of the park offers an opporturdty for a center that incorporates a green space as a focus· The Oyster Bay Neighborhood Center is located on both sides of Kitsap Way, tying The Sylvan/Pine Neighborhood Center the existing commercial and tourist areas will be characterized by relatively small- together with a future open space system· scale mixed use structures of perhaps The area will redevelop along with a critical two or three stories. Arrangement of mass of residential traits on site and in the these adjacent to the potential green adjacent WestPark project· There is enough space creates an opporttmity for a small depth on certain lots to accommodate a center that perhaps reminds visitors of a secondary road system which will help small town in the mid-west that faces implement a more urban and pedestrian the town park. Existing or new friendly design ethic. Adjacent apartment structures will augment the opportunities, such as play fields at West new core area. The scale and intensity of Park and other public investment sites commercial and professional uses will should be integrated into a trail and open allow the center to serve a space system that highlights the remarkable neighborhood scale population, views and provides access to the shoreline. LU-11 67 City of Bremerton Comprehensive Plan Page 12 In recognition of a shared market with the buildout at the WestPark site will rm~ WestPark Public Sector Redevelopment Site, substantially ahead of development at the the Oyster Bay Neighborhood Center is Oyster Bay center. This Plan anticipates relatively will develop at somewhat lower that only a small portion of that population intensities than other neighborhood centers, will locate at the center over the next Nonetheless, special design standards and twenty years. considerations must be employed to insure marine views throughout and compatibility Kitsap Lake Neighborhood Reserve of the center with residential properties, Center such as the community to the north along the shoreline of Oyster Bay. Structures on the north side of Kitsap Way should not obscure view potentials for other structures in the center - even those south of Kitsap Way. In the portion of the center south of the arterial, mixed use structures of somewhat greater height will allow cormmercial activity at street level, professional office and residential uses above. Slopes at the southernmost edge of the center present opportm~ity for residential This is a Reserve Center as redevelopment structures of sufficient height to take here is not expected within the current 20- advantage of views to the north, year planning horizon. Today this location supports a medium sized grocery, a restaurant, and other small busInesses. The site tends to serve as a convenience center for outlying rural areas as well as for residents in the Kitsap Lake area of the City, not fitting the model of being at the core of urban neighborhood. Residential density in the area does not currently warrant or promise to support a neighborhood center at this time. In the future, however, it is recognized that a center will be appropriate in the far western areas of the City. It is recommended to preserve options for The Oyster Bay Neighborhood Center is future redevelopment of this area as a approximately 37 acres. Sharing the same growth market, population estimates for neighborhood center. It is also understood this center are combined with estimates for that future trends in development in this the WestPark Public Sector Redevelopment general area could result in an alternative location becoming more appropriate for a Opportunity site. (see Tables 1 and 2 in future neighborhood or district center. Land Use Appendix). Although the combined population expectation over the twenty year planning period is substantial, (approx 1332, see Table 2 LU Appendix), LU-12 68 City of Bremerton Comprehensive Plan Page 13 This 48 acre reserve center lies along Kitsap Way near its Lntersection with Harlow Drive. This image shows the interface between a Center (on left) and an existing Iow density neighborhood (on the right.) Sub-area planning and design regulations will further assure compatibility with existing development. Here, urban densities on smaller lots do not detract from existing single family residential qualities. LU-13 City oje Bremerton Comprehensive Plan Page 14 District Centers -general description District centers are the larger center type. District centers will typically have several They are sized and designed to provide a key "focus amenities". In the larger district focus, and services, for several centers, focus amenities may be needed on neighborhoods. Commercial and either side of major arterials to minimize professional uses are more plentiful and of pedestrian/traffic conflicts. larger scale than those in neighborhood centers. Residential uses are also focused in more dense patterns. While district centers are characterized by a pedestrian based design ethic, they also recognize that a segment of users will access the center by automobile. Alternative circulation to and from nearby arterials, parking immediately outside the pedestrian core, and a recognition that certain medium intensity employers may locate within the center, are distinguishing characteristics. District Centers have community assets, such as a grocery store, built to urban design goals and regulations. District Centers must be responsive to automobile access, such as this cinema. LU-14 70 City of Bremerton Comprehensive Plan Page 15 Wheaton/Riddell District Center The Wheaton/Riddell District Center is Higher levels of parking are retained than located in the area surrounding the in most centers. Parking is generally placed intersection of Riddeli Road and Wheaton behind street fronting buildings or moved Way. It is one of the largest center in to areas nearer the perimeter of the center. Bremerton, encompassing approximately Careful attention will be needed in the 106 acres. This center is intended to design of this center to create a pedestrian provide a mixed use "town center" for a friendly environment while still number of neighborhoods in the most accommodating a certain level of regional, northern regions of the City and for auto dependant use. residents of unincorporated areas farther to the north. The Wheaton/Riddell District East portion. The east portion of the Center is bisected by Wheaton Way - a Wheaton/Riddell District Center will major (State) arterial. This has several be characterized by a high density significant implications for the form of this mixed use node that provides an open center. Foremost amongst these effects is space or public plaza as a community that Wheaton Way will be incorporate focus. Existing frontage parking lots aspects of a "center-within-a center" may be redeveloped to provide both on- concept, street mixed use structures and the needed community spaces. The mixed On the east side of Wheaton Way, this use structures may be up to five stories center will include many of the with commercial uses on the street level, characteristics of a neighborhood center, a mix of professional or residential uses while along Wheaton Way proper, and on the second story and residential uses within the entire area the west side of above. Some small parking areas off of Wheaton Way, the center will display Wheaton Way may remain. These will characteristics that are reserved elsewhere be primarily to provide customer for the larger district centers alone. In parking for the smaller shops, addition, this center will recognize that it restaurants, and commercial uses that serves a regional population some of dominate the street-frontage. These whom must access the center by car. parking areas must be arranges to be LU-15 71 City of Bremerton Comprehensive Plan Page 16 West portion. On the west side of Wheaton Way, this center provides for somewhat more intense commercial uses and mid-level employment. Small st~'eet fronting commercial structures should be introduced along Wheaton Way. These may include second story residential uses. More significant levels of parking may continue immediately behind these newer street side buildings. Existing commercial structures at the rear of existing parking lots may continue to provide significant amounts of region-serving commercial space, or be removed and replaced with mixed-use structures up to five stories. As in the eastern portion of the North Wheaton District Center, a secondary circulation route should be i~troduced behind existing structures of their replacements. On the west side of this loop route, mid level apartment structures may occur backed by the existing wooded slope - which provides a buffer for the neighborhoods farther to the east. beside or behind the street front structures and so that they do not diminish the commurdty spaces established on the west side of the street front buildings. Primary parking will be moved to areas farther from Wheaton Way and be accessed from alternative circulation routes added as the center redevelops. Beyond this secondary circulation loop, mid density residential structures of up to four stories will provide a supporting residential base. In this area, an existing topographic break provides separation between the center boundary and neighborhoods to the Taken together, the two portions of this west. center accommodate approximately 3800 persons, as much as 660,000 square feet area of commercial and/or professional floor space, and provides employment for approximately 1850 persons daily. LU-16 72 Cihy of Bremerton Comprehensive Plan Page 17 Charleston District Center views from hillsides to the west. Buildings along Montgomery Avenue should not exceed two stories. Emphasis in the Charleston District Center should be on historic preservation, utilization of existing second floor space and the addition of new residential uses in areas immediately adjacent to the Callow Avenue core. Amenity foci such as pocket parks, or plaza's should also be encouraged. The adopted Charleston Cormmunity Plan will perform as a resource and beginning point for area The Charleston District Center is a unique specific planning for the Charleston District district center located essentially along Center. Callow Way between North 11th Street and North 1st Street. This center designation seeks to encourage redevelopment of a historic business district that has long been considered by most to be Bremerton's second downtown. The historic, street fronting structures that dominate the existing landscape already embody many of the key characteristics of a "center". They are part of a pedestrian oriented streetscape, many provide additional space on second floors, and there are a variety of services provided that serve adjacent residential areas. The center designation seeks to build on this existing nucleus. Areas on the surrounding blocks will be designated for mixed use and/or fairly dense residential structures. This will serve to bring more residents to the immediate area who can access services on The Charleston District Center is foot. Viability of existing and new bus,ness approximately 39 acres in size. It will ventures wig be improved, accommodate approximately 1400 persons, with employment of as many as 680 people. New buildings that infill along Callow Avenue should allow residential uses on Finally, the center is separated from the second and third floors. Several small infilI Haddon Neighborhood Center to the north areas at the foot of the hilI west of Callow by only approximately two blocks. Land use are also available. Structures with small designations in this intervening area should artists workshops, light service industries, or support both centers by allowing fairly high office uses should be encouraged here with densit37 residential uses. Building heights in residential uses on third floors, were this area should approach six stories with possible. Heights above this level threaten densities in the area of 40 units per acre. LU-17 7~ City of Bremerton Comprehensive Plan Page 18 WheatordSheridan District Center The Wheaton/Sheridan District Center is Office uses, mostly expected along an located on the east side of Wheaton Way, alternative circulation network of streets, can north of its intersection with Sheridan Road. benefit from parking areas without disruption This mixed use center provides intense to the pedestrian circulation at the center's commercial/professional uses serving core or result in parking lots along Wheaton neighborhoods on the southern half of the Way. Adjacent to the alternative circulation East Bremerton peninsula. Recognizing the loop, additional mixed use structures or single neighborhood significance of the relatively use apartment structures of no more than four new grocery store at the corner of Wheaton stories should be considered. Along the and Sheridan, this center will first focus on residential perimeters of the center, residential redevelopment of the Bremerton School sites, uses should be further reduced in mass and into a mixed use area to provide commercial height, responding to the existing and professional space in a pedestrian-based ' urban viilage atmosphere. This urban village will provide residential opportunities along a major transit route, close to downtown, and within easy pedestrian reach of a large variety of employment and shopping sites. Along Wheaton way, four to five story mixed use structures, with commercial uses at street level and residential spaces above, will be encouraged. These structures should enclose an interior core area with a focus amenity or civic space. Residential units will benefit from an orientation towards the interior This 81 acre center will accommodate approximately community and green spaces. Nearby 2900 persons within the twenty year planning medical offices and the Harrison Hospital can horizon with further expansions possible in the support services such as restaurants, future. Employment base in the first twenty years recreations, and convenience retail, could grow to 500,000 sq.feet and 1400 employees. LU-18 74 City of Bremerton Comprehensive Plan Page 19 Downtown Regional Center The Downtown Regional Center is the core The downtown provides a living area of the City of Bremerton. It offers a mix environment to a growing segment of of opportunities to live and work in a society that no longer desires the suburban vibrant, well designed environment. The lifestyle. It provides housing for a wide DRC zone focuses on providing residential varie~ of income levels in an environment or office uses on upper floors with retail uses that allows less reliance on the automobile. at the street level to energize the urban The potential juxtaposition of jobs, living, experience. Parking should be underground cultural and recreating opportunities, allows or in structures - not in surface lots. Street the greatest efficiency in the use of public trees, well designed public gathering areas, expenditures and infrastructure of any and lighting should be employed to create a ; Plan. safe, inviting experience at the street level day and night. Residents should find access to employment, transportation, and basic amenities, along with a concentration of restaurants, galleries, and unique shopping experiences. The Downtown Regional Center designation facilitates the ongoing creation of a vibrant urban Downtown Core as an attraction and critical need for the entire West Sound region. Existing Downtown Core and Downtown Waterfront (see LU14) plans and the adopted Campus/Evergreen District Plan will be a beginning point for comprehensive sub-area planning and design review guidelines in this center.. LU-19 75 Cited of Bremerton Comprehensive Plan Page 20 :Centers - General ~tion Employment centers are mixed use Harrison Employment Center environments characterized by co- The Harrison Employment Center is an location of employment activities and established area of mixed commercial and residential and commercial amenities office uses associated with Harrison for workers. Employment centers will Hospital. Establishment of a formal have significant office, light industrial designation as an employment center wig and industrial activities that create large enable future zoning and development numbers of jobs, well integrated with standards that support addition of areas providing a mix of housing types residential uses to the area. As a result, that provide living opportunities residents wig be added to increase support nearby. Small to medium scale for the commercial base. Nearby living commercial uses wig also be provided opportunities for employees of the medical allowing residents and workers easy offices and hospital will reduce commuting access to services. Through rnLxed use and employee parking demands. The design, the Employment center adopted Harrison District Plan wig perform integrates employment activities with as a resource and beginning point for area housing and commercial activities scaled to serve the employee population at the Center. This reduces home to workplace commuting and offers workers opportunities to lunch, or do shopping for essentials on-site without additional travel. Although the scale of employment activities is such that some employees may continue to commute, the Employment Center will reduce the amount of traffic generated by large scale employment generating land uses. LU-20 76 CihJ of Bremerton Comprehensive Plan Page 21 Northwest Corporate Campus Port Blakely Employment Center Employment Center The Port Blakely Employment Center is The Norwest Corporate Campus is a a large undeveloped area in the west large area along Highway 16 east of hills portion of the City. The site is Gorst. The area will be developed as a envisioned as an integrated, mixed-use well integrated mixed-use employment employment center. A detailed center center. A detailed center development development plan should also be plan should be prepared to assure that prepared for this area before the area is developed as an integrated development proceeds. ? / Employment Centers feature amenities enjoyed by employees and residents alike. The planned environment ensures compatibility of development, including the needs of large employers such as private,£acih'ties and strategic dedicated parking areas LU-21 77 City of Bremerton Comprehensive Plan Page 22 The Urban Growth Area Under the Growth Management Act, each city must submit a proposed Urban Growth Area (UGA) for formal designation by the County of jurisdiction. The UGA is an area outside of current city limits where tire City is envisioned as the primary provider of urban services as growth occurs. As the future provider of services in urbanizing areas, cities are the appropriate lead agencies in establishing the future land use pattern, transportation system, and all related development standards. Specific Area Plans This Land Use Element provides goals Historically, urdncorporated areas were and policies - as well as supporting planned and regulated by County technical analysis - to guide land use government until the time that these decisions for the broad community over areas became cities or were armexed to the coming twenty years. It anticipates cities. It was also common for owners of more area specific planning efforts, developed property, primarily especially for the creation of residents, to oppose annexation to cities, Neighborhood Plans and more detailed perceiving that taxes and service fees implementation plans., would increase. In some cases, county residents were already able to access Specific Area Plans add additional city services such as parks and hbraries, plarming detail to this Plan's general without paying for them. This behavior framework. The following designated diminishes the quality of life in another land uses on the Land Use Map, at a significant way - the environmental and minimum, require or already include safety issues generated by the high specific area planning processes: volume of vehicles passing through city neighborhoods on route to suburban District Centers communities. Neighborhood Centers Employment Centers Only by laying out the development future within its UGAs can the City The Downtown Regional Center hope to afford servicing the growth in Public Sector Opportunity Sites these areas. The City's Urban Growth Areas, established by the County in 1998 The Wheaton Way Corridor and shown on the Land Use Map on Anderson Cove Page XX, are included in the The City recognizes advantages that may Comprehensive Plan. Development come from a future plarming area south within the City UGAs should be of Olympic College to better meet needs regulated by the City's development of college students - generally between standards, and infrastructure should be Pacific Avenue and High Streets and built to City standards. These south of the campus(es) to 1 lth Street. expectations are reflected in the LU-22 78 Citnd of Bremerton Comprehensive Plan Page 23 Countywide Plmming Policies that specify a framework for agreements with the County on applying Bremerton's planning and implementation for the City's assigned growth area. In general the goals and pohcies found in this and the other elements of this comprehensive plan will also guide future land use patterns in the UGA. Full implementation of those principals will occur after additional public Open Space participation and technical planning Land Use Goal LU2 and its attendant work is accomplished. It is intended that policies represent a community call to this comprehensive plan will be establish a system of open space in amended as soon as practicable to Bremerton. That open space system is to include future land use designations for consist of parks, school yards, and the UGA, including additional centers, natural spaces. In addition, the cited goal and its policies call for linking these spaces with a system of trails and Joint Planning Areas pedestrian pathways. The Open Spaces In addition to the proposed UGA, the Map depicts the open space system on City and County should investigate the the following page of this plan. potential for additional planning coordination in specific areas designated Many of the lands and corridors by the County as Joint Planning Areas appearing on the Open Space Map are (JPAs). Study and analysis may lead to not independent land use designations. inclusion of these areas in future Instead, they indicate desired locations recommended additions to Bremerton's for the open spaces. Making the open UGA. JPAs should be designated in the space use indicated a "permitted use" in County Comprehensive Plan for the the zoning will support the creation of Erland's Point and Rocky Point areas, the desired open space system. Public acquisition of open space, including it in a City utility or street project for example, will also assist the creation of trails, parks, or undeveloped open space. LU-23 79 City of Bremerton Comprehensive Plan Page 25 Land Use Goals and Centers represent concentrated and planned mixed use development areas. Policies They are located throughout the city, serving various roles as a response to the The following goals and policies needs of communities within the City. represent the community's response to Centers should have a complimentary the challenges implied by future relationship to the character of the growth. They were developed through surrounding area and also to the other an intense series of public meetings, centers, well-connected to each other by workshops, and committee meetings, various transportation modes. They represent the vision, values and desires for the future of a wide cross- section of the community. In short they are the community's preferred solutions to the development questions it faces. It should be remembered that, although presented after the preceding discussion of the Centers Concept, these goals and policies were actually developed by the community first. These goals and policies are the basic foundations of the Re~0n D~tritt ~4~ishborl~ood Land Use Element. Only after the community developed these expressions The smallest designated center is the of its dreams and aspirations for the neighborhood center which allows for future, was the planning model known intimate gathering places and daily as the "Centers Concept" realized, conveniences for local residents within a residential setting, such as a coffee shop Discussion: Land Use Values and or a neighborhood park. District centers, Definitions on the other hand, are at focal points of communities, offering unique amenities Neighborhoods are primarily residential and services scaled to serve that area of areas, each with an identifiable focal the City. Meeling regional needs as the point and established boundaries. A designated Metropolitan Center of neighborhood is limited in size by its Kitsap County, the city also provides for walkability, a characteristic that a unique Downtown Regional Center and combines with social gathering several Employment Center for the regions, opportunities, to provide a sense of all linked by a comprehensive place and neighborhood identity, transportation system. Communities are a collection of For more information on the Center's neighborhoods, combined with the Concept, see page LU 4. Specific commercial and transportation services, Centers, as depicted in the Land Use scaled in size and function to compliment Map on LU-44, are described, beginrffng the community. Typically, a community on LU-7. Finally, the Land Use include 3 or 4 neighborhoods, while its Designations for Centers, can be found services are ideally grouped into one or after the Goals and Policies starting on two concentrated areas (centers). LU- 45. LU-25 City of Bremerton Comprehensive Plan Page 26 General Land Use Goals and LU1F Identify and promote the Policies architectural and scale characteristics of surrounding neighborhoods for the development of centers serving a neighborhood or a community. LU1G Use &ont yard averaging to encourage residential infill that is consistent with existing neighborhood. LU1H Encourage adaptive reuse and preservation of historic elements. LUII Integrate centers and transportation corridors with surrounding neighborhoods. LU1 Identify and enhance distinctive neighborhoods, communities, and centers LU1J Buffer surrounding communities throughout the city from regional transportation corridors, allowing for transitional and sensitive LU1A Designate neighborhoods, development patterns. communities, and centers throughout · Ensure flexibility and options for the city. buffering techniques. · Recognize boundaries and barriers to development, both natural and built LU1K Promote neighborhoods which (steep slopes, wetlands, state foster interaction among residents, highways) in defining sub-areas for contribute to well being of citizenry, and plarming and allocating growth, create and sustain a sense of community and LU1B Integrate edge areas in the planning of neighborhoods, communities, and centers. LU1C Focus on central organizing features in planning communities, centers and neighborhoods. LU1D Reinforce city-wide features, activities, culture, and historic character in LUlL Strategically locate amenities such the plann~g of communities, centers, and as parks, sidewalks, coro-rnunity centers, and neighborhood areas, gathering places to support residential areas. · Provide for social interaction though LU1E Encourage the implementation of street design elements design elements for new development and · Encourage residential designs with an redevelopment that compliments the orientation towards social interaction, as designated purpose and scale of its opposed to the automobile neighborhood, community or center. LU-26 City of Bremerton Comprehensive Plan Page 27 LU2 Integrate an open space system into the land use pattern that increases the amount of open space, protects Bremerton's natural resources, and provides a source of beauty and enjoyment for all residents LU2A Incorporate open space within ign des ated land use centers. LU2B Encourage open space along water to ensure public access both visually and physically LU2C Include pedestrian, bicycle, passive recreation opportunities, and developmentally appropriate play areas into open spaces. LU2D In order to facilitate a linked system of open space; integrate parks, schools, trails, and other open space features in a wide variety of land use designations. Please see the Open Space Map on Page LUXX. It provides the implementation guidance for the citywide trail and open space system. LU-27 g4 City ofBremerton Comprehensive Plan Page 28 LU3E Identify key areas for new development that attract visitors and retain residents. LU3 Create an environment that will promote growth LU3A Modify existing zoning designations and categories to provide sufficient industrial, commercial, and mixed use for new business opportunities. · Maintain an inventory of available sites for new development, especially within LU4 Provide for walkability designated centers throughout centers and neighborhoods LU3B Pre-qualify key areas and sites LU4A Improve pedestrian access to for environmental permitting through commercial and community services such devises as sub-area plans and within centers and neighborhoods. related programmatic EIS's. LU4B Develop pedestrian LU3C Encourage increased density connections between residential areas with development incentives and and neighborhood services. zoning flexibility LU4C Ensure land use designations LU3D Provide for advanced utility and designs to support walkability planning to offer upgraded, ready-to- within neighborhoods and the mobility serve, services for development needs of the commurfity. designed to achieve maximum density. LU4D Ensure street design and LU3F Provide development incentives orientation that encourage pedestrian and flexibility within the Zoning Code to and bicycle use. encourage desirable design elements with · Examine set-backs, landscaping flexibilities within the Zoning Code requirements, and stormwater provisions for all new development and drainage and flow patterns redevelopment. · Establish a creative and cooperative process for design solutions · Establish value criteria and a corresponding system to allow tradeoffs and exceptions between development standards and design standards LU-28 85 City of Brenlerton Comprehensive Plan Page 29 20-year Vision for Center Development! Each image below marks a 5 year interval LU5 Designate neighborhood, district, and employment centers on the land use map that provide mixed use environments which serve as the primary focus for growth LUSA Neighborhood centers should be located such that most residences in the city are within one mile of a neighborhood center. LUSB District centers should be placed in locations the allow each district center to serve as a focus for a group of neighborhood centers. LU5C Employment centers should be located in areas with unique opportunity for the development of a mixed use environlnent that includes large employment activities and supporting residential residential and commercial activities. Such locations will typically be separated and/or well buffered from primary areas. LU-29 86 City of Bremerton Comprehensive Plan Page 30 LU6 Designate potential (future) neighborhood centers on the land use map Discussion: This Plan recognizes centers as the appropriate location for neighborhood serving commercial and higher density residential uses. In areas of the city that are largely undeveloped, it is advantageous to identify potential locations for centers to serve future growth. A potential neighborhood center should be considered to be a preliminary designation, subject to future analysis through both LU8 Develop minimum development neighborhood planning processes guidelines and standards for and future re-examination of growth development in centers trends and needs. The exact location, boundaries, size, and mix of land Discussion: Design standards and uses in a neighborhood potential guidelines for each neighborhood and center will be determined through district centers should, ultimately, be those future processes, developed through a neighborhood or district planning process. However, to LU7 In order to encourage new facilitate development in centers before development to occur in locations and such specific area planning processes can patterns consistent with the Vision(s) be completed, minimal guidelines and goals and Policies of the community standards that apply to each type of center and this Plan - specifically in centers - on a city-wide basis should be adopted as a Remove or revise existing land use short-term measure. At a minimum, these designations that would site multi- standards and guidelines should address family uses in locations that do not issues such as: support the Centers Concept · Density and intensity of development · Design standards for mixed use LU7A All multi-family designations structures occurring outside of neighborhood · Public investment in transportation, centers, district centers, employment urban fixtures,, etc centers, or high activity corridors should · Setbacks, heights, and pedestrian be removed and replaced by lower design features intensity designations. LU-30 87 City of Bremerton Comprehensive Plan Page 31 Center Implementation: 20 ~ear Plans Years I t I I +fi ] I } [ I I I 1+20 LU9 Create a fr~ework for the LU9A Desi~ standards and/or initial implementation of centers ~idel~es should be developed that assure pedes~ian oriented ~ed-use Discussion: Reco~ze ~at ~II desi~ in centers. Desi~ standards development of nei~borhood and and/or ~idel~es should address such dis~ict centers w~ ul~ately be ~ided issues as: by area specific pla~g exercises, or · Si~ng bulldogs ~ ~e core of ~e "Centers Pl~s" as capsulated ~ ~e center at sidewalk edge graphic above. ~ese fu~re pl~g · Provid~g w~dows and o~er efforts wi~ require intensive co~ arc~tec~ral fea~res that foster par~cipatory progra~ ~at go beyond pedes~ian ~terest along s~eet fron~ ~is ci~ide pl~. Un~l such u~que · Adop~g si~ st~dards ~at reflect centers pla~ are completed for any pedes~ian scale ~ven center, development ~ ~e · Encourag~g and/or requ~g desi~ated centers must proceed under architec~ral fea~res ~at are of a broader ~idel~es developed by ~e scale and ~pe appropriate for view~g Ci~. ~e following po~cies should be by pedes~i~s at ~e building front the basis for development of such broad ~d i~effiately nearby. ci~wide ~ide~nes, and, in addison, should be used in the lucre to assure LU9B Zoning ~ centers should reflect co~istency be~een ~e various fu~re a wide varie~ per~ed uses ~clud~g center pl~. co~ercial, office residen~al, public, etc. Desi~ ~ide~nes should require or encourage ~xed use s~uc~res. LU-31 City of Bretnerton Comprehensive Plan Page 32 LU9C Development projects should be encouraged to provide amenities such as street furniture, street trees, small public spaces and plaza's, etc. LU9D Adaptive reuse of historic buildings should be encouraged through incentives. LU9E In general, the intens of land uses should be varied with more intense uses nearer the core of the center and LU10 Provide incentives and with uses of less intensity at the edge. flexibility that encourage and enable development in centers LU9F Alternative circulation for automobiles should be provided as LU10A Support centers development much as possible. The goals of by adjusting Level of Service Standards alternative circulation designs should in ways that reduce costs of include: development in Centers as compared to · Reducing traffic in pedestrian oriented surrounding areas. core of the center · Placing parking and busier streets LU10B Work toward enabling away from the core. development in Centers to proceed as a Planned Action under SEPA. LU9G With the exception of major pass-through arterials, streets within LU10C Develop permitting processes Centers should be relatively narrow and that give priority to applications for designed for slower speeds, projects that implement centers as envisioned in this Plan. LU9H Non-motorized transportation links with surrounding neighborhoods LU10D To the maximum extend should be encouraged and existing practical, focus public invesh'nent on pathways preserved, projects that support centers development. LU9I Centers should include at least one core amenity. These include; a public meeting space, park, or plaza; a community center or school; or a public building such as a post office, police substation, library, etc. LU-32 City of Bremerton Comprehensive Plan Page 33 Goals and Policies Related to LUllE Encourage private investment in mixed use and higher density design and development ects Designate areas within the downtown and existing Ensure comprehensive and convenient services for each cormmunity LUll Provide for the viability of within the city. communities, neighborhoods, and centers · Provide strategic parking locations through strategic land use designations and policies, especially in designated and infrastructure provisions, centers · Encourage convenient, small-scale LUllA Provide for growth through retail services at the neighborhood increased densities in neighborhood level, especially within neighborhood centers and designated activity centers, centers · Allow Accessory Units associated LU12 Support community-wide with, and subordinate to, exisling or access to amenities and services new single family dwellings in all (See Transportation Element for residential zones when appropriate additional policies) (also H4a, bullet 1) (GMA requirement) LU12A Promote open vistas and green spaces (greenbelts) as friendly LUllB Provide wider variety in connections between the various residential designations throughout the communities in the city. city to achieve a greater diversity of housing. LU12B Provide recreational space and trails for pedestrians and bicyclists LUllC When developing and locating between communities, centers, and new infrastructure and capital neighborhoods. investments, ensure efficient use of community resources. LU12C Establish transportation corridors which expedite travel between LUllD Strategically locate mixed-use communities, centers, and neighborhoods development and higher density development around existing LU12D Prioritize transportation linkages infrastructure and transportation hubs. that connect the town center with the city's various cormnunities and centers LU-33 90 City of Brernerton Comprehensive Plan Page 34 LU12E Encourage grid road systems Downtown Goals and Policies that provide for parallel or frontage alternative routes, especially to regional LU13 Achieve a vibrant and active transportation corridors, downtown LU12F Utilize existing public land for LU13A Create high density residential better access to shoreline and recreation uses mixed with commercial spaces. areas such as street ends, parks, and open space. LU13B Provide for commercial and retail services to support downtown LU12G Provide land use and zoning residents, shoppers, and workers. designations that support transportation centers or hubs. LU13C Promote design guidelines · Encourage high density residential which incorporate distinctive and mixed use development near architectural elements that highlight the transportation centers and hubs designated role of the town center, such as dedicated public space, artwork, or special accommodations for retail services along the ground floor. LU13D Encourage the expansion of services and utilization of amenities to attract citizens to the downtown business district beyond core business hours. LU13E Maintain a community orientation and a welcoming environment for city residents in the downtown. LU12H Designate transit transfer points wittffn all designated centers. LU12I Ensure adequate and appropriate land for transportation facilities, including bus turn-arounds and parking along the outskirts of the city for park-and-ride programs LU-34 City of Bremerton Comprehensive Plan Page 35 3. Downtown Bremerton will offer a compact concentration of employment, local shopping, entertainment, cultural attractions ~ government services, and housing. ~ 4.Downtown Bremerton will be served by a variety of choices in transportation, including vehicle and passenger ferries, bus transit, automobiles, walking, and bicycles. 5. Downtown Bremerton will be a safe, convenient, lively and attractive environment. 6. Downtown Bremerton will provide places to live for various types of ,,, ~; ~ households with widely varying P~'*~ ~ income levels. ~'::~ ~ ~ 7. Downtown Bremerton will have many forms of publicly accessible open ~:,,, = nt~c~l ~, // space, such as parks, plazas, ~i:~::'::~F .~ waterfront esplanades, and tree-lined Thi~ co~ceptual"~o~ntown plan. developed streets. in 1991 and adopted into the Plan, is 8. Downtown Bremerton will build upon included in the Awendix XXX its intimate scale, street grid, and historic buildings to create an environment having a distinctive LU14 Adopt standards and measures to character and quality. assure that downtown Bremerton 9. Downtown Bremerton will becomes an attractive, vibrant, urban core accommodate parking for commuters, with a mix of commercial, office and visitors and shoppers but in locations residential uses (Use adopted goals and policies, included and configurations that allow for in- fill development. here, to guide implementation) 10. Downtown Bremerton will be a Discussion: The following goals and business-friendly setting with support policies for downtown Bremerton were from the City, County and active downtown organizations. adopted by the Bremerton City Council in 2001 after extensive hearings and community participation. Overall Goals, Downtown: 1.Downtown Bremerton will be an urban center within the Puget Sound region. 2. Downtown Bremerton will be the major urban center and inter-modal transportation hub for Kitsap County. LU-35 92 City of Bremerton Comprehensive Plan Page 36 ~ ~ :~ :~ Parking supply, including both ~ on-street and off-street facilities, should be managed to t emphasize short-term use over long term use, ensuring an adequate supply for shoppers and visitors. 4. Parking facilities should be -.~ designed to contribute to an attractive appearance of the streetscape and overall image of the downtown. 5.The city shall ensure high quality design in both public and private development through a design review process. 6. Regulations should reward new development with intensity and/or height in return for incorporating features such i.,_~ as public spaces, housing, and · underground parking. 7. The city should employ a variety of techniques, including upgraded and ',, expanded infrastructure (including streets and sidewalks), public/private hip partners s, the development and management of parking, and property ~ disposition to encourage desired , ~3, development. i 'v 8. Downtown should be linked to ~, ' surrounding neighborhoods by ' landscaped streets, open spaces, ., pedestrian and bicycle routes, and transit. ,~ ~ 9. Development along the northern edge ..... of downtown should step down in General Policies, Downtown: height and include substantial 1.New development shall reinforce landscaping in recognition of the pedestrian activity at the street level, adjacent, Iow-scale residential present an attractive profile on the neighborhood. skyline, and provide opportunities for 10. Interim and temporary retail uses artistic expression, should be encouraged in order to 2.On-going programs and funding stimulate small business activity and priorities should ensure that downtown to attract new investment and streets and sidewalks are clean, safe, well customers to downtown. lighted and attractive. 3. LU-36 City of Brernerton Comprehensive Plan Page 37 6. While the cormnercial core will have a predominance of office, local-serving retail, tourism, entertainment and cultural uses, residential development, including live/work spaces for artists, shall also be encouraged to provide a population that brings vitality into evening hours. 7. The availability of parking should be evident without having parking structures interrupt the continuity of street level uses or overwhelm the scale of their surroundings. 8.Given the steep topography north of ~, ~ 4th Street, new development should ~ include internal corridors or terraced walkways that can make the slope easier to traverse on foot. Policies, Downtown Core (DC) 1.The Downtown Core should contain 9.Over time, there should be a landscaped, buildings having sufficient height and pedestrian-oriented corridor connecting intensity to create a high concentration the uplands portion of the Core with the waterfront. of employment, retail, and residential. 10. Design standards should ensure the 2. This district should be served both bus and ferry transportation, with continuity of storefronts and a sidewalk and walkway connections pedestrian-oriented scale and features all streets within the Core. that are lighted and landscaped to encourage the use of transit. 3. A variety of public spaces should be provided through this district, including landscaped plazas, squares, overlooks, pocket parks and larger civic spaces that incorporate public art. 4.Certain streets within this district should be particularly pedestrian oriented, with wider sidewalks, furnishings, and on-street parking. Policies, Downtown Waterfront (DW) Streetscape enhancements, uses and 1.The Downtown Waterfront District architectural features should make should consist of a mixture of walking safe, comfortable and transportation facilities, marina and appealing, support services, specialty shops and 5. Fast-moving, through traffic should be restaurants, and Iow-rise, high density separated from local traffic and residential. pedestrian movement that are 2.There should be clear, attractive oriented to the downtown core. pedestrian routes, public places, and connections between the Downtown Waterfront and the Downtown Core. LU-37 94 City of Bremerton Comprehensive Plan Pa~e 38 3.New development within the Land Use Goals and Policies Downtown Waterfront district should Related to State Protections include parking to meet its own demand. Freestanding parking to serve commuters only is not an appropriate use in this district. While some parking facilities may serve both local businesses and regional needs, commuters should generally be encouraged to use transit and park- and-ride lots. 4. Structures should be terraced down toward the water in order to maximize views and reinforce the stepped form LU15 Assure that future land uses and of downtown. View corridors in land use patterns conserve and protect alignment with east/west upland groundwater resources streets should be preserved. (Cross reference with Environmental 5.The marina should be expanded and Element Goal E8) converted to both short stay and long term moorage, with public access LU15A Provide for well-head protection provided to any breakwater where appropriate (GMA requirement). StrUCtUres. LU15B Protect aquifer recharge areas, especially those used to provide public water supplies (GMA requirement). LU15C Coordinate measures to protect groundwater resources with watershed plans and planning efforts (GMA requirement). LU16 Support appropriate land use policies and regulations to prevent siting of incompatible uses adjacent to general aviation airports (GMA requirement) LU-38 95 City of Bremerton Comprehensive Plan Page 39 LU18C Recognize that there are no lands appropriate for designation as forest or agricultural lands within the City or its Urban Growth Area. LU18D Adopt or amend regulations to designate and protect critical areas as defined by and required in the Growth Management Act. LU18E When adopting criteria for the designation of critical areas or the LU17 Adopt and implement measures to protect designated areas, appropriate standards and regulations for employ best available science per RCW stormwater management. The City of 36.70A.172 (1). Bremerton should adopt and implement regional plans, strategies, and standards LUISF Adopt measures to protect as appropriate, including but not limited anadromous fisheries per RCW to the Seattle/King County Storm Water 36.70A.172(1) Manual FEMA maps, and the Puget Sound Action Team's 2000 Water Quality LU19 Coordinate and work Plan cooperatively with the State of Washington, Kitsap County, and Discussion: The Seattle/King County appropriate agencies for the siting of Stormwater Manual is recommended essential public facilities for its ability to provide storm water related development standards in a Discussion: Essential Public Facilities clear manner. Its use has the additional are defined - in part - in the Revised advantage of providing consistency for Code of Washington. In addition, many development professionals who county-wide planning policies, local are familiar with it as a result of their cooperative efforts, or individual work in most of the more populated jurisdiction's deliberations may further portions of the State - where it is the refine this definition. After considering more common document, these State, regional and local efforts, the City must develop a list of potential LU18 Protect Natural Resource EPF's - or at least a clear set of Lands as defined and required under definitional criteria that will allow it to the Growth Management Act establish which facilities it will consider under EPF siting criteria that are locally LU18A Discourage incompatible uses established. The City will engage in just in or near Natural Resource Lands. this sort of effort. LU18B Develop criteria for designation LU19A Adopt definitions and sitting of Natural Resource Lands consistent criteria for Essential Public Facilities. with RCW 36.70A.050 and 365-190 WAC. LU-39 96 City of Bremerton Comprehensive Plan Page 40 LU19B Develop criteria for the siting Goals and Policies for of essential public facilities in such a Unincorporated Urban Growth way as to minimize negative impacts to Areas neighborhoods and other areas of Bremerton, while recognizing the needs of the people of the State and region for these facilities. The siting criteria should be based on the following principals: · Essential public facilities should be placed in locations where impacts to neighborhoods from traffic, light, and glare, odors, noise, and similar effects is minimized · Essential public facilities that generate significant amounts of traffic should be located near or on State highways or on major arterials when possible · Essential Public facilities that may introduce hazards to public safety should be carefully located to minimize such threats LU20 Plan within an urban growth · The effect of the location chosen for area that is large enough to EPF's on property values shall be accommodate the expected population considered growth for the next 20 years in a way · The location chosen for EPF's shall be that meets the requirements of the consistent with the goals and policies, County-wide Planning Policies maps, and general principals in this Comprehensive Plan. LU20A Ensure Capacity to Grow Maintain urban growth areas that provide the 20-year capacity for desired growth within the limitations of the City's ability to provide all required urban services. LU20B "Associated" UGAs Promote the association with Bremerton of those urban growth areas that can be most efficiently served by Bremerton as the primary provider of urban services. LU20C UGA-Wide Growth Strategy Apply the adopted city-wide growth strategy consistently to all of the City's urban growth areas as a basis for more localized planning. LU-40 City of Bremerton Comprehensive Plan Page 41 LU20D Extents of Growth retention, varied and affordable In cooperation with adjoining local housing, high quality cost-efficient governments, determine the ultimate urban services, and an orderly transition extents of the City's physical growth from county to city jurisdiction. and promote the designation of non- urban "separators" to define these LU20I Growth Boundary Review limits. Participate with other KRCC jurisdictions in the five-year review of LU20E Phasing of Service Extensions urban growth area boundaries relative Promote the efficient delivery of urban to the Office of Financial Management's facilities and services within urban twenty-year population forecast and growth areas by phasing their extension make adjustments, as warranted, to in the most cost-effective manner, accommodate anticipated growth. LU20F Citizen Participation within UGA LU20J Urban Land Supply Insure localized citizen participation in Regularly monitor the relationship planning processes within the between land supply and demand to unincorporated UGA. ensure that the goals of the comprehensive plan are met. LU20G City Regulations~ LOS~ and Infrastructure Standards Discussion: To assure that land supply By "Urban Growth Area Management is adequate, the land supply should be Agreements" as provided in the Kitsap regularly monitored. Particularly County Countywide Planning Policies, important at the onset of the apply city development regulations, identification of an urban growth planned level of service, and boundary, regular monitoring can allow infrastructure standards within the the city and Kitsap County to make City's unincorporated UGAs. adjustments as necessary. Discussion: Planning for the urban growth area should include the adoption of consistent land use designations, policies, and development standards, as well as the identification and preservation of natural environmental features. Infrastructure facilities should also be built to city standards to assure that they meet city standards at the time of annexation to the city. LU21 Support annexations that create logical boundaries and LU20H Attracting Harmonious Growth reasonable service areas within the Attract the majority of the county's city's urban growth areas, where the population and employment in urban city has the fiscal capacity to provide growth areas in ways that ensure a services. balance among livability, preservation of environmental quality, open space LU-41 98 City of Bremerton Comprehensive Plan Page 42 LU21A Ci_ty Bonded Indebtedness ~1~ Require property owners within an I~ annexIng area to assume a share of the city's bonded indebtedness. Discussion: When property is annexed to the city, it becomes subject to all city laws. It is also assessed and taxed In the same way as the property already in the city. As a result, annexed areas are required to help pay for the outstanding indebtedness of the city approved by voters prior to the effective date of the annexation. LU21B Logical Boundaries Encourage the annexation of areas that ~ ~,,~ w.,, ~. ~,,~ are logical extensions of the city. LU21D City Utilities only with Discussion: As much as possible, the Annexation city should promote annexations that Require property owners requesting city create even city edges and avoid utilities to annex concurrent with utility "peninsulas" of unincorporated land extensions or sign a "no-protest" that penetrate deeply among the city agreement to annex as a part of a later, limits. Efficient service delivery should larger annexation. be a criterion in the formation of boundaries. Annexations should LU21E Readily-Identifiable attempt to maximize efficiencies of Boundaries Use readily identifiable boundaries, urban services. such as shorelines, streams, railroads, LU21C Peninsula Annexation and highways, to define annexation Encourage and assist property owners areas wherever possible. in existing unincorporated "peninsulas" In the city's urban growth area to annex Discussion: Permanent physical features provide city limit boundaries that are to the city. easy to identify and understand. Streets Discussion: Unincorporated or roads may be used where "peninsulas" are land areas of any size appropriate. However, streets and roads that are located outside of the city limits are generally less suitable boundaries that have at least eighty percent of their because of utility access issues. boundaries contiguous to the city. RCW 35.13.182, allows the cities to resolve to annex such areas (in existence before June 30, 1994) subject to referendum for forty-five days after passage following the adoption of the annexation ordinance. LU-42 99 City of Bremerton Comprehensive Plan Page 43 LU21F _Communi~ Evaluate all annexations on the basis of their short and long-term community impacts and benefits. Discussion: If the annexation includes proposed development, consideration of the proposal should include an analysis of the short and long-term impacts on the neighborhood and dty in terms of all services required, including water, sewer, urban runoff, roads, schools, open space, police and fire protection, garbage collection, and other services. LU21G Funding Capital Facilities in Annexed Areas Ensure that annexations do not result in a negative fiscal impact on the city. Discussion: In general, property owners in annexing areas should fund the public facility improvements necessary to serve new development in a manner that is consistent with applicable City of Bremerton policies and regulations. If an area annexing to Bremerton requires public facility improvements to correct health and safety related problems, the property owners within the annexed area should fund these improvements. If an area annexing to Bremerton has public facilities that do not meet City of Bremerton standards and the property owners or residents want to improve the facilities to meet city standards, the property owners should fund those improvements, or the proportion of those improvements, that do not have a citywide benefit. Pubhc facility improvements within annexed areas that have a citywide benefit should be considered for funding through city revenues as part of the Bremerton capital facilities and improvements planning processes. LU-43 100 Shaping Bremerton Scenario 3: Plan Update with Centers I'.EGEND City Limits r F rseway Commercial UGA LAND USE DEEIGNATIONS I Marine I~ldustTial ~, Future Implementation Neighborhood Centers District Centers Employment Centers Reserve Center 102 City of Bremerton Comprehensive Plan Page 45 Land Use Designations The following land use designations appear on the Future Land Use Map. Each designation is described below. The descriptions include a set of general development parameters, along with the expression of policy direction and discussion also provided, will be useful in developing zoning regulations that will implement the land use designation. LDR (Low Density Residential) General development parameters Density: 5-10 units per acre Height: Low rise, not to exceed 3 stories Structure Type: Detached single family housing (unless PUD) includes zero lot-line) Character: compatible with surrounding neighborhood Location: Where predominant today, covering most areas of the City. Policy direction: Protect the character of single family neighborhoods by infilling at compatible densities and focusing higher intensity land uses in designated centers and corridors. Discussion: The city's residential neighborhoods are characterized by low-rise (1 to 3 stories), detached homes on traditional urban lots. Some attached housing may be appropriate to respond to the development-sensitive conditions. It may be produced through planned unit development, but should also be Iow-rise. To maintain the traditional character of residential districts that are mostly developed, new residential projects should be built at compatible densities. Efficient delivery of urban services is best achieved at densities such as those found in West Bremerton between Callow and the Narrows. This area is characterized by a formal grid street pattern that defines the most strongly urban platting within the City. The average residential density here approaches seven units per acre. In parts of East Bremerton, densities tend to be lower than in the older districts of the City. Here, topography and more recent suburban platffng models have produced average densities of fewer than 5 units per acre - and far lower in some specific plats. While State Growth Management Hearings Boards have declared four units per acre as the "bright line" minimum density that qualifies as "urban development", cost efficiencies to maintain services at the levels of service desired by residents depend on densities at least as great as those in the heart of West Bremerton. Only when accommodating critical area conditions should density in new projects within the LDR designation fall below 5 units per acre. The upper end of the density range in this category should be 10 units per acre, with such densities being encouraged at the edges of centers and within larger planned developments. LU-45 103 City of Bremerton Comprehensive Plan Page 46 NC (Neighborhood Center) General development parameters Density: 20 units per acre (average) Height: mid- rise, ranging from one to four stories. Structure Type: mixed, ranging from small-lot single family near the center edge to four story mixed use structures at the focal point of the center Character: Mixed-use, walkable environment with urban amenities serving center and surrounding neighborhood. Location: Specifically mapped locations, arranged to serve supporting neighborhood of approximately one mile diameter. Policy direction: Focus significant portions of new development into high quality urban centers providing services to a surrounding neighborhood in a pedestrian oriented, mixed use environment. Discussion: The NC designation establishes neighborhood centers. Neighborhood Centers are mixed use environments with an emphasis on mixed use structures, pedestrian oriented design, mixed and varied housing types, and the provision of neighborhood scale commercial, professional, and coma'nunity services. The size and scale of a neighborhood center is such that it provides a focus and services for an area of approximately one mile in diameter surrounding the center. Neighborhood centers are typically provided with at least one "focus amenity" such as a park, school, public facility, or public plaza. Neighborhood centers have an identifiable central area with building heights of at least two or three stories with retail or office uses at ground level and residential above. Building height is stepped down and density of housing is lower as distance from the focus area increases. Away from the central focus area, residential uses may predominate. Initially, design standards will be created guiding development in all neighborhood centers. Over time, more focused neighborhood planning efforts will be conducted through which a specific plan that serves as an addendum to the Comprehensive Plan will be developed for each center. Centers provide for efficiencies in the provision of public services such as utilities and transit. In addition, centers provide living environments attractive to a growing segment of society that desires a more active, stimulating setting, offering an ability to access key amenities and conveniences without driving. LU-46 104 City of Bremerton Comprehensive Plan Page 47 DC (District Center) General development parameters Density: 20 units per acre (average) Height: mid-rise, ranging from one to five stories. Structure Type: mixed, ranging from small-lot single family near the center edge to five story mixed use structures at the focal point of the center. Character: Mixed-use walkable environment with urban amenities serving center residents and several surrounding neighborhoods. Location: Specifically mapped locations, arranged to serve several supporting neighborhoods. District centers will typically be along primary transit routes and be linked by major arterials. Policy direction: Focus significant portions of new development - especially multi-family residential and multiple neighborhood serving commercial - into high quality District Centers providing services to several neighborhoods in a pedestrian oriented, mixed use environment. Discussion: The DC designation establishes district centers. District Centers are mixed use environments that serve as a focus for a collection of neighborhoods. They provide services, commercial uses, and community amenity for several neighborhoods. District centers are mixed-use environments with an emphasis on mixed-use structures, pedestrian oriented design, a mix of housing types, and a high level of service by mass transit. The pedestrian design emphasis in District Centers is balanced with a recognition that the wider market area that is served by commercial uses will bring traffic and parking issues. District Centers have a central focus area around a focus amenity such as a civic green space or plaza. Buildings surrounding the central focus amenity should be at least three to four stories in height with retail or office uses facing the focus amenity and/or street. As distance from the central focus area increases, building heights and residential densities decrease. Away from the central focus area, residential uses may predominate. Design standards are applied to assure quality development meeting the mixed use nature of district centers while accommodating somewhat larger scale commercial, office, and community uses than those found in a neighborhood center. EC (Employment Center) General development parameters Density: none specified Height: none specified Structure Type: master planned light industrial and/or office uses in combination with supporting residential and commercial uses. Character: well planned and integrated mix of employment activities with supporting residential and commercial services. Location: large parcels or collections of parcels under unified ownership where well planned mix of land uses can be provided. The mix should include employment activities with supporting commercial and residential primarily for the workforce employed within the employment center LU-47 105 City of Bremerton Comprehensive Plan Page 48 (EC continued) Policy direction: Provide areas for large scale employment activities that may draw workers from a large geographic area, where workers can also choose to live and shop near work. Discussion: The EC designation delineates employment centers. Employment centers are mixed use environments characterized by co-location of employment activities and residential and commercial amenities for workers. Employment centers will have significant office, light industrial and industrial activities that create large numbers of jobs, well integrated with areas providing a mix of housing types that provide living opportunities nearby. Small to medium scale commercial uses will also be provided allowing residents and workers easy access to services. The intent of the Employment Center designation is to offer a well planned and designed environment where a potentially large employee population is offered the option to' live nearby places of employment. The Employment center integrates employment activities with housing and commercial activities scaled to serve the employee population at the Center. This reduces home to workplace commuting and offers workers opportunities to lunch, or do shopping for essentials on-site without additional travel. Although the scale of employment activities is such that some employees may continue to commute, the Employment Center will reduce the amount of traffic generated by large scale employment generating land uses. DRC (Downtown Regional Center) General development parameters Density: 40 units per acre (will be reviewed further!) Height: (consistent with DT height plan, details to be added) Structure Type: various, single use residential and commercial, and/or mixed use structures. Character: The Downtown Regional Center offers well integrated employment, shopping and residential opportunities as part of larger urban core. A primary goal is to provide an active street life. Location: Downtown core area Policy direction: Create and revitalize the downtown as the premier urban center of the Westsound region, providing jobs, residential opportunities, and cultural and economic activities. Discussion: The Downtown Regional Center is the core area of the City of Bremerton. As at the heart of the larger downtown, the DRC offers a mix of opportunities to live and work in a vibrant, well designed environment. The DRC designation focuses on providing residential or office uses on upper floors with retail uses at the street level to energize the urban experience. Parking should be underground or in structures - not in surface lots. Street trees, well designed public gathering areas, and lighting should be employed to create a safe, inviting experience at the street level day and night. Residents should find not only access to employment, transportation, and basic amenities, but a LU-48 106 City of Bremerton Comprehensive Plan Page 49 concentration of restaurants, galleries, and unique shopping experiences. The Downtown Regional Center designation facilitates creation of a vibrant urban downtown core that is an attraction to residents of the entire westsound region. This vibrancy is a key element in the economic resurgence of the entire City. The downtown provides a living environment to a growing segment of society that no longer desires the suburban lifestyle. It provides housing for a wide variety of income levels in an environment that allows less reliance on the automobile. The potential juxtaposition of jobs, living, cultural and recreating opportunities, allows the greatest efficiency in the use of infrastructure and other public expenditures of any development style envisioned by this Plan. RC (Reserve Center) General development parameters Density: up to 20 units per acre Height: mid-rise, ranging from one to four stories. Higher buildings should be generally concentrated nearer the center of the designated area. Structure types: Mixed. Various commercial, residential and mixed-use structures Location: As mapped. Policy direction: The reserve center designation anticipates development patterns that will be implemented beyond the 20 year planning horizon employed by this plan. This designation seeks to preserve options for future development as a neighborhood or district center. Development occurring during the current planning period should be carefully monitored so as to not preclude successful center- type development patterns in the future. Discussion: The Reserve Center designation recognizes that the area designated is likely to be appropriate for development as a Neighborhood or District Center sometime beyond the twenty-year horizon addressed by this plan while recognizing also that there is a possibility of re-designation of the area to full center status even within the 20 years. It recognizes that it is important to discourage types of development that - if they were to occur in the shorter-term - would make future development as a center more difficult and/or unlikely. Implementing zoning during the planning period should encourage mixed-use development in buildings of more than one story and discourage site designs that place parking and other non-pedestrian uses along the arterial street frontage. The implementing zoning should also discourage the placement of new structures and uses out-of-scale with eventual creation of a pedestrian-oriented commercial node. In the immediate time frame, implementing zoning should treat this entire area in a like manner. Uses during the period pre-dating the anticipated future re-designation as a center may be a variety of commercial uses. LU-49 107 City of Bremerton Comprehensive Plan Page 50 Core Centers Supporting Residential (CCSR) General Development Parameters Density: varies, urban in nature Height: Three stories maximum Structure type: Medium density residential Character: Well integrated, planned residential development Policy Direction: Create potential for residential development that will add a critical mass of population supporting a strong downtown, the nearby Manette Neighborhood Center, and the Harrison Employment Center. This residential population should be able to circulate between the three centers by using the City's planned "Freedom Trail", mass transit, and other non-motorized modes of transportation. Discussion: The Cores Centers Supporting Residential designation provides for medium density residential development in locations along, or very near, a public trail system linking the Manette Neighborhood, Harrison Employment, and Dozontown Regional centers. The designation provides opportunity for residential development that places additional population within easy walking distance of the commercial activities in the three centers at the core of the City. In addition, the CCSR locations will be well served by public transit. The intent of the designation is to increase opportunity for significant population to locate near these centers, thus increasing their viability and level of activity, while at the same time supporting a pedestrian option for circulation within a "loop", connecting these three kmj closely related nodes of future growth. LU-50 108 City of Bremerton Comprehensive Plan Page 51 CC (Commercial Corridor) General development parameters Density: up to 20 units per acre Height: 3 stories. Structure Type: various commercial types, mixed commercial/residential types near street frontages are preferred. Character: High intensity commercial uses with residential component in street front buildings. Plentiful parking provided in locations behind of beside primary structures Location: Along high traffic corridors/primary arterials as mapped. Initially indicated along Kitsap Way. Policy direction: Provide appropriate locations for high intensity commercial uses in a setting based on an urban design ethic that creates a pedestrian friendly, transit supporting corridor while accommodating a wide variety of commercial activities. Discussion: The Commercial Corridor designation provides for intense commercial activities. It focuses growth along transportation corridors and is intended to provide appropriate locations for activities that require high levels of access by automobile traffic. Design considerations include multistory buildings on wide sidewalks at the street frontage with street trees, attractive landscaping, benches, and frequent transit stops. Transit oriented residential types are appropriate on second or third floors near the street and transit stops. Office uses may also be appropriate near the street frontage. Uses in areas away from the street include parking and more intense retail uses. Special design provisions are employed to provide adequate buffering and transitions to less intense land uses in adjacent areas. Parking for larger commercial operations is provided behind or beside street fronting structures. A full range of services may be accommodated, including such uses as food markets, theaters, restaurants, hardware stores and automobile-oriented businesses such as gas stations and fast-food outlets. incentive-based development should be encouraged with a priority on preserving existing vegetation through the use of open space and vegetative buffers. LU-51 109 City of Bremerton Comprehensive Plan Page 52 WWRC (Wheaton Way Redevelopment Corridor) General development parameters Densit~d: up to 20 units per acre as noted below Height: 3 stories. Structure Type: various commercial types, mixed commercial/residential types near street frontages are preferred, residential and larger parcels away from street frontage. Character: High intensity commercial uses with residential component in street front buildings. Plentiful parking provided in locations behind of beside primary structures Location: on WheatonWay/Hwy303. Policy direction: Promote infill and redevelopment of large parcels along Wheaton Way between designated centers that allow commercial uses along the arterial frontage and higher density residential use behind the commercial uses, provided that the commercial uses are related to the consumer needs and development character of the adjacent, associated residential uses. Discussion: Wheaton Way presents a classic case of aging, strip commercial development. Most businesses are auto-oriented and set within a sea of asphalt parking lots. The edge between the strip commercial uses and adjacent Iow-density neighborhoods is harshly abrupt. The streetscape is dominated by commercial signs, minimal landscaping, discontinuous sidewalks, and parking lots at the street edge. This condition is found in most every American city along some high-volume arterial that once was the new commercial "frontier" in an expanding suburbia - a frontier that eventually becomes the victim of even newer commercial developments even further from the urban core. This lifecycle takes about 30 years to come to the point of substantial urban decline, just about the age of the Wheaton Way commercial corridor. These strip commercial corridors present some of the most negative perceptions of cities. The condition of the Wheaton corridor is one of Bremerton's greatest challenges. The type and quality of existing commercial development do not contribute to healthy neighborhoods or promote new, high-value commercial uses. It will take great deliberate effort by the City, property and business owners and new investors to make a substantial change to the corridor. Unless there is a significant change to the marketplace and growth rates, Wheaton Way will largely retain its strip commercial character for many years - change will be incremental and generational, perhaps as long as 40 years before the corridor becomes a vital place that contributes positively to the community. A start to a new development pattern for the corridor begins with the recognition that growth rates and public resources cannot support planned, whole-scale redevelopment of the corridor over a short period. In a hot growth market, mixed-use development strategies could be extended to the corridor as well as centers with an expectation of fast market response to new demands. In Bremerton's more moderate growth setting, the dominance of commercial uses and the character of the Wheaton Way arterial only attract auto-oriented, commercial uses. However, these are the same uses that create the negative image of strip commercial. Of necessity, new commercial must be something different. LU-52 110 City of Bremerton Comprehensive Plan Page 53 The answer starts on the street frontage. New commercial development should present an urban rather than suburban character. Stores should front at the sidewalk to create a building streetwall similar to those found downtown. Entrances should orient to the sidewalk, and parking should be to the rear or sides of buildings. The rear of commercial uses should be respectful to adjacent uses, particularly if neighboring uses are residential. The sidewalk environment should attract and protect pedestrian travel. Sidewalks should be wide enough to accommodate utility poles, street trees, signage, other street furnishings without impeding walkers or pushing them towards the street. Street trees provide a buffer against the danger and noise of cars traveling at arterial speeds as well as creating shade and an attractive streetscape. Vehicular access should be encouraged on secondary roads near or at the rear of sites whenever possible. Such secondary circulation routes should be linked to those on adjacent sites and/or the existing street system whenever possible. Site designs should consider the possibility of developing secondary circulation routes within the corridor over time and linkages to the circulation system in adjacent centers. Care should be taken to assure that providing such alternatives to access from the busy Wheaton Way frontage does not introduce inappropriate traffic to neighborhood areas. The opportunity for infill commercial should be limited to existing voids in the strip of commercial uses and should not extend much deeper from the arterial than adjacent commercially-developed properties. Greater depth of commercial development should be reserved to larger, master-planned parcels that integrate residential uses into the project. On parcels of at least three acres, higher density residential uses in the 10-20 unit/acre range should be encouraged behind new, i_rffill retail. The new residential population can contribute to ridership for public transit and demand for locally-serving retail, in time, the City should pursue expanding the presence of higher density residential use and a more integrated mix of housing with complementary retail and service uses to increase the vitality and positive image that can be created with this mixed land use pattern. PSRS (Public Sector Redevelopment Sites) General development parameters Density: varies, urban in nature Height: three stories. Structure Type: varies Character: Well integrated, planned development Location: As mapped. Large parcels of groups of parcels i~ public or quasi-public ownership Policy direction: Provide areas for large-scale, planned development, by public or quasi-public entities with a clear comtnunity benefit. LU-53 111 City of Bremerton Comprehensive Plan Page 54 (PSRS continued) Discussion: The PSRS designation identifies special sites representing high potential for innovative development or development meeting a unique need in the community. Sites designated PSRS will be developed consistent with specific district planning efforts that address the site as well as compatibility with surrounding uses and consistency with this comprehensive plan. Potential development includes mixed type residential developments with an open space component that integrate context sensitive commercial and/or office development as a secondary component. Projects completed under the PSRS designation will have a clearly defined community benefit such as the satisfaction of a unique public housing need. NB (Neighborhood Business) General development parameters Density: residential uses accessory to an allowed commercial use Height: 2 story. Structure Type: small scale commercial s~uctures, residential as an accessory use Character: Small scale commercial nodes with uses such as groceries in converted residential structures or purpose built structures that are sensitive to the residential context. Location: Neighborhood Business districts should only be placed in areas where access to neighborhood supporting commercial activities cannot be provided in a Neighborhood Center, District, Center, Employment Center, Downtown Regional Center, or Commercial Corridor district within walkable distance - usually one mile or greater. Policy direction: Support viable neighborhoods without walkable access to services [nd providing locations for limited, small scale neighborhood serving commercial uses. Discussion: The neighborhood business designation provides for small scale business locations outside of centers, the downtown area, or a commercial corridor. Neighborhood Business districts are typically areas of at least several parcels, but no larger than one acre. Uses under this designation are small scale retail and business activities serving the immediate surroundings. These include small groceries and convenience stores, and small offices and restaurants. The NC designation is reserved for use in locations where similar services cannot be provided within one mile at a neighborhood, district, or employment center; a commercial corridor; or in the downtown core. No designated Neighborhood Business area should be closer than one mile to any other such designated area. Minimal design standards should be employed to assure compatibility with surrounding uses. LU-54 112 City of Bremerton Comprehensive Plan Page 55 LC (Limited Commercial) General development parameters Density: zero Height: 60 Structure Type: commercial structures Character: This designation recognizes commercial uses outside of centers that existed upon adoption of this Comprehensive Plan in 2004. Location: various locations as mapped on the Comprehensive Plan Land Use Map Discussion. The LC designation recognizes General Commercial (CG) designations that existed prior to adoption of this 2004 Comprehensive Plan Update and on which development consistent with that designation exists. The designation operates to identify these existing uses, identify their physical extent in 2004. Expansion of these areas is not consistent with the intent of this plan. FC (Freeway Corridor) General development parameters Height: none specified Structure Type: medium to large scale commercial structures Character: High intensity commercial activities including large retail structures; activities that include intense outdoor sales, and automobile related retailing; region serving/automobile oriented hotels and restaurants. Location: Adjacent to freeways. Policy direction: Provide appropriate locations fo, larger scale commercial uses. Discussion: Uses in this district will typically be regional serving in nature and scale, desire signs and structures that are visible to motorists on nearby freeways, and require parking for high volumes of customers. The Freeway Corridor designation provides appropriate locations for large retail uses (including "big box"), other uses that generate high levels of traffic such as automobile repair and retailing, and uses requiring large amounts of outdoor display space such as new and used car sales lots. In addition, motels and hotels for travelers, and restaurants for free way travelers may be appropriate. Development standards in this district balance a recognized need for large amounts of parking, somewhat more signage than in the typical commercial area, and large scale buildings, with good design practices. The design practices that apply will focus on adequate landscaping in parking areas, well designed and placed signs, and adequate buffering for less intensive adjacent uses. LU-55 113 City of Bremerton Comprehensive Plan Page 56 I (Industrial) General development parameters Height: none specified Structure Type: industrial Character: large scale and heavy industrial uses. The district focuses on providing efficient, highly accessible, sites for industry. Location: as mapped primarily in western region of the City. Policy direction: Provide appropriate locations for large scale and/or heavy industries in manner that reduces impact to the community while addressing industrial users needs for easy access, large sites, and locations that do not cause conflicts with residential and other less intense use areas. Discussion: The industrial designation is intended to accommodate heavy industrial uses in locations where there is limited interaction with residential uses. IP (Industrial Park) General development parameters Structure Type: Industrial, office, light manufacturing Character: well planned office and light industrial complexes that display good site design. Emphasis of providing transition to nearby less intense uses (ff any). Location: as mapped Policy direction: Provide for appropriate locations for light industn'al uses in a well planned complex. Industrial Parks should include adequate landscaping, architectural standards, and other site design considerations to assure compatibility with neighboring uses - especially residential areas. Developments must be consistent with any shorelines and critical areas designations. Discussion: The Industrial Park designation provides for existing and future areas of light industrial and office uses. Industrial park areas feature well designed sites with landscaping and unified architectural features. Because such uses are sometimes located near residential or important commercial corridors, care must be given to the interface with those less intense areas. In cases where industrial parks are near shoreline areas, uses should be consistent with the shorelines designation and must protect shorelines values. MI (Marine Industrial) General development parameters Structure Type: Industrial, limited retail, office, light manufacturing, and storage that is functionally and physically dependent on the waterfront Character: well planned office and light industrial complexes and/or marine storage that display good site design and are directly linked functionally and through on-site physical circulation and access to the waterfront. Locatiorc as mapped LU-56 114 City of Bremerton Comprehensive Plan Page 57 (MI continued) Policy direction: Provide for appropriate locations for light industrial uses in a well planned complex. Marine Industrial sites should include adequate landscaping, architectural standards, and other site design considerations to assure compatibility with neighboring uses - especially residential areas. Developments must be consistent with any shorelines and critical areas designations, be functionally linked to water-dependant activities, and provide on-site circulation such that all portions of the site can be accessed from the waterfront through an on-site circulation system. Discussion: The Marine Industrial designation provides for existing and future areas of marine related light industrial and storage uses. Marine industrial areas feature well- designed sites with landscaping and unified architectural features. Because such uses are sometimes located near residential areas, care must be given to the interface with those less intense areas - there should be no external impacts from light, noise, odors, dust or traffic. Uses should be consistent with the shorelines designation and must protect shorelines values. These sites offer a unique opportunity for Bremerton residents to find commercial services related to the marine environment in convenient locations. Typical activities include boat li~ts, marine railways, boat storage, boat maintenance and repair, marine parts fabrication and other commercial or light industrial uses dependent on on-site access to navigatable waters and the marine industry. OS (Open Space) General development parameters Structure Type: none, except play structures, restrooms, shelters, signs, and other small structures supporting recreational use. Character: Open space in natural state or developed for active or passive recreation Location: as mapped Policy direction: Provide a system of public open space for use as habitat corridors, active or passive recreation sites, or to protect critical slopes and other sensitive areas. Discussion: The Open Space designation is applied to major open space areas that are typically large publicly owned open areas. The Open Space designation assists implementation of a pattern that attempts to meet several goals. Other portions of the intended open space pattern are accomplished by allowing schools, parks, and trails as permitted uses in various other land use designations and by identifying additional intended future parks and open space area for public acquisition. LU-57 City of Bremerton Comprehensive Plan Page 58 CUL (City Utility Lands) General development parameters Character: The City's management objectives for these lands shall be resource-related and structured to protect the watersheds and timberlands. These lands are vital to protect water quality and quantity in Bremerton, ensure a healthy forest cover, dispose of biosolids created from wastewater treatment, protect fish (including salmon), and provide essential habitat for wildlife. While resource management is the primary objective, there are some commercial activities that are allowed on utility lands such as the location of antenna sites. Location: As mapped Policy direction: Maintain the primary character of this land as resource-related. All development should be limited, and demonstrate no significant environmental impact. Discussion: While the primary use of this land shall continue to be used for the protection of natural resources, there will continue to be a limited amount of commercial and recreation development within the lands designated as "utility." Wherever possible, co-location should be utilized for commercial structures such as antennas. Minimal footprints shall be required. Any future development that associates with current adjacent recreational uses (such as the Gold Mountain Golf Course or Jarsted Park) should be limited to that portion of the designation south of Old Belfair Highway and adjacent to existing similar development. Moreover, any development within this fairly pristine environment shall conform to shoreline and critical lands ordinances and be designed in an environmentally sensitive way. All developments should go through rigorous environmental review. Where development can be allowed should conform to the recommendations made by other regional watershed planning efforts such as the Chico Watershed Alternative Futures Project. WS (Watershed Lands) General development parameters Density: none Height: N/A Structure Type: N/A Character: TI'LiS designation provides for the judicious use of publicly owned watershed property. The primary use of the property is the protection of crucial public water sources. This land is primarily part of the Union River Watershed and should continue to be totally protected. Location: Land designated WS is located along the west and southwest edges of the City. Policy direction: Prohibit or restrict development on lands that serve as critical watersheds affecting the sources of public water supply LU-58 116 City of Bremerton Comprehensive Plan Page 59 (WS continued) Discussion. The WS designation is applied to lands for the primary purpose of protecting the City's public water supply. Lands designated WS also provide significant open space and animal habitats. HE(General Higher Education) General development parameters Density: N/A Height: 60 Structure Type: educational facilities Character: This designation recognizes public collegiate campuses. Location: locations as mapped on the Comprehensive Plan Land Use Map. Discussion: The HE designation recognizes the Olympic College Campus. The designation provides for growth at the OC Campus, but promotes growth that is compatible with the surrounding neighborhoods and other nearby areas. In general, the College is encouraged to seek to accommodate new facility needs by growing "up" rather than by occupying lands in the surrounding areas. Increased building height is suggested to accommodate such growth. In addition, campus growth through infill of underutilized ground area within the existing campus boundary is also encouraged. The City will re-asses maximum lot coverage standards and consider other regulatory measures to accommodate the desired infill. TUPF (Transportation, Utilities, and Public Facilities) General development parameters Density: N/A Height: 35 Structure Type: transportation, utility, and public facilities not within a center Character:. Location: locations as mapped on the Comprehensive Plan Land Use Map. Discussion: The TUPF designation recognizes significant transportation provider offices, public utility installations, and other public facilities not located in centers. Recognized uses include public transit offices and City public works offices and facilities. LU-59 117 Cit~d of Bremerton Comprehensive Plan Page HOUSING ELEMENT The Element suggests creative and incremental strategies to serve the existing population, combined with necessary redevelopment opportunities to help b~qng new growth and a healthier residential mix to the City of Bremerton. Vision.for Housin~ Bremerton ensures quality homes and cohesive neighborhoods that empower its citizens. Coordinated city services and programs emphasize qualify homes, home ownership, residential safety, and appropriate property maintenance. The City fosters the creation and enhancement of cohesive neighborhoods through infilI and rehabilitation projects designed with a community oT~entation. New development, located at strategic locations that capture local amenities and complement rising land values, support diverse lifestyles and a broader, more innovative choice of housing types. Empowered citizens work with the city to protect neighborhood stability, residential compatibility, and an increased sense of community identity and pride. HS-1 Page 2 Cit~d of Bremerton Comprehensive Plan The Housing Element focuses on the Introduction most bask function of community living - shelter (where and how) for the local population. It is pragmatic in its acknowledgement of deteriorating housing conditions and its advocacy for better- protected and cohesive neighborhoods with identifiable characteristics and features that encourage higher homeownership rates. The element also recognizes the need for housing assistance in the community, Bremerton has developed over the past with a majority of current residents in century as a d~rable and convenient the City considered low income and community, providing a cherished unable to qualify for or f~lly maintain setting for residents. Originally homeownership costs. The Element founded in conjunction with its major suggests creative and incremental employer, the Puget Sound Naval strategies to serve the existing Shipyard, the quality of life in population, combined with necessary Bremerton is admired tkroughout the redevelopment opportunities to help wider region, especially for commuters bring new growth and a healthier to downtown Seattle. residential mix to the City of Bremerton. The City's distinctive neighborhoods Housing conditions and aspirations are have survived various growth cycles· a basic starting point for citizens to be They showcase the c~ s umqu engaged in improving the commumty. scenery, with extensive waterfront and Beyond the need for sound shelter, a mountain vistas, walkabil~ty, and person's home also provides a base convenience to regional employers, reference for daily activities, a sense of shopping, and recreation. The Housing association with neighbors, and a vested Element supports such residential interest in the wider community. Thus, qualities and opportunities within the the Housing Element goals and policies City of Bremerton. It also addresses provide a direct connection to citizens, recent challenges to the quality and either as an expression of their personal viability of Bremerton's housing stock needs or of their desire for community and resident4~al areas. Responding to identity. This element asserts this focus the urgency of the challenges, cit2ens in comprehensive planning, challenging developed the Housing Vision, Goals, transportation and city services, for and Policies to reverse the loss of value example, to support cohesive within urban neighborhoods. In doing neighborhoods. so, they charted a housing plan that supports the ongoing rediscovery of Bremerton as a great place to live. HS-2 119 City of Bremerton Comprehensive Plan Page Challenged further by the overarching goal Fot~nat of the Housing Element of a healthier community, with a wide Following this introduction, the Housing range of housing options, fire Housing Element is organized into four main Element integrates into the Comprehensive sections. They are: Plan. Coordination with the Land Use 1) an examination of current housing Element is particularly important as it conditions, prescribes types of uses, densities, and 2) a projection of expected future housing development provisions. In fact, a basic needs, goal of the Land Use Element is to protect 3) the community's goal and policy qualiD, single-family areas while direction for responding to the those encouraging new growth in strategic conditions and needs, and locations for new, more intense vibrant 4) an overview of implementation urban strategies set forth by the goals and policies. Much of first two sections is data-intensive, such as an inventory of the existing housing stock, and has been fully captured in the Housing Appendix, in Volume 2 of the Bremerton Comprehensive Plan. The heart of the Housing Elements is its Goals and Policies. They provide for The Housing Element also responds to the strategic implementation of funds, numerous mandates articulated in federal facilities, services and pohcies to support funding protocols, the Washington's homeownership, diverse housing choices, Growth Management Act, the County- cohesive neighborhoods, Iow income wide plarmmg Pohcies, and the services, special needs in the city's Consolidated Plan of Kitsap County (a population, a broad range of affordable County-wide housing report required for homes, and economic development. federal funding). Housing policies, Addressing housing needs requires a broad especially those providing for an equitable set of considerations, especially in realizing distribution of below-market subsidized that the overall quality of life is largely housing, require inter-jurisdictional shaped by regional opportunities and coordination and cooperation in meeting trends. A key component for success then, needs and in attracting new housing is inter-jurisdictional coordination development. Therefore, housing regarding the regional economy, strategies are also recognized from other demographic changes, and legislative plans and other legislation for integration challenges. with this element. To that end, this element incorporates Ultimately, the Housing Element wi.Ll much of the data in the county-wide succeed by empowering individuals, developed Consolidated Plan, especially it associations, and corrm~unities to improve assessment of housing needs. It also their living environment, especially with its incorporates the Consolidated Plan's framework for future more specific already adopted goals and policies for planning processes, goals, and policies, common challenges in emergency, HS-3 120 City of Bremerton Comprehensive Plan Page 4 transitional, and pubhc housing. Kitsap Current Conditions County and the City of Bremerton both participated fully in the development and Recent trends, local demographics, and approval of the Consolidated Plan, chiefly characteristics of the housing stock threaten as recipients of Federal HOME funding, Bremerton's legacy as a great place to but also as partners in addressing housing reside. Current conditions in the local needs of the region. While assessing the housing market are detailed below and in existing housing conditions peculiar to the Housing Appendix. Unfortunately, Bremerton, especially in the Housing they largety result from deteriorating local Appendix, the Housing Element brings a economy and a gradual weakening quahty focus to the aspirations of Bremerton of the city's ageing neighborhoods. The citizens, clearly represented in the Housing data, however, also portrays the current Goals and Policies for Bremerton through opportunity to capitalize on Bremerton's 2023. well established neighborhoods, its unique position in the greater Puget Sound The existing Housing Stock of Bremerton is economy, and, lastly, reg4onal and national summarized below (detailed in the housing trends. Housing Appendix), relying heavily on data provided through the United States The City of Bremerton population has Census Bureau, illustratZug conditions over essentially stagnated for the past 30 years. the past twenty year period. Housing The decennial census reports from 1970 to throughout Kitsap Count)' provides 2000 shows a negligible increase of less comparison and, more importantly, context than 5,000 people. Over the t-Line span, this for housing dynamics in the City of is an insignificant increase (less than 1/5 of Bremerton. National and regional trends, 1% annual growth), and easily dismissed including skiffs in the Puget Sound amid Bremerton's regular fluctuations in housing market (i.e. Freemont artist lofts the military population of two to three below), are prominent in the subsequent thousand of people. In fact, population section on Projecting Housing Needs for estimates conducted by the State of the horizon. Washington, in coordination with the U.S. Navy, adjusted the city's population down to its 1970 level as recently as February 2002. Furthermore, the most recent U.S. Census report (April 2000) stands out from previous census counts for actually showing a decrease in the city's population (883 people) since the 1990 Census. The only other decrease on record was reported between census years 1950 and 1960, due to : a population downswing from an ali time high associated with World War II activity at the Puget Sound Naval Shipyard. At the height of World War II, Bremerton's housing stock came under severe stress, when a population of 72,500 required immediate shelter among a housing stock in place for a 1940 population of around HS-4 121 City of Bremerton Comprehensive Plan Page 5 15,000 people. That housing crisis still influences the type, size, cost, and quality of Bremerton's current housing stock. While it is not unheard of for a well established city to have a stable or slightly decreasing population over time, Bremerton's lack of growth in the past 30 years, despite land use capacity, eludes both past and current growth forecasts. More glaring, the surrounding county and region have witnessed tmprecedented Characteristics of the existing housing growth. The whole of Kitsap County, for stock include type, occupancy, age, example, went from a population of 147,152 condition, and affordability, as fully in 1980 to a population of 231,969 in 2000, detailed in the Appendix of the Plan. an increase of nearly 60%. Given this Comparing the housing stocks of the dynamic, Bremerton's proportion of the City and the wider Kitsap community, county's total population and regional the characteristics of Bremerton's growth decreased dramatically, beginning existing housing stock, and its current in 1970. (See Table G-1 in the Appendix of position in the development and the plan.) housing market emerges. This position can then be advanced and improved Evidently, the housing and development upon. market in Bremerton has proven uncompetitive with surrounding areas. Census 2000 reports a total of 16,631 There are numerous causes for this, both on housing units in the City of Bremerton. the supply and demand side of the housing This is actually a 6% increase (938 new market. Supply-side factors include the units) since the 15,693 dwelling units higher cost to redevelop existing city lots, reported in 1990. This increase in verses the undeveloped parcels and new reported dwelling units, however, did development opportunities in the County, not yield a corresponding population including its own Urban Growth Areas. increase. As sho~m above in Table G-1 Bremerton's somewhat outdated housing above, Bremerton's population actually stock, dating back to the previous growth decreased by 883 people between 1990 periods of 1940's and 1960's, often fails to and 2000. The discrepancy between an address contemporary market demands or increasing housing stock and a lower to address the diverse market demand for population count can be partially housing. Today's market demands explained by an increased vacancy rate partially reflect demographic changes, in the 2000 census, to just over a 9% discussed throughout the document, in vacancy rate (1546 units) tn 2000, verses areas such as household type, size, income a 6% vacancy rate in 1990 (897 units.) level, and special needs populations. Overarching demographic dynamics, such Vacancy rates in the Bremerton are as substantial growth in Senior citizens, strongly influenced by the arrival and Singles (Non-Married, no children), and departure of Navy ships and their crews Single Parent Households, indicate a need at the Puget Sotmd Naval Shipyard for greater diversity in housing types. (PSNS). This is evident particularly in HS-5 122 Page Cit~d of Bremerton Comprehensive Plan Bremerton where the vacancy rate can Despite Bremerton's lower number of rise and fall dramatically, made more persons per household and a lower acute by the city's relatively small percentage of family households (where housing stock and its proximity to children are present) verses the wider PSNS. For example, vacancy rates in county, there are more "overcrowded" 1994 went from 13.9% in the Spring to housing incidents counted in Bremerton 3.0% in the Fall, due to the return of than Ydtsap County or its other cities. In Navy personnel. A market equilibrium the 2000 Census, 5.5% of Bremerton's vacancy rate is commonly estimated to housing was reported to have more than be 5%, which is closer to the 2000 1 person per room, compared with 3.5% Census vacancy rate reported for the in Kitsap County as a whole. This is a sign that cost and choice of housing are county at 6.7%. problematic for much of the exisiing Bremerton's unique housing demands population. This data suggests that a require a built-in flexibility in its significant number or residents are housing stock as well as higher currently sharing units or having to live quantities of units than average vacancy in units that are smaller than enjoyed by rates and population counts would the average American or Kitsap County suggest for communities with more family. stable population numbers. Another unique characteristic of the local The smaller size of existing units, housing stock is the accompanying high detailed in the first subsection of the turn-over rates associated with a more Housing Appendix titled, "Type", is an obvious factor underlymg Bremerton transient population, producing further stresses on the housing stock, as shown smaller household size and its overcrowding rates. The city's in the housing condition analysis below, relatively lower income levels and Though largely attributed to military higher poverty status, detailed under deployments in Bremerton, a generally "Affordability' are also related, lower number of people per household complicating the challenge of meeting is another factor to consider in looking housing needs and providing healthy at the needs of current residents, residential settings. especially as the percentage of smaller households is growing in long-term national trend analysis. Household size is an especially important factor in projecting housing needs and ensuring a housing market that will be better attuned to changing national and regional demographics. It will be further addressed in Future Housing Needs section below, which will also look at Bremerton's demographics to better understand local needs for housing types. HS-6 123 City of Bremerton Comprehensive Plan Page 7 More recent quantifiable changes in the locally, require continual coordination Bremerton's housing stock are and education. While endorsing the identifiable in local building permit Countywide Consolidated Plan and its records and WaslTtngton State Office of objectives regarding shared public Fin~mcial Management estimates which housing strategies, this Element works track demolitions and group quarters to elevate the housing issues and units. Between the Census date of April opportunities among federal, state, and 1, 2000 through April 1, 2003, State county resources. In some areas, estimates show a net decrease of 27 housing resources are too focused on units - largely due to the reported loss of Bremerton while in other areas, 72 units to demolition. This demolition resources are too limited or diversified activity is largely due to physical for a healthy future. improvements pursued by the City in a "gateway project" to advance the As detailed in the Housing Appendix, quality of life in Bremerton and to Bremerton is particularly burdened with potentially entice new residential more than its "fair share" of subsidized qualities and investments. The majority units (as a~eed upon in the county- wide Consolidated Plan.) Bremerton of the new residential units reported Housing Authority and the Kitsap since April 2000, however, are Consolidated Housing Authority, who manufactured homes, not the more expensive frame construction traits that administer and provide subsidized can indicate an increase in land values, housing, must con~lnue the work to Despite the even smaller horizon of break up concentrations of public time, the time period of April 2002 to housing and to diversify housing April 2003 shows an increase in number options in Bremerton. The nearly 3,800 of residential units that favor new frame households currently on waiting lists for construction units, perhaps showing housing assistance speaks to this need, new investment interest in Bremerton's including innovative options such as housing stock. Market conditions, workforce-housing and co-housing especially historic low mortgage rates developments to meet such needs. making real estate investments more affordable in 2003, also partially explain Another need clearly demonstrated by this promising upgrade in supply of the examination of existing housing resources (see Housing Appendix), is new, more durable housing in for transitional housing in Bremerton. Bremerton. The high percentage of renters in the city, at 63% in the 2000 Census, would Housing Resources benefit from transitional options, with Meeting the needs and vision for. related services, that ultLmately lead to housing in the City of Bremerton ts predicated by a shared understanding self-sufficiency and home ownership. and commitment between all interested parties, including residents, public Additionally, for those facing acute officials, non-profit organizations, and housing crisis, there only 12 existing private developers. Housing resources, family units for homeless families in from tax credits for new market Bremerton, only 17 beds for women and affordable ~dgh density; projects to children fleeing domestic violence, and, federal housing vouchers administered currently, no homeless shelters for men. HS-7 124 City of Bremerton Comprehensive Plan Page 8 Future tections Conditions above and referenced in setting the city-wide projections found in the "Introduction, Set-ting the Planning Framework" and within the Plan Appendices, help profile the City of Bremerton, Kitsap County, and the State of Washington. Population and household size are key factors used to estimate the number of new housing units which will be needed during the next twenty year period. Income and age information, described above in occupamcy and affordability section Evaluating local housing needs requires above, help identify the types of multiple levels of analysis from housing and physical improvement numerous perspectives. It is meant to which will be in demand. be an on-going charge to the city and to housing organizations and can not be fully accomplished in one snapshot in time or in a rigid housing plan. Demographics, studied over time from the local to the national level, is a conventional approach to an examination of the housing market. National trends, for example, suggest continued and significant growth in the number of single households (non- married without children), seniors (65 The focus of this Comprehensive Plan is on years and older households) and single- enticing new growth to the city which parent headed households. The capitalizes on Bremerton's unique location particular housing needs and and access in the region as well as its characteristics of these demographics, metropolitan characteristic, unique in Kitsap including a smaller household size, County. Existing demographics, household challenge the predominance of sizes, and Incomes are instructive for suburban-style single-family detached gauging the existing market but, as detailed housing units In the current housing above, current data highlights approaching market. While household size changes in the market. This Plan endeavors nationwide continues to decrease, a not only to address long-standing issues significant subset of the nation's regarding housing, but to attract new kinds minority population shows consistently of housing and opportunities. The Centers higher household sizes with different Concept, central to this Comprehensive Plan, housing expectations, form the basis for this approach. It is found in the Land Use Element but repeated below as it provides the destination point that the Demographic data taken from U.S goals and policies are designed to assist the Census, described in Current community in reaching. HS-8 125 City of Bremerton Comprehensive Plan Page 9 Calculation of Future Housing Needs As reported in the Housing Appendix, (Summary from Appendix) 700 units will be lost to obsolescence over the same twenty-year period. For Future housing needs are arrived at planning purposes, it will be assumed primarily by projecting expected that these traits will be replaced in a population increases, expected future similar distribution of types as expected household sizes, and calculaffng the above. The following table summarizes resultant number of units needed. The the resultant housing need calculation: appendix for this housing Element illustrates those calculations. Location units %of total Single Family To arrive at a reasonable forecast of Residential 1429-1607 25-27 housing needs, two areas of investigation are necessary. First a NonCenters 500-750 9-12 projection of the number and types of Multifamily housing needed to accommodate expected new residents is made (new Centers 2174-2609 41-42 housing units). Secondly, an estimation of the number of units that will be lost Downtown 500-750 9-12 to obsolescence - and therefore need replacement - must be added to the new Replacement 700 11-13 need previously calculated (replacement units). TOTAL 5303-6416 The appendix section provides the first calculation. A total of from 4603-5716 new residential units wig be required to accommodate the expected population increase of 13,000 people over the next twenty years (2003-2023). The land use model upon which this plan is based assumes that between 2674-3359 of the new housing units wig be located in the designated "centers" identified in the Land Use Element. Somewhere between 1429 and 1607 units will be single family homes located in more traditional neighborhood settings, while about from 500-750 will be remain in currently designated multi-family areas outside of centers. HS-9 126 City of Bremerton Comprehensive Plan Page Housing Goals and Policies The goals and policies presented in this section were developed by community members as well as public officials, county-wide, as a response to the challenges identified in the Housing Element and the Housing Appendix in Volume 2 of the Comprehensive Plan. The Bremerton Goals for Housing are organized into 5 main areas: H1 Preserve and enhance Bremerton's quality housing stock · HOUSING QUALITY, · NEW HOUSING DEVELOPMENT, (3) H1A. Promote private and public AFFORDABLE HOUSING, efforts to preserve the existing quality · COHESIVE NEIGHBORHOODS, housing stock by maintaining sound · HOUSING PLANNING AND units, rehabilitating substandard units, COORDINATION and replacing severely deteriorated units. Housing Quality: · Promote maintenance of housing that Discussion: Part of Bremerton' s charm is its is now in standard condition to older housing stock, half of which was built prevent its deterioration to before 1950. Many of these units are well substandard condition maintained and in good condition, and give character and a sense of stability to the city. · Promote the rehabilitation of However, large numbers of these units have and substandard structures when the cost will reach the end of their useful lives if not rehabilitated soon. While the City's Housing of rehabilitation is less than the cost of Rehabilitation Program has been making good replacement housing. This cost factor strides in helping lower income people upgrade does not apply to housing designated their houses, it is not likely to have the financiaI as having historical/architectural capability to assist all homeowners who need significance help. Deteriorating commercial structures compound the problem, blighting surrounding · Promote replacement of substandard areas, discouraging redevelopment, and holding structures which have excessive down the City's tax base. New strategies will be needed to tm'n the tide of housing deterioration rehabilitation costs with new into opportunities for revitalization of the City. structures HS-10 127 Ci~d of Bremerton Comprehensive Plan Page 171 H1B Promote private and public efforts to provide adequate capital for private and public rehabilitation housing projects at competitive or favorable costs · Facilitate rehabilitation of rental housing properties to improve the condition of the rental housing stock · Facilitate rehabilitation of owner- occupied housing based on the credit- H2 All housing will be safe, sanitary, worthiness of the dwelling rather than and in good repair credit-worthiness of the homeowner H2A Work towards residential conditions H1C Promote rehabilitation and which comply with building code, with a maintenance of existing multifamily special focus on weatherization. rental housing in appropriate zoning districts. · Require housing units to be maintained in a safe condition HID Promote efforts to identif3', rehabilitate and preserve homes having · Require removal of unsafe housing and historical/architectural significance, restoration or redevelopment of the site to Give priority to such homes in City a safe condition for quality housing rehabilitation programs. ~,~,~ · H2B Promote private commitments to improvement of the housing stock by using public resources to remove or abate blight-Lng influences within or near residential areas. · Demolish and/or redevelop deteriorated commercial structures. Give priority to those which contribute to the blight of residential areas · Provide effective operation and maintenance of public services and Large Homes often make for attractive, facilities affordable efficient units, for rent or as innovative condominiums. · Promote financial assistance for essential repairs to substandard structures that provide housing for low and moderate income persons. Support private sector low-interest loan programs for such repairs, combined with public resources when available HS-11 128 Page 12 City of Brenlerton Comprehensive Plan New Housing Development H3E Promote housing opportunities Discussion: Most ofBremerton~s housing that respond to the special needs of stock was developed to meet the needs of students, the military, households honseholds in days gone by. Today's housing headed by females, the elderly, and the needs are often very different. Encouraging the handicapped. development of ncw housing within already developed areas presents a special challenge that requires strategic policies. Workforce or temporand housing should be designed to blend with a neighborhood' s established character and provide attractive opportunity to live and ~tlork locally. H3 Provide a variety of housing H3F Encourage the development of a types and densities to meet changing full range of housing options for seniors needs of Bremerton residents in proximity to services and amenities. H3A Promote private and public · Consider allowing retirement housing efforts to provide adequate capital for complexes in all residential zones private and public new housing projects subject to development standards at competitive or favorable costs, ensuring compatibility with surrounding neighborhoods · Support a Letter of Credit progam to expedite housing project start-up · Encourage programs which allow seniors to remain in their homes as long H3B Support the private sector's as possible (e.g. home maintenance and efforts to meet changing housing repair, home health care, reverse demands and special housing needs, mortgage programs, meal programs) H3C Stimulate the production of new Consistent with RCW 36.70A.410 and related laws housing for all income, age, family against discrimination in the area of housing, the City will not enact any ordinance., law, or types, regulation that ~reats housing for handicapped residents, or gro~p care facilities for children, H3D Encourage the provision of differently than a similar structure occupied by a adequate housing to meet the needs of family or other unrelated individuals. short term residents, part4cularly for those in the lower income categories. HS-12 129 City of Bremerton Comprehensive Plan Page 13 H3G Provide for integrat4on of special needs housing within the community · Allow residential care facilities, including foster care facilities, in all residential zones; provided, that such facilities must comply with development standards that will assure compatibility with the surrounding neighborhood H3H Accommodate creative housing H4 Provide housing in mixed-use options, such as artist's lofts, especially in centers for a variety of incomes, age mixed use areas and rehabilitated groups, and household types. structures Discussion: Mixed use centers provide a unique opportunit~j to reach many of the housing goals ~ and policies qflthe community m an efficient, well designed, and integrated manner. Goals and policies that call for; providing a variehj of housing types to meet changqng needs; addressing housing needs of seniors, siugles, shtdents, and the handicapped; creating walkable housing areas; placing "gathering places' in neighborhoods; placing housing and employment in proximit~y; aud increasing housing densihj to encourage more efficient use of public facilities and transit, all can be addressed by locating Co-Housing Projects allow for individual significant amounts of f~tture housing in centers. ownership of with shared common facilities and services, such as child care and common H4A Target the use of affordable meals, tax credits to Centers. H3I Support efforts to provide emergency and group housing. HS-13 1~0 Page 14 City of Bremerton Comprehensive Plan Affordable Housing: Discussion: Bremerton provides a significantly higher share of publicly subsidized rental housing than most of the rest of Kitsap County. This unequal distribution creates a disproportionate burden on the City of Bremerton, which must finance city seroices with a weaker tax base. At the same time, the Cihd recognizes that low income families need housing with access to cihd services and.facilities. Further, the city recognizes subsidized housing and other creative housing programs can empower residents with housing choices and assist in the role of communihd · Promote residential irffill development of maintenance and enhanceme~t, vacant or underdeveloped parcels at somewhat higher densities than surrounding properties, with assurances that neighborhood compatibffity will.be maintained through appropriate zoning and related techniques (e.g. development standards and architectural controls). · When providing for below market rate housing, give priority to publicly assisted H5 Promote access to quality, affordable family housing in privately owned developments containing a mix of homes for all Bremerton residents regardless market-rate and below market rate units; of their economic capabilities or special or, if entirely public- subsidized housing, needs in small neighborhood scale buildings H5A Provide opportunities within existing · Stimulate the production of new housing neighborhoods for below market rate mxd for all income, age, family types, affordable housing without negatively including mid and upper incomes impacting the existing neighborhood character. H5B Provide the City's fair share~ o~ the · Allow Accessory Units associated with, and county-wide need for below-market, subordinate to, existing or new single family public-assisted, rental housing. dwellings in all residential zones when · Promote the conversion or transitional use of below market rate rental housing units to support below market rate homeownership opportUnities ~ "Fair share" as defined and determined by cross-jurisdiction coordination of the Kitsap Regional Coordinating Council. See County- wide planning polices found on page 2-3 for further detail on this process. HS-14 131 City of Bremerton Comprehensive Plan Page H5C Disperse below-market housing Cohesive Neighborhoods: throughout the city to avoid concentrations in any particular area. Discussion: Cohesive neighborhoods provide the desired setting for quality homes, not merely H5D Locate publicly assisted housing shelter for city residents. Bremerton's Iow proportion of owner-occupants (only 39%) tends in areas that will provide eligible to result in a minority of residents having a stake households with wider geographical in maintaining the housing stock and upgrading choices, the neighborhoods. A high proportion of renters also results in a higher tunwver of residents, H5E Maintain quality public housing zohich can undermine neighborhood stability and stock in good condition, discourage homecamership interest. Social interaction and neighborhood identity, partially H5F Increase the cost efficiency of a result ora neighborhood's design and planning process, on the other hand, encourages desired providing utilities and services to stabili~d for increased homeownership levels. residential areas through increased densities. · Reduce cost for housing developments and enable easier maintenance of prescribed levels of service through appropriate dens,:ties · Promote increased housing density to provide a broader customer base for pubhc services including utilities H6 Build strong, cohesive neighborhoods with a majority of Bremerton households owning their own homes H6A Increase opportunities for home ownership within the City of Bremerton · Promote expanded home ownership opportunities for low and moderate income households · Encourage housing intensity which is close to employment and public transportation · Regularly invest4gate city policies, including taxation and incentives for multifamily units, to ensure that the cib' is not encouraging rental units HS-15 132 City of Bremerton Comprehensive Plan Page 16 H6B Encourage affordable residential · Design and implement improved developments in locations, especially in police response systems for "less than places where development has been crisis" situations overlooked. H7D Improve the visual quality o£ residential areas where needed. · Accent viewsheds in the design of residential areas · Identify and establish view corridors along residential streets · Advocate for the undergrounding of utilities H7 Promote safe, attractive, liveable neighborhoods that will attract homeowners H7A Upgrade and maintain levels of public services. H7B Implement the Parks and Recreation Comprehensive Plan, realizing neighborhood recreation H8 Promote social interaction and H7C Maintain a leadership attitude neighborhood identify and destiny which delivers responsive public actions in assuring personal security, code HSA Authorize city wide and enforcement, and other public services neighborhood process to propose design review mechanisms, such as a design · Maintain a strong code enforcement review board, architecb-tral guidelines, program or design standards for uses within residential sub-areas. · Establish programs to protect personal security HSB Advance the concept of the "the third place" within neighborhoods, · Maintain effective crisis response providing for gathering places and convenient services where neighbors · Improve neighborhood/police can interact. relations H8C Encourage walk-ability within · Develop effective neighborhood crime neighborhoods. defense mechanisms HS-16 City of Bremerton Comprehensive Plan Page 17 HSD se neighborhood plans to outline intergovernmental agreement with public and private projects for each Kitsap County to foster implementation of affordable housing neighborhood. goals HSE Incorporate neighborhood plan implementation projects in the city's · Seek cooperative relationships with Capital Facilities Plan. other agencies to encourage the development of affordable housing Housing Planning and Coordination: within the communities H9E Maintain funding streams for Discussion: It is critical to maximize the housing programs and strategies effectiveness of scarce public resources in improving housing opportunities in Bremerton H9F Reduce cost of housing and throughoat the Coun~y. developments with moderate costs per resident necessary to support prescribed levels of public service ing d ity t · Promote increased hous ens o provide a broader customer base for public services including utilities H10 Increase citizen education and involvement in Housing Issues H9 Ensure coordinated, effective planning and management of housing programs and development issues H9A Eliminate unnecessary regulatory impediments to the development of affordable and special needs housing consistent with the public health, safety and welfare. H9B Improve certainty in development regulations to the extent consistent with the public health, safety, and welfare. H9C Provide an expedited permit process. H9D Promote intergovernmental cooperation to achieve City housing goals. · Seek to enter into an HS-17 3.34 City of Bremerton Comprehensive Plan Page ]8 Consistency of the Housing Element While the goals and policies form the foundation for this community's Housing Plans, it must also fit within broader parameters. First, the Housing Element must also address an important state-wide and regional challenge - the provision of affordable housing. Statewide and regional priorities are established in the Growth Management Act itself, and in the Kitsap County County- wide Planning Policies. The Growth Management Act housing goal describes a fundamental requirement for Housing Elements. The GMA housing goal states; Encourage the availability of affordable housing to all economic segments of the population of this state, promote a variety of residential densities and housing types, and encourage preservation of existing housing stock. Discussion: Affordable housing in Bremerton is abundant but it primarily se~'oes low and moderate income populations. The city must work towards diversif~ng it affordable housing choices for a healthier combination of economic segments of the population. A variety of housing densities and types that are developed with a community orientation and cohesiveness will assist with this Growth Management charge. In addition to the call in the GMA for affordable housing strategies within Comprehensive Plans, jurisdictions within Kitsap County have also agreed to cooperatively address issues of fair and equitable distribution of affordable units. The County-wide Planning policies make the following call to ali jurisdictions within Kitsap County: A. The County and the Cities shall inventory the existing housing stock consistent with the Growth Management Act following each decennial census review, and correlate with current population and economic conditions, past trends, and ten year population and employment forecasts, to determine short and long range housing needs, including rental and home ownership. B. Recognizing tlw percentage share of the existing and forecasted countywide population and the distribution of existing below market rate housing, the County and the Cities shall develop strategies to equitably disperse projected countywide below market rate housing needs throughout Kitsap County in the Urban Growth Areas and, wIwre they are specifically found to be appropriate in consideration of existing development patterns and densities, in designated Rural Communities. C. Local housing inventories, projections, and equitable distribution strategies shall be compiled and updated under the coordination of the Kitsap Regional Coordinating Council to identiJSj countyztlide conditions and projected needs. HS-18 185 Ci~d ofBremerton Coraprehensive Plan Page 19 D. The County and the Cities shall each identi~d specific policies and implementation strategies in their Cornprehensive Plans and shall enact implementing regulations to provide a mix of housing hJpes and costs to achieve identi~ed goals for both market rate and below market rate housing. Recogrfizing that the market place makes adequate provision for those in the upper economic brackets, some combination of appropriately zoned land, regulatory incentives, financial subsidies, and innovative planning techniques will be necessary to make adequate provisions for the needs of middle and lower income persons. (WAC 365.195-070.6) The following policies relate to the provision of below market rate housing, county-wide: A. Local comprehensive plan policies and development regulations shall encourage and not exclude below market rate housing. B. Below market rate housing strategies should include: · prese~ation, rehabilitation and redevelopment of existing neighborhoods as appropriate, including programs to rehabilitate substandard housing; · provision for a range of housing hjpes such as multi-family, single family, accessonj dwelling units, cooperative housing, and manufactured housing on individual lots and in manufactured housing parks; · housing design and citing compatible with surrounding neighborhoods; · mechanisms to help people purchase their own housing, such as low interest loan programs, "self-help" housing, and consumer education. C. Each jurisdiction shall promote the development of below market rate housing in a dispersed pattern so as not to concentrate or geographically isolate low income housing in a specific area or community. D. Below market rate housing should be located throughout Kitsap Coun~j in a manner to provide easy access to transportation, employment, and other services. Designated Centers should include below market rate housing. Rural self- help housing programs should be encouraged either in or outside of designated Rural Communities. E. Housing policies and programs shall address the provision of diverse housing opportunities to accommodate the homeless, the elder[y, physically or mentally challenged, and other segments of the population that have special needs. F. Innovative regulatond strategies shall be developed and implemented to provide incentives fvr the development of below market rate housing within Designated Centers. Jurisdictions shall develop strategies which provide a wide range of opportunities for promoting the production of below market rate housing through means such as: reducing housing cost by subsidizing utility hook-up fees and rates, impact fees, and permit processing fees; densiflj incentives; smaller lot sizes; zero lot line designs; inclusionand zoning techniques, such as requiring below-market rate housing in new residential developments; transfers of development rights and/or a priority permit approval process. HS-19 136 Cit~d of Bremerton Comprehensive Plan Page 20 G. Policies and regulations shall encourage the production of below market rate housing. The County and the Cities shall incorporate a regular review of public health and safety regulations pertaining to housing implementation strategies to assure that protection of the pblic health and safety remains the primary purpose for housing standards. H. The County and the Cities shall participate with housing authorities established to facilitate the production ofbelozo market rate housing. The Co~,mty and the Cities shall also recognize and support other public and private not-for-profit housing agencies. Supporting housing agencies is encouraged through public land donations, guarantees, suitable design standards, tax incentives, fee waivers, providing access to funding sources and support for funding applications, or other provisions as appropriate. In addition to the challenge of addressing State and regional requirements for confronting affordability issues, the Housing Element's goals and policies must also sapport the larger strategy embodied in the Comprehensive Plan for Bremerton's future. In other words, housing strategies must fit with the land use design and transportation systems envisioned elsewhere in this Plan. In point of fact, the ways that housing issues are addressed is key to the successful implementation of the Centers strategy - the primary "future design" put forth for by this Comprehensive Plan. HS-20 Cihy of Bremerton Comprehensive Plan Page 21 GLOSSARY FOR TERMS USED IN ELEMENT AND APPENDIX The following definitions have been derived from state lag, and coordinated coun ,tywide policy planning: A. Below Market Rate Housing shall mean housing intended for low-to-middle income households. Below-Market Rate Housing is a result of a concerted effort to provide housing for people who can not afford market rates, often achieved through public strategies and subsidies. Qualifying income levels are further defined as follows (WAC 365.195): · Extremely low-income shall mean those households that have incomes that are at or below 30% of the countywide median. · Very low-income shall mean those households that have incomes that are within the range of 31 - 50% of the countywide median. · Low-income shall mean those households that Ixave incomes that are within the range of 51 - 80% of the countywide median. · Moderate-income shall mean those households that have incomes that are within the range 81-95% of the countywide median. · Middle-income shall mean those households that have incomes that are within the range of 96-120% of the countywide median. B. Market Rate Housing shag mean housing intended for households with incomes that are greater than 120% of the count~,ide median. C. Affordable Housing shall include both below-market and market rate housing. It represents a diverse spectrum of housing choices that supports a diverse population. Affordable housing choices represent housing costs that are 30% or less of all the various household income levels, throughout the city. D. Manufactured Housing - A "Manufactured Home" means a single fan-~ly dwelling built in accordance with the Department of Housing and Urban Development Manufactured Home Construction Safety Standards Act, which is a national preemptive building code. They are also built on a permanent chassis, and designed to be used as a dwelling with or without a permanent foundation when connected to the required utilities. A "Modular Home" is a special type of manufactured housing with a different code authority. It must be certified as meeting state building code standards (receiving a "gold seal"). Any factory built housing bearing the proper state insignia is deemed to comply with any local construction standards. F. Mobile Housing - A "Mobile Home" is a factory built dwelling built prior to June 15, 1976, to standards other than the HUD code, and acceptable under applicable state codes in effect at the time of construction or introduction of the home into the state. Mobile homes have not been built since introduction of the HUD Manufactured Homes Construction and Safety Standards Act. HS-21 138 City of Bremerton Comprehensive Plan Page TRANSPORTATION ELEMENT "... goes beyond a discussion of moving automobiles efficiently, to an examination of transportation needs for a healthy, vibrant community" Transportation Vision The City of Bremerton will promote convenient, accessible, safe, and environmentally responsible transportation for residents, employers, employees, visitors, and commerce. Bremerton will support alternatives to the automobile, such as walking, bicycling, public transportation, caT~vooling, ferries, etc. This transportation system will be integrated, convenient, and reliable, and will encourage connectivity and economic vitality. Bremerton' s transportation system will support vibrant and healthy neighborhoods. Bremerton will inco~porate aesthetic landscape and design elements to enhance neighborhood character and encourage safe and convenient walking and cycling. TR-1 139 City of Bremerton Comprehensive Plan Page 2 Introduction integrate the adjacent neighborhood character and safety. The Transportation Element primarily supports the Land Use Element of the Comprehensive Plan, but also complements each of the other Plan Elements. The Transportal2on Element responds to the numerous state and county mandates articulated in the Growth Management Act (GMA) and the County Wide Plamzing Policies. As Bremerton has a rich history of unique an integral part of the regional transportation options and patterns, transportation fabric, Bremerton is From small "mosquito" ferries to a dedicated to working with Washington strong grid road system, Bremerton has State Department of Transportation always developed and supported (WSDOT), Kitsap County, and transit transportation systems that strive to agencies to ensure safe, reliable, and meet the needs of the entire community, effective transportation in Bremerton This Transportation Element is an effort and surrounding areas. to continue this tradition. It serves as an important piece of the overall City A weE-coordinated transportation Comprehensive Plan. To ensure that system will enhance the quality of life in Bremerton's transportation system Bremerton while reducing urban sprawl responds to the needs of the and other undesirable development community, the vision, goals, and patterns. A ftmdamental tool in these policies contained in this chapter came efforts, the Levels of Service (LOS) out of extensive citizen comment and standards established in this Element, participation provide the means to evaluate and measure impact of future development This Transportation Element goes in the commtmity. beyond a discussion of moving automobiles efficiently, to an examitmtion of transportation needs for a healthy, vibrant community. The result is an extensive dialogue about modes of travel other than single- occupancy vehicles. The Transportation Element emphasizes the need to consider pedestrians and bicycles in transportation planning, especially in the creation and linking of walkable centers with appealing streetscapes. While setting standards on heavily used arterials to enable traffic mobility, the Element also works to protect and TR-2 140 Cihd of Bremerton Comprehensive Plan Page 3 Scope and content Existin Conditions Section 365-195-325, "Transportation Element", of the Washington Administrative Code (WAC), contains procedural criteria for adopting comprehensive plans and their development regulations. The Transportation Appendix in "Volume 2" of this Comprehensive Plan contains the full technical analysis necessary to demonstrate compliance with these requirements (see City of Bremerton, Technical Appendices - 2003 Comprehensive Plan, Transportation Traffic Volumes Section). The following Element summarizes: 1) existing conditions and Existing two-way daily traffic volumes deficiencies 2) projected conditions and on Bremerton's streets are shown in deficiencies (based on plan assumptions Figure 2-3. These counts were recorded including level of service and between the years 2000 and 2003. concurrency strategies) 3) the goals and Figure 24 shows the PM peak hour traffic counts recorded in the year 2001 policies that form the response to the challenges presented, and 4) the by the City of Bremerton and WSDOT. improvements necessary for the The average daily weekday traffic volumes shown in Figure 2-4 range t~ansporatation system to respond, along with their costs and the needed from 1,100 vehicles per day on Park financing strategies. Avenue north of 13th Ave to 46,700 on the Warren Avenue Bridge. The higher- Other important aspects of this element volume arterials are Kitsap Way (SR are: adequate public participation 310) between llth Street and SR-3, llth during the preparation and adoption of Street between Warren Avenue and the Transportation Element, internal Callow Avenue, 6th Street between consistency with all other Plan elements, Naval Avenue and Callow Avenue, and and discussion of a "Concurrency Wheaton Way/Warren Avenue between 11th Street and Riddell Road. PM peak- Management Program". These issues are discussed within the context of the hour directional traffic volumes shown in Figure 2-4 range from 160 (Harlow major sections, or presented in greater detail in the Appendix section noted Drive NW) to 3,800 (Warren Bridge) above, vehicles per hour on the arterial sl:reet system. TR-3 141 Page 4 City of Bremerton Comprehensive Plan service connects downtown Bremerton Level of service The Transportation Appendix provides with Colman Dock in downtown Seattle, providing an important link a detailed discussion of the methodology used to measure roadway between the two downtown areas. The Level of Service (LOS). Level of Service passenger-only ferry service links downtown Bremerton with Port measures the function of transportation Orchard and Annapolis. infrastructure, relating such factors as delay at an intersection or speed along an arterial segment. In general, LOS "A" Pedestrian and bicyc fflities for a street is excellent - meaning that there is a free flow of traffic along the ~7~ street or no appreciable delay at an hxtersection. LOS "F" conditions are characterized by high traffic congestion levels and significant delay. In most transportation areas, this community has determined that a transportation LOS of "D' is generally acceptable. Ultimately, the Element establishes LOS Stanctar that the City ensure as growth occurs, in keeping with the transportation vision, E ~ '-- ~ ..... ton's non-motorized Transit and transportation network is consistent with this Elements goals to encourage an integrated multi-modal transportat/on system and to provide a transportation system that effectiveIy encourages pedestrian, bicycle and other non-motorized travel. Both pedestria~n and bicycle facilities should be an integral part of the transportation Kitsap Transit operates the transit network, and the provision for these service in the City of Bremerton. facilities should be incorporated in the Current transit routes are illustrated on transportation improvement program to Figure 2-6 of the Appendix. Many of encourage non-motorized trips. the transit routes serve the Puget Sound Naval Shipyard (PSNS) and downtown Bremerton, especially the Washington State Ferry (WSF) Terminal. Downtown Bremerton is currently served bv auto/walk-on ferry service, operateC~ by Washington State Ferries (WSF) and a local passenger-only ferry service to Port Orchard, operated by Kitsap Transit. The auto/walk-on ferry TR-4 142 Cit~d of Bremerton Comprehensive Plan Page 5 Bremerton has a complete bicycle route Operational, Safety, and Other network that extends through East and West Bremerton. However, most of the bicycle routes do not have dedicated bicycle lanes which is not a serious problem on the minor arterial or collector streets that are commonly used by bicyclists. Exceptions to this status- quo include the recently constructed sections of SR 304, which has dedicated bicycle lanes, and Kitsap Way, which lias wide-shoulders that are suitable for use by bicyclists. Discussions with City staff and the Existing deficiencies Bremerton Citizen's Advisory Committee identified other existing transportation Roadway Capacity Deficiencies system deficiencies. These deficiencies include: Auto Center Way between Kitsap As required by GM_A, existing Way and the SR-3 southbound On-Ramp; transportation system capacity Loxie Eagans Blvd./Arsenal Way and 1st deficiencies have been identified based Street to SR 304 connections; Lower on the LOS analysis described in Section ¼~heaton Way between Sheridan Road and 2.4 of the Appendix. Callahan Drive; Warren Avenue at 11th Street; and, the Downtown Core. The following existing roadway sections The future transportation improvement exceed or are close to exceeding this plan, discussed in Chapters 4 and 5 of the Level of Service D threshold during the Appendix, include improvements to PM peak hour: address the operational deficiencies in · Kitsap Way (SR-3i0) - llth to these areas. National (LOS D approaching LOS E) · Sylvan Way - Wheaton to Petersville (LOS D approaching LOS E) · Warren Avenue (SR-303) - Callahan to Sheridan (LOS D approaching LOS E) · Wheaton Way (SR 303) - Sheridan to Riddell (LOS D approaching LOS E) TR-5 143 City of Bremerton Comprehensive Plan Page 6 Future Conditions and the street would exceed the six-year Deficiencies timeframe, new development that would add traffic to the street could not This section of the Transportation Element summarizes a more detailed section of the be approved. Appendix that evaluates future conditions For these reasons, LOS standards need to in the year 2030 based on projected land be carefully chosen for each local use and population. The population, jurisdiction and for different arterials employment, and land use patterns within a city or county. LOS D is the employed for this analysis were consistent standard used in most urban areas in the with the other elements of this Puget Sound region, including the urban Comprehensive Plan. portion of Kitsap County. Kitsap County The purpose of this section is to identify currently measures LOS using a methodology similar to the City. future transportation system deficiencies resulting from projected As shown in Table 2-3 in the Appendix, population and employment increases several roadways in the City of Bremerton in the City of Bremerton and Central already exceed this LOS D threshold. In Kitsap County. The year 2030 was order to encourage growth in targeted selected for analysis, to maintain areas of the City - such as the designated consistency with other regional models, "Centers", a lower LOS standard (i.e., E or including travel demand models at F) is recommended along several arterial Kitsap County and the Puget Sound corridors. This signals less impact costs - Regional Council (PSRC). an incentive - for new development in these areas. Level of service standards The Growth Management Act (GMA) requires the adoption of LOS standards for arterial.streets to measure the performance of a future transportation system. Establishment of an LOS standard assures that the desired quality of transportation will be maintained as growth occurs. The methodology and the LOS thresholds are described in Section 2.4 of the Appendix. As a result, the following LOS standards LOS standards required by the GMA are are recommended as part of the closely related to the issue of redevelopment plans for the City. concurrency. The GMA requires transportation improvements to be · Maintain LOS E or better (V/C less than made concurrent (at the same time) with or equal to 1.0) in the SR-303 the commtmity's growth. Once a street (Warren/Wheaton) corridor, Kitsap Way exceeds its LOS standard, the street (SR 310), Sylvan Way, and on the must be planned for improvement Manette Bridge. within six years to a level that at least · Maintain LOS D or better 0d/C less than meets (does not fail) the standard. If or equal to 0.9) on all other arterial streets plans and projected fundSng to improve in the City. TR-6 144 City of Bremerton Comprehensive Plan Page 7 Future traffic volumes and level of The LOS and V/C ratios are service summarized in Table 3-1 of the Appendix. The following is a summary of that table. The following arterials would continue to exceed acceptable LOS thresholds in the year 2030 with some or ali of the improvement projects, associated with transportation alternatives #2-#4: Will future traffic volumes meet these standards? What transportation · Burwell Street (SR 310) from Warren improvement projects might be to Naval (LOS E - Alternatives 1, 3, necessary and to what effect? and 4) · Charleston Blvd. (SR 304) from To answer these questions, the City Farragut to 6th (LOS F - all utilizes a transportation forecasting alternatives) model. This model allows the testing of · SR 304 between Preble and Farragut alternatives to evaluate the effect of (LOS F - Alternative 3, LOS E - various transportation projects, such as Alternatives 1, 2, and 4) dedicated High Occupancy Vehicle · Werner Road west of Auto Center lanes in various road segments. The Road (LOS F - all alternatives) conclusion of this element describes the · Warren Avenue (SR 303) from needed and desired transportation Callahan to Sheridan (LOS F - all improvements, beginning on page XX alternatives) · Riddell Road from Wheaton to The year 2030 traffic volume forecasts of Petersville (LOS E - all alternatives) arterial streets in the City assume that · Sheridan Road from Wheaton to future travel characteristics would Halvergon (LOS E - all alternatives) continue to be similar to those seen · Sylvan Way from Wheaton to today. This transportation forecasting Petersvllle (LOS F - alternatives 2, 3, model is limited in its ability to predict and 4) travel changes in the future, such as increased transit use and other demand ¼rhile deficiencies are predicted in the 2030 management strategies such as Plan horizon, there are no deficiencies telecommuting. Several of these factors identified during the Plan's first 6-year are known to be associated with the period, lasting through 2009. The analysis Comprehensive Plan's Centers-based indicates that all arterials in the City will land use models. These anticipated, continue to operate at the applicable LOS non-traditional, travel demand Standard through the year 2009. Capacity adjustments could reduce the total peak improvement or lower LOS thresholds wllI hour volumes by as much as 10 percent, clearly be required before the year 2030. Alternatively, increased Transportation Demand Management and Transportation Systems Management strategies, such as increased bicycle and transit use could provide an acceptable LOS. TR-7 145 Page 8 Citad of Bremerton Comprehensive Plan Goals, Policies, and the Vision The City has also reviewed the provisions of the following plans to ensure for Bremerton consistency: The goals and policies for (a) Bremerton Ferry Terminal to Vicinity of transportation, created by the citizens of Gorst Highway Improvement Project Bremerton, provide the primary Transportation Expertise Report - foundation for this Transportation Proposed 1995 Element. These goals and policies are (b) Campus/Evergreen Neighborhood located in the following section, plan (Bremerton) - Adopted: 1992 (c) Waterfront Access Plan (Port Orchard This Plan must also be supportive of, Project) - Adopted: 1989 and consistent with, certain State, (d) West Hills Area Plan (Bremerton-SR 16) regional, and County transportation - Adopted: 1990 plans. The Transportation Goal of the (e) Werner Road/Loxie Eagans Blvd. State of Washington, a baseline for this Traffic Operations Study Final Report- Transportation Element, as stated in the Adopted 1997 Growth Management Act, is: (f) City of Bremerton Transportation Improvement Program (S/x-Year TIP) - Encourage efficient multi-modal Adopted 2003 transportation systems that are based on (g) County Transportation Element (Kitsap regional priorities and coordinated with Co.) - Adopted: 1998 (2002 update?) county and city comprehensive plans. (h) Washington State Ferries System Plan 1999-2018 The Puget Sound Regional Council's (i) Kitsap Transit 2001-2007 Transit Destination 2030 Metropolitan Development Plan - Adopted: 2001 Transportation Plan (MTP) establishes a (j) Kitsap County Greenways Master Plan long-range vision for a multimodal (k) Kitsap County Bicycle Facilities Plan - transportation system that links major Adopted: 2001 population and job centers throughout (1) Mosquito Fleet Trail Master Plan - 2001 the Puget Sound region, providing a (m) SR 303 Corridor Study Transit Service variety of transportation choices. In Plan - May 2003. · t a strengthemng Bremerton s role as (n) Washington State Highway System r,~ "metropolitan cente , as envisioned in Plan 2003-2022 (WSDOT) Destination 2030, this Transportation (o) Highways of Statewide Significance - Element is consistent with and helps Update 2003 promote the MTP. (p) Destination 2030:Metropolitan Transportation Plan (PSRC) - 200~ Countywide Planning policies (CWPP) were adopted in September 2003, to guide the comprehensive planning efforts of all jurisdictions with~ IGtsap County. This Transportation Element is also consistent with the Kitsap County County Wide Plarm/ng policies. A complete recitation of the MTP and the CWPP's is provided in the Appendix. TR-8 146 Ci~l of Bremerton Comprehensive Plan Page 9 The following goals and policies form the T1B Work with Washington State foundation of Bremerton s t m sportatu n Ferries and Kitsap Transit to coordinate strateg~jfor the j~tture. Citizens developed transit schedules of multiple modes of the goals and policies to support the overall transportation, and further transportation vision placed at the transportation conveniences. beginning of this element. TIC Work with Kitsap Transit to Multi Modal: establish and designate conve~ent park and ride locations. · Give priority to establishing park and rides in existing parking lots. · Form partnerships with commurdty organizations along easily accessible arterials that have dormant parking during traditional commuting hours (i.e., Churches) TID Establish a commuter parking fee schedule in City operated parking T1 Encourage the development of structures with savings for high an integrated multimodal transport- ation system that provides a variety of occupancy vehicles and short-term convenient transportation choices to parking. improve the movement of people, goods, and freight T1E Encourage formation of safe, easily accessible, clearly marked pick T1A Require new development and up/drop off locations at transportation redevelopment to incorporate transit, centers. pedestrian, and non motorized transportation measures during the development review process, including measures such as: · Providing bus and transportation shelters and/or pullouts; · Providing adequate sidewalks, pathways and crosswalks for access by ali persons; · Minimizing walking distance bet~,een buildings, streets, sidewalks, and transit stops; · Preserving and extending the connectivity of the pedestrian, bicycle, and grid street system; · Minimizing neighborhood street widths to reduce speeds and crossing distances; · Incorporating open space, green space in streetscapes. TR-9 147 City of Bremerton Comprehensive Plan Page 10 T2C Restore/Create unique neighborhood aesthetic via formation of distinctive streetscapes and traffic controlling devices. T2 Develop transportation improvements that reflect Bremerton's natural, historic, maritime, waterfront, and urban character, consistent with the short and long-term vision of the Comprehensive Plan T2A Encourage transportation improvements that take advantage of Bremerton's waterfront. · Support plans for the creation of a "Mosquito Fleet" trail from Gorst to Poulsbo and enable the location of a Bremerton link. · Enable pedestrian and bicycle paths to be created along the waterfront. · Encourage development of urban boating opportunities. · Provide places for non-motorized crafts used to commute over water. T2B Reflect the urban nature of roadways w/thin Bremerton by encouraging where appropriate: · Street trees and landscaping · Traffic calming strategies and devices · On-street public parking · Street lighting · Accommodations for transit stops · Crosswalks and sidewalks TR-10 148 Cilnd of Bremerton Comprehensive Plan Page 171 Environment: T3D ~q~ere possible, the City shall : require the under-grounding of overhead utilities to reduce the need for removal and maintenance of roadside vegetation. Nei ~orhoods: T3 Develop and maintain a transportation system that respects the natural environment including the quality of Bremerton air, water and natural habitats T4 Protect residential neighborhoods from negative transportation impacts T3A Preserve and restore natural habitat and native vegetation. T4A Minimize the impacts of traffic on residential neighborhoods through T3B Encourage transit providers and discouraging the regular use of local access orgardzations with large fleets of streets by non-local traffic. vehicles to utilize "green" fuel and reduce emissions/air pollution. T4B Maintain cormectivity of the transportation system. T3C Minimize impacts of road construction on environmentally T4C Reduce speed on neighborhood sensitive areas; mirdmize damaging streets through the use of street design storm water runoff and pollution from devices such as curb bulbs, "median road use and maintenance, obstacles," or other measures proven to be safe and effective at reducing travel speeds. · Implement programs that encourage the planting of low-maintenance, T4D Establish and maintain a traffic vegetated groundcover and trees control program for assessing and along responding to residential neighborhood roadways, traffic control concerns. Establish · Where standards for maximum desirable traffic possible volumes and percentage of non-local the City traffic. Estabhsh a process for escalating shall control responses based on the severity of require the disturbance to the neighborhood. the use and T4E Minin4ze neighborhood street maintenance of natural vegetated widths and crossing distances. stormwater controls (bioswales etc.) TR-11 149 City of Bremerton Comprehensive Plan Page 12 T5D Assure parking availability for commercial needs without impacting arterial circulation, residential neighborhoods, or other business by: · Limiting parking on arterials that have inadequate capacity; · Encouraging joint development of off- street parking facilities for compatible land uses; and · Working with business owners toward a goal of limiting employee T5 Recognize the importance of parking to off-street facilities, and easily accessible, attractive and well reserving on-street parking for dispersed parking as a valuable business and residential use. community asset T5A Implement parking ratios that reflect the least amount of spaces required for development approval where transportation 0ptions aside from the automobile are available to serve travel needs. T5B Require landscaping along the edge of parking areas to reduce visual e impact and aid in filtration of runoff. T5C Inventory and assess parking needs In the Downtown area. · Work with the United States Navy, the City of Bremerton, and other major employers in the Downtown Core to ensure adequate parking for employees and visitors. TR-12 1§0 Page 13 City of Bremerton Comprehensive Plan Levels of ~e ~ns: Travel Demand Management: T7 Develop Travel Demand Management (TDM) strategies to minimize the need for additional transportation infrastructure and expenditure T7A Continue to coordinate with local employers to implement commute trip reduction plans and programs. T6 Improve connectivity and mobility within Bremerton's trans- portation system through the identification and implementation of T7B Coordinate with the Washington improvements that maintain Level of State Ferry System to coordinate ferry traffic with local traffic demands. Service standards T6A~ Create requirements that adopted Level of Service standards must be maintained when development OCCURS. · Create a concurrency system that establishes existing LOS on an identified list of links and/or intersections within the City. · Create a concurrency system that requires impact on LOS to be established during the development permit-t/rig process. · Create a concurrency system that does not issue development pernuts unless and/or until maintenance of adopted LOS standards on links or at intersections impacted by a development proposal is assured. TR-13 151 City of Bremerton Comprehensive Plan Page Ferry: T9 Coordinate with Washington State Ferries and other possible providers to operate ferry service to Bremerton that meets local service and commuter needs, coordinates with all travel modes, and provides significant regional service T9A Encourage WSF to conduct public input meetings in Bremerton, and be responsive to ferry patron needs. T8 Ensure transportation system T9B Make ferries accessible to all safety through maintenance of personS. infrastructure, and incorporation of safety enhancements in transportation T9C Support and promote ferry improvement projects system programs, which maximize the convenience of non-motorized T8A Maximize the funcfionahty and connection, and high-occupancy vehicle safety of the local circulation system.. (HOV) use by providing priority status · Control the location and spacing of and discouraging single occupancy commercial driveways and the design vehicle use. of parking lots to avoid traffic and pedestrian accidents, confusing T9D Promote the continuation of circulation patterns, and line-of-sight passenger only ferry service. obstructions. · Designate and clearly demarcate T9E Promote coordination of ferry appropriate routes for through truck and transit schedules to promote multi- traffic, hazardous materials transport, modal travel. and oversized traffic. · Develop and utilize clear and uniform T9F Support research and signage to guide traffic throughout the development in new ferry technology. City. · Encourage bus pull out lanes. · Examine, and where appropriate incorporate U Turn lanes. T8B Incorporate appropriate street lighting as it relates to the land uses (i.e., residential, industrial, commercial use). TSC Utilize natural and engineered street design devices such as curb bulbs, median obstacles, or other measures proven to be safe and effective at reducing travel speeds. TR-14 152 City of Bremerton Comprehensive Plan Page 1.5 ~ Traffic/State Highways: Transit: Tll Encourage transportation agencies, especially public transit, to operate and maintain local/regional services and facilities that reduce the need for single- occupant vehicles and support the needs of transit-dependent users TllA Work with transportation providers to develop a public transportation system that allows convenient and efficient travel between centers. T10 Coordinate with WSDOT to ensure state facility improvements meet TllB Work with IGtsap Transit to the goals of the Bremerton transportation designate appropriate park & ride facilities. vision and comprehensive plan, and (TLC) minimize the negative impacts to the local transportation system TllC Identify possible corridors for development of future mass transit options T10A Bremerton should support and such as light rail, monorail, bus rapid participate in the cooperative regional transit, etc. transportation planning processes. T11D Support efforts to expand usage T10B Expand opportunities for public and infrastructure for mass transportation. involvement in the identification, design, and implementation of TllE Encourage the use of public transit transportation related improvements by bicyclists and pedestrians by: within Bremerton. · Providing safe, attractive comfortable T10C The City should continually walkways and waiting fac2ities at public work with Kitsap County, WSDOT, transit loading areas; regional transportation agencies, and · Providing bicycle storage at transit transportation providers to plan, fund, facilities; and implement joint transportation · Installing bicycle racks on buses, and projects and programs. · Develop and distribute irrformation concerning local and regional non- T10D Support improvements on State motorized routes. Highways to reduce congestion, and improve safety and access for through traffic, local traffic, and non-motorized and transit users. TR-15 153 City of Bretnerton Comprehensive Plan Page 16 Non Motorized: Economic: T13 Incorporate the needs of business and commercial traffic flow in the development of transportation improvements that affect commercial and industrial centers T13A Establish and identify through clear signage a truck and oversized load route. T12 Provide a transportation system that effectively serves the needs of and encourages pedestrian, bicycle and other non-motorized travel T12A Devise a non-motorized transportation plan T13B Apply appropriate street design · Maximize safety when identifying standards for industrial and commercial pedestrian and bike paths corridors, districts, which allow for the easy · Establish uniform signage to designate movement of goods and services. bike paths. T13C Support a freight rail link. T12B Ensure that designated centers are walkable, and encourage Downtown: connectivity. In addition to the goals and policies in the preceding section, significant T12C Maintain existing and create guidance for transportation planning is new, engineered bike lanes, drawn from the downtown goals and policies found in the Land Use Element T12D Adopt street standards, which of this Comprehensive Plan. requLre bike lanes on identified bike routes. T12E Identify, and clearly post public beach access. TR-16 154 City of Bremerton Comprehensive Plan Page 17 Proposed Transportation These improvements include: · DowntoWn Bremerton Transportation Improvements and Costs Center (BTC) access/pedestrian improvements, This section of the report describes the · Auto Center Way between Kitsap transportation facility improvements Way and the SR-3 On-Ramp, and costs to accommodate the future · Lower Wheaton Wa), between travel demand, resulting from increased Sheridan Road and Callahan Drive, growth in the City of Bremerton. In · Warren Avenue at 11th Street, addition to the roadway facility · Warren Ave. southbound off-ramp to improvements, this section of the plan Callahan Drive, identifies transit, ferry, pedestrian, · Manette Bridge Replacement, bicycle, and transportation demand · Loxie Eagans Blvd./Arsenal Way and management strategies. It also 1st Street to SR 304 connections, and identifies the Downtown Transportation other m/scellaneous channelization or Alternatives as possible improvement traffic control improvements to reduce projects, accidents as warranted. Roadway Capacity Improvements Pedestrian and bicycle The results of the future travel demand ,,ments forecasts highlight the importance of the SR 303 (Warren Ave./P~heaton Way), SR 310 (Kitsap Way), and SR 304 corridors to the City of Bremerton. Recommended improvements to these major travel corridors address existing and future roadway capacity deficiencies in the City of Bremerton and meet CMA requirements. The Appendix section discusses improvement options for each of these major travel corridors. Operational, Safety, and Other Pedestrian and bicycle facilities are Improvements becoming increasingly important to In addition to the major corridor complement other elements of the improvements discussed above, there transportation system. For Bremerton, are a number of smaller-scale the trips that have the greatest potential improvements to consider for traffic for shifting to a non-motorized travel operations and safety. Many of these mode include trips to and from nearby improvements address existing neighborhood and district centers, to operational, safety, and other and from transit and ferry terminals, deficiencies (identified in Section 2.8 of and short trips for shopping, errands, the Appendix.) and other purposes. Improving safety for pedestrians and bicyclists is also critical to advance this form of transportation and to support the TR-17 155 Cihd of Bremerton Comprehensive Plan Page 18 development of successful centers, to ferry service and facilities are also Bremerton currently has a reasonably discussed in the Appendix. complete network of pedestrian and bicycle facilities in the downtown area Cost Estimates where sidewalks exist on all major The City of Bremerton's Six-Year streets. With the plmmed increase in Transportation Improvement Program density in the downtown area and in (2004-2009) includes planning-level cost centers, pedestrians and bicycle facilities estimates for many of the major facility will be increasingly important. The improvements described in this existing bicycle routes shown on Figure Element. Costs for funding the transit, 2-8 of the appendix provide a complete ferry, and TDM elements of the plan are network of bicycle routes for traveling not included as these improvements are between major destinations within normally funded by WSDOT, WSF, or Bremerton. Kitsap Transit, The appendix also provides a discussion Table 44 in the Appendix summarizes of; planned non-motorized facilities, the planning-level cost estimates for the including the Mosquito Fleet Trail; TDM improvements identified in the City of strategies; and traffic calming measures. Bremerton's Six-Year Transportation Improvement Program (TIP). In Transit service and facility addition to the total cost of each project, an estimated breakdown of local, State, and federal shares for each project is provided. Kitsap Transit's Transit Development Plan (2001-2007) documents future transit service and facility improvements in Bremerton. This plan includes a Six-Year Capital Plan (2001- 2007), a list of Capital Priorities (2007- 2027), and Long Range Concept Plans. The plan addresses transit service, routes and fleet, park-and-ride lots, HOV facilities, transfer centers, ferry terminals, multi-modal improvements, and operations and maintenance. Key elements of the Kitsap Transit Plan are discussed in the Appendix to this Transportation Element. Improvements TR-18 156 City of Bremerton Comprehensive Plan Page 19 Financing and Implementation For other funding sources, the $4.86 million annual amount is assumed to Plan continue into the future at the same rate. This would generate an additional The GMA requires a financial element to $29.16 million over the next six years or be included as part of the transportation $97.2 million over the next 20 years. element of a comprehensive plan. The Funding sources in the federal and state financial plan needs to include a categories include: Surface comparison of estimated transportation Transportation Program (STP), Arterial improvement costs against the potential Improvement Program (AIP), revenue generated from existing and Transportation Partnership Program future financial sources. Future (TPP), and the Nickel Funding Package. revenues may' include new local These sources are discussed in detail in sources, such as development impact the Appendix section. fees, revenues from state and federal fuel taxes, and grants from federal, state, Improvement Costs/Revenue or county agencies. Comparison A TIP has been developed for the first A key requirement of the GMA is that six years of the transportation plan. As the estimated transportation required by the GMA, estimated improvement revenues must be revenues must be sufficient to cover suffident to fund the improvements anticipated expenditures. Appendix identified in the plan. If revenues fail Table 5-1 summarizes the estimated short of anticipated costs, the City must transportation revenues and identify additional funding sources. If expenditures for the first six years of the additional funding sources cannot be plan. identified, or are not desired, the LOS standard or land use assumptions Appendix Table 5-1 indicates that the contakned in the plan must be adjusted estimated $46.9 million in total to maintain a balance between needs, expenditures between the years 2004 costs, and revenues, and 2009 fails short of the projected $55.9 million for improvement costs Existing and Projected Revenue shown in Table 44. Similarly, the As shown in Appendix Table 4-4, the estimated $41.15 million in expenditures City of Bremerton currently relies on a for GMA-related capacity combination of local, state, and federal improvements to SR 304 between the sources to fund transportation years 2004 and 2009 falls short of the improvements. These historical funding estimated $50.16 million in project costs. patterns were used to estimate future It should be noted, however, that the revenues from both City and other apparent $9 million budget shortfall sources over the life of the plan. does not actually represent a deficit, but For the City of Bremerton, an annual instead is associated with SR 304 revenue amount of $260,000 was improvement funds that have been assumed to fund transportation dispersed from federal, state, and local improvements. This would amount to sources prior to the year 2004. As $1.56 million over six years or $5.2 shown in these two tables, the projected rrdllion over 20 years, in 2003 dollars, costs and expenditures for the next six TR-19 157 Cit~d of Bremerton Comprehensive Plan Page 20 ye~s exceed the $30.72 r~illion ($1.56 ~illion from City of Bremerton and $29.16 million from other sources) revenue projection that would be expected based on past years' funding patterns. However, the City of Bremerton's Six-Year TIP, shown in Appendix Table 5-1, indicates that adequate funds have already been allocated to the proposed roadway improvement projects in the City of Bremerton. TR-20 158 City of Bremerton Comprehensive Plan Page 1 ENVIRONMENT ELEMENT ... "Conservation and preservation, coup led with sound management policies and the use of "best available science," can present an opportunity for... a sustainable approach to managing growth and the effects it has on ecosystems." Environment Vision Through sustainable growth Bremerton protects its superior natural environments such as lakes, streams, shorelines, wildlife, wetlands, watersheds and native vegetation. New development and redevelopment contribute to preserving and enhancing the natural environment. Bremerton encourages environmental education, energy and water conservation, recycling, brownfield redevelopment, and acquisition of environmentally sensitive lands. Bremerton inco~vorates native vegetation in developed areas, manages storm water, encourages natural bulkheads along the shorelines, and prese~oes wildlife habitat. Bremerton is a walkable city where people have access to openspace, water views, and mountain views, thus increasing the overall health of the community. EN-1 159 City of Bremerton Comprehensive Plan Page 2 Introduction opportunity for decision-makers, residents, and developers to create a sustainable approach to managing growth and the effects it has on ecosystems. As historically shown in Bremerton, it can often be difficult to balance the pressures of a growing population with the needs of a healthy natural environment. The preservation and conservation of Bremerton has a vital interest in enviromnental resources greatly depends preserving its natural beauty and on the choices made by individuals, ensuring long-term environmental health, developers, and government. This With vast marine shorelines, freshwater element addresses several important lakes, coastal bluffs, wetlands, a issues. First, the regulatory framework of preserved watershed area, and scenic the GMA is examined. Second, it outlines views of two mountain ranges, Bremerton the specific environments and ecosystems is part of a complex ecosystem and that exist in Bremerton and why they are provides a stunning natural setting for its important. Third, it articulates the goals residents and visitors. This natural setting and policies created by the community to is one of the most important amenities to aid individuals and groups who are Bremerton residents and visitors alike, making decisions that could impact the While it is expected that Bremerton will environment. Finally, this element as a increase in population over the next whole-from vision to policy-articulates twenty years, it is imperative that the the community's overall commitment to environmental resources be protected, preserving the natural environment and, where possible, erthanced, amidst growth. Sustainability is a concept that addresses the problems and needs of the present, The goals and policies outlined in this without compromising the needs of the element were drafted by a group of future. In spirit, sustainabllity protects volunteers over the course of several and adds natural beauty and function months as part of the overall citizen with growth. This element provides a participation program for this update. vision and commitment by the City of This group of volunteers reviewed Bremerton to bring a sustainable several hundred comments--received at approach to land use management, larger community workshops from other residents-- pertaining to the environment. The revival and strengthening of The resulting goals and policies Bremerton's economy and land use incorporated many of these comments patterns can aid in the effort to restore and were created in response to peoples' and protect its natural environment. It is experience with the natural environment not an either growth or environmental in Bremerton and an overall desire to protection situation. Conservation and preserve the natural beauty of Bremerton preservation, coupled with sound for generations to come, as well as management policies and the use of "best safeguard current residents' health and available science," can present an safety. EN-2 160 Cihd of Bremerton Comprehensive Plan Page 3 The Growth Management Act Existing Conditions In the past decade Washington State has Bremerton's environmental well-being recogrdzed the effects of poorly planned contributes to the health and safety of growth on communities and the Bremerton's residents, protects property environment. In 1991 Washington State against damage from flooding and other enacted the Growth Management Act natural disasters, and ensures that (GMA). This act responds to the increasing Bremerton will be beautiful for years to problems associated with development and come. These natural systems and growth in communities. It accomplishes resources help maintain the quality of this through various techniques. Some of life that makes Bremerton unique. these techniques have specific Without the essential natural functions environmental implications. For Instance, sustained through environmental health the GMA requires communities to address there is the possibility of both short and environmental concerns that are unique to long-term local and regional the community itself and to the state as a consequences. whole by; making local governments designate and inventory critical areas; The following are descriptions of several establish goals and policies to protect and of the natural conditions and critical conserve these critical areas; and areas found in Bremerton. In each instructing communities to use the "best category there is a brief description available science" and best management about what is known pertairdng to this practices to establish development ecosystem or critical area In Bremerton r%malations pertaining to the environment, and then a short description of how the Bremerton's Critical Lands Ordinance, critical area functions. Shoreline Master Program and other relevant development regulations must be Wetlands consistent with this Environment Element to comply with GMA as well as County- wide Planning Policies. Consistent with the GMA guidelines about what is considered a critical area, this element responds to the increasing problems facIng Bremerton in the form of environmental degradation of shorelines, wetlands, groundwater, water quality and quantity, native vegetation and natural wildlife habitats. Bremerton's wetlands perform many important ecological roles. Wetlands, aquifer recharge areas, and frequently flooded areas contribute considerably to - the quantity and quality of Bremerton's water and provide habitat for fish and wildlife. Wetlands protect water quality by trapping and storing nutrients from stormwater runoff, serving as a filterIng basin for pollution, and preventing EN-3 161 Page 4 City of Bremerton Comprehensive Plan erosion. Wetlands also contribute to an throughout Bremerton. The bulk of the known wetlands have been discovered ecosystem's groundwater recharge areas, and play a significant role in through individual project review. The regulating stormwater runoff. Many fish city recognizes that this is not an · efficient way to protect this natural species, including some salmon spemes, depend on wetlands for one cycle of resource or help people who would like their lives. In addition, coastal wetlands to develop in Bremerton. While a ball are also imperative to the survival of wetland inventory has not yet been done, it is a priority outlined in the healthy marine fish and waterfowl goals and policies of this element. Over populations, the next few years the City will strive to Unsound development around a develop a system that will accurately demonstrate where the wetlands are wetland can destroy its ecological health and what appropriate development by overloading the wetland with silt regulations should be used at these and nutrients. Overloading diminishes wetlands ability to filter and reduces the sites. This is vital to preserve the health level of oxygen and sunlight necessary of Bremerton's water resources. for plant and animal life. Critical Aquifer Recharge Areas sensitive growth Environmentaliy reduces the impacts of development near these critical areas. With the involvement and commitment of developers and government, Bremerton's land use patterns should reflect an appreciation of the importance of wetlands in the hydrologic process. Moreover, balancing the urban environment with natural areas should here are four principal Aquifer Recharge create an aesthetically pleasing place to Areas within or immediately adjacent to Hve, while reducing the damage created the boundaries of Bremerton. These by flooding and dependence on aquifers include the Manette North engineered retention/sedimentation Aquifer, located in East Bremerton; the ponds. Gorst Aquifer, located along Gorst Creek; the Anderson Creek Aquifer, Some of the most Significant wetlands located primarily m the C~ty within Bremerton are located around watershed and utility lands, and the Kitsap Lake. Many of these wetlands north Lake Aquifer which rests just are of the highest quality, and provide south of the city boundaries.1 These significant wildlife habitat and water aquifers supply 35% of Bremerton's purification. Some are already water designated as parkland. Nevertheless, there are also numerous private sites As in the case with most aquifers and that contain wetlands. The development their associated recharge areas, the local of these sites can have potential impactS aquifer recharge infiltration potential of on the overall health of Kitsap Lake· There are other wetlands scattered ~ See Aquifer Map in Appendix EN-4 162 City of Bremerton Comprehensive Plan Page 5 Bremerton is influenced by the type of maintenance of native vegetation, and soil, vegetation and topography of the increasing the amount of permeable area. surfaces; also contribute to overall aquifer well-being. Generally, aquifer recharge takes place when surface water irffil~rates the Flooded Areas ground and settles to a certain depth. Aquifer recharge typically occurs from lakes, streams, and stormwater from drainage ditches and retention ponds and wastewater from septic systems. Urbanization in these areas removes a majority of native vegetation and increases the likelihood of contaminates penetrating all the way to the recharge depth. The common use of fertilizers, pesticides, and herbicides on gardens and lawns are known to infiltrate Bremerton lacks a major river system and through the soil. This inerusion of is not prone to the typical flooding that potentially toxic and hazardous occurs in other commtmities in substances degrades the water used to Washington. However, a drainage problem supply lakes, wetlands, and streams and does exist and causes some coastal and results in a decreased capacity to riparian flooding. Flood occurrence in support these ecosystems and increases Bremerton has resulted from disturbance of the chance of groundwater natural hydrological patterns caused by contamination, development, vegetation removal and filling, and damage to wetlands. Flooding Bremerton's aquifer recharge areas not occurs when eroded soil from cleared land ordy support Water resources in or unstable slopes reduce the waterways Bremerton, they contribute to the health natural capacity to carry runoff water. The of critical areas within Kitsap County. If Federal Emergency Management Agency disturbed, it posses a potential threat to (FEMA) has set a 100-year floodplain the quality of Life in the whole region, standard which is characterized as an area Balance between the permitted use and of land flooded by a storm with a I percent its natural function is an example of probability of occurring in any year. how local decisions can have regional benefits. The most likely flood areas Lq Bremerton include Gorst Creek, Parish Creek, Sinclair Sound plarming practices can efficiently Inlet, Kitsap Lake, Port Washington create a built environment that does not Narrows, a small area south of Kitsap Way need costly clearing, grading, filing, and 11th street, Phinney Bay, Mud Bay, excavation, compaction, and Ostrich Bay, and the southwest portion of construction of conventional pipe PSNS and Oyster Bay. All of these sites are drainage systems. They also protect this classified as areas of 100-year flooding.2 critical resource. Other sustainable development and management practices ~ The U.S. Depar[ment of Housing and Urban Development Federal Insurance Administration, such as organic lawn and garden care, Flood Insurance Study EN-5 163 City of Bremerton Comprehensive Plan Page 6 Storms are a primary source of flooding. Marine Resources There have been five notable storms in that past 60 years. These occurred on February 22, 1949; January 20,1967; December 7, 1970; March 26, 1972; and January 17, 1974. Each of these storms resulted in landslides as well as damage to roadways and property. The four kighest tides on record measured are December 5, 1967 (8.4 feet); February 6, 1904 (8.3 feet); December 24 1968 (8.3 feet); and January 1974 (8.2 feet). Each of these tides occurred in the morning and when a large storm was off the Washington coast. Tides of this degree resulted in extensive and serious damage to coastal Bremerton has extensive marine and structures throughout the marine waters freshwater resources. Sinclair Inlet, Port of Bremerton. Severe meteorological Orchard Bay, Port Washington Narrows, effects cause the water level in the Puget and many others are vital to fish and Sound to rise as much as 2.5 feet above shellfish resources. They provide mixing the predicted tidal elevation, and transition zones from the cool, dense saline waters of Puget Sound. Within Most flood protection measures of these these waters, anadromous fish and frequently flooded areas are small, birdlffe enjoy the vast array of feedLng privately owned buLk_heads along the grounds a_nd the sheltered waters provide shoreline. Protection and h~Lnovative an important wintering habitat for solutions are needed so that Bremerton's migratory Waterfowl. In particular, natural hydrological cycle can be Sinclair Inlet contains tidally ~Cluenced maintained at the highest level possible, waters that mix slowly with the more Some innovate solutions could include open waters of Puget Sound. Because ff locating open space, recreation, and its slow mixing rates, shallow depths and ecotourism uses on or near floodplains its proximity to land use activities along to reduce the problems associated with the shoreline, Sinclair Inlet is extremely other development activities, susceptible to point and non-point pollution. Kitsap County Health District identified shellfish beds in the Sinclair Inlet as having failing Onsite Sewage System levels (OSSL). They contributed the high levels of fecal coliform found in shellfish to the Gorst sewage problem. Contaminants in this area tend to settle rapidly, accumulating in sediments close to their source. EN-6 164 City of Bremerton Comprehensive Plan Page 7 Although, current data performed by In most cases, landslides are caused by the Kitsap County has recognized an increase erosion process. Erosion is a natural in water quality, additional process by which soil and rock are moved improvements can be made to return by wind, water and gravity. Some of the shellfish harvesting as an industry and soils located in Bremerton are highly recreation in Bremerton. Sustainable susceptible to erosion by wind, stream flow practices can reduce OSS levels further and rain. Shorelines that are exposed and cooperation with industries and during a winter storm where strong waves other jurisdictions needs to continue, wear away at the banks are especially susceptible and may result in slope instability and landslides. , Hazard Areas Another hazard in the Puget Sound area is earthquakes. The Puget Sound is an earthquake prone area and lies above one of the most active subduction zones in the world. Earthquakes create a potential danger for homes and residents. While the likelihood of a serious earthquake is unpredictable, precautions can be taken to mirdmize the amount of damage incurred as a result. Some areas located within Bremerton are more prone to damage than others and are known as seismic hazardous areas. These areas include places prone to Given the location and demand for scenic landslides, and areas with hydric softs and water and mountain views, a large fill. In an event of an earthquake, majority of Bremerton's housing is located liquffication of hydric soils and fill areas along shorelines, stream ravines, and steep wc~uld not be able to support structures slopes. This creates the potential for and thus create a safety hazard to residents landslides and erosion that present a real and property. danger to the health and safety of homeowners and property. There are three Balancing the needs of the built types of geologically hazardous areas environment along with the function and located in Bremerton; these include form of the natural landscape is no easy landslide, erosion, and seismic hazardous task. Engineering solutions to areas, environmental constraints may be extremely costly and are not always Landslides hazard areas within Bremerton effective. Sound management practices can can be intensified by development, reduce the likelLhood of these disasters and Removing native vegetation, increased remove the burden of establishing stormwater runoff, undercutting of steep adequate safety measures from the hands slopes, on-site sewage system discharge, of the property owner to the public. and increased burden to the soil caused by Limiting development on hydric soils and buildings are ~,pical development fill areas would reduce the probably of practices that impact slope stability, liquffication and would balance form and function with the landscape. EN-7 3.65 Citld of Bremerton Comprehensive Plan Page 8 Habitat Conservation by placing openspace and parks in appropriate areas that are attractive and contain unique landscape characteristics that have potential for city-wide recreational opportunities and wildlife habitat. Air Quality The air we breathe is vital to our lives and well-being, but we often take air quality for granted. The average adult breathes over 3,000 gallons of air every day. Children breathe even more air per Currently, Bremerton serves as habitat pound of body weight and are more to sigrfificant amounts of wildlife. From susceptible to air pollution. Many air downtown it is not unusual to see pollutants, such as those that form several pairs of bald eagles flying urban smog, remain in the envirortment overhead. Along shorelines there is for long periods of lime and are carried significant water foul and diverse by the wind hundreds of miles from vegetation. Even in neighborhoods, their origin. The Puget Sound's main there are numerous species that have contributor to air pollution is the use carved out niches amongst urban and dependence on the automobile. development. While these habitats have been created haphazardly in the past, it In Washington State, the EPA has is the communities desire to establish established 6 pollutants that affect more formal wildlife habitats and Bremerton's air quality. These include corridors within the city as well as carbon monoxide, particulate matter, within the watershed and utility lands, ozone, sulfur dioxide, lead and nitrogen dioxide. Several serve health problems Habitat conservation areas and have been associated with these corridors, along with biological pollutants and are known to cause diversity, can provide many asthma, heart and lung disease, chronic opportunities for Bremerton and bronchitis, and premature death. surrounding areas in adding to recreational and cultural activities, Health problems are not the oniy water quality protection, groundwater casualties of air pollution. Lakes, recharge, flood and erosion control, and streams, and wetlands are becoming economic development. Sustainable more acidic, thus reducing the livability development between the urban for aquatic plant and animal species. landscape and natural environment can Acid rain alters the nutrient balance in increase the social, physical and coastal waters, watersheds, and plant economic health of Bremerton and its life, thus creating an environment residents. Habitat conservation unsuitable for any type of life. increases opportunities for recreation, exercise and leisure activities and are Many of our air quality standards are essential amerdties in an urban setting, regulated on the State and Federal level, Access to natural areas can be achieved but with the help of sustainable EN-8 City of Bremerton Comprehensive Plan Page 9 planmng practices, reduction can start flow beneath the roads where they cross locally. Land use can aid in tlre effort to streams. In most cases, these culverts enhance air quality. Sustainable present a blockade to fish migration to development, low impact development upper stream habitat for spawning. and the centers approach- outlined in Frequently culverts discourage fish this comprehensive plan-encourages a migration due to openings that are too diverse transportation system, with high above the stream for fish to jump, increased emphasis on mass too steep or clogged with debris for fish transportation, walking, and bicycling, to pass through. A reduction in dependence on the single-occupant vehicle will aid in For a stream to be healthy, bank keeping Bremerton's air clean, stabilization and sediment retention is essential for fish and amphibian life. Creeks/Streams and Riparian Zones Riparian zones are characterized as ~ vegetated corridors adjacent to stream channels. The root systems of trees, grass, and scrubs found in riparian areas help prevent erosion of sediments that would be detrimental to fish and stream habitat. Not only does it aid in bank stabilization, riparian zones serve as a natural buffer from nonpoint source pollution and encourages natural flows by absorbing and slowing the velocity of water during a flood. These areas prevent pollution from being exported and contaminating the larger ecosystem Creeks and riparian zones are essential and allow a transition zone between elements to Bremerton's hydrologic uplands and the stream. cycle and a chief dynamic in controlling water temperature, and salirdty of Development around these natural estuarine environments, buffers and storage areas can be damaging to this important habitat. Bremerton has several creeks or streams that flow within its boarders. These include: Gorst Creek, Anderson Creek, Kdtsap Creek, and several other smaller unnamed streams. Gorst, Anderson and Kitsap Creek are ali known to be utilized by various salmon species. Ali of the major creeks within Bremerton's systems have been altered by humans. The primary alteration is the use of culverts. Culverts are pipes ~,pically made of metal or concrete that allows water to EN-9 167 Cit~d of Bremerton Comprehensive Plan Page Brownfields Over the years, industrial sites and mihtary bases have shut down or relocated, leaving behind contaminated land that poses risks to humans and ecosystems. The EPA classifies a brownfields site as "abandoned, idled, or underused industrial and commercial facilities where expansion or redevelopment is complicated by real or perceived environmental contamination." Most of the time, redevelopment of these sites is difficult due to the threat of liability and cost of clean up is placed on the property owner. However, Kitsap County, along with the EPA has taken a proactive approach in dealmg with these lands. Kitsap County has created a list of twenty targeted sites for remediate action. Out of the twenty sites, nine consist within the boundaries of Bremerton, primarily along SR303, Charleston Beach Road and Sinclair Inlet. Although brownfield development is costly and is a long process to complete, the benefits are irrefutable. As outlined by the goals and polices of this element, clean-up and redevelopment can create, once again economic valuable land for future uses. EN-10 168 Aquifers (City of Bremerton Comprehensive Planning) Legend ~ ..... i City of Bremerton ~ Shoreline Aqu fers ton County Record'~ 169 Cifld of Bremerton Comprehensive Plan Pagc 11 Environment Goals and ElD Encourage local and regional purchasing of consumer goods by the City Policies and private sector. As indicated in the introduction of this ElF Encourage environmentally section, the goals and policies found sensitive business and practices. below were created by the community to give direction to individuals and · Explore options to provide incentives to policy makers about how Bremerton's companies and facilities locating in environmental resources should be Bremerton and recognize existing treated, facilities and companies that follow effective pollution prevention and Sustainability: product stewardship practices EcosystemEnvironmentalintegdty Sustalnabilit y Social SuEt alnability Carrying capacity E1G Consider the adoption of a local Biodiversity Cultural Identity tree ordinance that promotes retention of Emp0wermen trees and forested areas as growth occurs. Accessibi)ity Stability Equity ~ Economic Sustalnabilit Growth Development Productivity Human Well Being Tdckle-down E1 To ensure the long term health of Bremerton, promote sustainable growth and activities E1A inventory and map non- renewable resources, and establish "indicators" or yardsticks the community can use to measure progress. · Evaluate the city's progress at regular intervals and make necessary adjustments. E1B Consider the environmental impacts of policy and regulatory decisions. ElC Use, where feasible, new technologies that demonstrate ways to reduce environmental impacts. EN-11 178 City of Bremerton Comprehensive Plan Page 12 Waste ~ ling: E2C Encourage the use of reusable, recycled, a_nd recyclable goods through educational displays and City ': purchasing policies and practices. E2D Maintain and support a "Spring Cleaning" collection day for yard waste. Pollution Reduction/Prevention: Recycling Receptacles are built into sidewalks, fully integrated into both city infrastructure and waste collection E2 Promote waste reduction and E3 Reduce and prevent recycling measures throughout the environmental pollution: air, water, community. Ensure that waste disposal light, noise, and soil occurs in an environmentally safe, E3A Inventory pollution levels, efficient manner establish goals for reduction, and E2A Reduce the amount of waste initiate a monitoring program. disposed in a landfill by reducing the amount bf waste generated and E3B Reduce ~missions of particulates promoting recycling and reusIng from construction activity, automobiles, materials, and other sources. · Provide attractive, well-maIntained · Encourage transit agencies and recycling bins and garbage receptacles employers with large vehicle fleets to In public spaces that separate different incorporate and expand use of alternative fuels. types of waste · Ensure that all city departments · Support regional growth management practice recycling and attempt to activities that help reduce automobile reduce waste use and other sources of air pollution E2B Reduce Solid waste generation E3C Encourage developers of new through salvage and reuse of building projects In Bremerton, including public materials, Including architecturally and projects, to provide improvements that reduce the use of sLngle occupancy historically significant materials. vehicles. EN-12 171 Citnd of Bremerton Comprehensive Plan Page 13 E3D Incorporate lighting standards in Conservation: the Bremerton Zoning Code to prevent light pollution. · Develop a "night skies" ordinance that addresses issues of urban light pollution. E3E Educate citizens about sources of pollution · Train code enforcement officers about how to identify and respond to pollution violations. · Provide the public information E4 Encourage conservation of pertaining to the impact to water critical areas and nonrenewable quality resulting from the use of resources pesticides and herbicides. Encourage a reduction in the use o£ pesticides and E4A Marriage existing public open herbicides, space areas and encourage the · Use environmentally responsible management of private open space products when caring for city-owned areas in a manner that meets habitat land protection goals, public safety concerns, and recreational needs. E3F Assist businesses with pollution prevention activities. E4B Preserve the integrity of riparian · Adopt incentive based development corridors, and steep slopes through the standards which reward preservation of native plants and the envirortmentally sensitive replacement of invasive, non-native development practices and projects plants with native plants. and that lead to preservation of urban forests E4C Protect, revitalize and expand Bremerton's tree supply through public education, sensitive regulation, and widespread incorporation of trees in streetscapes. EN-13 172 City of Bremerton Comprehensive Plan Page 14 Education/Communication/Public Participation: E6A Manage aquatic and riparian habitats to preserve and enhance their natural functions of providing fish and wildlife habitat and protecting water quality. E6B Preserve and enhance trees, native vegetation, and integrate suitable native plants in urban landscape development. E5 Initiate and promote public E6C Direct new development away involvement through environmental from important aquatic habitats such as education areas used by salmon and steelhead, E5A Support and sponsor media and kelp beds, eelgrass beds, surf smelt spawning beds, Pacific herring education campaigns relating to spawning beds, Pacific sand lance environmental issues such as: spawning beds, rock sole spawning · Pollution prevention beds, rockfish settlement and nursery. · Master composters areas and ling cod settlement and · Native plants · Fourth grade Water Festival at nursery areas. Olympic College E6D Whenever reviewing · Bank stabilization methods development proposals, identify · Organic gardening habitats that may be adversely · Water resource and conservation L-npacted, E5B Create an environmental E6E Encourage residents and education outreach position as part of professional landscaping firms to utgize City staff, native plants in residential and Habitat: commercial landscapes. E6F Use the brownfields approach and grants to identify and restore potentially environmental valuable property. E6G Protect and preserve nearshore habitat · Encourage alternative, natural bank stabilization. E6 Protect, preserve, and restore E6H Identify and establish Marine the habitats that support Bremerton's Protected Areas. diverse ecosystems EN-14 173 City of Bremerton Comprehensive Plan Page 15 ~ace: Water: E8 Protect and preserve Bremerton's unique marine and fresh water resources E8A Preserve and maintain wetlands in a natural state. EBB Provide both physical and visual access to shoreline. E7 Create an openspace system that increases the amount of openspace, protects Bremerton's E8C Promote alternatives to natural resources, and provides a traditional stormwater practices for new source of beauty and enjoyment for all construction, encourage onsite filtration, residents and visitors and require the use of current Best Management Practices. E7A Incorporate openspace within designated land use centers. E8D Restrict the runoff rate, volume and quality for all new development E7B Encourage openspace along and redevelopment. water to ensure public access both visually and physically. E8E Conserve and protect groundwater resources. E7C Include pedestrian, bicycle, Provide for well-head protection where passive recreation opportunities, and appropriate. developmentally appropriate play areas · Protect aquifer recharge areas, into open spaces, especially those used to provide E7D Integrate community and public water supplies. demonstration gardens within · Coordinate measures to protect Bremerton's openspace system, groundwater resources with watershed plans and planning efforts. E7E Encourage connectivity between open space areas with a system of paths and trails for pedestrians, bicyclists, and other non-motorized users. EN-15 174 City of Bremerton Comprehensive Plan Page E8F Designate City aquifer protection areas. E8G Incorporate "best available science" when changing landuse designations in undeveloped watershed or utility land. This includes limiting impervious surfaces to ~known thresholds. E8H Preserve and maintain the 100 year floodplain in its natural state. El0 Encourage environmentally responsible development E10A Use brownsfields approach to identify and restore economically valuable properties. E10B Encourage dense development around designated centers, which incorporate openspace. E10C Ensure code flexibility to enable and encourage environmentally sensitive development. E10D Support efforts to educate the E9 Incorporate efficient energy local development community about conservation strategies into all aspects environmentally sensitive practices. of Bremerton's growth and development. E9A Encourage energy efficient building development standards. E9B Encourage landscaping which reduces energy loss. E9C Encourage telecommuting. E9D Promote use of alternative energy. EN-16 175 Cit~d of Bremerton Comprehensive Plan Page 17 Quality of life/Public health: Ell Integrate the natural and built environments to create and urban setting with comfortable and secure places for people to live, work and recreate EllA Protect life and property from natural hazards, including earthquake, landslide, flooding, and fire. EllB Coordinate with Bremerton- Kitsap County Health District in resolution of failing septic systems in city limits. EllC llncourage streetscapes that are human-scale, enable walking, bicycling and are aesthetically pleasing. EllD Create sidewalks and improved shoulders along right-of-ways to enable walking. EllE Protect public views and vistas to both shoreline environments and mountains. EN-17 276 City of Bremerton Comprehensive Plan Page 18 Environment and Development El4 Incorporate findings and Re science from joint County/City watershed planning efforts. E14A Where appropriate incorporate the findings from the Cl-dco Watershed Alternative Futures Project. Water conservation Reduce II Recycle El2 Ensure consistency between the goals and policies of this Comprehensive Plan and those found in the Bremerton Shoreline Master waste management Program. Recycle E12A Incorporate the Bremerton ShorelLue Master Program into this Comprehensive Plan by reference. El3 Incorporate "best available science" into the creation and enforcement of the Bremerton Critical Lands Ordinance EN-18 ~77 Citny of Bremerton Comprehensive Plan Page ECONOMIC DEVELOPMENT ELEMENT "14Zhile supporting regulatory refo~ns, this element primarily focuses on providing expanded employment, housing, and commerce choices.' Economic Development Vision Bremerton is a metropolitan city with economic vitality and diverse lifestyles. The city provides a broad variety od:jobs, housing, transportation options, convenience services, and strategically dispersed commercial activities. Communities and established neighborhoods within the city each have a distinctive focus, yet all are walkable and well-connected to each other, satellites to a vibrant downtown with the most interesting mix of activities. Residents and visitors alike enjoy the accessible wate~2Cronts, water and mountain views, and urban parks. New development merges with established styles, enhancing and protecting the charm, historical character od:the city, and its cultural heritage. EC-1 178 City of Bremerton Comprehensive Plan Page 2 Introduction making efficient capital investments. Bremerton, as the urban center of Kitsap The economic advantages of making efficient use of public resources is also County, is a vibrant environment which discussed in the City Services Element. fosters economic vitality through its broad diversification of jobs and Higher density developments in quality settings, as outlined by the centers strategically dispersed cormnercial strategy and advocated here, will activities. The city provides a superior contribute to a stronger market with natural setiing, a nationally recognized increasing land values that attract quality of life, and a regionally investments. This element asserts that significant deep water port, home to a newly rebuilt state ferry terminal and armexations should demonstrate the Puget Sound Naval Shipyard, the economic growth for the city. Finally, businesses are recognized for their West Sounds largest employer, critical role in the city, supported with Rediscovery of the city's qualities and expansion locations, tra~nsportation its economic durability entices new investments as well as rejuvenates planning, and community-wide efforts to market the city and a business residents and business in pursuit of the friendly regulatory environment. city's economic interests. The State of Washington has recognized The Economic Development Element asserts the need for economic vitality for the need to promote economic competitiveness in commurrity planning a healthier community. While efforts. New legislation in 2002 supporting regulatory reforms, this expanded the mandate of the State's element primarily focuses on providing expanded employment, housing, and Growth Management Act to include an commerce choices. Advocating for a Economic Development component for f~ll inventory of marketable sites, Compre~iensive Plans. Transportation especially redevelopment opportunities plans for regional corridors, and land use allocations, especially for centers, within newly designated centers, this are thereby challenged to support the element puts a priority on new needs of commerce. Such economic development that increases activity levels and diversifies the economy. At development requires partnerships the same time, it works to highlight and across jurisdictional lines, especially to enhance the qualities that make enjoy the benefits of a shared economy that does not contain itself to politiCal Bremerton a wise investrnent, such as its boundaries. The County wide Planning prime waterfront, small city Policies, negotiating such things as tax- convexfience, and rich cultural heritage, revenue sharing in advance of annexations, are endorsed here as a This element challenges city government operations to have excellent basis for regional coordination. This element asserts the interests of local customer service and development- residents and businesses into the friendly processes and regulations. Its also requires that economic ongoing larger dialogue, working to considerations be included as the City secure strategic growth opportunities prepares for future growth, including for the City of Bremerton. EC-2 179 City of Bremerton Comprehensive Plan Page 3 The economic development goals and policies that appear in the following section of this element respond to the opportunities and aspirations outlined above. They also necessarily respond to challenges presented by existing economic conditions. To better understand both existing challenges and community goals for the future, this element rests on a foundation of To provide this foundation, Appendix ED to this Comprehensive Plan presents a "City Profile" outlining contributing demographic, physical, and historical conditions in Bremerton. Appendix ED also contains an "Inventory of Local and Regional Economy" citing the key data needed to understand Bremerton's current economic conditions and make reasonable forecasts about it's economic fuPare. Appendix ED is found in the companion appendices volume to this Comprehensive Plan entitled, Technical Appendices: 2003-2004 City of Bremerton Comprehensive Plan Update. EC-3 180 City of Bremerton Comprehensive Plan Page 4 Goals and Policies for EC1B Monitor land availability for development sites throughout the city. Economic Development EC1C Encourage redevelopment of The Growth Management Act's underutilized sites. Economic Development Planning Goal is to: · Utilize adaptive re-use of public buildings Encourage economic development · Encourage rehabilitation programs, throughout the state that is consistent with including grant funding for clean-up adopted comprehensive plans, promote and repair economic opportunity for all citizens of this state, especially for unemployed and EC1D Apply armexation strategies that for disadvantaged persons, promote the produce economic gains for the City of retention and expansion of existing Bremerton. businesses and recruitment of new businesses, recognize regional differences EC1E Pursue alternative transportation impacting economic development monies, including Federal dollars opportunities, and encourage growth in typically spent on the interstate system, a~eas experiencing insufficient economic for fast-ferry research and other multi- growth, all within the capacities of the modal investments and improvements. state's natural resources, public services, and public facilities. EC1F Provide adequate street lighting Local priorities, vision, and aspirations for as well as police and fire protection services throughout commercial areas. economic vitaliflj are reflected by the following community goals and policies for EC1G Promote Local Improvement economic development. Districts as a tool for infrastructure improvements particularly in areas experiencing new investment and redevelopment. EC1H Expand and support marinas in the city ECII Promote both short and extended recreational activities in Bremerton, especially along the extensive waterfront. EC1J Ensure business zoning ECl Promote a vibrant environment designations are in appropriate for economic development locations (See EC2 & Land Use Element) · Consider critical mass of customers for EC1A Promote and plan for an locating and sizing business locations adequate supply of strategic lands and · Promote mixed use and higher density infrastructn, tre for new employment and residential development in proximity economic expansion, to business locations EC-4 181 City of Bremerton Comprehensive Plan Page 5 EC3 Provide for a full-service, 24- hour, regional downtown center EC3A Encourage the development of the downtown as a neighborhood as well as the heart of the city and region. EC3B Diversify and enhance quality of office space available, and in use, in the downtown area. EC3C Encourage services downtown EC2 Maintain the existing asset of for commuters as well as residents. being a small city with convenience and quality EC3D Provide incentives for downtown redevelopment and EC2A Provide for various centers reinvestment. throughout the community that encourage economic activity. EC3E Create a character-of- development vision for downtown, EC2B Coordinate sub-area stressing consistency but allowing (community, neighborhood, and flexibility. centers) planning for localized economic development. EC3F Provide for a unique downtown ambiance, stressing safety and visual EC2C Encourage mixed use interest. developments (residential comlYmed with commercial activities) in · Support street lighting, window designated centers, displays, increased security, and consistent treatment for signage and EC2D Identify distinct core amenities (trash cans, benches, etc.) development for District and · Investigate outdated (obsolete) Neighborhood Centers. signage for possible removal or rehabilitation EC2E Encourage balanced ratios of · Preserve historic storefronts designated uses within centers, to downtown, for unique character and ensure economic validity visual interest EC2F Work with Kitsap Transit to plan EC3G Encourage use of design around activity areas with convenient elements as stated in Community hours and connections for commerce. Character chapter EC-5 ~82 City of Bremerton Comprehensive Plan Page 6 EC3H Support on-going entertainment EC4 Support the expansion of and community gathering downtown, commerce · Provide for variety of compatible EC4A Ensure convenient access to attractions for a diverse population advanced internet and digital · Locate multi-purpose sites for social communications. events and community gathering EC4B Apply tax strategies that attract EC3I Encourage cultural activities and and retain businesses. special events downtown · Review all taxing policies to identify Provide support for entertainment incentives for economic investment, venues, including tax breaks EC3J Provide convenient and · Pursue eligibility for all areas of the City that may qualify for State purposeful parking downtown. Empowerment Zone designation. · Study parking polices for economic EC4C Support expansion of development · Provide for short term, strategically transportation systems and facilities, located, parking lots downtown particularly the Bremerton National · Allow alternative parking Airport, to move products to and from requirements for evening and late Bremerton. night-oriented businesses, such as use of existing parking lots designed for EC4D Ensure good access, including regular business hours public transit, to business areas. EC4E Support transportation corridors that are convenient and complimentary to downtoWn and activity centers: EC4F Ensure that business districts - areas where commercial uses make up the majority of a city block - have a recognizable access points that can function as gateways. EC4G Locate and secure convenient and well-designed parking opportunities within business districts. EC4H Identify business districts for coordinated parking and improvement strategies. EC4I Support home occupation businesses. EC-6 183 City of Bremerton Comprehensive Plan Page 7 EC4J Encourage supportive EC5E Produce a sense of welcome and environments for the growth of small orientation for visitors, throughout the businesses, such as opportunities for city, especially do~mtown and at arrival shared overhead and admLnistration points to the city. costs. · Provide for visual aides such as EC4K Pursue state legislation and directional signs to direct tourists to programs to aide businesses and local business and destination points business districts. EC5F Encourage Marketing and EC4L Encourage a more diversified Tourism efforts. economic base to increase elast4city in · Accent the city's unique character and the local economy, assets, such as its waterfront and historic downtown EC5 Establish Bremerton as a city EC5G Support tourist features and that welcomes the opportunity to serve amenities, especially the regularity and business, residents, and visitors, convenience of state ferries which directly service Bremerton. EC5A Expedite the permit and development process. EC5H Partner with private and public agencies and association to publicize · Advocate on behalf development con-wnunity services and amenities. projects that meet code provisions · Improve predictability with established timelines for various development permits · Clarify code regulations and definitions · Publish condensed development guides EC5B Provide customer service training programs for city employees who interface with the public. ECSC Encourage business and customer service training programs. EC5D Promote Bremerton throughout Puget Sound. EC-7 184 Cifid of Breraerton Comprehensive Plan Page 8 EC6 Provide greater economic opportunity for residents EC6A Ensure convenient access to advanced internet and digital communications. EC6B Educate property owners of development options and interests. EC6C Support opportunities for affordable owner-occupied housing. EC6D Promote and Support local labor force · Encourage workforce training programs and initiatives · Support educational opportunities through public, private, and higher education institutions EC6E A~cract new employment opportunities throughout the city. EC6F Support efforts of the local business and economic development associations, especially in their efforts to attract new business and primary dollars (money from outside the community) to the City of Bremerton. EC6G Pursue regional and state investments interests, especially public dollars, through continuous lobbying and relationship building, highlighimg Bremerton as a stable appealing community committed to partnerships and collaboration. EC-8 185 Cit~j of Bremerton Comprehensive Plan Page 1 CITY SERVICES ELEMENT "This element guides how the provision of se~wices such as water, sewer, parks, and schools support the future growth and development of Bremerton.' City_ Services Vision In partnership with residents, and public and private organizations, the city proactively provides services that enhance the quality of life in Bremerton, which includes clean water, a unique location with panoramic views, a civilian and military maritime heritage, and a diversity of people and activities. Available and accessible public services and educational opportunities contribute to economic development and neighborhood vitality. A customer service orientation encourages community pride and responsibility in maintaining the safety, health, and beautification of our city. CS 1 186 Cihj of Bremerton Comprehensive Plan Page 2 Introduction Utilities Element and the Capital Facilities Element. Separate sections follow that are equivalent to those required elements. Additional commentary on the intent of the City Services Element will be provided at the beginning of each of the two main sections. Each section will present discussions of current and projected conditions, including levels of service, as appropriate. In the case of the Capital Facilities especially, the section will also discuss capital projects necessary to maintain urban services at the The City Services Element addresses levels of service acceptable to the services that are essential to a community community and present a plan for financing and its ability to grow. They are crucial to those needed improvements. This exercise - the health, safety, and wekfare of conTmordy cai]ed the concurrency community members. This element guides requirement - will be discussed in greater how the provision of services such as water, detail in the introductory portions of the sewer, parks, and schools support the Capital Facilities Section. future growth and development of Bremerton. The Utilities and Capital facilities begin on pages CS14 and CS22 respectively. This element provides direction that will However, it is important to understand that assure three primary goals are met; 1) those sections are a response to the expected levels of quality for services will overarching vision, goals, and policies set be maintained as growth occurs, 2) the by the corrumunity for the broader topic of locations chosen for needed public and City Services. Logically then, those goals quasi-public facilities will not conflict with and policies proceed the technical sections. other comnlunity goals, and 3) careful planning of public and quasi-public facilities will assure the services are provided in the most cost-efficient manner possible. In addition to these goals, this element also seeks to outline goals and policies that guide the City in providing other services not normally included in such plan elements. The City Services Element of the Bremerton Comprehensive ]Plan combines the function of two plan elements required under the Growth Management Act, the CS 2 187 City of Bremerton Comprehensive Plan Page 3 City Services Goals and Policies the city, such as community centers, neighborhood centers, and The community's vision for city services irdormation/drop off kiosk or bulletins was offered at the begirmmg of the element. The following section presents the goals CS3 Provide public facilities and and policies developed by the community services conveniently and equitably, to support and lend additional detail to the throughout the community vision. CS3A Ensure that the prescribed Level o£ CS1 Proactively provide services that Services are pursued throughout the city. ' of life in Bremerton CS4 Allow essential public facilities to locate within the city, per city, regional and state requirements CS1A Collaborate with citizens, public, and non-profit agencies towards a proactive approach to social needs. CS4A Public facilities should showcase CSIB As far as revenue allows, enforce cormmunity design interests, guidelines, or city ordinances in a proactive manner as standards, especially in their design and opposed to a reactive mariner, building process. · Encourage licensing and user fees for · Encourage flexibility of use and specialized services with a limited maximum efficiency so that facilities and clientele services will be harmonious with neighborhood needs, adjacent uses, and CS2 Improve accessibility to City the environment services. £S4B. Develop siting criteria and processes CS2A Implement technologT¢, especially to assure timely and consistent siting of within the capacity of internet, to provide essential public facilities. information and services more conveniently. CS2B Promote neighborhood accessibility to community services. · Locate communi~T services throughout CS 3 188 Cihd of Bremerton Comprehensive Plan Page 4 CS5 Maintain the public investment in City Services Supporting Customer existing capital facilities Service Orientation CS5A Maintain, rehabilitate or reuse existing facilities whenever possible and still meet the capital needs of the population CS5B Consider future maintenance and repair costs of new capital items when making selection and expenditure decisions on new capital facilities. · Manage a comprehensive maintenance program CS6 Ensure adequate funding for public facilities and services for existing CS7 Educate citizenry about city development and new growth services and citizen responsibilities CS7A Work towards community "buy-in" and civic partuership towards shared goals. · Provide new resident information · Provide service directories CS8 Provide meaningful opportunities for community involvement CS6A Pursue alternative and creative funding mechanisms for public services and facilities, CS6B Apply cost-effectiveness criteria to capital investments. CS6C Protect city revenue sources. CS6D Recognize responsibility of the development community in providing for CS8A Enlist residents for their talents. the impacts of new growth · Advertise regular volunteer opportunities · Move towards a strategic impact fee to the general public program CS 4 Citnd of Bremerton Comprehensive Plan Page 5 · Work to identify specific Community City Services Supporting Safety and assets and invite identified groups and Health citizens to participate in governance : CS9 Achieve a timely permit process CS9A Process permits and approvals in a fai~ and timely manner and in accord with development regulations which encourage predictability. (note: additional goals and policies found in the Economic Development Element discuss provision of timely permitting processes and other factors that contribute to better governmental services) CS10 Encourage safety and health of residents and visitors CS10A Accent public safety and accessibility in all public facilities · Enhance parking lot development standards for safety · Improve cross walks and street crossings throughout city CS10B Prepare, distribute, and educate citizens and public staff about emergency preparedness plans including instructing Bremerton's citizens what services will or will not be available immediately following an incident and Listing locations where support services will be provided. CS10C Work actively to reduce crime Work through civic partnerships to address the plague of substance abuse and addiction CSll Improve citizen safety after dusk CS 5 Cit~d of Bremerton Comprehensive Plan Page 6 CS13D Develop appropriate siting criteria ~ ~1 for social service facilities City Se~'oices as Related to Beautification CSllA Enhance lighting for pedestrians, especially around and leading to places of activity CS12 Encourage healthy lifestyles CS14 Facilitate the provision of utilities that are environmentally sensitive, safe and reliable, aesthetically compatible with surrounding land uses, and available at reasonable economic costs CS14A Designate and work towards underground "utilidors' throughout the city, encouraging utility providers to co-locate for aesthetics and efficiency. CS14B Encourage Local Improvement Districts, especially putting electrical lines underground. CS12A Provide a wide range of recreational opportunities for people of all CS14C Develop an undergrounding ordinance. ages. CS13 Ensure social services that meet the needs of a diverse population CS13A Support social service organizations CS13B Advocate for a preventative focus in the funding and supporting social services CS13C Demonstrate awareness and consideration for special-needs populations CS 6 191 City of Bremerton Comprehensive Plan Page 7 CS15 Enhance and enforce standards for infrastructure and utilities, especially in CS16 Promote open spaces and "green residential areas ~aces" for ] Emphasize~c~nformity~ of design CS16A Realize recreational needs in open CS15A and witkin sub-~reas of the city, espedally space plann~g. neighborhoods. C$16B Coordinate public omd private · Improve sidewalks throughout the dty, beautification efforts, especially on city especially accessibility properties and public rights-of-way. CS15B Encourage citizen responsibility · Ensure adequate maintenance of public regarding proper waste disposal and pet landscaping behavior. · Provide trash receptacles and waste · Strengthen landscaping and buffering conveniences in public places, especially requirements in city parks · Use trees and plants that are well suited CS15C Create standards and processes for for an urban environment, including the siting of wireless telecommunications sensitivity to viewsheds facilities that assure adequate telecommunications ser~4ces while protecting neighborhoods and other portions of the City from negative impacts. · Create incentives for co-location as an alternative to the siting of new towers · Provide adequate setbacks, buffers, and camouflaging requirements to assure protection of adjacent land uses and residential neighborhoods CS 7 192 Ci~d of Bremerton Comprehensive Plan Page 8 Neighborhood Revitalization and City withh~ neighborhoods, supported by city facilities including pedestrian amenities and Services city services such as crime prevention, parks and recreations programming. CS19 Recognize that schools provide a unifying social and physical amenity that is a key focus for successful CS17 Enhance the role that infrastructure and capital facilities play in the development of and maintenance of quality of neighborhoods CS17A F~courage neighborhood revitalization in the provision and location of city facilities, improvements, and services. CS17B Work with appropriate City CS19A Locate elementary schools in or departments to produce and implement development standards for neighborhood near neighborhood centers. development, stressing safety, access, CS19B Locate middle schools, junior high recreation, and pedestrian friendliness, schools and senior high schools near district Standards should address such topics as lighting, sidewalks, street design in a centers. manner that assures consistency with this CS19C Allow school uses throughout the Comprehensive Plan. City as appropriate. Establish appropriate CSl7C Locate a focal point(s) wiffdn each conditions and processes to mitigate their neighborhood for the dissemination of impacts. Encourage schools in public services, including such things as neighborhoods and centers. information kiosks, police sub-stations, and CS 20 Develop and implement pull-up locations for mobile libraries, medical clinics, etc. Centers will typically be appropriate criteria and controls to assure that social service uses are appropriately the preferred 'locations for these services, sited CS18 Encourage sense of place and identity within neighborhoods CS18A Ensure commumty gathering points CS 8 193 City of Bremerton Comprehensive Plan Page 9 Support Economic Development with Coordination of City Services with Services Comprehensive Plan CS21 Allocate resources to strengthen the economic base, diversify industrial and CS22 Assure that all capital projects and commercial enterprises, increase expenditures are consistent with the employment opportunities, increase the Comprehensive Plan income level of residents, and enhance and revitalize neighborhoods CS22A Apply growth strategies to fiscal investment decisions to expand expansion CS21A Use public funds, services, and of service areas or infrastructure capacities. facilities to leverage private investment. CS22B Ensure public input in the CS21B Assist and encourage private monitoring, review, and planning of all city investment and development that foster services and facilities, including municipal economic diversity and viability and facilities, port facilities, libraries, parks, preserve quahty neighborhoods, community meeting places and buildings. CS21C Pool resources for funding of CS22C Regularly monitor the expenditure community activities, of capital resources, ensuring the prescribed level of service for the following services CS21D Promote joint-use of facilities for and facil/ties: potable water, san/taW sewer, maximum efficiency, storm-water management, law enforcement, fire protection, emergency medical service, transportation, sohd waste, parks, and schools. CS 9 194 City of Bremerton Comprehensive Plan Page 10 CS22D Set priorities for funding based on CS23 Achieve coordinated planning for citizen values as indicated in the vision the city's urban growth with Kitsap statement and specified in the prescribed County, other jurisdictions and service Levels of Service. providers, especially for the provision of and services · Report service levels to the public on an annual basis, demonstrating accountability to the prescribed levels of service · Review of capital projects and their funding should be performed at least biannually as part of the City's budget process (1) to ensure an ongoing review of capital needs and (2) so that capital and operating budgets can be considered together. CS23A Build working relal2onships with all · The City will maintain a "Capital utility providers for planrdnggrowth Improvement Priority Needs" list. This list will contain unfunded capital CS24 Promote Smart Growth principles improvement projects identified by the for development city-wide, and within the City Council, City departments, citizens city's Urban Growth Area and other governmental agencies. CS24A Support county-wide planning (See Table CF-l, Capital Facility Level of pohcies, particularly the coordination Service Stmidards - Long Term") efforts of the I<2tsap Regional Coordinating Council. CS25 Progressively become the primary provider of capital facilities and services within the city's Urban Growth Area CS25A Participate in the planning of the Urban Growth Area (UGA). · Work towards development stai~dards within the UGA that are uniform or complimentary to the city's development standards · Safeguard urban levels of service within the UGA which are comparable to the levels set within the city · Identify development concerns wifhLrl the UGA and inventory challenges to address CS 10 195 Cit~y of Breraerton Comprehensive Plan Page 11 · Ensure quality residential development in the UGA that has urban and CS27A Transportation facilities needed to neighborhood qualities, including walk- serve new development must be Ln place ability within 6 years of completion of the development generating the needed system CS26 Adopt Level of Service Standard(s) improvement. (LOS's)for public facilities reflecting community preferences for quality of CS27B Assure that development proposals service delivery that cannot demonstrate compliance with the concurrency requirement are not permitted CS26A At a min~um adopt LOS's for until measures to maintain the adopted LOS transportation facilities, are provided, CS26B Consider adopting LOS's for CS28 Adopt six year capital facilities additional facilities and services including, programs (CIP's), including Transportation water and sewer services, police and fLre Improvement Programs (TIP's) on an annual protection, parks, solid waste, basis that demonstrate funding capability to transportation, and schools, support the land use patterns and other goals and policies adopted within this plan CS26C Adopt LOS standards that support and encourage the development of centers. CS28A If adequate funding capabitity cannot be demonstrated through adopted CIP's and Discussion: LOS Standards that provide an TIP's, reconsider that land use assumptions advantage to development in Centers as and plans elsewhere adopted so that essential compared to surrounding areas can be one consistency between the Land Use Element of the most effective strategies for attracting and the funding capability can agakn be development to these priority locations. For demonstrated. example, a LOS for automobile traffic that generates lower traffic mitigation costs ( a "lower" traffic LOS) can be especially key for improving the climate for development in Centers. Conversely, a higher LOS for transit headway may also be an incentive for centers development. The incentive or disincentive effect of a wide variety of LOS standards on Centers development should be carefully considered. CS27 Adopt a Concurrency Management Ordinance (assuring that capital facilities required to meet adopted Level of Service standards are provided at the same time with development) in order to maintain the communities identified desired level of service CS 11 City of Breraerton Comprehensive Plan Page 12 Utilities The Utilities portion of the City Services Element addresses the utilities provided to Bremerton's residents by private providers. It presents i~ormation regarding current locations and capacities as well as discussion about the provider's ability to provide these services in the future. This portion of the element verifies that these key services can be provided as the projected growth occurs. The services addressed include; natural gas, electricity, telephone, radio, and cable television. Current Conditions and Capacity versus Planned Capacity Table CC.L below summarizes current providers, and system capacity as well as the provider's report of future capacity. In general - since private providers are market and demand driven - all the providers assure the City that they can, and will respond to growth as it occurs. Because of the market-driven nature of the operational model employed by private providers, it is assumed that a level of service acceptable to the community (consumer) will be maintained. In any case, failure to do so will become a marl~et or regulatory issue outside of the realm of this Plan. However, this plan is the proper venue in which to assure that the physical location at which certain utility facilities are placed is compatible with the land use related goals and aspirations of the community. It is also the proper venue to set community goals leading to design standards and development controls effecting private utility providers. Examples of such controls might include siting standards for wireless telecommunications facilities ("cell towers") or a requirement that new power or telephone lines be underground. Current and Projected Conditions - Utilities The following Table, Table CS.i, summarizes the current and projected system capacities of private utility providers for the City of Bremerton CS 12 197 City of Bremerton Comprehensive Plan Page 13 Table CS.i Utilities Providers and Capacities ~til!fies Fac~!l~ies. Bremerto Na~raI Gas Cascade 17,000 users ~ Pla~ to ~iple Na~ral Gas ~tsap se~ice area dis~ibu~on capaci~ Corp. (CNG) ~ 19~. to area over 3 ye~s. Peak dem~d is c. 1,950,0~ therms/day. Elec~ical Puget Sold Nor~ ~tsap Is mandated to Ener~' subarea (~cludes exp~d capaci~, as Bremerton) ~s ~5 demand develops. Mega Volt ~peres Plato to ~crease (~A's) capaci~, capaci~ to 4~ Power uffi~fion ~'A's by 2020. factor ~ at 81% of capaci~. Teleco~u~ca~o~ · Tephone QWest ~,000 customers ~ Ma~ routes at ~ap Co~,. 85 % capaci~; ~talls addi~o~l faci~es when exc~d 85%. · Radio Pubic sector Emergen~ Expamion of 911 commu~ca- broadcast ne~k system m near ~- fio~ se~e has ~s ~oughout ~re. law e~orc~ co~. ment agen- cies, fire dept. etc. · Ce~ul~ N/A N/A N/A · Cable ~ ComCast Has poten~al to Pla~ for 4% a~uaI se~e 15,156 house- ~owth rate. holds Se~es 10,~0 customers wit~ CS 13 City of Bremerton Comprehensive Plan Page 14 A. FEDERAL AND STATE LAWS/REGULATIONS The providers listed above are governed by both State and Federal regulations. These regulations require that services be maintained at levels acceptable to the public. This occurs in a variety of ways. Because they are the primary vehicle in place to assure that these services maintain pace with growth, the appropriate State and federal instruments are summarized below (1)Revised Code of Washington and Washington Utilities and Transportation Commission Utilities and transportation are regulated in Washington by the Washington UtiliQes and Transportation Commission (WUTC). The WUTC, composed of three members appointed by the governor, is empowered to regulate utilities (including, but not limited to, electrical, gas, irrigation, telecommunications, and water companies). State law (WAC 480-120) regulates the rates and charges, services, facilities, and practices o£ utilities. Any change in customer charges or service provision policy requires WUTC approval. The WUTC requires gas providers to demonstrate that existing ratepayers will not subsidize new customers. Thus, historically, gas main extensions have not been planned in advance but have been initiated only when sufficient customer demand is manifest. The WUTC regulations, are, therefore, inconsistent with the GMA's concurrency goals. (2) Federal Energy Regulatory Commission The Federal Energy Regulatory Commission (FERC) is an independent five- member comrnission with the U.S. Department of Energy. FERC establishes rates and charges for the interstate transportation and sale of natural gas, for the transmission and sale of electricity, and the licensing of hydro-electric power projects. In addition, the Commission establishes rates or charges for the interstate transportation of oil by pipeline. (3) Natural Gas Policy Act of 1978 The central theme of the National Gas Policy Act (NGPA) is encouragement of competition among fuels and suppliers across the country. As a result, natural gas essentially has been decontrolled. The NGPA also contained incentives for developing new natural gas resources and a tiered pricing structure aimed at encouraging the development of nation-wide transmission pipelines. The result CS 14 199 City of Bremerton Comprehensive Plan Page 15 of the Act has been that many consumers are now paying less for natural gas than they were in 1980. (4) Northwest Power Planning Council The Northwest Power Planning Council (NWPPC) focuses on the generation of electricity; however, its policies have implications for gas too. The NWPPC, in its recently released power plan, has directed the region to develop cogeneration as an energy resource and hydro-firming as a power back-up system. Cogeneration is the use of heat, as a by-product of power generation, for industrial processes or for space and water heating. Natural gas is often used as a fuel source for cogeneration. Hydro-firming is the back-up of the region's intermittent excess spring hydro generation with gas-fired combustion turbines to provide back-up if hydro- electric power is insufficient. (5) 1991 Clean Air Amendments The passage of the Washington State Clean air Act in 1991 indicates a state intent to promote the diversification of fuel sources for motor vehicles. This is in response to a need to both reduce atmospheric emissions and reduce the nation's reliance on gasoline for sh'ategic reasons. This Act promotes the use of alternative fuels by requiring 30 % of newly purchased state government vehicle fleets to be fueled by alternative fuel by July 1992 (increasing by 5% each year). It also studies the potential and encourages the development of natural gas vehicle refueling stations. CS 15 200 City of Bremerton Comprehensive Ptan Page 16 Future Conditions The providers listed on Table CS.i. are either driven by market forces, or directed by the regulations summarized above to maintain the utilities discussed at adequate levels as growth occurs. A more detailed discussion of each providers exisffng system capacity and projected system expansions is located in Appendix XX The physical locations of needed facilities have been provided to the City and are shown on the following maps. In so much as the new facilities projected occur in existing rights-of-way or at pre-existing locations, there is minimal to no conflict with the future land uses projected by this comprehensive plan. CS 16 City of Bremerton Comprehensive Plan Page 17 Figure UT-1 Kitsap County Utilities CS 17 202 Page 18 Citad of Bremerton Comprehensive Plan Map 1 Gas CS 18 203 City of Bremerton Comprehensive Plan Page 19 i~lap 2 Electrical -- Existing Facilities CS 19 204 City of Bremerton Comprehensive Plan Page 2 0 Map 3 Electrical -- Proposed Facilities CS 20 205 Cit~d of Bremerton Coraprehensive PlanPage 21 Capital Facilities .... r The Capital Facilities Section represents in many ways the point at which the rubbe meets the road" in planning. This section, and its' supporting appendix, establishes the community's strategy for paying for the patterns of growth that it prefers. In the other elements of this comprehensive plan, the community has set a course toward realizing its vision for the future. It has created goals and policies that will help it establish the land use pattern, types of housing, transportation system, urban design, and environmental protections that it desires as the future urffolds. The Capital Facilities Section is where the community puts forth a strategy to pay for the services needed to serve the desired type and intensity of growth. Without such strategies, the rest has no meaning - and little hope of ever being accomplished. That strategy has two major parts; the establishment of the community's desired Levels of Service (and a related concurrency requirement), and the establishment of a meaningful and related capital facilities program (CFP). Levels of service and concurrency are discussed below. The Capital Facilities Program that supports the established LOS Standards is contained in a large technical appendix to th~s plan Element - the Capital Facilities Program (CFP) found in the Plan Appendices - Volume 2 of the Comprehensive Plan. The Capital Facilities Section addresses the full range of urban services provided by public and quasi-public agencies. Under the County-wide Planning Policies for Kitsap County, amended by the County and ratified by the City of Bremerton in XXXXXXX, a "full range of urban services" is defined to include the following. (CI~PP A.3.d.i) Police storm water potable water Fire sewer (sanitary) solid waste Transportation Parks & Rec. Facilities Schools Telecommunications (including Broadband) With the exception of telecommunications, which was addressed in the Utilities Section of this element, the appendix related to this Capital Facilities Section will present discussions of current conditions, projected conditions, level of services standards, and implementation strategies for each service area - in turn. The sections that follow here in the capital facilities section of the City Services Element discuss the overarching topics of concurrency, level of Service, and general capital facilities programming. In addition, these sections present the linkages between these concepts and endeavors and the rest of the Comprehensive Plan - especially how level of service standards and concurrency relate to and support the land use concept on which the plan is based. CS 21 City of Bremerton Comprehensive Plan Page 22 The scope of the Capital Facilities Plan is city-wide and beyond. It includes ali areas within the incorporated city limits, as well as areas surrounding the city which have been identified as Bremerton's urban growth area in accordance with the Growth Management Act. The Capital facilities section will guide public decisions on the use of capital funds. It will also indirectly guide private development decisions by providing a strategy of planned public capital expenditures. The Heart of the Capital Facilities Section - Concurrency At the heart of the functions performed by this section is the requirement that a community demonstrate how key urban services will be provided to new development - and provided in a way that maintains the community expectation that a clearly defined quality of life be maintained as growth occurs. This is commonly called the concurrency requirement. More simply put, this section will show how the community will finance the services needed as growth occurs. In addition, it must be demonstrated that these services will be provided at a level of quality acceptable to the community - that the quality of services, the so-called Level of Service will not be diminished below acceptable standards as development proceeds. The Growth Management Act's Public Facilities and Services Planning Goal is to: Ensure that those public facilities and services necessary to support development shall be adequate to serve the development at the time the development is available for occupancy and use without decreasing current service levels below locally established minimum standards. This concurrency demonstration entails several basic steps: 1) The community defines the Level of Service (LOS) Standards that must be maintained 2) The current LOS for each type of urban service is inventoried 3) Projections of the impact to levels of service created under the growth assumptions of the plan are calculated. 4) If projected growth will result in the LOS for any particular urban service being diminished below acceptable levels (LOS Standard), projects needed to return the LOS to acceptable levels (LOS Standard) are identified. 5) Methods of funding the needed improvements are identified 6) If funding cannot be identified, alterations to the growth assumptions, land use design, or LOS Standard may need to be considered. CS 22 City of Bremerton Comprehensive Plan Page 23 CS 23 208 City of Bremerton Comprehensive Plan Page 24 LOS Standards The level of service expected by the community for each type of public service discussed in this section is identified in some detail within the section devoted to that service (see appendix). For ease of reference, however, those Level of Service Standards are summarized in the table below. In the long term, approximately 20 years, Bremerton intends to achieve the level of service standards set forth in the following table. (Table CF-l) Emergency Medical Services 4.0 minute response time for BLS 8.0 minute response f~ane for ALS 1995 Fi~e 5.0 minute response time 995 Law Enforcement 250 sq.ft, per officer 003 1.8 officers per 1,000 pop. 003 Parks - Local 1.48 acres per 1,000 persons - 0.0017 acres per capita) [995 Parks - Regional 14.64 acres per 1,000 persons - 0.0139 acres per capita 1995 Parks - Open Space 2.21 acres per 1,000 persons - 0.0014 acres per capita L995 Sanitary Sewer 100 gallons per capita per day (gpcd) 2003 Storm Water Management Maintain per King County Stormwater Manual standard 2003 Schools - Elementary (K-Sth) n/a Schools - Middle (6th-Sth) n/a Schools - High (gth-12th) n/a Streets, transportation- Varied. See transportation element 2003 Water 200 gal/day'ERU) 2003 * NOTE: Bremerton School District is beginning a capital facilities planmng exercise in 2003-2004. This Element wiIl be update with the date produces at the first opportunity to amend. Use of varied LOS Standards to support community goals The establishment of Level of Service Standards that support the desired land use pattern - and the related effect of concurrency requirements - can provide a very strong incentive encouraging future development to occur in the places, and be of the type, envisioned by the commur~ty. By making a conscious decision to accept more CS 24 209 City of Bremerton Comprehensive Plan Page 25 congestion in district centers, for example, a community can reduce the difficulty that a prospective project faces in meeting concurrency requirements in that location. The reduced project costs and streamlined permitting that results can be a strong incentive in attracting development to that desired center location. While an incentive based use of Level of Service Standards for streets specifically is discussed in detail in the Transportation Element, it is important to establish here in the capital facilities discussion that this incentive approach will be considered and implemented for other types of capital facilities as well in the future. This approach may be appropriate for parks for example. Decisions about appropriate uses of variable LOS Standards as deve10pment incentives will be made as parks plans, water plans, and other service plans are update and/or developed by the City. CS 25 210 City of Bremerton Technical Appendices: 2003-2004 Bremerton Comprehensive Plan Planning Commission approved Draft October 26, 2004 211 The City of Bremerton DRAFT COMPREHENSIVE PLAN APPENDICES TABLE OF CONTENTS_ I. Land Use Appendix LU Appendix 1-12 Population and Employment Tables 1-6 II. Transportation Appendix 5 Numbered Sections III. Housing AppendixHS Appendix 1-27 IV. Economic Development Appendix ED Appendix 1-10 V. City Services Appendix CS Appendix 1-63 VI. Public Participation Pages I - 4 Program (Adopted by City Council on 1/16 / 2002) 212 Appendix LU: Land Use Appendix Current Conditions The dimensions and nature of current land uses - including information on vacant land for various uses - existing development constraints, and social and economic factors that exist today, are all factors that must be understood before a community endeavors to plat a course into the future. The following subsections provide an overview of these key conditions. Current Land Use: 2003 General The City of Bremerton covers 14,454 acres. There are 7,330 acres in residential designations, 1,435 acres are commercial/industrial, 9,239 acres are public lands and 3,000 acres are critical areas as defined by the Growth Management Act (2002 Kitsap County Buildable Lands Analysis). Readers should note that there are overlaps in some categories. Residential Population at the end of 2002 was 37,260 according to State estimates. Quick calculation reveals that overall residential density is approximately five persons per acre. According to the Buildable Lands Analysis, recent development has been at slightly lower densities - approximately 4,16 persons per acre (page 23, Kitsap County Buildable Lands Analysis). Commercial/Industrial It is additionally estimated that there are approximately .038 acres of commercial/industrial land per person in 2003. Vacant Land It should be noted that significant portions of each category of land is vacant. The Buildable Lands Analysis estimated that there were approximately 670 net acres of vacant or underutilized residential land in the city in 2002. These lands were designated in both single family and multi-family categories. While estimates of vacant industrial and commercial properties are more difficult to develop, it is clear that there are significant vacant industrial lands, at least, within the current City. For example, over 1,000 acres of vacant industrial land is located in the western portions of the City alone. LU Appendix 1 Planning Commission adopted Draft 051804 213 The 1995 City of Bremerton Comprehensive Plan presented data from a 1993 land use inventory that allows comparison to national averages for land per population in major categories. The data is still largely valid and is repeated here. It illustrates that Bremerton's land use pattern is very similar to national averages - with only a few minor differences. Residential uses are sited on somewhat less land than the national average (slightly higher residential density) and there is a larger than normal proportion of public lands in Bremerton (mostly attributable to the large watershed property in the far-western region of the City. LAND USES 1992 APA 1993 BREMERTON INVENTORY SURVEY RESIDENTIAL 48% 35% 41.7 Ac./1,000 pop. COMMERCIAL 10% 9% 10.6 Ac./1,000 pop. INDUSTRIAL 10% 9% 10.0 Ac./1,000 pop. 32% 47% 55.9 Ac./1,000 pop. PUBLIC Development Constraints Environmentally Sensitive Areas Bremerton has adopted a Critical Lands Ordinance that defines, addresses and regulates aquifer recharge areas, fish and wildlife habitat conservation areas, flood hazard areas, geologically hazardous areas, wetlands, and stream corridors. This ordinance is intended to ensure that the City's remaining critical areas are preserved and protected and that new development in and adjacent to these areas will be carefully managed to avoid further degradation. While viewed as development constraints, these regululations will ultimately enhance new development and reduce long-term problems. Their influence will be felt least in the already developed portions of Bremerton. The greatest opportunities for impact will be on larger sites in less-urbanized West Bremerton locations. Even there, development can be planned and adjusted to shift densities away from sensitive areas without losing development potential. Watershed Lands Bremerton's primary source of water is a carefully managed surface system along the Union River Watershed. Over time the City has acquired approximately 3,500 acres of land to protect that water resource and will continue to strengthen it. These lands are currently planned and zoned for watershed use and not available for other types of development. Utility Owned Lands Adjacent to the City watershed in southwest Bremerton are approximately 5,000 acres of mostly forested lands owned by the City's Utility. With the LU Appendix 2 Planning Commission adopted Draft 051804 224 exception of lands in the vicinity of Anderson Creek that have been "surplussed" and designated for industrial use, these lands are not available for urban development at this time and are currently managed as forest resource land. Some of the non-watershed lands are used for recreation (Gold Mountain Golf Course) and some are needed for the composting and disposal of sludge from the City's sewage treatment plant. This practice serves the dual purpose of disposing of the waste product while enhancing tree growth and wood production. Shorelines: Bremerton has miles of lake and marine shoreline, including Kitsap Lake, Dyes and Sinclair Inlets, and the Port Washington Narrows. These are important natural, scenic, aesthetic and recreational resources. Although most shoreline parcels have already been developed, the overall impact of this program on development will be minimal. We do expect additional infill and redevelopment along our shorelines. The provisions of the Shoreline Master Program will help ensure that those activities will enhance, rather than damage, our shoreline environment. Steep Slopes and Hillsides: Bremerton has very little fiat land. It was built on hilly terrain surrounded by waterways and, in some locations, steep marine bluffs and hillsides. Again, since most of the urban area has already been developed, these constraints are not expected to seriously affect new or infill development. Most areas have street access and utilities and, since the hills and slopes provide excellent and highly desirable view sites, they tend to be considered valuable resources rather than development obstacles. Existing Development Patterns: Existing structures and development patterns may be the greatest development constraint. Bremerton's housing stock consists of many small older homes. Many of the lots are large enough for an additional house, large enough to further divide, or suitable for redevelopment. However, the presence of existing structures on the potential redevelopment site, or deteriorating structures nearby tends to raise the cost of development, affect financing, and/or reduce the desirability of the site to potential buyers or tenants. Bremerton will continue to offer a variety of housing programs that will gradually improve the overall condition of structures and properties throughout the City. Market and Competitive Factors: Although Bremerton has sufficient properly zoned land area to accommodate the additional residents projected by this Plan, a number of market factors stand in our path. Among the obvious are regional or national economic conditions, availability of financing for new construction and home-ownership, weak "curb appeal" of available sites, availability of business-related financing, LU Appendix 3 Planning Commission adopted Draft 051804 strength of the job market, etc. Some constraints are more directly related to the Land Use Element, including: Willingness to Convert: Many of Bremerton's oversized lots and other vacant infill sites are being enjoyed by their owners for yard areas, additional off-street parking or RV storage, to protect views, etc. These yards are valuable and not readily given up by many resident home-owners. However, investors may be more financially-inclined and willing to maximize the development potential of these properties. So, while the City encourages home-ownership, it also encourages property investment, new ideas, infill, redevelopment and neighborhood improvement. The conversion process is slow and favors vacant lots over underutilized lots. Bremerton has many more of the latter. Competition and Development Pressures: Bremerton has an extensive public infrastructure, zoning, an efficient permitting process, development incentives, all the conveniences and services of a central city, and a land use inventory that shows where the development opportunities are. We are in position and ready to grow. There are reasons why Bremerton is not yet growing as intended. The city is surrounded by rapidly growing urban development in unincorporated areas that also have urban services. Kitsap County is one of the fastest growing counties in Washington and development pressures are great. However, development is often easier and less expensive when done on the urban fringe or in rural areas where public sewer and water systems aren't required and read and other standards are considerably lower than in urban areas. Those areas are also more likely to have larger vacant pamels available, less expensive land, and occasionally urban services to further stimulate growth. Socio-Economic Considerations The "profile" presented in the Housing Element of this Comprehensive Plan explains the social and economic diversity that is characteristic of the Bremerton community. This diverse landscape shapes the Land Use Element. LU Appendix 4 Plarming Commission adopted Draft 051804 216 Projected Land Use Conditions The projected conditions section will describe the demands for land created by population and employment growth, and expected changes in social and economic conditions that effect land use. Summary of Population and Employment Projections The population and employment projections that drive this Plan provide the basis upon which other discussions of future conditions are built. While those projections were discussed in the Introduction section of the main Comprehensive Plan document, they will be repeated here in summary form. Additional tables detailing that work are found at the end of this appendix section (Appendices LU). Population in Bremerton is expected to grow from approximately 37,200 in 2000 to 50,172 in 2023. Of the total new population of nearly 13,000 people, nearly 6700, or 51.5%, are projected to be in the new neighborhood and district centers (including downtown). The planning period for this plan is the twenty years between 2003, the assumed year of adoption, and 2023. Over that same 20 year planning period the number of jobs is expected to increase from approximately 45,000 to 54,000. Of the total increase of about 9,000 jobs, 400- - or about 45% - are expected to be provided in the various centers. Land Demand The population and employment growth summarized above creates demand for new homes, and new places of business and employment. One of the most basic - and fundamental - operations that this Comprehensive Plan achieves is a demonstration that the community has identified adequate land for this future growth. Providing that demonstration starts with making a projection of the dimensions of that future need. Calculation of future land need is performed in three basic areas, residential land, commercial land, and industrial land. The following section summarizes those calculations. Calculation of Future Residential Land Need The population projections employed in this plan anticipate that the 13,000 new persons expected in the community by 2023 will live in a variety of single family households and multi-family settings. The table below is derived from data in the Kitsap County Buildable Lands Analysis 2002 and illustrates the historic trends in this arena. LU Appendix 5 Planning Commission adopted Draft 051804 217 Table LU.i. Housing Types Permitted in Bremerton, 1995-1999 (source data: Kitsap County Buildable Lands Analysis, 2002) Housing type density units % of total SF - 1 1-3 dtL/ac 2 .5 SF - 2 1-8 du/ac 26 6.7 Total SF: ~ 42.4% SF - 3 3-8 du/ac 129 33.3 (164 units ) DR 3-8 du/ac 7 1.8 MF - CBR 8-18 du/ac 5 1.3 MF - MF 8-18 du/ac 213 55.0 Total MF: ~ 57.6% MF - MR 8-44 du/ac 5 1.3 (223 units) Total: 387 The table above presents the past - a historical backdrop. While the past certainly influences the future, the goals and policies in this plan represent an attempt by the community to move to a new paradigm. In general, that change is focused on providing a moderate increase in the proportion of future housing opportunity in higher density types. The majority of these opportunities will occur in mixed use centers. In addition to this emphasis, the Plan's commumty goa s and policies also indicate a desire to increase density in existing neighborhoods -both by encouraging smaller lots in new subdivisions, and also by encouraging infill of vacant existing properties. The net result, never-the-less will be small increase in overall density in traditional neighborhoods as well. The following table provides calculation of residential land need for the City of Bremerton's population growth forecast over the twenty year planning period - approximately 13,000 persons. The table is based on four categories of residential uses. Because the new framework introduced by this Plan results in some new housing environments, these categories are not the same as those for which the historical data depicted in Table LU.i above is available. However, if the assumption is made that 30% of the housing units in the "centers SF + MF" (single family and multifam y residential uses in centers combined) category are single family uses and 70% multifamily, it is possible to estimate that more thar~ 50% of the new housing units anticipated by this calculation are in single family types, It is important to note that even within a model that places nearly 60% new housing units in centers (and near!y 52% of new populatio ]) an overafl emphasis on single family housing types remains. In fact, the actual proportion of SF types increases over the historic pattern depicted by the data in Table LUi above. This is consistent with community goals and policies calling for increased home ownership and supporting traditional neighborhoods, while it also addresses the community's desire to create a new urban experience and living environment - the ability to choose to live in the new mixed-use centers. Planning Commission adopted Draft 051804LU Appendix 6 Table LU.ii. Net Future Residential Land deed nat % of hshld Type Density acres tot. population (dulac) needed DU iow high iow high Iow high need* size low high 1 .Neighborhood SF (LDR) 4 6* 238 402 1429 1607 36.96 2.8 4,000 4,500 2. Non-centers MF 8 18 28 94 500 750 10.87 2.0 1,000 1,500 3. Centers SF+MF 20 20 109 130 2174 2609 47.83 2.3 5,000 6,000 4. DT Center MF 40 40 13 19 500 750 10.87 2.0 1,000 1,500 Torah 387 645 tota/pep 11,000 13,500 centers pop (lines 3&4) 6,000 7,500 * While implementing zoning in the LDR designation may alow up to 10 du/ac, it is esUmated here that overall density in that area will not exceed 6 du/ac by the end of the planning period The result of the table above is a calculation of NET acres needed in the four residential housing categories used. In other words, the figures for the land are needed to site the houses and apartments needed along with their related on-site improvements, However, to calculate the number of GROSS acres needed for residential development, allowances must be made for the proportion of land area that will be consumed by roads and streets, and portions of land that are not developable due to the existence of environmental constraints - so-called "critical areas". In Bremerton those proportions have been found to be approximately 17% and 15% respectively. Therefore, the gross land area needed for residential uses is larger than the NET area by a factor of approximately 32%. This document proceeds under the assumption that the actual residential land need is as follows on Table LUiii. Table LU.iii. Gross Future Residential Land Needed Type range of net acres needed range of gross acres needed * Neighborhood SF 238-402 314 -531 Non-centers MF 28-94 37.124 Centers SF+M F 109-130 144.172 DT center MF 13-19 17-25 TOTALS 388-645 512 - 852 Net acreage plus 32% (per Kitsap County Buildable Lands Analysis, 2002) LU Appendix 7 Planning Commission adopted Draft 051804 219 Calculation of Future Commercial Land Need In many ways the calculation of commercial land need is simpler than that for residential land. Employing widely accepted ratios of acreage per population, population growth projections can be converted to projections of need for commercial acreage. The commercial land need calculation below employs ratio's of gross land area per population. The calculation is based on information supplied by the Washington State Department of Community Development in, "Preparing the Heart of Your Comprehensive Plan, A Land Use Element Guide" (WSDCD, April 1993). The ratio's are different for the two primary types of commercial growth anticipated by this comprehensive plan. Those types are; 1) centers commemial, which assumes more compact commemial business employing less parking; and 2) non-center commercial, a more automobile- oriented model typically found along busy arterials in most American cities. Table LU.iii Future Gross Commercial Land Needed type pop acres/ Net Gross served 1000 acres acres Pop I needed Needed2 center commercial 7500 6.50 48.75 65 non-center comm. 4000 10.00 40 52 tot pop growth 11500' tot 88.75 127 1. Acres needed per 1,000 population derived from discussion of Washington communities found in, "Preparing the Heart of Your Comprehensive Plan, A Land Use Element Guide" WSDCD, April 1993, 2. Gross land needed eouals net +32% See Kitsao Countv Buildable Lands Analysis (oaae24~ 3. Additional population at the employment centers (Pope and Talbot and Port Blakety properties) was not included in this calculation as that population is associated with commercJaJ lands that will be developed as part of the development of a specific property associated with the center. It is not germane to the calculation of community needs for commercial land in centers or non-centers locations discussed by this plan. To verify the general accuracy of this calculation, the result was compared to averages of commercial acres per population found in a nation-wide su~ey performed by the American Planning Association in 1993. That study found that, in the average American city, approximately 11 acres of land per 1,000 persons was devoted to commercial uses, The total new commercial land need of 127 gross acres calculated in Table LU.iii. above represents about 11.04 acres per 1,000 new persons. In addition to an assurance that sufficient acres of' commercial land are provided on the land use map - and placed in appropriate locations, this plan addresses LU Appendix 8 Planning Commission adopted Draft 051804 220 an additional concern; that a variety of sizes of commercial parcels be provided. It is recognized that a wide variance exists is this arena. In other words, while smaller businesses can locate in many areas of the City - including the new centers - at least some commercially designated parcels must be of sufficient size to accommodate larger types of businesses. Calculation of Future Industrial Land Need The calculation of future industrial land needed is similar to that for commercial land. The 1993 APA study cited above also reported that, in the average American city, industrial land also amounted to about 11 gross acres per thousand population. Employing that simple ratio, it can be calculated that to accommodate the expected population increase of 11,500 persons, 126.5 acres (gross) of additional industrial land must be available. Once again the population associated with employment centers was not included in this calculation as there are industrial lands associated directly with that population. It is not necessary to locate industrial lands in the community generally to accommodate this aspect of overall population growth. In 1992 a land use inventory of the City found that there were approximately 10 acres of industrial land per 1,000 people. The target for land needed here then, represents a slight increase in that proportional amount. A primary criteria for industrial land (beyond amount and location) is parcel size. In addition to providing sufficient acreage in appropriate locations, the Plan also gives careful attention to assuring that at least the majority of industrial lands designated are in larger parcels. Summary of Additional Land Need The following table summarizes the calculations of land need discussed in the preceding sections. Table LU.iv Summary of Additional Land Need Type Additional Land Needed (net acres) (gross acres) Non-centers SF 238-402 314 -531 Non-centers MF 28-94 37-124 Centers SF+MF (mixed) 109-130 144-172 DT center MF 13-19 17-25 Total Residential 388-645 512-852 Center Commercial 49.23 65 Non-center Commercial 39.33 52 Total Commercial 88.56 127 Industrial (total) 88.16 126 ~ 221 Land Supply This comprehensive plan must demonstrate that adequate land exists to accommodate the projected growth. To make this demonstration, the following section will compare the land needs discussed above with the designations depicted on the Future Land Use Map found on page LU37. Residential Land Supply The land needs analysis above indicates that between 388 and 645 net acres of additional residential land will be needed over the next 20 years to accommodate the expected population increase. This estimate is comprised of two primary components, non-centers residential need and centers residential need. Of 13,000 new population, approximately 7,475 are intended to be accommodated in Centers, while the remaining 5,600 distributed as "infilr' to non- centers locations. Residential population in non-centers locations The Kitsap County Buildable Land Analysis estimates that, in 2002, there were 446 net vacant residential acres in Bremerton. The Buildable Land Analysis also estimates that there was an additional 224 net acres of "underutilized" residential lands, this comprehensive plan analysis will not rely heavily on that additional potential acreage, This is because the City is not confident about the methodology used in the Buildable Land Analysis to determine the likelihood that a currently utilized parcel is likely to be redeveloped for additional residential uses. If the 446 acres that are more clearly available for siting residential uses is discounted by a 30% market factor, it can be estimated that about 312 acres is likely to be available for residential development. By dividing the 312 acres into the 5,600 population and employing an assumed household size of 2.4 persons, it is calculated that by employing an average density of 7.5 units per acre the expected population can be accommodated on the available acres. This density is within the range assigned to the Low Density Residential land use designation in this Plan. During implementation of this comprehensive plan, care will be taken to assure that average density in new residential areas (outside of centers) in that range is enabled under zoning and subdivision regulations. ...... . ,,f "redevelopable" residential land (the some The availability or some amuu., ,, portion of the 224 acres referenced in the Buildable Lands analysis and above) increases the level of confidence here that the expected population will be accommodated on available lands. (Note: A relatively small proportion of the available lands employed in this calculation are currently designated for medium or high density residential uses. However, this calculation assumes that all of these MDR and HDR lands will be re-designated to LDR. LU Appendix 10 Planning Commission adopted Draft 051804 222 In Sum, the calculations discussed above demonstrate that there is sufficient capacity on existing lands outside of centers to accommodate the expected increase in population assigned to those areas. While the demonstrated capacity is at the Iow and of the range of need calculated in this Plan, it must be noted that the number employed uses a significant market factor. In addition, it is known that there is a high amount of excess capacity available in centers that would be able to accept additional residential growth (see discussion below). This acts as "market factor". This is more fully explained in the following paragraphs. Residential population in centers. The population projection employed by this Comprehensive Plan was developed under an assumption about the potential population accommodation of centers as designated and conceived by the Plan. In other words, once a community decision to employ the centers concept was arrived at, and once the potential centers were identified, sized, and assumptions about densities and mixes of uses in each center were developed, these factors were employed to calculate population accommodation potential. In addition, full build-out population of each center is tempered by assumptions that much less than full potential build-out will occur during the current 20-year planning period. The population accommodation assumptions employed for centers in this plan represent only 20-50% of the total potential population in any given center. Table 2, found near the end of this land use appendix, depicts the population calculations employed for each center. As the assumed proportion of potential full build out of each center is limited as described above, it is also understood that, in effect, a "market factor is built into the amount of land truly available in the designated centers. Depending in the particular center that market factor ranges from 50% to 80% (or the inverse of the build out assumptions employed). Given the methodology described above, it can be easily stated that the centers-related proportion of overall population increases in the City during the 20-year planning period are accommodate by design. Commercial Land Supply Vacant commercial land need is calculated in two major categories, centers commercial and non-centers commercial. These needs are calculated at 65 and 52 acres respectively. (see table LU.iv, page LU Appendix 9). Centers commercial land is calculated within Table 1 near the end of this land use appandix. This table indicates the proportion of each mixed use center that that is expected to be available for commercial uses. Those lands total 135 acres. This number exceeds the amounted needed (65 acres). This excess is attributable to the expectation that not all of the available commercial land in LU Appendix 11 Planning Commission adopted Draft 051804 £23 centers will be built-out during the initial 20-year planning period. This excess is related to total full build out potential for each center in exactly the same manner as that for population and residential land. In other words, commercial land "market factors" for centers are also in the 50% to 80% range as discussed above. The non-centers commercial land need is calculated at 52 acres (Table LU.iv). An estimate of vacant commercial land outside of centers designations was performed by City staff using GIS technology and a review of aerial photography. That estimate reveals that there are approximately 86 acres of such land designated. This, once again exceeds the calculated need. This excess represents a "market factor" of approximately 60%. The issue of parcel size is crucial in such calculations and discussions. Commercial development occurs at a variety of scales. It is important that at least some commercial properties are of sufficient scale to accommodate larger stores and commercial establishments. The City analysis indicates that several larger parcels are available in or near the Wheaton/Riddell District Center as well as within the designated employment centers especially the Port Blakely EC (see land use map(s). While these western areas are formally designated for industrial uses, the employment centers designation also calls for mixing commercial (and residential) uses. Industrial Land Supply The land needs analysis in the previous section indicates that approximately 126 new acres of vacant industrial land is needed within the twenty year planning period to accommodate the expected population increase. All three scenario maps indicate large tracts of industrial or business park designations in the western areas of the City. Of the approximately 1,075 total acres in these land use areas, up to 90% is currently vacant. The primary areas of vacancy are on properties known as the "Pope and Talbot" and Port Blakely" properties. The City has reached contractual agreements with these owners establishing the industrial uses previous to consideration of this Plan Update. In sum, vacant industrial land far exceeds the need calculated in the previous section of the Plan. In this case, the large amount of industrial land committed to that use through agreement with property owners means [hat the "market factor" is extremely large. LU Appendix 12 Planning Commission adopted Draft 05 1804 224 Note: This spreadsheet contains formula's that must not be altered, Verify that a cell contains only raw data before altering any cell. Also note that several other worksheets are linked to this primary sheet. Improper '~lterations to this sheet may corrupt the linked sheets. , able 1 Population and Employment Calculations - Bremerton Centers .-6/04103 area avg. res. Household pop corn/office fir area {sq fi) 3 employment 4 density size IOW high Iow high (du/ac) (pens. per du) District Centers Upper Wheaton total acres 106 residential ~ 106 20 2 3816 commercial 2 32 198750 496875 549 1371 office 2 11 66250 165625 191 477 739 1848 center sub totals Lower Wheaton total acres 81 residential ~ 81 20 2 2916 commercial 2 24 151875 379688 419 1048 office 2 8 50625 126563 146 365 565 1412 -ter sub totals Charleston total acres 39 residential ~ 39 20 2 1404 commercial 2 12 73125 182813 202 505 office 2 4 24375 60938 .70 176 272 680 center sub tatalS Oyster Bay/~VestPark (opportunity site) total acres 37 residential ~ 37 20 2 1480 commercial 2 11 69375 173438 191 479 office 2 4 23125 57813 67 167 258 645 center sub totals Neighborhood Centers Manette total acres 33 residential ~ 33 20 2 1320 commercial 2 7 41250 103125 114 285 office 2 3 20625 51563 59 149 173 433 'er sub totals Oerry A venue 225 total acres 27 residential t 27 20 2 1080 commercial 2 5 33750 84375 93 233 office 2 3 16875 42188 49 122 center sub totals 142 354 Sylvan/Pine total acres 30 residential ~ 30 20 2 1200 commercial 2 6 37500 93750 104 259 office 2 3 18750 46875 54 135 center sub totals 158 394 Haddon total acres 27 residential ~ 27 20 2 1080 commercial 2 5 33750 84375 93 233 office 2 3 16875 42188 49 122 center sub totals 142 354 Kitsap Lake total acres 48 residential ~ 48 20 2 1920 commercial = 10 60000 150000 166 414 office ~ 5 30000 75000 86 216 center sub totals 252 630 Urban Center(downtown center) total acres 37 residential ~ 37 40 2 2664 commercial 5 37 231250 578125 638 1596 office ~ 37 231250 578125 666 1665 center sub totals 1304 3261 TOTALS 18880 1429375 3573438 4005 10012 notes: 1 residential use is averaged across the entire acreage of the center 2 Commercial acreage is 30% of total in distrct centers and 20% of total in neighborhood centers (consistent with other cities using "centers model - see City of Spokane). Office acres are 10% of total in both types. Resuttant acres calculated and shown here are consistent with recommendations found in; Preparing the Hea~ of Your Comprehensive Plan, "A Land Use Element Guide", Washington State DCD, April 1993. (Table 9, page 62) 3 Floor area based on Table 9, Preparing the Hear of Your Comprehensive Plan, "A Land Use Element Guide", Washington State DCD, April 1993. (page 62). A per acre ratio was calculated from the table and appltad to the commercial acres here. Ratio is based only on the neighborhood center column on Table 9 which serves populations ranging from 4,000-10,000. This range covers both types of centers addressed in the Bremerton model Ratio = 6,250 - 15,625 square feet of commercial area per acre of commercial land. 226 4 Employee to floor area - expressed in employees per 1,000 square feet - is fromTable 5 (page 57), Preparing the Heart of Your Comprehensive Plan, "A Land Use Element Guide", Washington State DCD, April 1993, Commerdal ratio is average of Table 5 ratios for, "commercial service", "retail and"restaurant,, 'o " ' ' uses see factors below). Office ratio is the ~ce use ratio fi`om Tab e 5 (also see factotrs below). factors: iow end floor area (sq. fi. per acre) 6250 high end floor area (sq. ft. per acre) 15625 commercial employee's per 1,000 sq. ft. floor area 3 0 office employees per 1,000 sq, ft. floor area 3 0 office acres (10%of total ) 0 district center commercial uses (30% of total) 0 neighborhood center commercial uses (20%of total) 0 (commercial and office uses in downtown center = 100%) 227 Note: This spreadsheet is linked to several others. Take care not to alter cells containing formula or links to Iother sheets. ALter only cells containing raw data. Table 2 I I J I I ' i ..... i ' Estimate of 20 year Likely Buildout of Centers, pop. and empmnt.) Total Iow 2003 acrs. 2003.00% 20 yr. emp acres emp devlpbl ~ devlpbl pop. downtown center ; .......... Downtown center I '. I 2664 37 1304 ! 3261 12 31:3_5%_.~ g__oo_d 1332 652 1630 Dist. centers ['on 3816 106 739 1848 52 ' 49.25% i 1908 370 924 Lwr Wheaton ~5-- 1412 ' 25 169i 424 Charleston 1404 39 272 680 i 4 280,8 54 136 Nbrhd centers Manette 11320 33 173 433 3 528 'Avenue I 1080 27 142 354 5 17.78% fair 216 28! 1200._~30 i 158 394 14 i 46.67% Iow 120 16 i Haddon 1080 i 27 142 354 6 20.37% fair 108 14 ~ Lake 1920 48 252 24 49.38% i Iow 0 1480 37 258 645 3 7.30% ~ good 1332 ~ 232 581 I emp. centers Harrison ~ 750 ~ 228 2 003 vacant or re-developeble properties. Estimate of vacant or underdeveloped properties accomplished by analysis of aereal photographs and G.I.S data calculation, January 2003 i 20 year center buildout. Estimated by con'sidering proportion f vacan undevelopable lands, availability of infrastructure, proximity to adequate supporting neighborhood density, and market preferences. Population estimates at the Port Blakely Employment Center is based on discussions with project proponents. Population is unlikely in the first six years of the planning period. 229 Note: This spreadsheet is linked to several others. Take care not to alter cells containing formu a or links to other sheets. Alter only cells containing raw data. Table 3 Full B-O & 20 Yr. Population and Employment Disagragation to TAZ's - Centers 2-Jun-03 tot pop TAZ# disag. % tot. pop emp Iow emp high 20yr. disag. pop 5 emp District Centers 342 40 1526 296 739 763 370 343 40 1526 296 739 763 370 99 10 382 74 185 191 92 100 10 382. 74 185 191 92 ~oo 362 50 1458 282 706 875 212 358 50 1458 282 706 875 212 100 112 25 351 68 170 70 34 124 15 211 41 102 42 20 130 10 140 27 68 28 14 126 25 351 68 170 70 34 111 25 351 68 170 70 34 loo 119 100 1480 258 645 1332 581 Neighborhood Centers 105 50 660 87 217 264 87 107 50 660 87 217 264 87 100 359 80 864 113 284 173 57 373 20 216 28 71 43 14 100 340 5 60 8 20 6 2 354 10 120 16 39 12 4 387 50 600 79 197 60 20 348 35 420 55 138 42 14 lO0 394 70 756 99 248 76 28 396 15 162 21 53 16 6 230 :399 15 162 21 53 16 6 100 (reserved center) $88 100 1920 252 63,0 0 0 133 10 266 130 326 133 163 129 20 533 261 652 266 326 118 25 666 326 815 333 408 115 25 666 326 815 333 408 128 20 533 261 652 266 326 ~00 totals 18880 18880 7574 4018 Employment Centers 9074 TOTAL 7 see separate spreadsheet for total 20 year centers populations (not per TAZ) 6 see separate spreadsheet for 20 year employment (not per TAZ) 231 235 ooooo~oooooooooooo~ ~ 236 237 238 239 240 Appendix TR: Transportation Appendix 241 Bremerton Comprehensive Plan Transportation Element Prepared for City of Bremerton 3027 Olympus Drive Bremerton, WA 98310-4799 Prepared by Parametrix 5808 Lake Washington Blvd. NE, Suite 200 Kirkland, Washington 98033-7350 (425) 822-8880 February 2004 project No. 554- [ 896-053 (0 /03) 242 1 INTRODUCTION .............................................................................................................................. 1-1 1.1 PURPOSE OF THiS ELEMENT ........................................................................................ I-1 1.2 STUDY AREA ............................................................................... . ...... 1-1 1.3 SCOPE AND CONTENT I-1 1.4 GOALS, POLICIES, AND THE VISION FOR BREMERTON ........................................ 1-5 2 EXISTING CONDITIONS AND DEFICIENCIES .............................................................................. 2-1 2.1 ROADWAY CHARACTERISTICS AND FUNCTIONAL CLASSIFICATIONS ........... 2-1 2.1.1 State Highways in Bremerton ................................................................................ 2-1 2.1.2 ArterialRoutes in Bremerton... .... 2-4 2.2 HiGHWAYS OF STATEWIDE SIGNIFICANCE (HSS) ....... 2-4 2.3 TRAFFIC VOLUMES ........................................................................................................ 2-7 2.4 LEVEL OF SERVICE ............................................................................................... 2-7 2.5 ACCIDENT INFORMATION .......................................................................................... 2-14 2.6 TRANSIT AND FERRY SERVICE ............ 2-17 2.7 PEDESTRIAN AND BICYCLE FACILITIES ................................................................ 2-21 2.8 EXISTiNG DEFICIENCIES ........................................................................ 2-23 2.8.1 Roadway Capacity Deficiencies ........................................................................... 2-23 2.8.2 Operational, Safety, and Other Deficiencies ........................................................ 2-23 3 FUTURE CONDITIONS AND DEFICIENCIES ................................................................................ 3-1 3.1 TRAVEL DEMAND FORECASTrNG FOR YEAR 2030 .................. 3-1 3.2 TRANSPORTATION AND LAND USE ALTERNATIVES TESTED ........................ 2... 3-1 3.3 LEVEL OF SERVICE STANDARDS ........................ 3-2 3.4 FUTURE TRAFFIC VOLUMES AND LEVEL OF SERVICE ......................................... 3-4 4 PROPOSED TRANSPORTATION IMPROVEMENTS AND COSTS .............................................. 4-1 4.1 ROADWAY LMPROVEMENT OPTIONS ..... 4-1 4.1.1 Roadway Capacity Improvements ......... ......................... 4- i 4.1.2 Operational, Safety, and Other Improvements ....................................................... 4-2 4.2 TRANSIT SERVICE AND FACILITY IMPROVEMENTS .. 4-4 4.2.1 Proposed Transit Projects ........... . ............ 4-5 4.3 FERRY SERVICE AND FACILITY IMPROVEMENTS 4-6 4.4 PEDESTRIAN AND B1CYCLE IMPROVEMENTS ................. 4-7 4.4. I Policy for Frontage Improvements for New Developments or Redevelopments ............................. . ........ 4-7 4.4.2 Projects and Improvements Planned for Non-Motorized Facilities ....................... 4-8 4.5 TRANSPORTATION DEMAND MANAGEMENT STRATEGIES ..... 4-10 4.6 T1L~NSPORTATION SYSTEM MANAGEMENT STRATEGIES ................................ 4-I 1 City of Brernerton Comprehensive Plan 554-1896-053 (01/03) Final Transportanon Element i Febtuar)r 2004 243 4.7TRAFFIC CALMING ....................................................................................................... 4-12 4.7.I Speed Control Measures ....................................................................................... 4-12 4.7.2 Vertical Deflection Measures ............................................................................... 4-12 4.7.3 Horizontal Deflection Measures ........................................................................... 4-13 4.7.4 Horizontal Narrowing Measures 4.7.5 Other Speed Control Measures ............................................................................ 4-13 4.7.6 Volume Control Measures ................................................................................... 4-13 4.8 COST ESTIMATES .......................................................................................................... 4-14 5 FINANCING AND IMPLEMENTATION PLAN ................................................................................ 5-1 5. l EXISTING AND PROJECTED REVENUE ...................................................................... 5-1 5.2 IMPROVEMENT COSTS/REVENUE COMPARISON 5.3 CONCURRENCY MANAGEMENT AND IMPLEMENTATION ................................... 5-4 LIST OF FIGURES !- 1 Study Area Wcstcm Portion ................................................................................................ 1-2 1-1 Study Area Eastern Portion (continu ed) .............................................................................. I-3 2-I Functional Classifications Eastern Portion .......................................................................... 2-2 2-1 Functional Classifications Western Portion (continued) ..................................................... 2-3 2-2 Roadway Charncteristics and Traffic Control Western Portion .......................................... 2-5 2-2 Roadway Characteristics and Traffic Control Eastern Portion(continued) ......................... 2-6 2-3 Existing Traffic Volumes - Average Weekday Western Portion ....................................... 2-8 2-3 Existing Traffic Volumes - Average Weekday Eastern Portion (continued) ..................... 2-9 2-4 Existing Traffic Volumes - PM Peak Hour Western Portion .......................................... 2-10 2-4 Existing Traffic Volumes - PM Peak Hour Eastern Portion (continued) ......................... 2-11 2-5 Existing Level of Service and Volurae to Capacity Ratios Western Portion .................... 2-15 2-5 Existing Level of Service and Volume to Capacity Ratios Eastern Portion (continued) ........................................................................................................................ 2-16 2-6 Existing Transit Service .................................................................................................... 2-18 2-7 SeaRle-Bremerton Quarterly Ferry Ridership ................................................................... 2-20 2-8 Bicycle and Pedestrian Facilities ....................................................................................... 2-22 3-1 Traffic Growth vs. Volume to Capacity Ratios .................................................................. 3-3 3-2 Alternative 1 (No Action) - 2030 Level of Service and Volume to Capacity Ratios Western Portion ................................................................................................................... 3-2 Alternative I (No Action) - Year 2030 Level of Service and Volume to Capacity Ratios Eastern Portion (continued) ...................................................................................... 3-9 3-3 Alternative 2 - Year 2030 Level of Service and Volume to Capaci~ Ratios Western Portion ............................................................................................................................... 3-10 CiO' oJ Bremerton Comprehensive Plml Final Tran.~porIatton Element ii 554'~t896-053 fOI /O3d February 2004 244 3-3 Alternative 2 - Year 2030 Level of Service and Volume to Capacity Ratios Eastern Portion (continued) ............................................................................................................ 3-11 34 Alternative 3 - Year 2030 Level of Service and Volume to Capacity Ratios Western Portion ............................................................................................................................... 3-12 3-4 Alternative 3 - Year 2030 Level of Service and Volume to Capacity Ratios Eastern 3-13 Portion (continued) ............................................................................................................ 3-5 Alternative 4 - Level of Service and Volume to Capacity Ratios Western Portion ......... 3-14 3-5 Alternative 4 - Level of Service and Volume to Capacity Ratios Eastem Portion 3-15 (continued) ........................................................................................................................ LIST OF TABLES 2-2 Level of Service Definitions for Urban and Rural Roadways ........................................... 2-12 2~3 Existing Corridor Level of Service ................................................................................... 2-13 2-4 Existing Intersections that Exceed the Annual Accident Thresholds ................................ 2-17 3-1 Year 2030 Corridor Level of Service .................................................................................. 3-5 3-2 Roadway Segments Exceeding LOS Standards in Years 2009 and 2030 - by Alternative .................................................................................................................... 3 - 16 4-1 Kitsap Transit 2002-2007 Transit Development Plan .........................................................4-5 4-2 Mosquito Fleet Trail Master Plan - Proposed Pedestrian and Bicycle Improvements ....... 4-8 4-3 Proposed Class 2 Bicycle Lanes proposed by the Year 2010 ........................................... 4-10 4-4 Plarming Level Cost Estimates for Future Improvements - Year 2003 Dollars ............... 4-14 5-1 City of Bremerton Six-Year Transportation Improvement Program and Finance 5-2 Plan Expenditures (2004-2009) ........................................................................................... 5-2 · Highway Construction Capital Improvement and Preservation ?ro~am (CIPP) - Projects Under Way - Year 2002-2011 Budget Allocation ................................................. 5-3 APPENDICES A Traffic Accident Summary B Travel Demand Forecasting Assumptions C Volume and Capacity Information 554 1896-053 (01/03) City of Brernerton Comprehensive Plan iii February 2004 Final Transportatio~ Element 245 ADA Americans With Disabilities Act AlP Arterial Improvement Program BRT Bus Rapid Transit BTC Bremerton Transportation Center CAC Platming Commission Citizen Advisory Committee CBD Central Business District CIPP Capital Improvement and Preservation Program CPP Countywide Planning Policies CTR Commute Trip Reduction DC Downtown Core DW Downtown Waterfront EIS Environmental Impact Stat ement GMA Growth Management Act GP General Purpose HEM Highway Capacity Manual HCT High Capacity Transit HOV High-Occupan~,Y Vehicle HSS Highways of statewide significance LOS Level of Service MTP Metropolitan Transportation Plan PRTPO Peninsula Regional Transportation Planning Organization PSNS Puget Sound Naval Shipyard PSKC Puget Sound Regional Council KPEC Regional Project Evaluation Committee RTID Regional Transportation Investment District SEPA State Environmental Protection Agency SOV Single-Occupant Vehicle SK State Route STP Surface Transportation Program TAZ Transportation Analysis Zone TDM Transportation Demand Management TIA Transportation Lmprovement Account TIB Transportation Improvement Board TIP Transportation Improvement Program TSM Transportation Systems Management UGA Urban GroWth Area V/C Volume to Capacity ratio WAC Washington Administrative Code WSDOT Washington State Department of Transportation WSF Washington State Ferries 554-1896-053 (01/03) Feb~a~)' 2004 Ci~) of Bremerton Comprehensive Plan lv Final Tran~por~atian Element 246 1.1 PURPOSE OF THIS ELEMENT Bremerton has a rich history of unique transportation options and patterns. From small "mosquito" ferries to a strong grid road system, Bremerton has always developed and supported transportation systems that strive to meet the needs of the entire community. This Transportation Element is an effort to continue this tradition and serves as an important piece of the overall comprehensive plan. The vision, goals, and policies contained in this chapter are a result of extensive citizen comment and participation to ensure that Bremerton's transportation system responds to the needs of the community. This Transportation Element has a primary focus on supporting the Land Use Element of the Comprehensive Plan, but also complements each of the other elements. It goes beyond a discussion of how efficiently automobiles can get from one place in Bremerton to another to a real examination ofwha~ Bremerton transportation needs are to ensure an overall healthy, vibrant community. The result is an extensive dialogue about modes of travel other than single-occupancy vehicles. The transportation element emphasizes the need to consider pedestrians and bicycles in transportation planning, the creation of walkable centers with appealing streetscapes, and setting standards on heavily used arterials to enable efficient automobile mobility while still protecting neighborhood character and safety. Level of service (LOS) standards are established to evaluate future development for consistency with the long-term vision for growth within Bremerton. The Transportation Element responds to the numerous state and county mandates articulated in the Growth Management Act (GMA) and the County Wide Planning Policies. As an integral part of the regional transportation fabric, Bremerton is dedicated to working with Washington State Department of Transportation (WSDOT), Kitsap County, and transit agencies to ensure safe, reliable, and effective transportation in Bremertan and its surrounding areas. A well-coordinated transportation system will enhance the quality of life in Bremerton and the surrounding region Mille reducing urban sprawl and other undesirable development patterns. The Transportation Element primarily addresses ~he arterial street system withi~ the City of Bremerton, since local access streets typically do not have capacity deficiencies. However, local access streets are an integral part of the street network, and are important travel routes used by pedestrians and bicyclists. In addition, they am integral to the overall livability of the community. As such, the City has developed transportation policies that pertain to both the arterial and non-arterial street system. 1.2 STUDY AREA The Transportation Element covers all areas ~vithin the City limits of Bremerton. If the City's Comprehensive Plan is expanded to include areas beyond the City limits, such as the Urban Growth Area (UGA) or Area of Mutual Concern, the Transportation Element will be expanded to ensure adequate services to those areas as well. Some aspects of the transportation element discuss services that connect with other areas, but are not fully within the City, such as ferry and transit services. Figure 1-1 shows the study area for the Transportation Element. '1.3 SCOPE AND CONTENT Section 365-195-325 of the Washington Administrative Code (WAC), "Transportation Element" contains "procedural criteria" for adopting comprehensive plans and their development regulations. It also contains the specific requirements and recommendations for the Transportation Element. C~i3, of Brernerton Comprehensive Plan 554-1896-055 (01/03) Final D'an~Dortation £lernent l-] Februa~3, 2004 247 / -~, CiTY OF BREMERTON ", COMPREHENSIVE TRANSPORTATION PLAN ~ '-- '~ SCALE IN FEET ~ Figure1-1 J I J ]~ Study Area o ~25o 2500 Western Portion 248 ] ? 'sr. CITY OF B~E~ON COmPrEHENSIVE T~NSPO~TATION PLAN SCALE IN FEET ~ Figure 1-1 (continued) ~~ Study Area o ~250 2500 Eastern Potion 249 The guidelines that were set forth in the Growth Management Act require, at a minimum, the following: (1) Outline of assumptions to be used in estimating travel and travel needs for comprehensive planning. (2) Inventory existing capital facilities and transportation services, including: (a) Air: Airport access, heliport facilities, etc. (b) Water: Ferry, industrial, and pleasure craf~ facilities. (c) Land: Streets, highways, pedestrians, and bicycles. (d) Public Transit: Levels of service, etc. (3) Establish LOS standards for all arterial streets and transit routes. (4) Establish a Master Plan of Streets that desi~m~ates development standards for primary and secondary arterials, collectors, local, industrial, and private streets (May also consider scenic route standards.) (5) Outline systems improvements that will be necessary to bring substandard facilities up to the desired LO S. (6) Forecast traffic levels for at least the next ten years, based on the land use plans of the City and surrounding unincorporated areas that are expected to affect local traffic demands. (a) Location and capacity improvement recommendations. (b) Recommendations for new facilities or routes. (c) Outline appropriate phasing of those Lmprovements. (7) Analysis of funding capability and funding sources. (8) Multi-year financing plan to serve as a basis for the required six-year program. (9) Reconsideration for funding shortfalls. (10) Provide for ongoing intergovemmentai coordination. (11) Establish Demand Management Strategies to deal with demands. Other important aspects of this element are: (1) Adequate public participation during the preparation and adoption of the Transportation Element. NOTE: This element followed the same path as all other elements, in accordance with the Ci Citizen ]nvolvement Program. This path includes open meetings and involvement opportunities at the Citizens Advisory Committee, the Planning Commission, and the City Council. (2) Internal Consistency with all other Plan elements. NOTE: The Transportation Element was designed primarily to implement the Land Use Element. All Plan elements were coordinated throughout the process to ensure inte~wal consistency, as well as consistency with the plans of other affected jurisdictions. (3) A "Concurrency Management Program". NOTE: After the CiO, has adopted LOS standards, it will not be able to permit new development that causes the LOS of a particular transportation faciliO, to decline below the adopted standard, unless improvements or strategies to accommodate the development's impacts are made "concurrent with the development"..In other words, those improvements or strategies must be in place at the time of development, or a financial commitment is in place to complete them within six years. C/r), of Bremerron Comprehensive Plan 5 54- ] 89~5-0 5 3 Final Tran~7~ortation Element ]-4 £ebrt~a0 2004 250 (4) Development Review - The City uses its authority under the State Environmental Policy Act (SEPA) to ensure that new development provides transportation system improvements to mitigate the direct impacts of a project. This includes frontage improvements to bring streets up to current design standards, intersection, transit, and non-motorized improvements. 1.4 GOALS, POLICIES, AND THE VISION FOR BREMERTON This Transportation Element revises and expands the Transportation Element of the 1995 Comprehensive Plan. Although the basic goals and objectives have not changed significantly, the City has gone through an extensive visioning process and policy review in order to determine the most desirable direction and actions. This Plan must be supportive of and consistent with certain state, regional and county transportation plans, including their goals, objectives, and policies. It must also provide a strategy that will implement our own vision of Bremerton's future. (1) Storewide Transportation Goal: The Transportation Goal of the State of Washington, as stated in the Growth Management Act, is: Encourage efficient multi-modal transportation systems that are based on regional priorities and coordinated with county and city comprehensive plans. (2) Regional Transportation Plans: The Puget Sound Regional Council's Destination 2030 Metropolitan Transportation Plan (M~ ?) establishes a long-range vision for a multimodal transportation system that links major population and job centers throughout the Puget Sound region by providing a variety of transportation choices. In strengthening Bremerton's role as a "metropolitan center", as envisioned in Destination 2030, this Transportation Element is consistent with and helps promote the following policies established in the MTP: Coordinate transportation and land use planning to support transit and pedestrian-oriented land use patterns within the urban area, especially in regional grow-th centers. ,, Provide a transit-oriented transportation system linking central places. · Connect regional, metropolitan, and subregional centers with rapid transit. · Connect residential areas with centers through expanded transit and passenger ferry servme. · Promote an interconnected system of diamond lanes serving the urban areas. · Promote a moderate expansion of key roadways that support centers and access to jobs. · Promote programs encouraging transit and ridesharing options, modifying travel behavior. · Develop a regionally coordinated network of facilities for pedestrians and bicycles. · Invest in transit earl), so options are available. · Develop t~ansit options before expanding highway capacity. · Support investing a greater percentage of the dollar in transit than in highways. · Maintain the existing transportation system in a safe state. · Promote transportation projects that get the most efficiency out of existing roads. · Promote programs that shift travel demand to less congested times or reduce demand. City oJ Bremerton Comprehensive Plan 554-1896 053 (01/03) Final D'ansjportation Element 1-5 February 2004 (3) Countywide Planning Policies: Countywide Planning Policies (CPP) were adopted in September 2003, to guide the comprehensive planning efforts of all jurisdictions within Kitsap County. Section "G" of Kitsap County's CPP document is entitled "Policies for County-wide Strategies for Transportation Facilities and Serwces" and includes numerous transportation policies that: (a) Provide strategies to optimize and manage the use of transportation facilities and services. Co) Reduce the rate of growth in auto traffic, including the number of vehicle trips, the number of miles traveled, and the length of trips taken, for both commute and non-commute trips. (c) Relate to the environmental impacts of transportation. (d) Create design standards to support transit and pedestrian travel appropriate to each type of urban and rural developmem or re-development. (e) Provide transportation linkage between designated local and regional Centers· (f) Relate to freight transportation. (g) Relate to transportation relationships with the Puget Sound Regional Council and the Peninsula Regional Council Transportation Planning Organization. (h) Relate to the identification of needed transportation related facilities and services within iCit sap County. (i) Relate to thecoordinati°n °f intra-c°unty transp°rtati°n planning efforts' 0) Relate to coordinated and consistent level of service (LOS) standards. (4) The Vision ]For Bremerton: The Transportation Vision that guides the policies and recommendations of this Transportation Element is: The City of Bremerton will promote convenient, accessible, safe, and environmentally responsible transportation for residents, employers, employees, visitors, and commerce. Bremerton w'ill support alternatives to the automobile, s)~ch as walking, bicycling, public transportation, carpooling, ferries, etc. This transportation system will be integrated, convenient, and reliable, and will encourage connectivity and economic vitality. Bremerton's transportation system will support vibrant and healthy neighborhoods. Bremerton will incorporate aesthetic landscape and design elements to enhance neighborhood character and encourage safe and convenient walking and cycling. (5) Bremerton's Transportation Goals: The statewide planning goal is supplemented by the following supporting goals of the City of Bremerton: Multi Mo dal: TI Encourage the development of an integrated mulfimodal transportation system that provides a variety of convenient transportation choices to improve the movement of people, goods, and freight. Tla Require new development and redevelopment to incorporate transit, pedestrian, and non motorized transportation measures during the development review process, including Providing bus/transportation shelters, pullouts; 554-1596-053 (01/03) 252 - Providing adequate sidewalks, pathways and crosswalks that allow for access by ail persons; Minimizing walking distance between buildings, streets, sidewalks, and txansit stops; Preserving and extending the connectivity of the pedestrian, bicycle, and grid street system; Minimizing neighborhood street widths to reduce speeds and crossing distances; Incorporating open space, green space in streetscapes. Tlb Work with Washington State Ferries and Kitsap Transit to coordinate transit schedules of multiple modes of transportation, and further transportation conveniences. Tlc Work with Kitsap Transit to establish and designate convenient park and ride locations. Give priority to establishing park and rides in existing parking lots. Form partnerships with community organizations along easily accessible arterials that have dormant parking during traditional commuting hours (i.e., Churches), Tld Establish a commuter parking fee schedule in City operated parking structures with savings for high occupancy vehicles and short-term parking. Tie Encourage formation of safe, easily accessible, clearly marked pick up/drop offlocations at transportation centers. Community Character: T2 Develop transportation improvements that reflect Bremerton's natural, historic, maritime, waterfront, and urban character, consistent with the short and long-term vision of the comprehensive plan. T2a Encourage transportation improvements that take advantage of Bremerton's waterfront. Support plans for. the creation of a "Mosquito Fleet" trail from to connect the Southworth Ferry Terminal, Port Orchard, Bremerton, Poulsbo and Kingston. This connection will enable the location of a Bremerton link. - Enable pedestrian and bicycle paths to be created along the waterfront. - Encourage development of urban boating opportunities. - Provide places for non-motorized crafts used to commute over water. T2b Reflect the urban nature of roadways within Bremerton by encouraging where appropriate: Street trees and landscaping Traffic calming strategies and devices On-street public parking Street lighting Accommodations for transit stops Crosswalks and sidewalks City of Bremen' on Comprehensive Plan 554-i 896-053 (01/03) Final Transportation Element ]- 7 Febt~ary 2004 253 T2c Restore/Create unique neighborhood aesthetic via formation of distinctive streetscapes and traffic controlling devices. Environment: T3 Develop and maintain a transportation system that respects the natural environment including the quality of Bremerton air, water and natural habitats. T3a Preserve and restore natural habitat and native vegetation. T3b Encourage transit providers and organizations with large fleets of vehicles to utilize "green" fuel and reduce emissions/air pollution. T3c Minimize impacts of road construction on environmentally sensitive areas; minimize damaging storm water runoff and pollution from road use and maintenance. Implement programs that encourage the planting of low-maintenance, vegetated groundcover and trees along roadways. Where possible the City shall require the use and maintenance of natural vegetated stormwater controls (bioswales etc.) T3d Where possible, the City shall require the under-grounding of overhead utilities to reduce the need for removal and maintenance of roadside vegetation. Neighborhoods: T4 Protect residential neighborhoods from negative transportation impacts. T4a Minimize the impacts of traffic on residential neighborhoods through discouraging the regular use of local access streets by non-local traffic. T4b Maintain connectivity of the transportation system. T4c Reduce speed on neighborhood streets through the use of street design devices such as curb bulb~, "median obstacles," or other measures proven to be safe and effective at reducing travel speeds. T4d Establish and maintain a traffic control program for assessing and responding to residential neighborhood traffic control concerns. Establish standards for maximum desirable traffic volumes and percentage of non-local traffic. Establish a process for escalating control responses based on the severity of the disturbance to the neighborhood. T4e Minimize neighborhood street widths and crossing distances. Parking: T5 Recognize the importance of easily accessible, attractive and well dispersed parking as a valuable community asset. T5a Implement parking ratios that reflect the least amount of spaces required for development approval where transportation options aside from the automobile are available to serve travel needs. T5b Require landscaping along the edge of parking areas to reduce visual impact and aid in filtration of runoff. CiO, ofBremerton Comprehe~sive PIa~ 554-1896-053 ~0i/037 Final Trarlsportarion Element ]-8 Februar) 2004 254 T5c Inventory and assess parking capacity needs in the Downtown area. Work with the United States Navy, the City of Bremerton, and other major employers in the Downtown Core to ensure adequate parking for employees. T5e Assure parking availability for commercial needs without impacting arterial circulation, residential neighborhoods, or other business by: - Limiting parking on arterials that have inadequate capacity; Encouraging joint development of off-street parking facilities for compatible land uses; and - Working with business owners toward a goal of limiting employee parking to off- street facilities, and reserving on-street parking for business customers artd residential use, Levels of Services/Operations: T6 Improve connectivity and mobility within Bremerton's transportation system through the identification and implementation of improvements that maintain Level of Service standards. T6a. Create requirements that adopted Level of Service standards must be maintained, when development occurs. - Create a concurrency system that establishes existing LOS on an identified list of links and/or intersections within the City. - Create a concurrency system that requires Lmpact on LOS to be established during the development permitting process. Create a concurrency system that does not issue development perm/ts unless and/or until maintenance of adopted LOS standards on links or at intersections impacted by a development proposal is assured. Travel Demand Management: T7 Develop Travel Demand Management (TDM) strategies to minimize the need for additional transportation infrastructure and expenditure. T7a Continue to coordinate with local employers to implement commute trip reduction plans and programs. T7b Coordinate with the Washin~on State Ferry System to coordinate ferry traffic with local traffic demands. Safety: T8 Ensure transportation system safety through maintenance of infrastructure, and incorporation of safety enhancements in transportation improvement projects. T8a Maximize the functionality and safety of the local circulation system. 554 1896-053 (01/03} Cio~ of Bremerto~ Comprehensive P~an ]-9 Febri~ary 2004 Final Transportation Element 255 - Control the locatian and spacing of conanercial driveways and the design of parking lots to avoid traffic and pedestrian accidents, confusing circulation patterns, and line- of-sight obstructions. - Designate and clearly demarcate appropriate routes for through truck traffic, hazardous materials transport, and oversized traffic. - Develop and utilize clear and uniform signage to guide traffic throughout the City. - Encourage bus pull out lanes. - Exatnine, and where appropriate incorporate U Turn lanes. T8b Incorporate appropriate street lighting as it relates to the land use (i.e., residential lighting, industrial lighting, commercial lighting). TSc Utilize natural and engineered street design devices such as curb bulbs, "median obstacles," or other measures proven to be safe and effective at reducing travel speeds. Ferry: T9 Coordinate with Washington State Ferries and other possible providers to operate ferry service to Bremerton that meets local service and commuter needs, coordinates with all travel modes, and provides significant regional service. Tga Encourage WSF to conduct public input meetings in Bremerton, and be responsive to fero, patron needs. T9b Make ferries accessible to all persons. T9c Support and promote ferry system progxams, which maximize the convenience of non- motorized connection, and high-occupancy vehicle (HOV) use by providing priority status and discouraging single occupancy vehicle use. T9d Promote the continuation of passenger only ferry service. Tge Promote coordination of ferry and trans it schedules to promote multi-modal travel. T9f Support research and development in new ferry technology. Through Traffic/State Highways: TI0 Coordinate with WSDOT to ensure state facility improvements meet the goals of the Bremerton transportation vision and comprehensive plan, and minimize the negative impacts to the local transportation system. T10a Bremerton should suppor~ and participate in the cooperative regional transportation planning processes. T10b Expand oppommities for public involvement in the identification, desig~a, and implementation of transportation related improvements within Bremerton. T10c The City should continually work with Kitsap County, WSDOT, regional transportation agencieS, and transportation providers to plan, fund, and implement joint transportation projects and programs. T10d Support improvements on State Highways to reduce congestion, and improve safety and access for through traffic, local traffic, and non-motorized and transit users. CiO, of Bremerton Comprehe~sive Plan 554~]896-053 (01/03j Final Transportation Element ] - ! 0 February 2004 256 Transit: Tll Encourage the use of public transit and encourage transportation agencies to operate and maintain local and regional service and facilities that reduce the need for single-occupant vehicles and support the needs of transit-dependent users. T1 la Work with transportation providers to develop a public transportation system that allows convenient and efficient travel between centers. T1 lb Work with Kitsap Transit to designate appropriate park & fide facilities. (TI c) T1 lc Identify possible corridors for development of future mass transit options such as light rail, monorail, bus rapid transit, etc. T11 d Support efforts to expand usage and infxastructure for mass transportation. TI 1 e Encourage the use of public transit by bicyclists and pedestrians by: Providing safe, attractive comfortable walkways and waiting facilities at public transit loading areas; Providing bicycle storage at transit facilities; Installing bicycle racks on buses, and - Develop and distribute information concerning local and regional non-motorized routes. Non Motorized: T12 Provide a transportation system that effectively serves the needs of and encourages pedestrian, bicycle and other non-motorized travel. T12a Devise a non-motorized transportation plan Maximize safety when identifying pedestrian and bike paths corridors. Establish uniform signage to designate bkke paths. Coordinate with Kitsap Count5, non-motorized facility improvement plans. Coordinate with Kitsap County to adopt uniform signage. T12b Ensure that designated centers are walkable, and encourage cormectivity. T 12c Maintain existing and create new~ engineered bike lanes. T 12d Adopt street standards, which require bike lanes on identified bike routes. T12e Identify, and clearly post public beach access. Economic: T13 Incorporate the needs of business and commercial traffic flow in the development of transportation improvements that affect commercial and industrial centers. T13a Establish and identi~ through clear sigaage a truck and oversized load route. T13b Apply appropriate street design standards for industrial and commercial districts, which allow for the easy movement of goods and services. 257 T13c Support a freight rail link. (6) Downtown Development Goals and Policies (Ordinance No. 4"/83): The Bremerton City Council has adopted goals and policies for the Downtown Core, as stated in Ordinance No. 4783. The following summarizes the transportation related Downtown Development Goals and Policies for the central business district (CBD) and Downtown Waterfront: Overall Goals: · Downtown Bremerton will be an urban center within the Puget Sound region. · Downtown Bremerton will be the major urban center and inter-modal transportation hub for Kitsap County. · Downtown Bremerton will be served by a variety of choices in transportation, including vehicle and passenger ferries, bus transit, automobiles, walking and bicycles. · Downtown Bremerton will accommodate parking for commuters, visitors and shoppers but in locutions and configurations that allow for in-fill development. General Policies: · New development shall reinforce pedestrian activity at the street level, present an attractive profile on the skyline, and provide opportunities for artistic expression. · On-going programs and funding p~oriti~s should ensure that downtown streets and sidewalks are clean, safe, well lighted and attractive. · Parking supply, including both on-street and off-street facilities, should be managed to emphasize short-term use over long term use, ensuring an adequate supply for shoppers and visitors. · Parking facilities should be designated to contribute to an attractive appearance of the streetscape and overall image of the downtown. · Regulations should reward new development with intensity and/or height in return for incorporating features such as public spaces, housing, and u:aderground parking. · The city should employ a variety of techniques, including upgraded and expanded infrastructure (including streets and sidewalks), public/private parmerships, the development and management of par'king, and property disposition to encourage desired development. · Downtown should be linked to surrounding neighborhoods by landscaped streets, open spaces, pedestrian and bicycle routes, and transit. Downtown Core (DC) Policies: · This district should be served both bus and ferry transportation, with sidewalk and walkway connections that are lighted and landscaped to encourage the use of transit. · Certain streets within the district should be particularly pedestrian oriented, with wider sidewalks, furnishings, and on-street parking. Streetscape enhancements, uses and architectural features should make walking safe, comfortable and appealing. · Fast moving, through traffic should be separated from local traffic and pedestrian movement that ~ are oriented to the downtown core. · The availability of parking should be evident without having parking structures interrupt the continuity of street level uses or overwhelm the scale of their surroundings. 5544 ~96-o5x (o!/o-9 CiO, of Bremerton Comprehensive plan ]- ] 2 Febraary 2004 Final Tran.~vorration Element 258 · Given the steep topography north of 4th Street, new development should include internal corridors or terraced walkways that can make the slope easier to traverse on foot. · Over time, there should be a landscaped, pedestrian-oriented corridor connecting the uplands portion of the Core with the waterfront. · Design standards should ensure the continuity of storefronts and a pedestrian-oriented scale and features along all streets with the Core. Downtown Waterfront (DW) Policies: · The Downtown Waterfront District should consist of a mixture of transportation facilities, marina and support services, specialty shops, and restaurants, and low-rise, high density residential. · There should be clear, attractive pedestrian routes, public places, and connections between the Downtown Waterfront district and the Downtown Core. · New developments within the Downtown Waterfront district should include parking to meet its own demand. Freestanding parking to serve commuters only is not an appropriate use in this district. While some parking facilities may serve both local businesses and regional needs, commuters should generally be encouraged to use transit and park-and-ride lots. (7) Relationships To Existing Plans & Policies: In addition to the vision statements and goals, the City has also reviewed the goals and policies of its 1995 (existing) Comprehensive Plan, as well as the provisions of the following plans to ~msure consistency: (a) Bremertan Ferry Terminal to Vicinity of Gorst Highway Improvement Project Transportation Expertise Report - Proposed 1995 (b) Campus/Evergreen Neighborhood Plan (Bremerton)- Adopted: 1992 (c) Waterfront Access Plan (Port Orchard Project) - Adopted: 1989 (d) West Hills Area Plan (Breme rton-SR 16) - Adopted: 1990 (e) Wemer Road/Loxie Eagans Blvd. Traffic Operations Study Final Report-Adopted 1997 (f) City of Bremerton Transportation Improvement Program (Six-Ye ar TIP) -'Adopted 2003 (g) County Transportation Element (Kitsap Co.) - Adopted: 1998 (h) Washington State Ferries System Plan 1999-2018 (i) Kitsap Transit 2001-2007 Transit Development Plan - Adopted: 2001 (j) Kitsap County Greenways Master Plan (i) Kitsap County Bicycle Facilities Plan-Adopted: 200i (ii) Mosquito Fleet Trail Master Plan - 2001 (k)SR 303 Corridor Study Transit Service Plan - May 2003. (1)Washington State Highway System Plan 2003-2022 (WSDOT) (m) Highways of Statewide Significance - Update 2003 (n) Destination 2030:Metropolitan Transportation Plan (PSRC) - 2001 CiO: of Bremerton Comprehensive Plan 554-1896-053 (01/03) Final Tram*portatio~l Element 1-13 Fabruary 2004 259 This section of the transportation plan describes the existing transportation system conditions in the study area. This includes a description of the roadway characteristics, functional classification, traffic volumes, LOS, accidents, transit and ferry service, and pedestrian and bicycle facilities. 2.1 ROADWAY CHARACTERISTICS AND FUNCTIONAL CLASSIFICATIONS Figure 2-1 depicts the functional classification of the arterial roadway system serving the study area and shows the ferry routes serving the City of Bremerton. ~l~is is an updated version of the functional classification map contained in the 1995 Comprehensive Plan. The functional classifications presented in this figure are consistent with WSDOT and Federal Highway Administration (FHWA) functional classifications for the City of Bremerton. Identification of the rnadway functions is the basis for planning roadway improvements and the appropriate standards (right-of-way width, roadway width, design speed) that would apply to each roadway facility. The following definitions serve as a general guide in determining street classifications: · Principal Arterials - Intercommunity roadways comaecting primary community centers with major facilities. Principal arterials are generally intended to serve through traffic. It is desirable to limit direct access to abutting properties. · Minor Arterials - Intracornmunity roadways connecting community centers with principal artetials, in general, minor arterials serve trips ofr~oderate length. Access is partially controlled wi[~a infrequent access to abutting properties. · G~lector Arterials - Streets connecting residential neighborhoods with smaller corranunity ~centers and facilities as well as access to the minor and principal arterial system. Property access is/generally a higher priority for collector arterials; through-traffic movements are served as a ~bwer priority. · Local Access Streets - Streets providing direct access to individual residential or commercial properties. The transportation plan addresses only the arterial street system within the City of Bremerton since local access streets typically do not have capacity deficiencies. However, local access streets are an integral part of the street network, and are important travel routes used by pedestrians and bicyclists. Creating safe travel routes for pedestrians and bicyclists are discussed in subsequent chapters A brief description of the state highways and arterial streets in the City of Bmmerton are as follows: 2.1.1 State Highways in Bremerton SR-3 is the sole north-south freeway in Central K/tsap County. Located on the west side of Bremerton, this four-lane limited access facility accommodates both regional and more localized travel between surrounding communities in Kitsap County. Interchange connections within the City of Bremerton exist at Austin Drive, KJtsap Way (SR 310), Loxie Eagans Boulevard/Wemer Road, and SR-304. C:ty of Bremerto~l Comprehensive Plan 554-1896-053 (01103? Final Trnnsportation Element 2- ! Februar) 2004 260 / I I 'x Gl'D? OF BREMERTON COMPREHENSIVE TRANSPORTATION PLAN ~J-~F~ LEGEND ~CALE IN FEET ~ Freeway Figure 2-1 -- ~ Principal Arterials Functional Classifications ..... Minor AAerials 0 1250 2500 ........ Collectors Western Potion 261 / ? / / / ? / \ ClT~ OF BREM~ERTON _ LEGEND Figure 2-1 (continued) SCALE IN FEET '- Freeway Functional Classifications Principal Arterials ..... Minor Arterials Eastern Portion 0 1250 2500 ........ Collectors 262 SR-304 is a designated State Route with a partial interchange connection to SR-3. SR-304 is a three to four-lane principal arterial that is partially divided. Access to this highway is mostly limited to signalized intersections. The existing SR-304 alignment extends northeast from the SR 3/304 interchange and continues as the Navy Yard Highway to Charleston Boulevard, along Callow Avenue to Burwell Street, and east on Burwell Street to downtown. In downtown Bremerton, there is a one- way couplet between SR 304 and 1st Street on Pacific Avenue and Washington Avenue. The couplet is used to enter and exit the Bremerton Transportation Center (BTC) and Washington State Ferry (WSF) Terminal. The couplet operates in the southbound direction on Pacific Avenue and northbound direction on Washington Avenue. First Street is a one-way eastbound street. SR-310 is a principal arterial that connects West Bremerton to Central Kitsap County via SR-3. SR- 310 extends east-west as a four lane arterial along Kitsap Way from SR 3 to Callow Avenue, and on Callow Avenue from Kitsap Way/6th Street to SR 304 (Burwell Street). Much of the Kitsap Way portion of SR 310 includes a center two-way left turn lane. SR 303 is a north-south principal arterial, that originates at Burwel/ Street, and extends north to Silverdale. SR-303 (Warren Avenue/W~eaton Way) is a four to five-lane principal arterial, with the ilfth lane functioning as a center left turn lane. This route is the primary connection between West and East Bremerton, and to the Silverdale retail area. 2.1.2 Arterial Routes in Bremerton Major east-west arterials in West Bremerton include 6th Street and 1 lth Street, Burwell Street (SR 304), Kitsap Way and Wemer Road. Both 6th Street and llth Street are four-lane undivided facilities extending from Washington Avenue to the west. These two arterials ultimately join at Kitsap Way (SR- 310), continuing as a single, principal arterial to the interchange connection with SR-3. Bum'ell Street is a three to four lane facility that also serves downtown. This route is the most direct connection between south Kitsap County and downtown Bremerton. The north-south streets m West Bremertan include Pacific Avenue and Washington Avenue within the downtown core, and Naval Avenue and National Avenue to the west of the downtown area. In East Bremerton, Riddell Road, Sylvan Way, and Sheridan Road are the primary east-west arterial streets. Each of these streets intersect with Wheaton Way (SR-303). The two-lane Mnnette .Bridge connects Washington Avenue in downtown Bremerton to Wheaton Way (SR 303) in East Bremerton via the Wheatun Way/Warren Avenue arterial streets. Wheaton Way, Pine Road NE, Perry Avenue, and Treuton Avenue are the primary north-south arterials in East Bremerton. The arterial roadway characteristics and traffic controllers in the study area are shown in Figure 2-2. 2.2 HIGHWAYS OF STATEWIDE SIGNIFICANCE (HSS) In 1998 the Washington State Legislature passed HB 1487 (also called the "Level of Service" bill). The bill (codified in RCW 47.06.140) relates to transportation and growth management planning, and calls for coordinated planning for major transportation facilities identified as "transportation facilities and services of Statewide Significance." In 1999 the state legislature adopted a list of Highways of Statewide Significance (HSS). The following facilities in the City of Bremerton are currently on this HSS list for the Central Puget Sound Region: · SR 3 - SR 101/Shelton to SR 104 (entire route) · SR 304 (Burwell Street, Callow Avenue, Navy Yard H/ghway)- SR 3 to Bremerton Ferry Terminal (entire route) · SR 3 t0 (Kitsap Way, Callow Avenue) - SR 3 to SR 304/Bremerton (entire route) 554_1896~053 (01/03) Cty qfB~emerto~l Comprehel~sive Pla~l 2-4 Februa*~ 2004 263 '\ I "" · ~/~ I .~, .. I ~ I I NOTE: HAVE A 25 MPH SPEED LIMIT CITY OF BREMERTON COMPREHENSIVE T~NSPORTATION PLAN LEGEND Figure 2-2 SCALE IN FEE~ ~ Signalized Intersection Roadway Characteristics. I ~ ~ Speed Limit and Traffic Control Four Lane A~eria[s Western PoAion 264 RIDDELL~RD CITY OF BREMERTON COMPREHENSIVE T~NSPORTATION PLAN LEGEND Figure 2-2 (continued) SCALE IN FEET ~ Signalized Intersection Roadway Characteristics [~] ~ Speed Limit and Traffic Control . Four Lane AAerials Eastern PoKion 265 Designation as an HSS means: Higher priority for improvement funding from state sources State has authority for setting level of service (LO S) standards · Expressly exempt from local transportation concurrency requirements Identified as an essential public facility (local comprehensive plans may not preclude the siting of these facilities) · Consideration for primary funding by a Regional Transportation Investment District (RTD) SR 303, which extends from Burwell Street (SR 304) in Bremerton to Waaga Way (SR 3/SR 303) at its northern terminus in Silverdale, is currently on PSRC's list of Regionally Significant State Highways (also called Non-HSS). 2.3 TRAFFIC VOLUMES Existing two-way daily traffic volumes on Bremerton's streets are shown in Figure 2-3. These counts were recorded between the years 2000 and 2003. Figure 24 shows the PM peak hour traffic counts recorded in the year 2001 by the City of Bremerton and WSDOT. The average daily weekday traffic volumes shown in Figure 2-4 range from 1,100 vehicles per day on Park Avenue north of 13th Ave and Synder Avenue north of 15th Street, to 46,700 on the Wmrcn Avenue Bridge. The higher-volume arterials are K.itsap Way (ER 310) between 1 lth Street and SR-3, l 1 th SWeet between Warren Avenue and Callow Avenue, 6th Street between Naval Avenue and Callow Avenue, and Wheaton Way/Warran Avenue between 1 lth Street and Riddell Road. PM peak-hour directional traffic volumes shown in Figure 2-4 range from 160 (Harlow Drive NW) to 3,800 (Warren Bridge) vehicles per hour on the arterial street system. 2.4 LEVEL OF SERVICE The following section provides a summary of the roadway Level of Service (LOS) standards and methodology used for the Transportation Element of the City of Bremerton Comprehensive Plan. The purpose of this information is to provide an overview of LOS and to identify its relationship to the transportation goals and policies of the City. (1) Level of Service Definition: LOS is an estimate of the quality and performance of transportation facility operations in a commuuity. One commonly used method is the Transportation Research Board's Highway Capacity Manual 2000 LOS system. The degree of traffic congestion and delay is rated using the letter "A" for the least amount of congestion to the letter "F" for the highest amount of congestion. The following Level of Service categories provide general descriptions of the different levels of service defined in the Highway Capacity Manual. The community decides what level of traffic congestion is tolerable (i.e., decides whether their standard is "D," "E," or some other level). The choice of a particular LOS threshold can vary by planning subarea, roadway classification, or specific con-idor or street. Establishing LOS standards is also a requirement of the State's Growth Management Act. 554-i896-053 (01/03) City of B,-emerton Compre!lenstve Plan 2- 7 February 2004 Final Tra~portat~o~ Element 266 / x~ /, / / / / CiTY OF BREMERTON COMPREHENSIVE T~NSPORTATION PLAN LEGEND Figure 2-3 SOAL~ ~N F~E~ ~ ~ ~o~g~ W~k~' Existing Traffic Volumes Tmm~ Average Weekda~ I I J NOTE: Western Po~ion 0 1250 2500 T~affic Counts Recorded be~een 2000-2003 26? / O~TY OF BREMERTON' COMPR[HENSIVE TRANSPORTATION PLAN LEGEND Existing Traffic Volumes SCALE IN FEET ~ Total Average Weekday Average Weekday ~ NOT~: Traffic Eastern PoKion 268 / ) ~,, ~ /~ ~ / ~ I I ~ I__~__ I / CITY OF BREMERTON COMPREHENSIVE T~NSPORTATION PLAN Figure 2~ LEGEND Existing Traffic Volumes SCALE IN FEET 58~ D[rec[ional PM Peak Hour PM Peak Hour I~ ~ NOTE: 0 1250 2500 Traffic counts recorded in 2001 Western PoAion 269 330 460 \ CiTY OF BREMERTON ,~ COMPREHENSIVE T~NSPORTATION PLAN Figure 2~ (continued) LEGEND Existing Traffic Volumes SCALE IN FEET .580 Directional PM Peak Hour PM Peak Hour I I NOTE: 0 1250 2500 Traffic counts recorded in 2001 Eastern Potion 270 (2) Level of Service Categories: · LOS A. A free-flow condition. Speeds are at or near the speed limit and little to no delay exists~ Freedom to select desired speeds and to make tums and maneuver within the traffic stream is extremely high. · LOS B. Zone of stable flow. Drivers still have reasonable freedom to select their speed. Only minor delays of 10 to 20 seconds per vehicle at signalized intersections are experienced. · LOS C. Still in the zone of stable flow, but speeds and maneuverability are more closely controlled by the higher volumes. The selection of speed is not affected by the presence of others, and maneuvering within the traffic stream requires vigilance on the part of the driver. Longer delays of 20 to 35 seconds per vehicle are experienced at signalized intersections. LOS D. Approaches unstable flow. Speed and freedom to maneuver are somewhat restricted with average delays of 35 to 55 seconds per vehicle. Small increases in traffic flow can cause operational difficulties at this level. · LOS E. Represents operating conditions at or near the capacity of the roadway. Low speeds (approaching 50 percent of normal) and average intersection delays of 55 to 80 seconds per vehicle exist. Freedom to maneuver within the traffic stream is extremely difficult. Any incident can be expected to produce a breakdown in traffic flow with extensive queuing. · LOS F. Describes forced flow operation at very low speeds. Operations are characterized by stop-and-go traffic. Vehicles may progress at reasonable speeds for several hundred feet or more, then be required to stop in a cyclic fashion. Long delays of over 80 seconds per vehicle occur at signalized intersections. A more technical method has been developed in the Highway Capacity Manual (HCM) to measure LOS, involving the calculation of the volume to capacity ratio (V/C) of the roadway or intersection. Table 2-2 summarizes the V/C ranges for determining planning level mid-block LOS on urban and rural roadways. Table 2-2. Level of Service Definitions for Urban and Rural Roadways LOS Volume/Capacity (V/C) Ratio A i less t h a_n. _ o_r _e_ q_ ~ .a_l ?_ ............ ......................... _02_3 ....................... ~ ......... i ........TJ~-s-i~an or equal to 0.5 ........ C~___.i ............ !.e_?_.t_h a n_ _o.[_? q_ u_~l_?_ ................ .................... 0.75_ D I less than or equal to 0.90 E ~i less than or equal to 1.0 I 1.0 F ~ greater than More detailed methodologies to calculate LOS at specific locations such as unsignalized or signalized intersections are outlined in the HCM. These are typically utilized during the development review process to assess potantia] traffic impacts associated with new development on roadway facilities in the project vicinity. The calculated LOS at specific intersection locations may not necessarily be consistent with LOS aloog adjacent roadway links, since intersection LOS is dependent upon a variety of other factors, including intersection traffic control, signal timing/phasing, intersection geometrics, and cross- street traffic volumes. CiO' of Bremerton Comprehensive Plan 554-1896-053 (01/03) Final Transportation Element 2-.12 Februaly 2004 271 (3) ~evel of Service: Based on current traffic volumes, the volume- to- capacity ratio and LOS was calculated for mid-block arterial roadway sections throughout the City. The results are shown in Table 2-3 and graphically in Figure 2-5. Level of Service D was selected as the initial LOS threshold to identify system deficiencies. This is the LOS standard used in most urban areas in the Puget Sound region, including the urban portion of Kitsap County. This is a reasonable initial threshold to begin to identify deficiencies in the network. The following existing roadway sections exceed or are close to exceeding this Level of Service D threshold during the PM peak hour: · Kitsap Way (SR-310) - 1 lth to National (LOS D approaching LOS E) · Sylvan Way - Wheaton to Petersville (LOS D approaching LOS E) · Warren Avenue (SR-303) - Callahan to Sheridan (LOS D approaching LOS E) · Wheaten Way (SR 303) - Sheridan to Riddell (LOS D approaching LOS E) Table 2-3. Existing Corridor Level of Service Two-Way Peak Street Section Hour Volume Capacityc VIC Ratio LOS West Bremerton ...................... 6th Street Wash ngton to Warren 11th Street Washington to Warren 920 3,440 0.27 A 11th Street Warren to Kitsap Way 2,180 3,950 0.55 C 15th Street H gh to Ca tow 460 1,310 0.35 B Auto Center Way ;South of Kitsap Way Bu~e Street SR 304" Wash ngten te Wa~en 760 3,970 0.19 A Bu~ell Street (SR 304)" i Naval to Callow 1 ,~0 3,5~ 0.38 B Callow Avenue (SR 304)a Fa~agut te Bu~ell 2,000 3,630 0.55 ............. ......................... ....... ...... B Callow Avenue 6th to 11~ Charleston Blvd. (SR 304)a Preble ~ Farmgutb 2360 4,230 0.56 C Harlow Drive 1st to Pdce 160 1,340 0.12 =_ A High Avenue ;6th to 15th 280 1,290 0.21 A Kitsap Way SR 310 a Nodh of 11~ 3 430 3,890 0.88 D Kitsap Way (SR 310)a ; East of National 3,400 3,940 ; 0.86 D Kitsap Way (SR 310)~ West of National 2,670 3,690 0.72 C Kitsap Way (SR 310)" E~[? ~.~ 2..93~ ....... 4:~ ..... 0.7~ . C _ ~-3 te NoAhlake Way 1,220 3,570 0.34 B Kitsap Way Lox e Eagans B vd National to SR-3 1 500 3,580 0.42 B Manette Br dge __ ......... ~ ................ ..... ~ a%i;~;~ Av~ n%-~- ............ ?~it~;~-~it~~;mi%~- ...... 1,000 1,340 : 0.74 Nava Avenue Bu~ell te 11~ ~ ~? ~ . L ~.--- Pacific Avenue Bd~ell t0 11 240 1,110 0.22 A Ci0, of Bremerton Comprehensive Pla*~ 554-] 896-053 (0]/0~) Fina[ Tran%~ortation Element 2-] 3 Februa~' 2004 272 Table 2-3. Existing Corridor Level of Service (continued) Two-Way Peak Street Section Hour Volume Capacityc VIC Ratio LOS West Bremerton (continued) --~'~:~-~ ;; ........ SR-3 to Preble 2,460 4,130 0.59 C Warren Avenue (SR 303) ' Burwell to 11e 1,300 3,700 0.35 B Warren Avenue (SR 303 11th to Bridge 2,670 4,020 0.66 C Washington Avenue 6th to Burwell 730 2,820 , 0.26 A East Bremerton Pine Road Sheridan to Riddell 630 1,390 0.45 B Riddell Road Pine to Wheaton 860 1,880 0.46 B Riddell Road !Wheaton t~ Petersville 778 1,350 0.58 C Sheridan Road Wheaton to Hatverson 700 1,350 0_L52~____~6 ..... Sylvan Way Wheaton to PetersvBe 1,180 1,350 0.87 D Trenton Avenue E. 11th to Stone 330 1,160 0.28 A Warren Avenue (SR 303) Callahan to Sheridan 3,310 3,750 ' 0.88 D Wheaton Way (SR 303) Sheridan to Riddell 3,090 3,450 0.90 D a Designated as a Highway of Statewide Significance (HSS). b No recent traffic counts have been conducted at this location. 1994 traffic volume is shown c Capacity is based on the following factors: number of lanes, access control/channelization, type of intersection traffic control, and location withi~ rural/urban area. 2.5 ACCIDENT INFORMATION Accident data records compiled by the City of Bremerton and Washington State Patrol were reviewed for the years 1997 through 2001. Major intersections were reviewed for the number of accidents and accident type (rear end, right angle, pedestrian, and bicycle). The criteria used to determine ff an intersection has an unusually high accident rate and should be considered for further examination from a safety perspective were: · Five or more average accidents per year for unsignalized intersections · Ten or more average accidents per year for signalized intersections. This list does not imply that the City of Bremerton is responsible for improvements at all /ntersections. At some of these intersections, there are no consistent accident patterns or no reasonable improvements that could be identified to decrease accidents. Table 24 identifies the intersections that exceed these accident thresholds based on the average number of accident between the years 1997 through 2001. More detailed accident information is contained in Appendix A. CiO, of Bremerton Comprehe,wive Plan 554-1896-053 (OL/03) Final D'anspolgation Element 2-14 FebruaO, 2004 2?3 F --~,~-- J %. : I %. I "- / CITY OF BREMERTON COMPREHENSIVE TRANSPORTATION PLAN Figure 2-5 LEGEND Existing Year 2001 SCALE IN FeE~T ~ LOS/V,'C Level of Service and Volume J LOS Level of Service to Capacity Ratios 0 1250 2500 VIC Volume to Capacity Ratio Western Portion 274 / / CI~Y OF BREMERTON COMPREHENSIVE T~NSPORTATION PLAN Parametrlx ~*.E: o~/o~/o* ~mL~= .,~0~,"0~0'-~=-S~ Figure 2-5 (continued) LEGEND Existing Year 2001 SCALE IN FEET ~ LOS/V/C Level of Se~ice and Volume ~ ~ ~ LOS Level of S~i~ to Capacity Ratios 0 1250 2500 v/c Volume to Capacity Ratio Eastern Potion 275 As shown in Table 2-4, there are six signalized and seven unsignalized intersections that have exceeded the accident thresholds for the years 1997 through 200l. The majority of the locations are on the major arterial corridors in the City, including Warren Avenue/Wheaten Way, Kitsap Way, and 1 lth Street. Table 2-4, Existing Intersections that Exceed the Annual Accident Thresholds Total Number of Accidents Intersection '97 '98 '99 '00 '0t Total 5-Year Average Signalized Intersections Callow Avenue & 6th Street 8 9_~_ 10 9 17 53 10.6 Callow Avenue & 11~h Street 18 13 i 25 18 19 93 18.6 ----~itsap Way & 11t~ Street 15 11 [ 17 13 14 ~ 70 14.0 Warren Avenue & 11~h Street 12 17 25 30 i~ 30 115 23.0 Wheaten Way & Sheddan Rd. 8 16 i 11 14 16 65 13.0 Wheaten Way & Sylvan Way 14 12 Unsignalized Intersections Hewitt Avenue & 11TM Street 8 9 5 4 5 31 ! 6.2 Ohio Avenue & 11t~ Street 6 , 5 1 .... 10 ..... 6 28 I 5.6 ................................................................... 7 33 6.6 - Kitsap Way & Arsenal 3 9 : 11 3 'V Way Shorewood Dn e Kitsap Way & Cerbet Ave.Il 3th 5 5 5 8 12 35 7.0 Street/Wilbert Street Kitsap Way & Pershing Ave. I 8 ! 6 7 13 35 7.0 Kitsap Way & Morgan Ave e 4 5 9 11 6 ~ 35 7.0 ........................... [~ t 2 7 i 6 11 4 30 6.0 Veneta Avenue & 11 Stree Accident records revealed a pedestrian fatality at the intersection of Wheaten Way and Sylvan Way in 1998. b The reduction in accident rates at the Kitsap Way & Arsenal WaylShorewood Drive intersection between 1999 and 2001 is a result of intersectaon and signal improvements. Accident rates at this intersection may decrease as a result of minor striping improvements made by WSDOT and the City of Bremerton. The City of Bremer~on will monitor accidents at this intersection. 2.6 TRANSIT AND FERRY SERVICE Kitsap Transit operates the transit service in the City of Bremerton. Current transit routes are illustrated on Figure 2-6. Many of the transit routes serve the Puget Sound Naval Shipyard (PSNS), downtown Bremerton, and Washington State Ferry (WSF) Terminal. Transfers between the various transit routes can be made at the following locations: · Washington Avenue at the Washington State Ferry Terminal · Wheaten Avenue/Sylvan Way intersection · Auto Center Way south of the SR-3fKitsap Way intersection Ci~ of Bremerton Compt ehe~sive PIo~ 554-1896-055 (Ol/03J Final Transportatior; Element 2- l 7 FebruaEv 2004 276 277 These transfer station locations are also shown on Figure 2-6. According to Kitsap Transit's November, 2003 bus schedules, transit routes generally operate at one-hour headways with improved service during peak hours. Exceptions to this include, Route #15 and #16. Route #15- McWilliams Shuttle is a special weekday route that provides service between BTC, and the McWilliams and Crossroads Park and Ride lots. Route #16 - Jackson Park - is a new special service route that was added in November, 2003. This route provides AM and PM peak hour service in West Bremerton between Elwood Point located north and east of the SR 3/Austin Drive intemhange and PSNS. Downtown Bremerton is currently served by auto and walk-on ferry service operated by Washington State Ferries (WSF) and passenger-only ferry service operated by Kitsap Transit. The auto and passenger ferry service cormects downtown Bremerton with Colman Dock in downtown Seattle, providing a convenient link between the two downtown areas. The passenger-only ferry service links downtown Bremerton with Port Orchard and Annapolis. Them are two auto and walk-on ferry vessels that operate on the Bremerton to Seattle route. During peak surrm~e~ motors there is the Walla Walla (206 vehicle capacity, 2,000 passenger capacity), and one Issaquah 130 class ferry (130 vehicle capacity, 1,200 passenger capacity). In the winter months the Walla Walla vessel is replaced with a 160-car super ferry (160 vehicle capacity, 2,500 passenger capacity). There are currently daily runs in each direction, with operating headways that range from 60 to 140 minutes. The Bremerton terminal area currently has a holding area for approximately 178 vehicles, two transfer spans, two toll booths, and overhead passenger loading. The route length is approximately 13.5 nautical miles and the scheduled crossing time is approximately 60 minutes Until September 19, 2003, WSF operated a passenger-only ferry route on weekdays during peak AM and PM commute times, plus an additional route that served late evening cotnmuters. The passenger-only route had a total of 13 daily runs in both directions, and operated at headways between 30 and 90 minutes. However, the passenger-only ferry route was eliminated in 2003 due to a lack of funding to continue operations. Figure 2-7 is a five-year summary that compares the number of passengers driving onto the auto-ferry with the vehicle-passengers (e.g. additional passengers such as carpools) and walk-ons, and the ridership on the passenger-only ferry. As shown in Figure 2-7, quarterly and seasonal ridership trends for the Seattle-Bremerton auto ferry routes are similar over the five years. The peak auto-fens, ridership occurs during the spring an~i summer month from April to June and July to September. The daily walk-on and vehicle passenger peak ridership also tends to be higher during the peak spring and summer months. The passenger-only ferry service had similar seasonal trends, however, the ridership trends changed for the five-year period. In the spring (between April and June) of 1998 there was an increase in passenger- only ferry ridership as a result ofimprovemants that were made to the scheduled crossing time. Between 1998 and 2002 passenger-only ferry ridership either remained the same or increased. However, in the fall of 2002 passenger-only ferry ridership decreased, and continued to decrease due to a fare increase. In 2002 Kitsap Transit purchased the passenger-only ferry route from Horluck Transportation, a privately owned business. The new ferry service will operate seven days a week, with expanded service from the passenger-only ferry terminal in downtown Bremerton to Port Orchard and Annapolis. The ferry route will provide Bremerton commuters a link to Port Orchard and Annapolis across Sinclair Inlet. 278 279 2.7 PEDESTRIAN AND BICYCLE FACILITIES Expanding Bremerton's non-motorized road network is consistent with the City of Bremerton's overall Transportation Goals to encourage an integrated malti-modal transportation system and to provide a transportation system that effectively encourages pedestrian, bicycle and other non-motorized travel. Both pedestrian and bicycle facilities should be an integral part of the transportation network, and the provision for these facilities should be incorporated in the transportation improvement program to encourage non-motorized trips. Figure 2-8 shows the existing bicycle routes and arterial pedestrian facilities in Bremerton. Sidewalks are generally provided throughout the downtown and Central Bremerton areas creating a grid-system for pedestrians. In addition, there are sidewalks along arterial streets that have commercial land uses such as Kitsap Way and Wheaton Way. Many of the streets outside the commercial area have paved or gravel shoulders rather than sidewalks. In East Bremerton, a majority of the east-west routes, including Riddell Road and Sylvan Way, and aorth-south routes including Pine Road and Perry Avenue between Riddell Road and Stone Way have paved or gravel shoulders. There are a few streets that have sidewalks, but there is limited connectivity between these streets. Similarly, in West Bremerton, outside the downtown area, many of the arterial streets have paved or gravel shoulders. The non-motorized network has missing links around some elementary and secondary schools. Many of the schools are located in residential neighborhoods. Continuous sidewalk and bicycle routes would provide a safe environment, for elementary and secondary school children to walk to and f~om school. Schools that are located in areas with no to minimum sidewalks and/or bicycle romes include Kitsap Peninsula Vocational Skills Center, Morgan School, and West Hill Elementary school in West Bremerton, and Armin Jahr Elementary School, View Ridge Elementary School, and Bremerton Middle School kt East Bremerton. The Olympic Commurfity College is located west of Warren Avenue, and north of 13th Street. There are sidewalks on 13th Street, 15th Street, and Warren Avenue. In addition, bicycle routes extend north-south on Warren Avenue and also exist on the local streets west of Olympic Community College. Bremenon has a complete bicycle route network that extends through East and West Brernertnn. Most of the bicycle routes do not have dedicated bicycle lanes, but are minor arterial or collector streets that are commonly used by bicyclists. Exceptions to this include the recently constructed sections of SR 304, which has dedicated bicycle lanes, and Kitsap Way, which has wide-shoulders that are suitable for use by bicyclists. Bicycle routes in East Bremerton serve residential neighborhoods, schools, and community facilities such as the Kitsap Central Library on Sylvan Way. There are also bicycle routes across the Manette Bridge and the Warren Avenue Bridge. In West Bremertan, the bicycle routes serve both Olympic College and Bremerton High School. In addition, there is bicycle access to the WSF Terminal and BTC from Washington Avenue, Park Avenue and Burwell Street. Both Kitsap County and PSRC have proposed to improve the existing bicycle network in the future. These improvements are discussed in Chapter 4. 280 281 An area that currently lacks bicycle routes are the local streets leading to the Evergreen Park, located north of 15~h Street. The park has a mixed use-trail that could provide commuters an alternative roate to access the neighborhoods to the west of the park. There are adequate sidewalks on the streets both east- west and north-south o£the park; however, there are no direct bicycle paths or routes thai lead to the park. 2.8 EXISTING DEFICIENCIES 2.8.1 Roadway Capacity Deficiencies As required by GMA, existing transportation system capacity deficiencies have been ideutified based on the LOS analysis described in Section 2.4. These deficiencies include: (1) Kitsap Way (llth to National}: This roadway segment currently operates at LOS D with a high V/C ratio approaching LOS E. This roadway segment serves traffic between downtown Bremerton and SR 3. (2) Warren Avenue {Callahan to Sheridan): This portion of the Warren Avanue/Wheaton Way corridor (SR 303) currently operates at LOS D with a high V/C ratio but is at the verge of declining to LOS E. (3) Wheaton Way (Sheridan to Riddell): This portion of the Warren Avenue/Wheaton Way corridor (SR 303) also operates at LOS D with a high V/C ratio but is at the verge of declining to LOS E. (4) Sylvan Way (Wheaton to Petersville): This east-west arterial currently operates at LOS D but is approaching LOS E conditions. 2.8.2 Operational, Safety, and Other Deficiencies Other existing transportation system deficiencies have been identified as a result of discussions with City staff and the Bremerton Citizen's Advisory Committee. These deficiencies include: (1) Auto Center Way between Kitsap Way and the SR-3 southbound On-Ramp: This section of' Auto Center Way has existing operating deficiencies due to the dual left Urn lane on Kitsap Way transitioning to a single through lane on southbound Auto Center Way. (2) Loxie Eagans Blvd./Arsenal Way and 1st Street to SR 304 connections: Arterial connections between the Puget Sound Naval Shipyard and the Loxie Eagans intemhange are 1Lmited. ha particular, missing links and inefficiencies in the arterial network currently exist between 1st Street, Loxie Eagans Blvd/Arsenal Way and SR 304. Streets in portions of the corridor are narrow and have limited pedestrian facilities. (3) Lower Wheaton Way between Sheridan Road and Callahan Drive: The roadway needs to be realigned to improve safety and operating characteristics at the intersection of Lower Wheaton Way and Sheridan Road, and improve access to the Harrison Hospital area. (4) Warren Avenue at 11th Street: The intersection has PM peak hour congestion and a high accident rate. (5) Downtown Core: Improvements are needed to improve vehicle congestion, improve pedestrian safety, and improve ingress/egress to the BTC. Improvements to address the operational deficiencies in these areas will also be developed as part of the future transportation improvement plan discussed in Chapters 4 and 5. 282 This section of the Transportation Element describes future conditions in the year 2030 and evaluates the performance of the transportation network based on projected land use and population. The purpose of this section is to identify future transportation system deficiencies resulting from projected population and ernployment increases in the City of Bremerton and Central Kitsap County. The year 2030 was selected for analysis, to maintain consistency with other regional models, including Puget Sound Regional Council's (PSRC's) travel demand models. Several alternative roadway networks that could improve capacity of the overall network were modeled and evaluated. In addition, a "No Action" alternative (Lc., no significant future increases in roadway capacity) was tested. 3.1 TRAVEL DEMAND FORECASTING FOR YEAR 2030 Regional travel demand and roadway network traffic volumes in the City of Bremerton are forecast for the year 2030 using the EMME/2 travel demand forecasting model. The forecasts were derived through coordination with Kitsap County and City of Bremerton staff. Kitsap County's model is a translation of the PSRC model developed for the Destination 2030 Metropolitan Transportation Plan (MTP). The Kitsap County model provides a detailed network of all arterial streets in Bremerton and incorporates year 2030 land use forecasts from the City of Brernerton. These include the number and geo~aphic distribution of both households and employment in Brernenon and the region, as well as characteristics of households and jobs. To ensure that model results realistically reflect actual and projected travel patterns, the year 2000 model was validated against actual year 2000 traffic counts. The resulting EMME/2 model for the City of Bremerton provides year 2030 PM peak hour link volumes on all arterial streets for the year 2030 based on the land use and transportation network assumptions that are consistent with Kitsap County and PSRC models. Refer to Appendix B for a more detailed discussion of travel demand modeling assumptions and methodology. 3.2 TRANSPORTATION AND LAND USE ALTERNATIVES TESTED The Land Use Element of the Comprehensive Plan describes a land use approach that forms the foundation of the entire Plan. That approach is called the "Centers Concept". The Centers Concept assumes that during the twenty-year planning period (2003-2023) between 50 and 60 percent of new " ' ' od" development in Bremerton will be concentrated either in the downtown or seven nelghborno or "district" centers. Population projections prepared for the Plan assign appropriate populations and related employment to these specific locations. The designated centers tend to be located along existing arterials. Transportation network alternatives were tested for three future land use alternatives: a "no action" alternative in which non-centers development partems continued, and two somewhat distinct land use alternatives that rely on (the same set of) centers. The results of the modeling indicate that there are no statistically significant differences in traffic generation, predicted future LOS, or other empirical measures between the various land use alternatives. The various transportation network alternatives described in the follo~ving sections, therefore, apply relatively equally to any of the land use alternatives that were examined. However, the centers model presents several transportation advantages not readily demonstrated by this analysis. For example, it is widely understood that the concentrated densities created under the Centers approach support and encourage more use of mass transit. It is also widely accepted that the mixed-use centers described in this Plan encourage increased pedestrian activity and some related reduction in automobile use. By focusing growth closer to the city center (reducing sprawl), the centers approach also facilitates more efficient use of existing streets - thus reducing future capital needs. All of these effects 554-I896-053 (OI/U$) City of Sreraerton Comprehe~sive plan 3-] FebruaO' 2004 283 are difficult to measure, but am accepted and known transportation advantages of the centers- based land use approach upon which the Comprehensive Plan is based. In addition to the No Action Alternative (Alternative 1), three different transportation network alternatives were tested and evaluated for the year 2030. The different transportation network alternatives included capacity improvements on some of the major transportation corridors in Brernerton that could affect overall travel patterns. Major Corridor improvements on SR 3, SR 303, and SR 310 were tested in different combinations to determine how different improvements on specific facilities would affect the overall transportation system. The land use and transportation network assumptions used for the No Action Alternative were also assumed to be in place for Alternatives 2, 3, and 4. The following additional transportation network improvements were assumed for each alternative: · Alternative 2 - Provide HOV lanes along SR 3 between SR 16 in Gorst and SR 303 in Silverdale. · Alternative 3 - Provide HOV lanes along SR 303 between i lth Street in downtown Bremerton and NE Fairgrounds Road in Kitsap County (these lanes would operate as general purpose travel lanes during off-peak hours of the day); and widen Kitsap Way (SR 310) to 7 lanes between 1 lth Street and SR 3. This alternative implements the preliminary preferred alternative on SR 303 (Alternative 13 -modified) as identified in the SR 303 Corridor Study completed in 2002. · Alternative 4 - Provide HOV lanes along SR 303 between 1 lth Street in downtown Bremerton and NE Fairgrounds Road in Kitsap County (these lanes would operate as general purpose travel lanes during off-peak hours of the day); widen Kitsap Way (SR 310) to 7 lanes between llth Street and SR 3; and provide HOV lanes along SR 3 between SR 16 in Gorst and SR 303 in Silverdale. 3.3 LEVEL OF SERVICE STANDARDS The Growth Management Act (GMA) requires the adoption of LOS standards for arterial streets to measure the performance of the transportation system. Consistent with the methodology used to calculate existing LOS, the LOS standards for streets in the City of Bremerton will be based on the peak hour link LOS. This methodology and the LOS thresholds are described in Section 2.4. LOS standards required by the GMA are closely related to the issue of concurrency. The GMA requires transportation improvements to be made concurrent with development. Once a street exceeds its LOS standard, the street must be planned for improvement within six years to a level that does not exceed the standard. If plans to improve the street would exceed the six-year timeframe, new development that would add traffic to the street could not be approved. For these reasons, LOS standards need to be carefully chosen for each local jurisdiction and for different arterials within a city or county. Level of service should desirably be the same on both sides of a city/county boundary; however, different transportation or land use goals on either side of a boundary can be legitimate reasons for two jurisdictions to establish different standards. LOS D is the standard used in most urban areas in the Puget Sound region, including the urban portion of Kitsap County. Kitsap County currently measures LOS using a methodology similar to the City of Bremerton, but calculates V/C ratios based on daily instead of PM peak hour volume and capacity. As shown in Table 2-3, several roadways in the City of Bremerton already exceed this LOS D threshold. In order to encourage growth in targeted areas of the City, a higher LOS standard (i.e., E or F) is recommended along several arterial corridors. Ci~ of Bremerto~l Comprehensive Plan 554-]89&053 (0l/~)3) 284 For consistency with other regional models and planning documents, which incorporate year 2030 population and employment forecasts, roadway capacity deficiencies were identified based on projected traffic growth over a 27-year period. However, preliminary LOS standards were developed considering that some facilities operating at LOS F in the year 2030 would meet lower LOS standards within the six- year planning horizon consistent with GMA and concurrency requirements. Figure 3-1 provides an example of how an LOS E standard could be set for a prototypical roadway segment. As shown in Figure 3-1, the example roadway segment currently operates at the LOS C/D threshold. By the year 2030, this roadway segment would operate at LOS F without any capacity improvements; however, the LOS E standard would not be exceeded until year 2016 assuming a straight-line growth th traffic volume. As shown in tl~s example, additional roadway capacity improvements would need to be plamaed by the year 2016 in order to meet the LOS E standard. In addition, since the LOS D standard would not be exceeded until approximately the year 2011, the LOS standard could currently be set at LOS D and still be consistent with GMA concurrency requirements. Figure 3-1 Traffic Growth vs. Volume to Capacity Ratios City ofBremerton Comprehenxive Plax 554-1896-053 (01/03J Final Transpo~¢~tion £lement 3-3 Februal? 2004 285 Based on the methodology described, as well as information contained in the 1995 Transportation Element of the Bremerton Comprehensive Plan, the following preliminary LOS standards are recommended for the City of Bremerton. Approval from the Planning Commission will be required in order for these standards to be put in effect: ~, Maintain LOS E or better (V/C less than or equal to 1.0) in the SR-303 (Warren/Wheaten) corridor, Kitsap Way (SR 310), Sylvan Way, and on the Manette Bridge. * Maintain LOS D or better (V/C less than or equal to 0.9) on ail other arterial streets in the City. The WSDOT sets LOS standards for Highways of Statewide Significance (HSS), including SR 304, SR 310, and SR 3 in the City of Bremerton. LOS D is set as the LOS standard for urban areas, except where development affects an intersection where the LOS is below the applicable threshold, in which case the pre-development LOS is used instead. The SR 303 (Warren/Wheaten) corridor is currently on PSRC's list of Regionally Significant (Non-HSS) State Highways. PSRC is currently leading an effort, with input from WSDOT and local jurisdictions, to develop and adopt LOS standards for regionally significant state highways in the central Puget Sound Region. In response to local concerns, PSRC staffhave developed recommendations for LOS standards. For SR 303, Option one would be to have the LOS standard set at LOS E/mitigated, which means that congestion should be mitigated when p.m. peak hour LOS falls below LOS E. Option 2, which is consistent with WSDOT's standards for HSS facilities, would set the LOS standard at LOS D. This is consistent with the LOS D or better threshold established previously in Section 3.3 of this Bremerton Transportation Element, except at a few locations where a LOS E threshold has been established. In the 1995 Transportation Element of the Comprehensive Plan, the Planning Commission Citizen Advisory Committee (CAC) suggested two locations where additional studies were needed to develop long-term solutions for improving LOS in the Warran/Wheaton and Ydtsap Way corridors. These suggestions include: · The City will initiate thepreparation ora cooperative city/county/state Wheaten }Vay/Brownxvdle Highway Corridor Study from Burwel! to Waaga Way. This jointly funded study was completed in June 2002. The recommended improvements developed as an outcome of this project, which include the addition of peak hour HOV lanes (general purpose lanes during off-peak) in both directions, were modeled in Alternatives 3 and 4 and are described in more detail in Section 4.1 of this transportation element. These improvements were considered in the development of preliminary LOS standards for the SR 303 (Warren/Wheaten) corridor. · The City will initiate the preparation of a cooperative city/county/state Kitsap Way Corridor Study, from llth Street to SR-3. This study has not yet been initiated because the traffic volumes on Kitsap Way have not increased significantly from 1994 to 2003. These suggestions were intended to provide clear direction to City staff to initiate these corridor studies, in cooperation with WSDOT, Kitsap County, and K/tsap Transit, prior to reaching the LOS standard established in each corridor. 3.4 FUTURE TRAFFIC VOLUMES AND LEVEL OF SERVICE PM peak hour traffic volume forecasts were prepared for the four alternatives using the transportation forecasting model. These volumes were used to calculate V/C ratios and to determine the future LOS of arterial streets in the City. The year 2030 traffic volume forecasts were prepared assuming that future travel characteristics would continue to be the same as they are today. The transportation forecasting Crt) ofB~ emerzon Comprehensive ?lan 5~4 J 8964053 (01/03) 286 model used for this analysis is limited in its ability to predict travel characteristic changes in the future as a result of: Increased transit use. Implementation of additional intra-county passenger ferries. · Spreading of the peak hour - as a facility becomes increasingly congested, some of the demand tends to shift to other times of the day, resulting in a spread of the peak hour. · Increased bicycle and pedestrian facility use. · Other demand management strategies such as telecommuting. These non-traditional travel demand adjustments could reduce the total peak hour volumes by as much as 10 percent. The largest reductions could occur from increased transit use and peak hour spreading. The LOS and V/C ratios for the four alternatives are summarized in Table 3-1. The LOS information presented in Table 3-I and graphically in Figures 3-2, 3-3, 3-4, and 3-5 show the LOS and V/C for the transportation knprovement assumptions identified in Section 3.I. (Appendix C contains a more detailed table showing the volume, capacity, V/C ratio, and LOS on the arterial street segments within the City of Bremerton). Table 3-1. Year 2030 Corridor Level of Service Alternative 4 Alternative - SR 3 HOV, 3-SR303 SR303HOV, Alternative Alternative HOV and and Kitsap Existing 1 - No 2 - SR 3 Kitsap Way Way (200'1) Action HOV Widening Widening VIC VIC VIC VIC VIC Street Section Ratio LOS Ratio LO; Ratio LOS Ratio LOS Ratio LOS West Bremerton 6th Street iWashington to Warren 0.20------~-' i 0.46~ 0.47 B 0.45 13 0.4~ B 6th Street iWarren to Callow 0.51 C 0.61 C 0.62 C 0.64 C 0.65 C 11th Street iWashington to Warren 0.27 A 0.25 A 0.26 A i 0.34 B 0.34 B 11th Street iWarren to Kitsap 0.55 C 0.66 C 0.67 C 0.66 C 0.67 C 15th Street I High to Callow 0.35 B 0.62 C 0.62 C 0.63 C 0,62 C Auto CenterWay iSouth of Kitsap Way 0.43 t3 0.71 C 0.57 C 0.70 C 0.56 ! C Auto Center Way ',North of Werner 0.19 A 0.26 A 0.21 A 0.23 A 0.20 A Burwell Street }Washington to Warren 0.19 A 0.38 B 0.37 B 0.36 B 0.36 B (SR 304)4 Burwell Street iWarren to Naval 0.41 B 0.94 E 0.89 D 0.98 E 0.95 E (SR 304)~ Burwell Street !Naval to Callow 0.38 B 0.81 D i 0.79 D 0.82 D 0.79 D (SR 304)8 Charleston Blvd. 'Farragutto Burvve 0.55 C i 1.18 F 1.11 F 1.24 F 1.14 F (SR 304)" Callow Avenue 6th to 11th 0.40 B 0.63 C 0.63 C 0.64 C 0.63 C Charleston Blvd iPreble to Farragut" 0.56 C 0.99 E 0.96 E 1.01 F 0.96 E CiO' of Bremerton Comprehensive Pint! 354-1896-033 (01/03) Final D'anspol~atioll Element 3-5 FebruarT 2004 287 Table 3-1. Year 2030 Corridor Level of Service (continued) Alternative 4 Alternative - SR 3 HOV, 3-SR303 SR303HOV, Alternative Alternative HOV and and Kitsap Existing 1 - No ' 2 - SR 3 Kitsap Way Way (2001) Action HOV Widening Widening ViC ViC ViC VIC VIC Street Section Ratio LOS Ratio LOS Ratio LOS Ratio LOS Ratio LOS West Sremerton (continued) HadowDr[ve ~lsttoPdce 0.12 A 0.08 ~ A ~ 0.09 A 0.08 A 0.09 ~ A HighAvenue ~6thto15th 0.21 ~ A 0.39 ~ B 0.40 B 0.38 B 0.39 B KitsapWay(SR310)a~No~hofllth 0.86~ D 1.07 F 1.04 ~ F 0.83 D 0.81 ~,D KitsapWay(SR310)~EastofNationa{ 0.86 D 1.10 F 1.10 [ F 0,83 D 0.83 D KitsapWay(SR310)a~WestofNa0onal 0.72~ C 1,02 F 1.00 ~ F 0.75 C 0.72 C KimapWay(SR310)a~EastofSR3 0.73~ C 0.99 E 1.02 ~ F 0.73 C 0.74 ~ C K~tsapWay SR-3toNo~[akeWay 0.34 B 1.00 ~ E 0.90 D 0.96 E 0.89 D Loxie EagansBIvd. ~E/O SR-3 0.42 B 0.40 B 0.40 B 0.38 B 0.41 ~ B ~ D 0.84 D Manege Bridge ~ 0.48 B 1,04 F 0.96 E 0.87 * NationalAvenue Kitsap to City Limits 0.74 C 0.81 D 0.76 D 0.85 [ D 0.81 D Naval Avenue ~Bu~ell to 11th 0.28 A 0.26 A 0.25 A 0.28 A 0,~ A Pacific Avenue Bu~ell to 11th 0.22 A 0.14 A 0.15 A 0.13 A 0.14 A SR-304 a SR-3 to Prebie (GP 0.59 C 0.86 D 0.85 D 0,89 D 0.84 D ',SR-3 [o Preble (HOV) * 0.70 C 0.71 C 0.65 C 0.70 C Wa~en Avenue [Bu~ell to 11th 0.35 B 0.65 C 0.63 C 0.76 D 0.7~ C (sR3o3) c ', ' o.s5 D o.s D 0,81 d 0.65 C 11~ to Bddge HOV ~_ .................. ..... Bridge to Caltahan 0.~0 D 0.54 C (HOV) [ Washin¢on Avenue 6th to Bu~el] 0.26 A i 0.48 B 0.44 ~ B 0.48 B 0.43 WemerRoad EastofAutoCenter 0.35 B ~ 0.50 C 0.49 B 0.47 B 0.48 B w~y _ ~ ~ ..... Wemer Road West of Auto Center 0.77 D 1.08 F ~ 1.04 F 1.03 F 1.01 Way ~ ~ Per~ Avenue E, 11th to Riddel~ 0.40 B 0.91 E 0.90 D 0.87 D 0.86 D Pine Road Sheridan to Riddell 0.45 B 0.78 D 0.71 C 0.70 C 0.66 C Riddell Road Pine to ~eaton 0.46 B 0.70 C 0,70 C 0.72 C 0.73 C RiddelIRoad Wheaton to Petersville 0.58 C 0.94 E 0.92 E 0.92 [ E 0.92 E Sheridan Road Wheaton to Hatverson 0.52 C 0.90 E 0.93 E 0.98 E 0.98 E Sylvan Way Wheaton to Petersville 0.87 D 1.00 E 1.05 F 1.12 F 1.14 F Trenton Avenue E. 11th to Stone ~0.28[ A 0,56 C 0.48~ B 0.39 B ~:~ 288 Table 3-1. Year 2030 Corridor Level of Service (continued) Alternative 4 Alternative - SR 3 HOV, 3-SR303 SR303HOV, Alternative Alternative HOV and and Kit. sap Existing 1 - No 2 - SR 3 Kitsap Way Way (2001) Action HOV Widening Widening ViC ViC ViC ViC VIC Street Section Ratio LOS Ratio LOS Ratio LOS Ratio LOS Ratio LOS Warren Avenue !Callahan to Sheridan !0.88 D 1.23 i F 1.17 F i 1.13 I F 1.08 F (SR 303)b i GP) I ! I ! I !l iShefidan to Ridde]l i0.90 D i 0.97 I E I 0,95 E ] 0;94 I E 0.92 ] E ~;;~l-;~to R c~ell i I I 0.73 j C 0.55 i, C (NOV) i ! I i a Designated as a Highway of Statewide Significance (HSS). b Currently nominated for HSS designation. c No recent traffic counts have been conducted at this Iooation since traffic volumes have not significantly change in this area since 1994 the year 1994 traffic volume is shown. Ci0, of Bremerton Comprehensive Plan 55,1-1895-053 (Ol/O~ Final Transportation Element 3- 7 FeMuan.' 2004 289 1_1 /~ Ir- I F~J I CITY OF BREMERTON COMPREHENSIVE T~NSPORTATION PLAN Figure ) LEGEND Alternative 1 (No Action) SCALE IN FEET Year 20~0 Level of Semite ]. I ~ LOS, V/C o 1250 25o0 and Volume to Capacity Ratios Western Potion 290 SYLVAN W^Y~ / CITY OF BREMERTON COMPREHENSIVE T~NSPORTATION PLAN Parametrlx o,~: ~/o~/o~ ~,~ .~o~o,,o~-~,-~ Figure 3-2 (continued) LEGEND Alternative 1 (NoAction) ~CALE IN FEET Year 2030 Level of Se~ice and Volume to Capacity Ratios o ~2s0 2500 Eastern PoAion 291 t '-) '" · · \ I ~:/,'-' : ...... " II "I i r~] I I ~' I~ I( I .I F~J i N I I / CITY OF BREMERTON COMPREHENSIVE T~NSPORTATION PLAN Figure 3-3 LEGEND SCALE IN FEET Alternative 2 ~ ~ [-- ~ LOS/V/C Year 2030 Level of Se~ice 0 ~2~0 2500 and Volume to Capactiy Ratios Western Potion 292 / CITY OF BREMERTON COMPREHENSIVE T~NSPORTATION P~N Figure 3-3 (continued) ;CALE IN FEET ~ LEGEND Alternative 2 I~ ~]~) ~ LOS~WC Year2030 Level of Se~ice 0 ~250 2500 and Volume to Capacity Ratios Eastern Podion 293 '~.. \ /~' :' ~ I ~ ' ~ " ) /, ,-, ' ~ Ir~ I J L I I I / CITY OF BREMERTON COMPREHENSIVE T~NSPORTATION PLAN Parametrlx ~*~: o~/~/o~ ~,E: '1~96D53PO]TOS-F3-' Figure 34 LEGEND Alternative 3 SCALE IN FEET ~ ~OS/WC Year 2030 Level of Se~ice o ~250 250o and Volume to Capacity Ratios Western PoAion 294 ' ~ ~ ~ ~HERIDAN ROAD / CITY OF BREMERTON COMPREHENSIVE T~NSPORTATION PLAN Figure 3-4 (continued) ~CALE IN fEET ~ LEGEND Alternative 3 i [~~ ~ cos/v/c Yoar2030 Level of Se~ice o ~2s~ 2s00 and Volum~ to Capacity Ea~torn ~o~ion 295 / / I ~ L1 J r~J / CITY OF BREMERTON COMPREHENSIVE T~NSPORTATION PLAN Figure ~-5 SCALe ~N ~ee~ ~ LEGEND Alternative 4 J ~~ ~ uas~wc Year2030 Level of Se~ice 0 ' ~50 2500 and Volume to Capacity Ratios Western Podion 296 CiTY OF BREMERTON COMPREHENSIVE T~NSPORTATION PLAN Figure 3-5 (continued) SCALE IN FEET ~ LEGEND Alternative 4 Year 2030 Level of Se~ice [ ~ ~ LOS/V/C 0 1250 25OO and Volu~e t~ 6apaoity Ratios Eastern 297 Based on the LOS analysis, the streets shown in Table 3-2 would exceed the year 2030 LOS standards established in Section 3.3. Table 3-2 also shows that in the year 2009 (six-year horizon for GMA concurrency), none of the roadway segments shown would fall below the proposed LOS standards. Table 3-2. Roadway Segments Exceeding LOS Standards in Years 2009 and 2030 - by Alternative Year 2030 Alternative 4 Alternative 3 - SR 3 HOV, - SR 303 HOV SR 303 HOV, Proposed Year Alternative Alternative and Kitsap and Kitsap LOS 2009 No 1 - No 2 - SR 3 Way Way Facility Standard Action Action HOV Widening Widening Burwell Street from LOS D I meets LOS E meets LOS E LOS E Warren to Naval ~1 standard standard Charleston Blvd. (SR304) LOS D ,~ meets LOS F LOS F LOS F LOS F from Farts ut to Burwe standard Kitsap Way (SR 310) LOS E meets LOS F LOS F meets meats between 11th and SR 3 standard standard standard SR 304 between Preble LOS D [ meets LOS E LOS E LOS F LOS E and Farragut i standard ~ Manette Bridge LOS E 't meets LOS F Imeets meets meets ',standard ~, standard standard stand¢,d Warren Bddge (SR 303) LOS E I meets LOS F I LOS F LOS F LOS F standard Warner Road west of Auto LOS D meets LOS F LOS F LOS F LOS F Center Way standard Perry Avenue from 11th to LOS D meets LOS E meets meets meets Riddell standard standard standard standard Warren Avenue (SR 303) LOS E meets LOS F LOS F LOS F LOS F from Ca[lahan to Sheridan standard Perry Avenue from 11th to LOS D meets LOS E meets meets meets Riddell standard ' I standard standard [ standard ..................................... ~ .............. ~ .......... w- ......... ............... ~ .................. Riddell Road from i LOS D meets LOS E LOS E LOS E LOS E Wheaton to Petersville ~: standard Sheridan Road from ~ LOS D I meets LOS E LOS E LOS E LOS E Wheaton to Halverson i standard Sylvan Wayfrom Wheaton ~- LOS E i meets meets LOS F LOS F LOS F to Petersville I ! standard standard As shown in Table 3-2 twelve roadway segments would operate below proposed LOS thresholds by the year 2030 if no significant roadway capacity improvements are made (Alternative 1 - No Action). If HOV lanes are added along SR 3, as represented by Alternative 2, V/C ratios would improve along the SR 303 (Warren Avenue/Wheaton Way) corridor, on the Marietta Bridge, and along Perry Avenue in East Bremerton. Some LOS improvement would also be expected along Burwell Street between Warren Avenue and Naval Avenue. An increase in traffic volumes is expected along some east-west arterials in East Bremerton, including Sylvan Way, which would operate at LOS F with Alternative 2, 3 or 4. Cio, qf Breme~ lo~ Comprehensive Plan 554-1896-053 (Oi /03) 298 Alternative 3, which provides HOV lanes along SR 303 and widens Kitsap Way to 7 lanes between 1 lth Street and SR 3, would further improve V/C ratios along the SR 303 corridor. The additional capacity provided along Kitsap Way would also improve LOS to D or better in the year 2030 along this corridor. Some worsening of LOS would be expected along SR 304 (Cambrian Way) between Preble Street and Farragut Avenue due to increased traffic volumes along SR 303 and SR 304 between East Bremerton and Gorst. As shown under Alternative 4, V/C ratios along SR 303, K/tsap Way, Perry Avenue, and the Warren and Manette bridges would further improve if HOV lanes are provided along SR 3 in addition to the improvements proposed for SR 303 and Kits ap Way. The following arterials would continue to exceed the established LOS thresholds in the year 2030 with some or all of the proposed improvement alternatives: Burwell Street (SR 3 I0) from Warren to Naval (LOS E - Alternatives 1, 3, and 4) · Charleston Blvd. (SR 304) from Farragut to 6th (LOS F - all alternatives) · SR 304 between Pmble and Farragut (LOS F Alternative 3, LOS E - Alternatives 1,2, and 4) · Wemer Road west of Auto Center Road (LOS F - all alternatives) · Warren Avenue (SR 303) fi.om Callahan to Sheridan (LOS F - all alternatives) · Riddell Road fi.om Wheaton to Petersville (LOS E - all alternatives) · Sheridan Road from Wheaton to Halverson (LOS E - all alternatives) · Sylvan Way from Wheaton to Petersville (LOS F - alternatives 2, 3, and 4) These roadway segments would likely operate at acceptable LOS through the year 2009. However, capacity improvements would need to be implemented or LOS thresholds would need to be changed at many of these locations before the year 2030. Alternatively, increased Transportation Demand Management and Transportation Systems Management strategies such as increased bicycle or transit use, telecommuting, or other measures could provide an acceptable LOS. This section of the report describes the transportation facility improvements and costs needed to accommodate the future travel demand resulting from increased growth in the City of Bremerton. In addition to the roadway facility improvements, transit, ferry, pedestrian, bicycle, and transportation demand management strategies are also identified in this section of the plan. 4.1 ROADWAY IMPROVEMENT OPTIONS 4A.1 Roadway Capacity Improvements The results of the future travel demand forecasts have highlighted the importance of the SR 303 (Warren Ave./ Wheaton Way), SR 310 (Kitsap Way), and SR 304 corridors to the City of Bremerton. Improvements to these major travel corridors are rccmnmended to addcess existing and future roadway capacity deficiencies in the City of Bmmerton to meet GMA requirements. The improvement options for each of these major travel corridors are discussed below. (1) SR 303 (Warren Ave./VCheaton Way Corridor): The results of the Year 2030 traffic volume forecasts and LOS analysis highlight the operations in this corridor with and without improvements to the SR 303 corridor. If the future growth in population and employment occurs as assumed in these traffic forecasts, the SR 303 (Warren Ave./Wheaton Way) corridor would operate at or better than the LOS E standard (V/C = 1.0) through the year 2009 (six-year horizon for GMA concurrency). Segments of SR 303 north of Sheridan Road and south of 1 lth Street would continue to operate acceptably through the year 2030; however, Warren Avenue between 16th Street and Sheridan Road would worsen to LOS F by the year 2030. This segment of the SR 303 corridor should be monitored for capacity deficiencies beyond the year 2009. In June 2002, the SR-303 Corridor Study was completed. This 2-year cooperative city/county/state study documented the process used to select a Proposed Action Alternative for the Wheaton Way/Brownsville Highway Corridor Study from Bunvell to Waaga Way. The SR- 303 Corridor Study involved an alternatives analysis of all potential options, including aCthtional bridge crossings over the Port Washington Narrows and Dyes Inlet, improved arterial connections, arterial improvements, and transportation systems management (TSM) or TDM strategies, to decrease the future travel demand in the Warren Ave./Wheaton Way Corridor. The Proposed Action Alternative, which incorporates some TSM and TDM elements, prLmarily involves improving the capacity of SR 303 by adding HOV lanes to the corridor, beginning south at llth Street in downtown Bremerton and extending north to NE Fairgrounds Road in Kitsap County. The road widening improvements include expanding SR 303 from its current five-lane configuration (two lanes in each direction with center two-way left-turn lane) to six lanes plus additional turn lanes and U-tums at signalized intersections. The added travel lanes would be designated for HOV use during the AM and PM peak periods and open to all traffic during other times of the day. Refer to Section 5, "Financing and Implementation Plan" for further discussion on the relationship between the SR-303 Corridor Study and the GMA's concurrency requirements. As discussed in Section 3, once the LOS standard for a particular roadway is exceeded, the City of Bremerton would have six years to plan improvements to the facility to be in compliance with the LOS standard. Since the process for selecting and ultimately constructing improvements in this corridor would likely require more than six years to complete, the Environmental Impact 554-i896-053 (01/03) Ci,'v of Bremerton Compret, ensive Statement (EIS) for the SR-303 Corridor Stndy's Proposed Action Alternative needs to begin well before the LOS standard is exceeded in the Warren Ave./Wheaton Way Corridor. Otherwise, future development approvals could be affected in this area. (2) Kitsap Way: Capacity issues on Kitsap Way are analogous to the Warren Ave./Wheaton Way Corridor, except the improvement options may be more limited on Kitsap Way. The improvement options for ensuring that the LOS E standard (V/C = 1.00) is not exceeded in this corridor are: - Widening Kitsap Way, with the added lanes open to all traffic. (The LOS analysis indicates that seven lanes on Kitsap Way in the year 2030 would result in LOS D conditions on Kitsap Way, which would meet the proposed LOS E standard with a V/C ratio of 1.0. ) Widening Kitsap Way with the added lanes reserved for HOV or transit use only. - Improving a parallel route to the east into downtown Bremerton. An improved connection between SR~3 and downtown Bremerton could shift some of the future volume growth on Kitsap Way to other corridors. Similar to the SR 303 (Warren Ave./Wheaton Way) corridor, a comprehensive evaluation of this corridor should be conducted prior to recommending a preferred improvement strategy. (3) SR 304 (Naw? Yard Highway/Charleston Blvd/Burwell Corridor) The SK 304 project includes a series of improvements to SR-304, fi'om SR-3 to the Bremerton Transportation Center in downtown Bremerton. This project facilitates increased mobility and safety, and improves access between the regional highway system and downtown Bremerton. Within the City, improvements include a realigned arterial route west of and adjacent to Puget Sound Naval Shipyard and an expanded Kitsap Transit Base Facility connecting to Charleston Blvd. south of BurweI1 Street. Improvements into the downtown and connection to the Bremerton Transportation Center at the ferry terminal are provided with improvements to Burwell Street. Other improvements to the downtown section include traffic signal and illumination upgrades, sidewalk widening and other pedestrian improvements. ~ " Altematives that were reviewed as part of the SR 304 project included potential new corridor routes between Gorst and Bremerton via the Loxie Eagans/SR-3 interchange to the north. However, operational concems, environmental Impacts and community opposition resulted in these alternatives being dropped from further consideration. Required environmental review for the project at the state and federal level was completed in 1995, with construction of the various sections starting in 1996. The improvements fi.om downtown along Bur,veil Street and on Charleston Blvd to Preble Street have been completed. The segment from the PSNS Missouri Gate to Preble Street is currently under construction. The "Downtown phase" is expected to be completed in 2004. The final "Navy Yard Highway" phase of the project is anticipated to be completed by 2007. 4.'1.2 Operational, Safety, and Other Improvements In addition to the major corridor improvements discussed above, there are a number of smaller-scale improvements that can be considered to improve traffic operations and safety. Many of these improvements address existing operational, safety, and other deficiencies identified in Section 2.8. These improvements include: CiO' of Bremerton Comprehensive P/an 554-1896-053 (0/,'03) Fina! Transpol'tatio~i Eleme~lt 4-2 Februao' 2004 381 (1) Downtown BTC Access/Pedestrian Improvements: The project seeks to improve traffic operations and pedestrian mobility in downtoWn Bremerton, separate regional from local vehicle trips, improve multimodal local, transit, naval and ferry traffic movement, maintain system continuity between the Washington State Ferry System and SR 304, enhance the function of the BTC, and improve access to the downtown core. The project includes the study of various alternatives that improve transit, pedestrian, bicycle, and vehicle circulation in downtoWn Bremerton. The alternatives include: (1) a two-lane tunnel between the ferry terminal and Burwell Street between Pacific Avenue and Park Avenue; and (2) a surface alternative which would relocate the primary ferry terminal exit route fi.om Washington Avenue to 1st Street/Pacific Avenue/Burwell Street. (2) Auto Center Way between Kitsap Way and the SR-3 On-Ramp: Channelization improvements are needed in this section of Auto Center Way to address existing operating deficiencies duc to the dual left turn lane on Kitsap Way transitioning to a single through lane on southbound Auto Center Way. (3) Lower Wheaton Way between Sheridan Road and Callahan Drive: This project would realign this section of roadway to improve safety and operating characteristics at the intersection of Lower Wheaton Way and Sheridan Road, and improve access to the Harrison Hospital area. (4) Warren Avenue at llth Street: This intersection is currently congested during the PM peak hour and has a high accident rate. Improvements are needed to address existing operational deficiencies and to improve safety. (5) Warren Ave. southbound off-ramp to Callahan Drive: This project would improve signalized intersection operations at the SR-303/Sheridan Road intersection by lowering southbound left- turn volume and improve access to Harrison Hospital. This project is scheduled to be complete in the year 2005. (6) Manette Bridge Replacement: This project would replace the Manette Bridge in its present location using State o£ Washington bridge replacement funds. This project is currently funded by WSDOT in the 2007-2009 biennium. (7) Sylvan Way~ Burwell Street~ Callow Avenue~ and SR 304: Intersection and arterial operations along Sylvan Way east of Wheaton Way, Burwell Street, Callow Avenue north of 1st Street, and SR 304 between Preble and Farragut should be monitored to determine when and what type of capacity improvements would be warranted. (8) Loxie Eagans Blvd./Arsenal Way and 1st Street to SR 304 connections: Improving arterial comaections west of the Puget Sound Naval Shipyard and near the SR 3/SR 304 interchange, ha particular, the connection between 1st Street, Loxie Eagans Bird/Arsenal Way and SR 304 should be improved~ Streets in portions of this corridor are narrow and have limited pedestrian facilities and there am no continuous arterial routes in this area. (9) Other miscellaneous channelization or traffic control improvements to reduce accidents as warranted: These projects could include improvements to the high-accident locations listed ia Table 2-3, Note that intersections listed in Table 2-3 do not imply that the City of Bremerton has a responsibility for improving each of these intersections. The intersections were identified to assist the City with prioritizing improvements based on safety issues. 554-1896-053 (OL/03) Cir)' of Bremerto~l Comprehe.stve Pia~ 4-3 Februa~ 2004 302 4.2 TRANSIT SERVICE AND FACILITY IMPROVEMENTS Future transit service and facility improvements in Bremerton are documented in Kitsap Transit's Transit Development Plan (2001-2007). This plan includes a Six-Year Capital Plan (2001-2007), a list of Capital Priorities (2007-2027), and Long Range Concept Plans. The plan addresses transit service, routes and fleet, park-and-ride lots, HOV facilities, transfer c~nters, ferry terminals, multi-modal improvements, and operations and maintenance. Transit service is and will continue to be important for the City of Bmmerton to achieve its transportation and land use vision identified in the Comprehensive Plan. Transit connections to the Bremerton Ferry Terminal and PSNS are two of the obvious examples that emphasize the importance of transit service in the City of Bremerton. In both of these examples, a limited supply of long-term parking has created the demand for alternatives to the single-occupant vehicle (SOV). Key elements of the Kitsap Transit Plan that relate to the City of Bremerton's transportation plan are summarized below · Promote the use of public transportation while sustaining the existing public transportation facilities and equipment~ Kitsap Transit's strategies include reducing the cost per passenger fi`om $4.18 to $3.92 and ensuring that vehicle costs per mile do not exceed 51 cents. In addition, commute trip reduction (CTR) and travel demand management (TDM) measures will be used to promote the use of public transportation. · Build partnerships between federal, state, regional, local and private sector public transportation entities to improve public transportation planning and coordinate service delivery. · Integrate public transportation services into a coordinated system linked by inter-modal facilities. Fully coordinate multi-agency (City of Bremerton, Sinclair Landing Association, WSF and Port ofBremerton) Bremerton Transportation Center operations and maintenance. · Increase ridership and improve connectivity to the Bremerton Transportation Center by expanding East Bremerton park-and-ride lots and develop a Memorandum of Understanding with the Department of Transportation on the McWilliams Park-and-Ride lot leading to a public/private project for an expanded lot in the vicinity of the current one. · Improve mobility by increasing ACCESS ridership and re-planning the transit service network in East Bremertun to include new trip generators and a trunk route between east Bremerton and Silverdale. · Enhance and build facilities to improve urban public transportation services, facilities, and programs. This includes the development of high capacity transit (HCT), HOV lanes, and TDM to meet local and regional economic development, congestion, energy, and clean air objectives. As part of this effort, Kitsap Transit will develop and coordinate more Worker/Driver buspools, vanpools and other Ri&share services to the Puget Sound Naval Shipyard in 2001, along with other major employers. V~q~ile transit service within Bremerton is the responsibility of Kitsap Transit, the City needs to work closely with Kitsap Transit since most of their future service and facility improvements wilI affect the City of Bremerton's transportation system. This spirit of cooperation has already been established through the implementation of the parking management program in the Puget Sound Naval Shipyard vicinity and the transit signal priority system on the City's arterial streets. K.itsap Transit's capital plan relies on the endorsed recommendations made in March 1997 by the multi- jurisdiction steering committee. Table 4-1 describes the transit development plan approved by the committee in detail. Cio~ of Bremerton Comprehellsive Plan 554~I 896-053 Final Trar~sportation Element 4-4 Februa~3, 2004 303 Table 4-1. Kitsap Transit 2002-2007 Transit Development Plan Six Year Capital Plan (2001-2007) -~..... Deve!pP~ ~)V !ac!!it!es,.._wi!~..~eu?.cut or I~.byj~s~.!n'~t!og _i.~.__.c~._n.j~_c..t!~.~i~ ~i~a~.~r~od~[~ig~. ...~se~ ~ree~.~ [ig~-~7~y ~ ~pres~ fe~.~q~.[~. ~[_m~i~.~a~ ~t~t~ye~ ................... Extend vehicle se~ice and life ~enever feasible; purchase used and mha~litated equipment unle~ compelling advan~ges are known ~r new equipment. Pa~icipate in ~e mgiona~ program D develop .... ~/~ric ~.[0[ ~h~ ~_,.~ithe~d p~.q~[~_~n~_~..~ye_~~ ................................ Obtain additiona~ ~pitar resources to complete Phases C, D, and E of the B~medon Transpo~ation Center. Develop the cent~l Main Ba~ to include bus-washing capabilities, more bus pa~ing and a ~e~ing is~nd. E~gnsion will be made to the Nodh Base and eventua~12 it will be made into ~per~nent location. ~ncrease ~e capacity of park-and-ride lots that are currently at or near capadty. Imp~vemen~ will be made the Breme~on Gateway pa~ing lot to have no~profit daycare se~ice, health,re, job skills training and literacy programs. Capital Priorities (2007~027) Complete expansion of B~me~on Transpo~ation Center (Phases C and Complete conceptua~ p~limina~ design work for the Si~h and Montgome~ Transit-Oriented Development (TOD) and submit a Livable Communities grant in year 2002. Improve McWilliams park-and-ride lot. Long-Range Concept Plans · TOD at the following locations: 6~ and Montgome~, Wheaton Way and McWilliams, and Whea=n Way and Sheridan, and Westside. · Breme~on Transpo~ation Center follow on ~ncepts, including Expansion to Pacific Avenue (Phase C), Enetai Building (Phase D), and te~inal e~ension to new Nava~ Museum (Phase · Anapolis Concept Plan: Po~ Orchard Fern, Te~inal · Albe~son's Coop: adapt~e use of vacant tot on Sheridan Road · Small hybrid-ele~ric development pro,ss - wou~d involve paHne~hips with Pacifica and the Concu~ent Technologies Co,option. · Shelton Commuter Rail: Existing heaW fair semite ~om She~ton to the B~me~on Transpo~ation Center. Source: KitsaD Transit Transit Deve~opmen~ P{an, 200~-2007 4.2.1 Proposed Transit Projects Kitsap County is in the process of identifying a feasible transit solution to increase mobility along the entire length of SR 303, which includes downtown Bremerton and Silverdale. Transit options include: · Bus Rapid Transit (BRT) between Kitsap Mall in Silverdale and Bremerton Transit Center. The preferred alternative extends from the Bremerton Transportation Center north along Washington Avenue, across the Manette Bridge, north on old Wheaton Way and Cherry Street to a new Transit Center located between Old Wheaton Way and Sheridan Street. From there, the system would enter SR 303, and continue north to SiNerdale. · A local bus system that provides access to the BRT line, or directly to Bremerton Transit Center. · Transit centers that facilitate convenient transfers between the local transit routes and BRT · Adequate parking for access to the corridor, either free or paid depending on the level of convenience o,ffered and/or the cost of par 'king at private development projects. · Land use strategies that encourage denser multi-use development around stations, which will provide new opportunities to live and work in Bremerton-Silverdale area without relying on an automobile for all trips. 31t4 In PSRC's Destination 2030 MTP, PSRC has identified transit improvement projects that would enhance transit in the City of Bremerton and Kitsap County. These projects include building an East Bremerton Transit Center by the year 2010, and providing transit priority throughout Kitsap County by the year 2008. 4.3 FERRY SERVICE AND FACILITY IMPROVEMENTS Since completion of the WSF System Plan in 2002, WSF had to reevaluate their ferry services due to budget cuts. Consequently, WSF implemented a Strategic Plan, Capital Funding Plan, and Business Plan in the fall of 2002. The goals of the Strategic Plan were to refine their business practices, broaden their revenue base and reduce costs, promote and assist in the planning of regional Transportation Centers, and redefine their mission. The Business Plan focused on the opemtianal elements of the ferry system, and developed policies to improve their revenue source. Elements of the Business Plan included reducing operational costs, increasing passenger fares and generating new revenue. The Capital Funding Plan identifies inunediate capital needs, including services such as maintenance projects and new vessel construction. To meet these needs, WSF determined that they would have to reduce ferry service. From 2003 to 2005, WSF adopted the frrst phase of the Capital Funding Plan. This included discontinuing all passenger-only ferry service between Seattle and Bremerton. The second phase (Longer Range Plan) of the plan fi.om 2005 to 2013 proposes to build at least 2 new boats, and relocate an existing ferry terminal. There are no additional route changes proposed between Bremerton and Seattle. However, WSF is exploring adding a new auto ferry route from Vashon and Southworth to downtown Seattle. Kitsap Transit proposed to take over WSF's passenger-only ferry service between Bremerton and downtown Seattle. To fund this new service, Kitsap Transit proposed to increase sales tax and motor vehicle excise tax. The ferry service would have operated as an extension of Kitsap Transits existing bus and paratransit service. However, the passenger-only ferry proposal failed in the November 2003 election. The proposed passenger-only ferry would have been an important lh:~k for the City of Bremerton to meet their future goals and vision of creating a strong multi-modal transportation network for the city. The City of Bremerton should continue to promote restarting the passenger-only ferry route between Bremerton and downtown Seattle, as this service would provide Bremerton commuters a convenient, dependable and fast'way to commute between the City of Bremertan and Seattle. In 2002, Kitsap County purchased the passenger-only ferry from Horluck Transportation, to provide multi-modal transit access across the Sinclair Inlet from Port Orchard and Annapolis to the passenger- only ferry terminal in downtown Bremerton. This ferry route allows Kitsap Transit to minimize bus service through Gorst. The ferry service would have expanded hours of operation seven days a week and during holidays, and would function as an extension of Kitsap Transit's bus routes. Kitsap Transit's top priorities for the new ferry service are to renovate the Port Omhard dock so that it is in compliance with environmental regulations and the Americans with Disabilities Act (ADA). In addition, Kitsap Transit plans to improve connectivity between the passenger-only ferry and existing bus transit routes. In PSRC's Destination 2030 MTP, improvements to the existing Bremerton Transit Center by the year 2010 were identified. Four phases of the project were identified, phases A-D. Phase s A and B, and parts of phase C have been completed. Improvements include an expansion of the car holding at the dock, an elevated transit deck, and an expanded waiting terminal. The completion date for the remainder of phase C and all of phase D are scheduled for 2010. These projects include a new WSF tollbooth and terminal agent office, covered Kiss-and-ride area, an electric vehicle parking facility, structural improvements, and promoting mix-use development at the transit center. CiO, of Bremerton Comprehensive Plan 554 1896-053 (01/03,~ Final Transpomatior, Element 4-6 Februa©, 2004 305 4.4 PEDESTRIAN AND BICYCLE IMPROVEMENTS Pedestrian and bicycle facilities are becoming increasingly important to complement other elements of the transportation system. For Bremerton, the trips that have the greatest potential for shifting to a non- motorized travel mode include trips to and fi.om transit and ferry terminals and short trips for shopping, errands, and other purposes. Improving safety for pedestrians and bicyclists is also critical to advance this form of transportation. Bremerton currently has a reasonably complete network of pedestrian and bicycle facilities in the downtown area where sidewalks exist on all major streets. With the planned increase in density in the downtown area, pedestrians and bicycle facilities will be important to accommodate trips to and fi.om the ferry terminal and short trips to various downtown destinations including the PSNS. The existing bicycle routes shown on Figure 2-8 provide a complete network of bicycle routes for traveling between major destinations within Bremerton. The two transit transfer stations located at the Wheaton Way/Sylvan Way intersection and on Auto Center Way south of Kitsap Way and the combined transit transfer station/ferry terminal in downtown Bremerton need to be made fully accessible to bicyclists and pedestrians. Improvements that can enhance pedestrian and bicycle access to these terminals include: secure and weather-protected bicycle storage and waiting areas, crosswalks and signal timing that give pedestrians equal advantage at intersections, and exclusive bicycle access lanes and wide sidewalks that connect to major residential and retail areas in the surrounding community. Providing safe and convenient local walking and bicycling facilities offer great potential for substituting bicycling and walking for short, intra-community vehicle trips. Facility improvements would include safety improvements at crosswalks in central areas, access to and across principal arterials, and removal of barriers to pedestrian and bicycle travel. Other improvements could include the provision of new sidewalks where they are currently nonexistent, too narrow, or deficient. In addition, a particular need has been identified to improve pedestrian access between Downtown Bremerton and the Manette Bridge and Evergreen Park area. Bromerton has adopted the Frontage Improvements for New Developments or Redevelopments policy, and has proposed new projects and improvement plans that would expand their non-motorized facilities. This policy is an effort to develop a complete non-motorized transportation fretwork in the future. The following is a summary of the requirements for new developments and redevelopments, and proposed new projects and plans. 4.4.1 Policy for Frontage Improvements for New Developments or Redevelopments Since publication of the 1995 Transportation Element, the Bremerton City Council has adopted a transportation development ordinance that requires frontage improvements for all new developments and redevelopments that occur in the City of Bremerton. One goal of this ordinance is to create more continuity between the existing non-motorized facility network and furore developments and redevelopments. In accordance with this ordinance, street frontage improvements shall be installed along the entire street frontage of the property. The improvements may include curb, gutter, sidewalk, storm drainage, street lighting, traffic signal equipment, utility installation or relocation, landscaping strip, trail, street trees and landscaping, h-rigation, street widening, turn pockets, and channelization or other improvements deemed necessary. Beyond the property frontage, ramps fi.om the new sidewalk or walkway to the property fi.ontage~ ramps from the new sidewalk or walkway to the existing shoulder, and pavement and channelization tapering back to the existing pavement and channelization as needed for safety and in CiO, ofBremerto~ Comprehenxive P!on 554-1896-053 (01'03) Final Transportation Element 4- 7 February 2004 386 accordance with accepted engineering practices shall be provided. In situations where the City Engineer determines that frontage improvements cannot or should not be constructed at the time of building construction, the applicant may pay the City an amount equal to the property owner's co st of installing the required improvements. 4.4.2 Projects and Improvements Planned for Non-Motorized Facilities Kitsap County published the KJtsap County Greenways Plan in the fall of 1996. The plan provided the county with the tools to successfully develop multi-modal connectivity and create a blueprint for preservation and enhancement of the areas natural resources. The Kitsap County Bicycle Facilities Plan and the Mosquito Fleet Trail Project were established under the umbrella of the Kitsap County Greenway Plan. The goal oft:he Kitsap County Bicycle Facilities Plan is to provide guidance to develop and expand the non-motorized system and to strengthen bicycling as a viable, safe and attractive form of transportation tkroughout the county. The Mosquito Fleet Trail Master Plan Project would provide non-motorized commuters 57 miles of trail corridor for use by bicycle and pedestrian trails along the eastern shore of the Kitsap County, cormecting historical Mosquito Fleet docks along the way. The trail would also provide access to major transit routes in Bremerton, including routes 11, 15, 20, 25, 26, and 29. In Bremerton, the Mosquito Fleet Trail would originate on Trenton Avenue and would terminate at SR 3. Table 4-2 summarizes the potential non-motorized improvements within the City of Bremerton included as part of the Mosquito Fleet Trail Master Plan. Table 4-2 Mosquito Fleet Trail Master Plan - Proposed Pedestrian and Bicycle Improvements Roadway Section Improvement Project 6 - Primary Routel Trenton Avenue iSytvan Way and t 1th Street Paved shoulders 1 1th Street Trenton Avenue and Manette Bridge Bicycle lanes Pitt Street Trenton Avenue and Manette Bddge Bicycte lanes Harkins Street 'renton Avenue and Manette Bridge iBicycle lanes Manette Bridge (WSDOT Project) Sidewalks and bicycle lanes Washington Avenue iManette Bddge and 6th Street iUse existing ROW - bicyclists would , ishare sidewalk with pedestrians Washington Avenue ~Manette Bridge and 6th Street iPaved shoulders 4th Street iWashington Avenue and Naval Avenue 1 way WB bicycle lane 5th Street Washington Avenue and Naval 1 way EB bicycle lane To Ferry Terminal =acific Avenue and 1st Street 1 way bicycle lane Naval Street i4th StreetJ5th Street and Burwell Street Bicycle lanes (will require removing a ftravel lane} Burwell Street Naval Street and Charleston Boulevard Bicycle lanes (will require removing a travel lane) CiO, of Bremerto~ Comprehensive ?lan 554-1896-053 (01/03; 307 Table 4-2. Mosquito Fleet Trail Master Plan - Proposed Pedestrian and Bicycle Improvements (continued) Roadway Section improvement Project 6 - Primary Route~ (continued) Charleston Boulevard Burwell Street and SR 3 Bicycle lanes (there has been ~discussion of removing the proposed Ibicycle lanes for parking, this is not adv sable) Project 6 - Secondary Route2 Alternative 1 ............................ ~ ...................... ~'~"~- !~ 304 and Port Orchard SR 304 Separated path Alternative 2 (in the event Alternative 1 is not i feasible) __ ~ Charleston Boulevard iPattem Avenue exit and Arsenal Way [Paved shoulders Project 7 - Primary Route~ SR 3 iSR 304 and Port Orchard iBicycle lanes and 5' wide pedestrian ;~pathway !Separate bicycle lanes and sidewalks SR 304 ';(the city has proposed replacing the Iproposed bicycle ianes and sidewalks ~ith parking, this is not advisable). Project 7 - Secondary Route2 Arsenal Way/Loxie Eagans Boulevard !SR 3 and Werner Road Paved shoulders on the east part of ',Loxie Eagans Boulevard & bicycle ilanes across the SR 3 bddge and Warner Road. The road continues with ipave shoulders along Union Avenue, 3rd Avenue, and Sherman Heights ~Road. Note ~ The pdmar~ route provides a direct and continuous path be~Veen KJngsto~ and Southwor[h that is clear and easy to follow. Becaus~ of this it appeals to commuters, tourists and recreational users z The secDndary route provides an alternative route that originates and terminates at the pnrnary route The secondary route follows less traveled, and Jess direct roadways. These routes are geared for more experienced users. In addition, PSRC has proposed additional bicycle improvements in their Destination 2030 MTP. Table 4-3 summarizes streets where PSRC has proposed class 2 bicycle lanes by the year 2010. A class 2 bicycle lane is designated for exclusive use by bicyclists and are delineated from traffic lanes by a broad, painted white stripe or raised pavement marker. Bremerton will take an "opportunistic" approach to enhance the bicycling and walking enviromnent by considering non-motorized improvements as part of regular maintenance or capital improvement projects. The city will seek out opportunities to obtain federal, state, or regional grants and other funding to implement these improvements. In addition, they will promote public awareness and education campaigns to encourage pedestrians and bicyclists, and improve the awareness of safety issues and 554-[896-053 (OL103) Cio, of Bremerton Comprehensive Plan d- 9 Feb ~ar3.' 2004 Final Transportation Element 308 Table 4-3. Proposed Class 2 Bicycle Lanes proposed bythe Year 2010. Street From To Kitsap Way Wemer Avenue .~?o_.~[..w.~y_ .... ............................... Burwel~ Street Montgomery Boulevard ~ Washington A?nue · nW v 9th Avenue Auto Center Way KItsar a ...................... Manette Bridge Lebo Boulevard/Wheaton Way City Limits Loxie Eagans Boulevard Auto Center Way National Avenue Montgomery Avenue S/gth Avenue Mosquito Fleet Trail Kitsap Way National Ave Loxie Eagans Boulevard Mosquito Fleet Trail Park Avenue/17~ StreetJWarren Lebo Boulevard 4th Street Avenue Source PSRC, Destination 2030 Metropolitan Transportation Plan 4.5 TRANSPORTATION DEMAND MANAGEMENT STRATEGIES All communities in the Puget Sound region, including the City of Bremerton, have limited funds to continue to expand roadways for single-occupant vehicles. Since the region can no longer rely exclusively o1: "building our way out" of congestion problems, transportation demand management (TDM) strategies have received increasing attention during the last 20 to 25 years. The goal of any TDM strategy is to reduce the amount of vehicle travel on roadways and ferries. This can be accomplished by: Shifting single-occupant vehicle trips to car-pools, transit, or non-motorized travel modes. Eliminating trips entirely--telecommuting and home-shopping are common examples of trip elimination. · Shortening trip lengths and "trip-chaining"--combining a series of multi-purpose trips into a longer chain of trips can improve efficiency and reduce vehicle miles traveled· Most TDM programs need to be initiated at the state or regional level since most trips cross many jurisdictional boundaries. There are, however, programs that can be initiated at the local level that can enhance and support these larger statewide and regional programs. The full-range of TDM strategies have been grouped into five categories: transportation pricing, employer-based strategies, land use strategies, telecommunications, and capital facilities that support TDM. Historically, TDM strategies have focused solely on the work trip; more recently, however, TDM has been broadened to cover all trip types since work trips account for only 20 to 30 percent of all trips made in the region. Specific TDM activities in each of the five categories are described in more detail below· (1) Transportation Pricing: These strategies are intended to provide a market-oriented user-based pricing system that eliminates the current pricing structure that favors the single-occupant vehicle at the expense of other travel modes. These include: Automated Tolling - Use of anonymous "smart cards" to charge drivers for road use on all limited access freeways and major arterials. This system uses an electronic transponder attached to each vehicle and detectors to charge vehicles for road use. Similar to telephone service pricing, higher fees could be charged for traveling during peak times of the day. Ci~' of Breme,':on Comprehensive Pia~ 554-1896-053 (01/03.) Final Transportation Element 4 - ] 0 February 2004 389 Parking Charges - A property tax on parking stalls or region-wide regulation of all parking rates. Additional Fuel Taxes - A significant increase in the fuel tax that would affect all motor vehicles. All of these strategies would need to be implemented on a statewide or regional basis. At the local level, the City of Bremerton could support those strategies in statewide or regional legislative forums. TDM strategies in this category can influence all trip types including work trips. (2) Employer-Based Strategies: This is the category of TDM strategies that comes to mind most often because of the statewide Commute Trip Reduction (CTR) requirements that affect employers with more than 100 employees. Work trips are the only trip type affected by employer-based strategies and programs. (3) Land-Use Strategies: Concentrating population and employment growth in centers, as well as providing a mix of land use types, can be an effective TDM strategy, in Bremerton, increased population and employment density in the downtown area, as supported by Council Ordinance 4783, could be considered a TDM strategy. (4) Telecommunications: This category encompasses the broad range of telecommunications strategies that can reduce or eliminate certain types of trips. This goes beyond telecommuting which focuses solely on the work trip. While the trip reduction potential of these strategies are currently difficult to quantify, their potential for reducing or eliminating certain trip types is nearly unlimited. (5) Capital Facilities that Support TDM: Transportation facilities that support the other TDM strategies by providing alternative travel options are included in this category. These include transit, pedestrian, bicycle, and HOV facilities. While these facilities are also identified in other sections of the transportation plan, they are repeated in the TDM element because of their importance in helping to reduce overall travel demand in the City of Bremerton. Since much of the direct work on TDM strategies needs to occur at the state and regional level, the most effective way for the City of Bremerton to be Lnvolved in TDM activities are: Support of statewide and regional TDM initiatives and programs. Implement a local public awareness and education program designed to promote the TDM strategies outlined above. Support and implement capital facility improvements that support TDM such as transit, HOV, bicycle and pedestrian facility improvements. Cooperate on implementation of the State's CTR program. 4.6 TRANSPORTATION SYSTEM MANAGEMENT STRATEGIES Transportation systems managemant or TSM refer to strategies that improve facility operations, traffic flow, or safety without adding lanes to increase capacity. TSM strategies are generally relatively low-cost improvements since they do not involve major construction of new or expanded capital facilities. The following lists some of the more common TSM strategies that have been used in Bremerton and other jurisdictions in the Puget Sound region. · One-way couplets - Changing the operation of two parallel two-way streets to one-way operation can improve capacity and traffic flow within the same street width. · Parking prohibitions/restrictions - Prohibiting on-street parking or restricting on-street parking during peak traffic flow hours can improve capacity without widening streets. This strategy can be controversial, however, particularly in business districts where no parking alternatives exist. · Access control - Left tam restrictions or consolidating driveways to individual businesses can improve facility operations and safety by increasing roadway capacity and reducing the potential for vehicle conflicts. Closing or restricting access driveways improves through traffic movement; however, this strategy can be controversial due to potential side street traffic increases. Traffic signal timing coordination - Interconnecting a series of traffic signals can improve traffic flow progression through an arterial corridor. This strategy is particularly useful in areas with closely spaced signalized intersections such as freeway interchanges. These and other TSM strategies will be evaluated as part of all plarmed transportation improvement projects in Bremerton. 4.7 TRAFFIC CALMING The purpose of traffic calming is to reduce the speed and volume of traffic to acceptable levels to support livability, safety, and community character within residential neighborhoods. By implementing various design features and strategies to meet these objectives, traffic calming measures can result in more pedestrian-friendly and desirable neighborhoods. Traffic calming measures can be separated into two groups based on the intended impact. Speed control measures are primarily used to address speeding problems by changing vertical alignment, changing horizontal alignment, or narrowing the roadway. Volume control measures are primarily used to address cut-through traffic problems by blocking certain movements and diverting traffic to streets mom appropriate for higher traffic volumes. Some of the more commonly used traffic cakning measures used throughout the region are listed in the following sections. 4.7.1 Speed Control Measures Vertical deflections, horizontal deflections, and roadway narrowings are measures used to reduce speed and enhance the street environment for non-motorists. The following are descriptions of typical examples of such measures: 4.7.2 Vertical Deflection Measures Speed Humps are rounded raised pavement devices placed across roadways to slow and/or discourage lxaffic. · Speed Tables are flat-topped speed humps often constructed with a brick or other textured material to slow traffic. · Raised Crosswalks are speed tables outfitted with crosswalk markings and signage to channelize pedestrian crossings, providing pedestrians with a level street crossing. * Raised Intersections are flat raised areas covering an entire intersection, with ramps on all approaches and often with brick or other textured materials on the flat section. · Textured Pavements include the use of stamped pavement or distinctive paving materials to create an uneven surface for vehicles to traverse. They may be used to emphasize either an entire intersection or a pedestrian crossing, and are sometimes used along entire street blocks. CiO, of Bremerton Comprehensive Plan 554-1896 053 Final T,'ansportatlon Elemen! 4- ] 2 Febl-ual? 2004 311 4.7.3 Horizontal Deflection Measures · Traffic Circles.are raised islands, placed in intersections, around which traffic circulates. ,, Roundabouts are similar to traffic circles but are used on higher volume streets to allocate right- of-way between competing movements. · Chicanes are curb extensions that alternate from one side of the street to the other, forming S- shaped curves. · Realigned Intersections are changes in alignments that convert T-intersections with straight approaches into curving roadways meeting at right angles. 4.7.4 Horizontal Narrowing Measures · Neckdowns are curb extensions at intersections that reddce the roadway width from curb to curb. They "pedestrianize" intersections by shortening crossing distances for pedestrians and drawing attention to pedestrians via raised peninsulas. They also tighten the curb radii at the comers, reducing the speeds of taming vehicles. · Center Island Narrowings - A center island narrowing is a raised island located along the centerline of a street that narrow the travel lanes at that location. Center island narrowings are often landscaped to provide a visual amenity.. Placed at the entrance to a neighborhood, and often combined with textured pavement, they are often called "gateway islands." Fitted with a gap to allow pedestrians to walks through at a crosswalk, they are often called "pedestrian refuges." · Chokers are curb extensions at midblock locations that narrow a street by widening the sidewalk or planting strip. If marked as crosswalks, they can also improve pedestrian safety. Two-lane chokers leave the street cross section with two lanes that are narrower than the normal cross section. One-lane chokers narrow the width to allow travel in only one direction at a time, operating similarly to one-lane bridges. 4.7.5 Other Speed Control Measures · Educating residents on safe on-street vehicle traveh * Police Enforcement involves'employing the services of law enforcement agencies to impose ~:he local safe vehicle laws, including those for posted speeds and traffic signab'signs. · Speed Trailers/Reader Boards placed so that vehicle travel speeds are displayed when vehicles approach the trailer/reader board. These devices can be moved from location to location or installed permanently at locations where travel speeds are a significant concern. 4.7.6 Volume Control Measures Volume control measures are intended to reduce cut-through traffic by obstructing traffic movements in one or more directions. The following is a list of typical measures used for volume control: · Full Closures are barriers placed across a street to completely close the street to through-traffic, usually leaving only sidewalks open. · Half Closures are barriers that block travel in one direction for a short distance on otherwise two- way streets. · Diagonal Diverters are barriers placed diagonally across an intersection, blocking through movements and creating two separate, L-shaped streets. Like half closures, diagonal diverters are often staggered to create circuitous routes through the neighborhood as a whole, discouraging non-local traffic while maintaining access for local residents. Final D-atlsportaOo~ Element 4-]3 - 312 · Median Barriers are islands located along the centerline of a street and continuing through an intersection so as to block through movement at a cross street. · Forced Turn Islands are raised islands that block certain movements on approaches to an intersection. Speed control and volume control measures can be considered by the City as part of the design of new developments or street improvements. In addition, some or all of these measures can be considered in the implementation of the City's existing grant-funded "Traffic Calming" program. 4.8 COST ESTIMATES The City of Bremerton's Six-Year Transportation Improvement Program (2004-2009) includes planning- level cost estimates for many of the major facility improvements identified previously. Costs for funding the transit, ferry, and TDM elements of the plan are not included since these improvements would be funded by WSDOT, WSF, or Kitsap Transit. Table 4-4 summarizes the plarming-level cost estimates for the improvements identified in the City of Bremerton's Six-Year Transportation Improvement Program (TIP). In addition to the total cost of each project, an estimated breakdown of local, State, and federal shares for each project is provided. Table 4-4. Planning Level Cost Estimates for Future Improvements - Yoar 2003 Dollars Project Costs in Thousands of Dollars Priority Project Identification Local State Federal Total Roadway Capacity Improvements 1 } SR 304 from Ferry Terminal/Pot[er St. to Burwell St./SR 342 ', 3 - HOV improvements, widening, reconstruction, overLay, signal and lighting 2 SR 304 from Porter Street to Charleston Beach Road o 0 580 HOV improvements, oveday, widening, reconstruction, signal and lighting 3 SR 304 from Burwell Street to Bremerten Ferry 250 144 ! 919 1,313 Terminal - Resuffacing, street lighting, signal and sign modifications 4 i SR 304 from Charleston Beach Road to SR 3 - HOV 0 4,650 ! 0 4,650 improvements, overlay, widening, reconstruction Operational, Safety~ and Other Improvements 5 Downtown BTC Access/Pedestrian Improvements- 0 1,175 improve pedestrian and vehicle mobility in downtown 6 ', SR 303 from Sheddan Avenueto Callahan Drive- 59 861 0 ': 920 Construct off-romp connecting southbound SR 303 with Ca ahan Ddve 7 Citywide - Miscellaneous projects to improve safety and 1,500 ', 0 0 1,500 operations; non-motorized trensportafion roadway preservation Extend second mult purpose ane to mprove operafion _ CiO, of Bremerton Comprehensive ?!an 554-]896-053 (07/03) 313 Table 4-4, Planning Level Cost Estimates for Future Improvements - Year 2003 Dollars (continued) Project Costs in Thousands of Dollars Priority Project Identification Local State Federal Total at SR 3 on-ramp 9 Wheaton Way from Ca[lahan Ddve to Sheridan Road - 270 1,135 i 0 1,405 Realign Wheaten Way to north south configuration 10 Arsenal Way/Patton Avenue from Loxie Eagans Blvd. 120 650 i 0 , 770 To Lafayette - Safety improvements including curb and gutter, sidewalks, lighting, roadway widening, and intersection improvements 11 SR 303 from Burwell Street to Riddell - Implement 100 0 100 recommendations of SR 303 Corridor Study ......... -; .................................................. I 0 125 12 ' Port Blakely Alternative Route Analysis - Conduct 125 analysis of potential transportation routes to serve the Port B akely Planning area TOTALS 2,956 16,912 36,061 55,929 Source: City of 0remerton Six-Year Transportation Improvement Program (From 2004 to 2009). Some of these funds will have been dispersed prior to the year 2004. As shown in Table 4-4, GMA-related capacity improvements are plamaed and funded for the SR 304 corridor at an estimated cost of $22.36 million between the years 2004 a:~d 2009. Beyond the six-year concurrency horizon, improvements are also planned for SR 3, SR 303 (Warrer~/Wheaton Corridor), and SR 310 (Kitsap Way). The following prelkninary cost estimates were identified in WSDOT's State Highway System Plan for the SR 3 and SR 310 widening projects: · SR 3 Widening from Newberry Hill Road to SR 16 spur (MP 34.17 to MP 43.76) - $147 to $199 million · SR 310 Widening to 6/7 lanes from SR 3 to SR 304 (MP 0 to MP 1.84) - $18 to $24 million (cost . estimate assumes a six-lane cross section with landscaped meal!an) The SR 303 Corridor study also identified preliminary costs for widening the section of SR 303 between I lth Street in downtown Bremerton and NE Fairgrounds Road in Kitsap County to six lanes, adding high occupancy vehicle (HOV) lanes, access control measures, and improving signals, signage, illumination, bicycle and pedes~an facilities, transit improvements and the road surface. The estimated cost for these improvements, not including right-of-way costs, is $46.6 million. 314 The GMA requires a financial element to be included as part of the transportation element of the comprehensive plan. The financial plan needs to include a comparison of estimated transportation improvement costs against the potential revenue generated from existing and future sources. Future revenues may include new local sources such as parking taxes or developn~ent impact fees, revenues from state and federal fuel taxes, and grants from federal, state, or county agenmes. A key requirement of the GMA is that the estimated transportation improvement revenues must be sufficient to fund the improvements identified in the plan. If revenues fall short of anticipated costs, the City must identify additional funding sources. If additional funding sources cannot be identified, or are not desired, the LOS standard or land use assumptions contained in the plan must be adjusted to maintain a balance between costs and revenues. 5.1 EXISTING AND PROJECTED REVENUE As shown in Table 4-4, the City of Bremerton currently relies on a combination of local, state, and federal soumes to fund transportation improvements. During the five-year period from 1998 to 2002, the City of Bremerton expended $25.6 million on capital transportation improvements or an annual average of $5.12 million. Of this annual average amount, approximately five percent, or $260,000, was from City sources. The remaining $4.86 million per year was obtained from a variety of federal and state sources. These historical funding patterns were used to estimate future revenues from both City and other sources over the life of the plan. For the City of Bremertan, an annual local revenue amount of $260,000 was assumed to fund transportation improvements. This would amount to $1.56 million over six years or $5.2 million over 20 years, in 2003 dollars. For other funding sources, the $4.86 million annual amount was assumed to continue into the future at the same rate. This would generate an additional $29.16 million over the next six years or $97.2 million over the next 20 years. Funding sources in the federal and state categories include: (1) Surface Transportation Program (STP): For local agencies, most of the potential for federal transportation funding is from the Surface Transportation Program (STP) of the Transportation Equity Act for the 21st Century (TEA-21). For local agencies, STP funding is available for eligible projects in the following categories: regional competition, statewide competition, transportation enhancements and safety (hazard eliraination and mi[road grade crossings). TEA- 21 authorized the Federal surface transportation programs for highways, highway safety, and transit for the 6-year period 1998-2003. On September 30, 2003, the Surface Transportation Extension Act of 2003 (Public Law No. 108-88) was passed, extending Federal highway, highway safety, motor carder safety, and transit programs for five months, and authorizing appropriations through February 29, 2004. (2) Arterial Improvement Program (AIP): These are statewide competitive grants allocated through the Transportation Improvement Board (TIB) for projects on city streets and arterials within urban areas. Funds are distributed regionally based on roadway miles, population, and needs. (3) Transportation Partnership Program (TPP): The TPP is funded from the Transportation Improvement Account (TIA) and are also administered through the TIB with minimum percentages to certain areas. Through its urban project selection process, the TIB requires multi- ~54-]896 053 (01/03) Cit) of Bremerton Comprehensive 5-1 Februar) 2004 315 agency planning and coordination and public/private cooperation to further the goal of achieving a balanced transportation system in Washington State. (4) Nickel Funding Package: This regional funding package went into effect on July 1,2003. Over 70 specific projects within King, Pierce, Snohomish and Kitsap counties are specifically targeted for funding within the next 10 years. This package contributes approximately $11 million towards construction of the SR 304 HOV widening project. 5.2 IMPROVEMENT COSTS/REVENUE COMPARISON A TIP has been developed for the first six years of the transportation plan. As required by the GMA, estimated revenues must be sufficient to cover anticipated expenditures. Table 5-1 summarizes the estimated transportation revenues and expenditures for the first six years of the plan. Table 5-1. City of Bremerton Six-Year Transportation Improvement Program and Finance Plan Expenditures (2004-2009) Project Costs in Thousands of Dollars Years 4-6 Year 1 Year 2 Year 3 (2007- Priority Project Identification (2004) (2005) (2006) 2009) Total Roadway Capacity Improvements 1 SR 304 from Ferry Terminal/PoOrer St. to Burwell 2,117 2,800 1,000 0 5,917 St./SR 3 - HOV improvements, widening, reconstruction, overlay, signal and lighting 2 SR 304 from Porter Street to Charleston Beach 3,270 Road - HOV improvements, overlay, widening, 3 SR 304 from Burwell Street to Bremerton Ferry 1,313 0 0 0 1,313 Terminal - Resurfacing, street lighting, signal an~ sign modifications 4 SR 304 from Charleston Beach Road to SR 3 - 0 0 3,200 1,450 4,650 HOV improvements, overlay, widening, reconstruction Operational, Safety, and Other Improvements 5 Downtown BTC Access/Pedestrian improvements- I 15,200 10,800 0 0 26,000 Improve pedestrian and vehicle mobility in downtown Bremerton 6 SR 303 from Sheddan Avenue to Caltahan Drive - 920 0 0 0 920 Construct off-ramp connecting southbound SR 303 with Callahan Drive 7 Citywide - Miscellaneous projects to improve safety 250 250 250 750 1,500 and operations; non-motorized transpor[ation 8 Auto Center Way from 6th S~'eet to SR 3 On-Ramp 0 100 851 0 951 - Extend second multipurpose lane to improve operation at SR 3 on-ramp 9 Wheaton Way from Callahan Drive to Sheridan 0 0 100 1,305 1,405 Road - Realign Wheaton Way to north south configuration Cir2, of Brem~,'to~z Com?rei~e*~sive Plan 554-]896-053 (01/032 Final Tranxportafioll Element 5-2 ?~br~ar)' 2004 316 Table 5-1. City of Sremerton Six-Year Transportation improvement Program and Finance Plan Expenditures (2004-2009) (continued) Project Costs in Thousands of Dollars Years 4-6 Year 1 Year 2 Year 3 (2007- Priority Project Identification (2004) (2005) (2006) 2009) Total 10 Arsenal Way/Patton Avenue from Loxie Eagans 0 0 50 720 770 i Blvd. To Lafayette - Safety improvements including I curb and gutter, sidewalks, lighting, roadway widening, and intersection improvements Operational, Safety, and Other Improvements (continued) 11 SR 303 from Burwell Street to Riddell - Implement 0 0 0 ~ 100 100 recommendations of SR 303 Corridor Study 12 Port Blakely Alternative Route Analysis - Conduct ; 0 0 125 0 125 analysis of potential transportation routes to serve the Port Blakely Planning area TOTALS 23,070 13,950 5,576 4,325 46,921 Source: City of Bremerton Six-Year Transportation Improvement Program (From 2004 to 2009). As shown in Table 5-1, the estimated $46.9 million in total expenditures between the years 200~, and 2009 falls short of the projected $55.9 million for improvement costs shown in Table 4-4. Sin-dlarly, the estimated $41.15 million in expenditures for GMA-related capacity improvements to SR 304 between the years 2004 and 2009 fails short of the estimated $50.16 million in project costs. It should be noted, however, that the apparent $9 million budget shortfall does not actually represent a deficit but instead is associated with SR 304 improvement funds that have been dispersed from federal, state, and local sources prior to the year 2004. As shown in these two tables, the projected costs and expenditures for the next six years exceed the $30.72 million ($1.56 million from City of Bremerton and $29.16 m/Ilion from other sources) revenue projection that would be expected based on past years' funding patterns. However, the City of Bremerton's Six-Year TIP, shown in Table 5-1, indicates that adequate funds have already been allocated to the proposed roadway improvement projects in the City o£Bremerton. At this time, little is known regarding project funding beyond the six-year (year 2009) horizon. However, WSDOT's Capital Improvement and Preservation Program (CIPP) for 2002, which is WSDOT's plan to deliver the program of capital investments in transportation that have been funded in part or in whole by the state legislature, indicates that some funds have been allocated towards the replacement of the Manette Bridge through the year 2011. The scheduled expenditures as of September 2002 is shown in Table 5-2. Table 5-2. Highway Construction Capital Improvement and Preservation Program (CIPP) - Projects Under Way - Year 2002-2011 Budget Allocation Project Costs in Thousands of Dollars Prior 2003- 2005- 2007- 2009- Project Identification Cost 2005 2007 2009 2011 Total SR 3 Bridges (MP 37.82 to 42.01) 0 686 0 0 0 686 Manette Bddge (MP 2.98 to 3.27) 515 63 804 22,003 2,164 25,546 CiO' of Bremel'to~l Comprehensive Plan 554-]896 053 (O]/O~) Final Transportation £1emen! 5-3 Februwy 2004 317 5.3 CONCURRENCY MANAGEMENT AND IMPLEMENTATION Over the longer term, the GMA requires that the level of transportation investment must keep pace with growth in traffic volumes so that the level of service thresholds established in the transportation element are maintained. The LOS standards recommended for adoption as part of the transportation element are: · Maintain LOS E or better (V/C less than or equal to 1.0) in the SR-303 (Warren/Wheaton) corridor, Kitsap Way (SR 310), Sylvan Way, and on the Manette Bridge. · Maintain LOS D or better (V/C less than or equal to 0.9) on all other arterial streets in the City. These arterial level of service thresholds will be monitored over time. For locations that may exceed the level of service threshold in the future, a different threshold would need to be established or a specific facility improvement would need to be identified and programmed for funding within six years. The LOS standards establish the maximum threshold of congestion on each facility. This relates to the concurrency definition in the GMA that requires adequate public facilities (operating better than the LOS standard) to be available when the impacts of development occur. "Concurrent with development" as applied to transportation means that "improvements or strategies are in place at the time of development, or that financial commitment is in place to complete the improvements or strategies within six years." Therefore, any development within the City or County that would cause a LOS standard to be exceeded could not be approved unless the financial commitment to improve the deficiency was in place within the required six-year timeframe. Level of service would need to be monitored annually to ensure that the LOS standards established would not be exceeded. Since publication of the 1995 Transportation Element, the Bremerton City Council has adopted a new ordinance that includes a Transportation Development Code (Chapter 11.12). The purpose of the Transportation Development Code is to implement the transportation element of the City Comprehensive Plan, and to provide an orderly process for the adoption, implementation, interpretation and modification of City transportation system development standards. (11.12.020) The Transportation.Development Code gives the City Engineer the authority to rpquest traffic impact analysis reports for proposed development projects if there is reason to believe the impact on the City's existing or planned future transportation facilities will be significant. The City Engineer shall impose conditions necessary to mitigate all impacts of traffic, circulation and parking resulting from a project. For segments, intersections, or other portions of the street system for which a Level of Service Standard has been adopted, mitigation measures shall be sufficient to assure that such segments, intersections or other portions of the street system continue to meet or exceed the adopted LOS standards after full project occupancy and operation. For segments, intersections or other portions of the street system for where the present LOS is below the adopted standard, the mitigation measure shall be sufficient to maintain or exceed the present LOS. (11.12.060 and 11.12.070) 318 APPENDIX A Traffic Accident Summary 320 321 322 APPENDIX B Travel Demand Forecasting Assumptions 323 APPENDIX B Travel Demand Forecasting Assumptions TRAVEL DEMAND FORECASTING FOR YEAR 2030 Regional travel demand and roadway network traffic volumes in the City of Bremerton are forecast for the year 2030. The forecasts were derived through coordination with Kitsap County and City of Bremerton staff. Kitsap County's model is a translation of the Puget Sound Regional Council Model developed for the Destination 2030 Metropolitan Transportation Plan (MTP). The PSRC model was adapted to the County by adding Traffic Analysis Zone (TAZ) and transportation network detail within the county and simplifying TAZ and network attributes in the remaining 3 counties of King, Pierce, and Snohomish. The City of Bremerton 2030 land-use forecasts were provided to the County for input into their model to produce PM peak hour travel demand trip tables. Transportation networks and travel demand matrices from the County model were imported to the EMME/2 software. The EMME/2 software was used to assign the travel demand matrices to the roadway network. The imported trip tables are a result of the KJtsap County 4-step model. · Bremerton land-use drives trip generation of daily person trips. · The daily person trips produced in each TAZ are linked to likely destinations via a gravity model. · The distribution of daily person trips are split into modes of travel via a mode choice model. The modes are transit trips, park and fide trips, and auto vehicle trips. · The daily auto vehicle trips are factored down to PM peak hour auto vehicle trips. The model coefficients that determine the number of trips generated, mode choice, and the percent in the peak hour, are based upon the regional household survey conducted by PSRC and are equally applied across all TAZs. When focusing a model on a sub-area or city, revalidation of the regional assumptions is necessary to account for unique local characteristics having a major impact on traffic assigmnents to the roadways. In validating the model for the City, PM peak hour trips to and from the TAZ representing the Puget Sound Naval Shipyard (PSNS) were adjusted downward to account for the work shift change outside the 5:00-6:00 PM peak hour. The adjustment was to assume only 25 percent of the trips estimated would actually occur during the peak hour. This was based upon counts in and out of the PSNS. The County Model includes network detail of ail arterial streets and the zonal detail was sufficient to provide logical network loading. Figure B-1 shows the zone system and Figure B-2 shows the base network in the greater Bremerton area. The year 2000 model was validated to ground counts. Figure B-3 shows the resulting closeness to fit of the model and counts. In evaluating a model's ability to replicate ground counts, a regression equation in which the intercept term (A) tends toward zero, has a slope (B) approaching the value of 1, and a high R2 is desirable. Traffic counts in general and in this case during the PM peak hour vary from day to day. The expected variance in counts increases as the volume of traffic a roadway carries decreases. Local streets may vary by as much as 50 percent and freeways tend to stay within a plus or minus I0 percent range. As most count locations and arterials of interest within the City of Bremerton are lower volume arterials (less than 1000 vehicles per hour), a regression equation with an intercept of 199, a slope of 0.84, and R2 of 0.74 is quite good.~ Based on this, travel demand forecasting model was determined to be adequately calibrated for use in this transportation element. ~ Region wide an R2 target of 0.88 or better is suggested. A lower R2 is reasonable here due to counts being skewed to non-freeway arterials. See section 7.1.3 Model [Zalidation and Reasonableness Checking Manual, Barton-Axchman Associates, Inc., Cambridge ~mtematic& [~c., Feb~al3' 1997 Prepared for TMZP C~y of Bremerton Comp~uhensi~;~ £1an 554-]896-053 Final Trmlsportation £lement B- l Februal3, 2004 324 262 :t23 334 Figure B-1 Traffic An aly$is Zones CiO' of Bremet lon Comprehensive Plan 5 5 4-1896~0 5 3 Final Transportation Elemen! B-2 February 2004 325 Dyes Inlet Figure B-2 Base Model Network Ci0, of Bremerton Comprehensive ?lan 554 18~6-053 (OL~) 326 3Z7 APPENDIX C Volume and Capacity Information 328 329 330 Appendix H: Housing Appendix Current Conditions Recent trends, local demographics, and characteristics of the housing stock present a significant challenge if Bremerton is to live up to its legacy as a great place to reside. Current conditions in the local housing market, detailed below, are in large part, the result of deteriorating local economics and a gradual weakening of the residential qualities of the city's ageing neighborhoods. The data, however, also portrays the opportunity to capitalize on Bremerton's well established neighborhoods, the city's unique position in the greater Puget Sound economy, and, lastly, to capitalize on regional and national housing trends. The City of Bremerton population has essentially been stagnant for the past 30 years. The decennial c~nsus reports from 1970 to 2000 shows a negligible increase of less than 2,000 people. Over such a time span, this is an insignificant increase (less than 1/5 of 1% annual growth), easily dimissable in Bremerton where there are regular fluctuations in the military pol~'ulation of two to three thousand of people, due to the arrival and departure of Navy personnel. In fact, population estimates conducted by the State of Washington, in coordination with the U.S. Navy, adjusted the city's population down to its 1970 level as recently as February 2002. Furthermore, the most recent U.S. Census report (April 2000) stands out from previous census counts for actually showing a decrease in the city's population (883 people) since the 1990 Census. The only . other decrease on record was reported between census years 1950 and 1960, due to a downswing of city's population from its ail time high associated with World War II activity at the Puget Sound Naval Shipyard. At the height of World War 11, Bremerton's housing stock came under severe stress, when a population of 72,500 required immediate shelter among a housing stock in place for a 1940 population of around 15,000 people. While it is not unheard of for a well established city to have either a stable or slightly decreasing population count over time, Bremerton's lack of growth in the past 30 years, despite land use capacity, eludes both past and current growth forecasts. More gtaring, the surrounding county and region have witnessed unprecedented growth in the past twenty years. During this time, the whole of Kitsap County, for example, went from a population of 147,152 in 1980 to a population of 231,969 in 2000, an increase of nearly 60%. Bremerton's proportion of the county's total population and regional growth has dramatically decreased, beginning in 1970. (see Table G-1 below.) HS Appendix- 1 331 Table HSA-1 Bremerton's Historical Population Growth: 1940-2003 Year I Population I Population ChangeI Percent of County Population Reports, U.S. Census (as reported on April Is~ of every 10~ year), 1940 - 2000 1940 15,134 34.1% 1950 27,678 +12,544 35.6% 1960 26,681 -997 31.7% 1970 35,307 +8,626 34.7% 1980 36,208 +901 24.6% 1990 38,142 +1,934 20.1% 2000 37,259 -883 16% Population Estimates, Washington State Office of Financial Management (as reported April 1s~ of each year) 2001 37,260 +1 16% 2002 37,530 +270 16% 2003 38,604 +1,074 Sources: Washington State Office of Financial Management & U.S. Census of Population and Housing As Table G-ldemonstrates, Bremerton's population represents a shrinking percentage of the total Kitsap County population despite land capacity within the City to accommodate significant numbers of new people. Evidently, the housing and development market in Bremerton has proven to be uncompetitive with surrounding areas. There are numerous causes for this, on both the supply and demand side of the housing market. Supply-side factors include the higher cost to redevelop existing city lots verses the abundance of undeveloped parcels and new development opportunities in the County, including its own Urban Growth Areas. Bremerton's somewhat outdated housing stock, dating back to the previous growth periods of 1940's and 1960's, often fails to address contemporary market demands or to address the diverse market demand for housing. Today's market demands partially reflect demographic changes which are discussed throughout the document, in areas such as household type, size, income level, and special needs populations. Overarching demographic dynamics which particularly include a new diversity of housing types include substantial growth in Senior citizens, Singles (Non-Married, no children), Starters and Single Parent Households. HS Appendix-2 332 A. EXISTING HOUSING STOCK Characteristics of the existing housing stock include type, occupancy, age, condition, and affordability, as detailed in sections following this general summary. By comparing the housing stocks of the city and the wider Kitsap community, the charactenstms of Bremerton s ex~st~ g housing stock, and its current position in the development and housing market emerges. This position can then be advanced and improved upon. Census 2000 reports a total of 16,631 housing units in the City of Bremerton. This is actually a 6% increase (938 new units) since the 15,693 dwelling units reported in 1990. This increase in reported dwelling units, however, did not yield a corresponding population increase. As shown above in Table G-1 above, Bremerton's population actually decreased by 883 people between 1990 and 2000. The discrepancy between an increasing housing stock and a lower population count can be partially explained by an increased vacancy rate in the 2000 census, to just over a 9% vacancy rate (1546 units) in 2000, verses a 6% vacancy rate in 1990 (897 units.) Vacancy rates in the Bremerton are strongly influenced by the arrival and departure of ships and their crews at the Puget Sound Naval Shipyard (PSNS). This is evident particularly in Bremerton where the vacancy rate can rise and fall dramatically due to its relatively smaller housing stock universe and its proximity to PSNS. For example, vacancy rates went from 13.9% in the Spring of 1994 to 3.0% later in the Fall with the return of navy ships. A market equilibrium vacancy rate is commonly estimated to be 5%, which is closer to the 2000 Census vacancy rate reported for the county at 6.7%. Bremerton's unique housing demands require a built-in flexibility in its housing stock, or generally higher quantities of units than average vacancy rates and population counts would suggest for communities with more stable population numbers. Another unique characteristic of the local housing stock is the accompanying high turn- over rates associated with a more transient population, producing further stresses on the housing stock, as shown in the housing condition analysis below. Though largely attributed to military deployments in Bremerton, a generally lower number of people per household is another factor to consider in looking at the needs of current residents, especially as the percentage of smaller households is growing in long-term national trend analysis. Household size is an especially important factor in projecting housing needs and ensuring a housing market that will be better attuned to changing national and regional demographics. It will be further addressed in Future Housing Needs section below, which will also look at Bremerton's demographics to better understand local needs for housing types. Despite Bremerton's lower number of persons per household and a lower percentage of family households (where children are present) verses the wider county, there are more "overcrowded" housing incidents counted in Bremerton than Kitsap County or its other cities. In the 2000 Census, 5.5% of Bremerton's HS Appendix-3 333 housing was reported to have more than 1 person per room, compared with 3.5% in Kitsap County as a whole. This is a sign that cost and choice of housing are problematic for much of the existing population. This data suggests that a significant number or residents are currently sharing units or having to live in units that are smaller than enjoyed by the average American or Kitsap County family. The smaller size of existing units, detailed in the first subsection below titled, "Type", is an obvious factor underlying Bremerton's smaller household size and its overcrowding rates. The city's relatively lower income levels and higher poverty status, detailed under "Affordability" are also related, complicating the challenge of meeting housing needs and providing healthy residential settings. Bremerton Population 36,209 38,142 (+5.5%) 37,259 (-2.5%) Housing Units 14,960 15,693 (+6%) 16,631 (+6%) Households(HH) 14,067 14,718 (+5%) 15,085 (+2.5%) Persons per 2.31 2.34 2.3 Household Kitsap County Population 147,152 189,731 (+29%) 231,969 (+22.5%) Housing Units 57,327 74,038 (+29%) 92,644 (+25%) Households 52,809 69,267 (+31%) 86,416 (+25%) Persons per 2.6 2.5 2.6 Household More recent quantifiable changes in the Bremerton's housing stock are identifiable in local building permit records and Washington State Office of Financial Management estimates which track demolitions and group quarters units. Between the Census date of April 1,2000 through April 1,2003, State estimates show a net decrease of 27 units - largely due to the reported loss of 72 units to demolition. This demolition activity is largely due to physical improvements pursued by the City in a "gateway project" to advance the quality of life in Bremerton and to potentially entice new residential qualities and investments. The majority of the new residential units reported since April 2000, however, are manufactured homes, not the more expensive frame construction units that can indicate an increase in land values. Despite the even smaller horizon of time, the time period of April 2002 to April 2003 shows an increase in number of residential units that favor new frame construction units, perhaps showing new investment interest in Bremerton's housing stock. Market HS A?pendix-4 334 conditions, especially historic Iow mortgage rates making real estate investments more affordable in 2003, also partially explain this promising upgrade in supply of new, more durable housing in Bremerton. Type of Unit Of the 16,631 units reported in Census 2000, the majority (approximately 54%) are contained in free standing single unit structures while nearly half the housing units (44%) are in classified as multifamily housing (attached) units. The remaining 2% of units, traditionally not considered single units or multi-family units, is made up of mobile homes, trailers, or other special housing units such as houseboatsfi These units represent nontraditional housing types and can be used, in sum, to help evaluate how well traditional housing choices serve the existing population and housing market~ Table HSA,~ ~ 3 ~ H6~ing ~ by T~ ~980~§90;2000 , I unit, detached 7060 47.2% 7700 49.1% 7,917 47.6% 1 unit, attached 1169 7.8% 1490 9.5% 1,090 6.6% Total, Single Units 8,229 55% 9,190 59% 9,007 54% 2-Units 1,685 11.3% 1,543 9.8% 1,664 10% 3 & 4 Units 1 ,I 17 7.5% 1149 7.3% 1,421 8.5% 5+ Units 2,554 17.1% ~,432 22% 4204 25% Total, Muitifamily Units 5,356 35.8% 6,124 39% 7,289 44% Mobile Home/Trailer 173 1.2% 216 1.4% 286 1.7% Other Units* 1202 8% 163 1% 49 .3% Total Units = 14,960 100% 15,693 100% 16,631 100% Sources: 1980/1990/2000 Census of Population and Housing, STF lA; Puget Sound Regional Council; Kitsap Regional Planning Council. * "Other Units" definition has varied, yielding irregularities in these numbers The 2000 Census confirms that relatively smaller-sized homes remain prominent in Bremerton, with 50% of all units reported to have 4 or less total rooms. Throughout Kitsap County, that percentage is 28%, with only 14% of total units in the County having 3 rooms or less. While this is largely explained by urban-style 1The Census uses the term "mobile home or trailer" to refer to mobile homes to which no permanent rooms have been added. While not c~earty differentiated in Census, manufactured housing affixed to a foundation, are not considered or counted as either "mobile homes" or "other housing" in counts of single family and multifamily units. HS Appendix-5 335 units and apartments in Bremerton, the fact that 70% of Bremerton's units have a total of 5 rooms or less also shows a lack of diversity in types of units. So much of the housing stock is similar - and small! Manufactured housing, units that are constructed off-site and then assembled and affixed to a foundation, is currently allowed on any residential lot on which a "conventional" or "stick built" single family house can be built, provided that the units meet federal HUD construction standards and residential standards in the zoning ordinance for width, floor area (doublewide required), roof pitch, foundations, exterior appearance, and finished floor height. Manufactured housing that does not meet these standards, referred to as mobile homes or trailers manufactured before 1976, can only be located in non-conforming "grandfathered" manufactured home developments (which are offen described as "mobile home parks"). New developments for code compliant manufactured units, not mobile homes, are allowed as Planned Unit Developments (PUDs) in five residential zones throughout the city. There has been a significant increase in the number of manufactured homes located on city lots since the previous census in 1990. Conversely, mobile homes have decreased in the city and within the grandfathered manufactured home developments, mostly due to their age. Along with mobile homes installed on city lots prior to the adoption of zoning restrictions or prior to being annexed into the city, manufactured units on individual city lots totaled 184 in the 2003 Housing Unit and Population estimate. This is approximately two thirds of all the 286 units reported in the 2000 Census, with only one third (86 of 270 total units in 2003) associated with mobile home parks, verses 132 mobile home park units in the 1993 land use survey. In fact, this is a reversal of previous percentages, as the 1990 Census reported that two.thirds of total manufactured units were in mobile home park settings. Qlder "mobile homes" are effectively decreasing in number, while manufactured units are increasing in number, and growing more widespread throughout the city. Design standards, discussed in the Community Character chapter of the Comprehensive Plan, raise the possibility of additional requirements for compatibility of all housing types with surrounding areas. This could result in a development trend towards more construction of conventional housing. This trend wilt represent a challenge as regards provision of affordable housing. The response will rely on strategies outlined in other sections of this Housing Element and elsewhere in the overall Comprehensive plan. _Age of Housing Units Bremerton has a significant proportion of older housing units. Approximately 57% of Bremerton's housing stock predates 1960, which means a majority of the homes are now over 40 years of age (verses the County's report of less than a quarter of the homes county-wide being 40 years of age of older.) Correspondingly, Bremerton has a far lower proportion of newer housing than HS Appendix-6 336 developed in the rest of Kitsap County. Less than 20% of Bremerton housing units were built since 1980, compared with nearly half of county housing units. Most current permit data shows this trend intensifying, with the past three years resulting in only 38 new units in Bremer[on (.2% of the city's housing stock) and 3,351 permitted units throughout the County (3.5% of the County's housing stock.) The older age of Bremerton's housing stock, with an associated increased cost for maintenance, has an impact on the conditions of housing, as detailed below, particularly in common deference of maintenance as homes approach obsolescence in today's market for homeowners. able HSA-~I ~un ts Percent: Units ,Percent Aprir 2000 - Apd12003 38 .2 of 1% 3,351 * 3.5% 1999- March 2000 132 .8 of 1% 1,678 2% 1995-1998 665 4.0% 9,533 10% 1990-1994 655 3.9% 13,134 13.5% 1980-1989 1,495 9.0% 18,275 19% 1970-1979 2432 14.6% 20,094 21.5% 1960- 1969 1720 10.3% 8,109 8% 1940 - 1959 5,976 35.8% 13,112 13.5% 1939 or earlier 3,556 21.4% 8,709 9% Total Units = 16,669 100.0% 95,995' 100% Source: Source: 2000Census Summary File 3, SamCe Data. · County Housing units for the years of 2000-2003 are those permitted, as opposed to units actually constructed. Occupancy The 2000 Census reported that 9.5% of Bremerton's housing units were vacant while the county-wide rate stood at 8.7%. Vacancy rates in this area are strongly influenced by the arrival and departure of ships and their crews at the Puget Sound Naval Shipyard (PSNS). This is evident particularly in Bremerton where the vacancy rate can rise and fail dramatically due to its relatively smaller housing stock universe and proximity to PSNS. For example, vacancy rates went from 13.9% in the Spring of 1994 to 3.0% later in the Fall with the return of HS Appendix-7 337 Navy ships. A market equilibrium vacancy rate is commonly estimated to be 5%. However, Bremerton's unique housing demands require greater flexibility and higher quantities of units than average vacancy rates suggest for communities with more stable population numbers. Another related characteristic of the local housing stock is high turn-over rates associated with a more transient population, which produces further stresses on the housing stock, as shown in this and historic housing condition analysis for Bremerton. Despite a lower number of persons per household and lower percentage of family households (children present) in Bremerton verses the wider county, there is more "overcrowded" housing in Bremerton than Kitsap County or its other cities. In the 2000 Census, 5.5% of Bremerton's housing was reported to have more than 1 person per room, compared with 3.5% in Kitsap County as a whole. The smaller size of existing units is an obvious factor underlying Bremerton's overcrowding rates, while the city's relatively lower income levels and higher poverty status are related and exasperating circumstances challenging healthy residential settings. Of 2,586 persons living in group quarters in 2000, 77.5% (2004 people) lived in military quarters. While this number fluctuates with ship deployments by the U.S. Navy, (reported as 83% of the 1990 group housing population), the military population regularly represents the vast majority of group-housing in Bremerton. There are few other long-term shelters and there are currently no college dormitories, despite the presence of Olympic Community College. The next largest percentage of group housing, after military group housing, is accounted for by a growing population in local nursing and convalescent homes. Though the 2000 Census population count was down in this area to only 348 persons (13.5% of the group housing population), an estimate done by the City in April 2003 put this population at 624 people. Demographic chafiges and the expansion of Harrison Hospital, with its associated local medical community, suggest senior citizens and others in need of assisted living situations will maintain a strong presence in the local housing market. Non family households, where non-relatives live together, maintain a substantial presence in Bremerton with a 2000 Census increase to 46% of all households, while this percentage is only 29% countywide. The trend away from family households which are composed of either married couples or children related to the head of household, continues in Bremerton where it was reported at 38% in 1980 and 40% in 1990. This is significant in terms of providing units for existing residents and demographics but also for realizing that Bremerton's neighborhoods are becoming less and less characterized by "single family" living. This demographic trend is one of several that this Comprehensive Plan looks at as it re-orients community strategies. Specifically, this is one of the primary trends that new urban living environments such as "centers" have been shown to be successful in addressing. HS Appendix-8 338 The majority of housing units in Bremerton are occupied by "renters", with the 2000 Census report showing 63% of specified dwelling units being occupied by renters and only 37% of units being owner-occupied. These percentages are exactly reversed in the wider Kitsap Community which shows a rate of 63% owner occupied and 37% of units being renter-occupied. The percentage of owner-occupied homes has generally declined throughout the region, likely due to unprecedented increases in housing costs, but Bremerton shows the most severe decline in home ownership rates, from 43% in the 1980 Census, to 39% in the 1990 Census, and, in Census 2000, at 37%, the lowest level ever reported by the Census for the City of Bremerton. (Table ' Table HSA-5 : '' OCcupied Units: SpeCified Owner or Renter, 1980-2000 . , - ~ specified o~ner, occupled Units :~ : ' Place, ,; '; Total ;Pbrcent ' Total: Percent ,, · Total :; pe~,cent Bremerton 6,082 43% 5,755 39% 5,259 37% Kitsap 35,552 67.5% 44,539 64.5% 46,779 63% County ' : , SPecifiedRenter'Occupied Units . . i;: : 1980 i990 : 2000 Place Total Percent Total Percent Total Percent Brernerton 7,985 57% 8,963 61% 8,933 63% Kitsap 17,257 32.5% 24,728 35.5% 27,944 37% County Recent (2000-2003) increases in residential property values and sales activity in the City of Bremerton suggest improving conditions for homeownership. However, any short-term gains in owner-occupied units may be off-set by investors who continue to buy and hold local properties for investment purposes, especially with the current, unprecedented Iow interest rates for home mortgages. Low mortgage rates and increasing values, in other words, attract both new owners and new investors. Significant change in this area will only accompany an expansion of the existing housing stock to better meet the area's evident homeowner market. In doing so, affordability issues arise for the existing population. Affordability is also addressed later as a factor in looking at future housing needs, following further examination of the conditions of the existing housing stock. HS Appendix-9 339 Affordability At first glance, housing costs in Bre~merton appear to be most affordable in the region, with the lowest costs in a county that has been witnessing exceptional increases in housing costs. However, the increase in housing costs is also present in East and West Bremerton where the impacts on affordability are more severe due to relatively less elastic, lower income populations. In other words, Bremerton citizens must now spend a greater percentage of their income to continue to afford to buy or rent housing as prices climb. ~ ~; ~ ~ ~ E~ieS~ A~a~epri~andDaysonthennarKettuu~n]: ~)tngle r-am!l~ nul-~ ,-~(z ~ 2000 Change ~i~& ~OM p~i~& D0M p~ice [:)0M Price I~OM : WestBremerton $100,494 115 $97,066 83 $97,810 75 $108,358 77 $105,859 63 5.5% EastBremerton $108,274 119 $117,84685 $115,~71 68 $124.236 81 $128,923 52 19% W. Central Kitsap $155,853 138 $159,393 90 $152,472 82 $168,894 77 $17'7,792 87 14% E. Central Kitsap $108,274 119 $117,846 85 $115,871 68 $124,236 81 $128,923 52 19% South Kitsap $131,875 146 $147,924 94 $149,754 90 $149,594 82 $154,104 85 17% Kitsap County $138,171 $146,791 $153,070 $154,285 $163,557 18.5% (Without Bain- bridge Island) Multiple Listing Service data in Kitsap County Real Estate Trends Report, Richards & Associates The gap between Bremerton ho.using prices and surrounding jurisdictions shown in data in the table above, is closing, even more rapidly in past 2 years. Average prices for homes in West Bremerton increased in the year 2002 by 11.5% over 2001 prices, to $117,990; in East Bremerton, the average was up 7.2% to $138,195. Sales data and a the shortest amount of time on the market, confirm this trend of sharply increasing sales prices, partially due to a small inventory of units available. County Assessor data also shows tracks median sale price; for the first quarter of 2003, the median price in Bremerton is $130,000. in fact, sales trends show prices in Bremerton running nearly 35% above the assessed market value in March 2003, outperforming assessment more than any other jurisdiction as of Spring 2003. With reinvestment and revitalization efforts quite apparent in Bremerton, housing costs should continue to increase, possibly bringing a market for comparable units more in line with other Seattle-satellite cities than with the outlying, less urban, jurisdictions of Kitsap County. The difference in home prices between the city and the surrounding parts of the county can be attributed in a large part to the quantity and diversity of their respective housing inventories. For example, many home sales in Central Kitsap are of new homes, while most sales in Bremerton are of used homes. Used HS Appendix- 10 340 homes, especially those with relatively fewer bedrooms, smaller yards, and lower investment costs (as is also true of Bremerton homes), are often converted into rental properties and are absent from the market for homeownership. A higher percentage of rental properties in Bremerton than elsewhere in the County (at 63% of units reported in the Census) results in fewer affordable houses available to first-time, Iow and moderate income buyers in Bremerton. This exacerbates the challenge Bremerton residents face in their attempts to obtain an affordable entry-level home within the city. Affordability is traditionally defined by the costs of housing in comparison the income of current residents. As detailed by national guidelines as well as in an individual's application to qualify for a traditional mortgage, housing is considered "affordable" if a household spends no more than 30% of its monthly income for total housing cost (including costs such as taxes, insurance, and utilities.) Studying income levels in the City of Bremerton is the best means to gauge the question of affordability of local housing for Bremerton residents. Table HSA-7 Bremerton Household Income in 1999 Income levels Households Percentage Less than $10,000 2071 13.8% $10,000 to $14,999 1365 9.1% $15,000 to $19,999 1303 8.7% $20,000 to $24,999 1267 8.4% $25,000 to $29,999 1290 8.6% $30,000 to $34,999 1188 7.9% $35,000 to $39,999 1072 7.1% $40,000 to $44,999 1043 6.9% · $45,000 to $49,999 721 4.8% $50,000 to $59,999 1235 8.2% $60,000 to $74,999 1003 6.7% $75,000 to $99,999 815 5.4% $100,000 to $124,999 323 2.1% $125,000 to $149,999 149 1% $150,000 to $199,999 116 0.8% HS Appendix- 11 341 While the median income household ($30,950,1999 data) could afford a total monthly expenditure of around $775 for housing, more than the median rental cost and nearing qualifications for current home mortgage cost for entry-level homes in Bremerton, there is a large disparity of income levels within the subsets of the population, especially the Iow income population. As shown in the table above, 23% of the population has an annual household income of less than $15,000, yielding less than $400 for affordable monthly housing costs. The housing needs for such Iow income households are extremely difficult to meet with sanitary, safe, and satisfactory manner by the private sector. The public sector, partially outlined in the Housing Resources section below, attempts to assist in finding and maintaining affordable housing options but it too is clearly overwhelmed by the unmet demand for affordable housing options. Within the "other half" (households above the median income), only about 15% of the households have an income over $60,000. Essentially, the incomes of the majority of Bremerton households are "packed" around the median income. This indicates both a significant market for any future housing initiatives which could currently afford homes in the lower lO0's (average $115,000) but would have difficulty affording the current average sale price for the current inadequate inventory of homes. The 2000 median monthly rent in Bremerton was $554, which is 20% less than the average rental rate reported for the whole County. This trend of lower costs in Bremerton than in the County, again, does not directly address the issue of rental affordabitity, especially for Bremerton residents. The more relevant factor in studying affordability is the rate of local increase in housing costs, especially in comparison to local income levels. Rental costs in 2000 actually showed an increase of 70% over 1990 levels when rent costs averaged $323. At the same time, increases in the household income are reported at about half the rate of the increase in median rental rates. In other words, rental r~tes on average climbed ; Ho~hoiS~ ; Pe~e~t HOi~SeliOids I pe~ Less than 15% 1,325 14.8'/o 4099 14.7% 15 - 19.9% 1,099 12.9% 3997 14.3% 20 - 24.9% 1,089 12.2% 3696 13.2% 25 - 29.9% 854 9.6% 2935 10.5% 30-34.9% 665 7.4% 2438 8.7% 35 percent or mom 3,131 35% 8151 29.2% Source: 1990 Source: 2000 Census HS Appendix-12 342 twice as much as did income levels in Bremerton. Residents in the lower end of the city's income range experienced more dramatic impacts, with even greater disparity between the growth of their income and their housing costs. As seen in the table above, nearly 40% of Bremerton's current rental population is paying more than what is deemed affordable for rental housing. This translates to about a quarter of the total population living in rental properties that they can not truly afford. With increasing housing costs throughout the County, housing affordability is obviously a pressing regional issue, challenging policy makers in both housing and economic development. In fact, despite generally higher income levels in the rest of the County, rental properties countywide have been shown as equally unaffordable. Demand is evidently high for the existing rental opportunities, especially in Bremerton with its highly transitory and young population (ages 25-44 regularly the largest cohort in census counts, suggesting an infusion of this age cohort (often navy personnel), and not an ageing of the existing population). This demographic helps fuse the rental market and continues to constrain the inventory of existing units for purchase, especially the affordable entry-level units that are positioned to get a large return from the existing rental market. An additional qualifier when comparing this data for affordability, and an important factor in assessing the housing stock, is that the inventory of homes in Bremerton is much smaller than the County. This makes comparisons rather difficult as a smaller pool of data can cause exaggeration as compared to change that is demonstrated amid a larger or more diverse inventory. Often, the cost of homes is tied to the supply of comparable homes as opposed to simple appreciation of the housing stock. An increase in the inventory of homes (supply) in Bremerton, potentially enticed bY the current increase in value and demonstrated regional demand, could then bring greater diversity and greater affordability to the existing housing stock. The issue of housing affordability is a county-wide issue. The availability of affordable housing is crucial for lower income households, which more often face limited choices, including geographic options. A lack of affordable housing distributed equitably and near work places, forces people to live farther from their jobs, despite the magnified impact of transportation costs. Higher densities and Bremerton's urban setting has also resulted in a higher percentage of multi-family units built over the years, particularly older apartment complexes, that now heavily rely on the Federal government's Section 8 program that subsidizes rental costs for Iow income households. The subsequent, disproportionate, amount of the county's subsidized and public housing in Bremerton has resulted in a concentrated number of Iow income people, and with that concentration, weakened tax revenues yet higher needs for public services. However, Bremerton might have even subsidized income households if more of its housing stock qualified for federal certificates and vouchers. Unfortunately, a great deal of the city's housing stock is of too Iow a quality to be used for publicly subsidized housing and is thus, truly detracting from quality, stable residential settings. HS Appendix- 13 343 ~itions The last thorough city analysis of existing structures was conducted in 1993 by the City of Bremerton Department of Community Development. At the same time, a study of Kitsap County Assessor data also revealed that nearly one fifth (17.3%) of Bremerton's occupied single family housing units rated as only being in fair, poor or very poor condition. Of the City's one-to-four unit housing structures, 15% rated "fair"- have only minor deficiencies. However, 2%, were rated "poor" -meaning that they have substantial deficiencies (e.g. cracked foundation or need new roof), while 0.3% are abandoned or of questionable habitability. (See Table G-8 ) Single Family 673 6,169 1,222 186 26 8,278 Duplex 29 498 119 5 1 652 Triplex 0 6 6 1 0 13 Fourplex 0 21 5 0 0 26 Total Buildings = 702 6,694 1,352 194 27 8,969 Percent = 8% 75% 15% 2% 0% 100% Source: Kitsap County Assessor's Office, 12/94. Substandard housing will need to be replaced or rehabilitated in the next 20 years. In addition to the existing substandard units, additional units can be expected to become substandard each year. A rule of thumb is that, based on typical survival rates of existing housing stock, 2% of units at least 25 years old will become substandard each year? The estimate of units to be replaced or rehabilitated is based on the following assumptions · A backlog of 194 units rated "poor" or "very poor" must be rehabilitated or replaced in the next 20 years -- an average of 10 per year. · An additional 275 housing units are expected to become substandard each year (2% of approximately 13,684 built before 1980). 2Small Communities Guide to Comprehensive Planning, Washington State Department of Community Development, June 1993, pg, 147. HS Appendix-14 344 Therefore, the replacement or rehabilitation of 285 units per year will eliminate the current backlog of substandard housing and address the units that becoming substandard between 2003 and 2023. In total, it is expected that approximately 5700 units will be in need of some level of rehabilitation during the planning period. Private and public efforts listed in the Goals and Policies section of this Housing Element describe measures aimed at stemming this tide of rehabilitation needs. These goals and policy directions include taking actions such as increased code enforcement as well as recognizing the critical role of new development and increase land values that will spur new investments and property improvements. · Approximately 12% of substandard units are expected to be unfeasible to rehabilitate, and therefore require replacement each year - a total of 684 units over 20 years.3 3This forecast assumes continuation of the existing proportion (12.2%) of all substandard units (230 units) rated as "very poor". "Substandard units" are those classified as "poor" or "very poor" by the Kitsap County Assessor. HS Appendix- 15 345 B. HOUSING RESOURCES Meeting the needs and vision for housing in the City of Bremerton is predicated by a shared understanding and commitment between all interested parties, including residents, public officials, non-profit organizations, and private developers. Housing resources, from tax credits for new market affordable high density projects to federa~ housing vouchers administered locally, require continual coordination and education. While endorsing the Countywide Consolidated Plan and its objectives regarding shared public housing strategies, this Element works to elevate the housing issues and opportunities among federal, state, and county resources. In some areas, housing resources are too focused on Bremerton while in other areas, resoumes are too limited or diversified for a healthy future. As detailed in the Housing Appendix, Bremerton is particularly burdened with more than its "fair share" of subsidized units (as agreed upon in the county-wide Consolidated Plan.) Bremerton Housing Authority and the Kitsap Consolidated Housing Authority, who administer and provide subsidized housing, must continue the work to break up concentrations of public housing and to diversify housing options in Bremerton. The nearly 3,800 households currently on waiting lists for housing assistance speaks to this need, including innovative options such as workforce-housing and co-housing developments to meet such needs. Another need clearly demonstrated by the examination of existing housing resources in the Housing Appendix, is for transitional housing in Bremerton. The high percentage of renters in the city, at 63% in the 2000 Census, would benefit from transitional options, with related services, that ultimately lead to self- sufficiency and home ownership. Additionally, for thiose facing acute housing crisis, there are only 12 family units for homeless families in Bremerton, only 17 beds for women and children fleeing domestic violence, and, currently, no homeless shelters for men. PUBLIC AND ASSISTED HOUSING OPPORTUNITIES Bremerton Housing Authority owns a total of 2,256 units and/or certificates and vouchers under its jurisdiction in Kitsap County. Some areas of the county, in particular in Bremerton, contain assisted housing inventory that may not be realistically repaired or maintained. Throughout the county, many units of public or HUD designated "affordable" units are about to become available for purchase or preservation (716 in the next five years). As of June 28, 2000, Bremerton Housing Authority has 1000 Applicants on the Bremerton Housing Authority Section 8 Wai~ List, and 1069 Applicants on the Kitsap County Consolidated Housing Authority Section 8 Wait List. HS Appendix-16 346 Both the Bremerton and Kitsap County Consolidated Housing Authorities own, operate and develop public housing, receiving federal subsidies though contracts with HUD. These units consist of single-family and multi-family dwellings, which are leased to qualified Iow-income persons or families. The Federal government generally finances public housing projects, with HUD paying the debt service on the borrowings. Additionally, there is private housing that is secured with public assistance, the majority of which is called "Section 8" housing. Through the coordination of the local Housing Authority, "Section 8" landlords receive the difference between the fair market rent amount and the actual rent amount the qualified Iow-income individual or family pays. Bremerton Housinc Authority has the role of more than 2,100 Section 8 Sub-Total 105 BHA Units TOTAL: 2090 Conventional Public Housin, * Revised 4/00 Westpark - Multi-Family (Bremerton) 555 231 - 1 265 - 2 bdrm 55 - 3 bdrm 4 - 4 bdrm Searle Street -Westpark - Mufti-family 27 25 - 1 bdrm (Bremerton) 2-2 bdrm Tara Heights - Family (Pine Road, 21 I 2 - 2 bdrm Bremerton) 7 - 3 bdrm 2 - 4 bdrm Sub-Total 603 Section 8 Vouchers Existing: Certificates (BHA) 57] Vouchers (BHA) 371 · *Family Self-Sufficiency Vouchers (BHA) 25 Nimitz Certificates (BHA) 46 Nimitz Vouchers (BHA) 20 Certificates (KCCHA) 224 Vouchers (KCCHA) 59 Nimitz Certificates (KCCHA) 46 Nimitz Vouchers (KCCHA) 20 Sub-Total ] ,382 BHA as Administrative Agent: Rainier View 25 Wedgewood 50 Hostmark II 30 HS Appendfx-] 7 347 certificates and vouchers used throughout the County. Another 265 Bremerton households live in Section 8 New Construction units, and 38 households live in the Pinewood Manor Section 202 facility. Several of these projects are privately owned and operated. The contracts on two Section 8 projects in Bremerton -- Charter House and The Firs -- expired in 1993. The remaining five contracts will expire between 1996 and 2003. These units could potentially be taken out of the assisted housing inventory. The City has no information that would suggest any of the owners will choose to opt-out of the contract by not renewing. The Tamarack Apartments in Bremerton have a federally-subsidized mortgage and are thus restricted in the level of rents they may charge. There are approximately 3,800 households on waiting lists for housing assistance in Kitsap County. SPECIAL NEEDS HOUSING OPPORTUNITIES Special needs populations are another important demographic to consider in assessing the quality and efficacy of Bremerton's housing stock Special needs populations include the elderly, frail elderly, persons with disabilities (mental, physical, developmental), persons living with HIV/AIDS, persons fleeing domestic violence, persons with alcohol or other drug addiction and people affected by more than one identification. Community public services needs such as food programs, childcare, poor and homeless case management and employment skills training are some of the services that support vulnerable populations. In general, there is a high quality to the supportive services provided to populations with special needs throughout Kitsap County. However, overall federal and state funding for most services has decreased or not been renewed during the past five years, while numbers of homeless individuals and families, and people with special needs have increased throughout the region. New welfare law changes have increased the number of working poor, and the closing of two Puget Sound Veterans facilities has also added individuals to the needy roles. Finally, the increasing cost of permanent housing severely challenges the Iow-income majority within Bremerton, as well as the special needs and homeless populations. Permanent housing for special "special needs" populations has several limitations: family accessible facilities are limited, there is an increasing need for developmentally disabled adult housing (as this population now lives longer), and there is need for more home ADA accessibility to keep clients at home. Alcohol and substance abuse treatment services continue to be taxed by the large number of court directed and DSHS referred clients. Home care services are limited and need to be increased to keep families together and remaining at home. The State of Washington has prioritized home care rather than assisted care, partially as a cost saving method. Accessibility, weatherization, home care HS Appendix-1 8 348 visits, healthy nutrition and transportation, however, are expensive commitments required to make this prioritization work. Facilities are available in Bremerton and throughout the county to provide supportive housing for the elderly and frail elderly. Facilities cover a broad range: adult family homes for 2-6 adults, Section 8 construction, assisted living, convalescence, and a range of personal care and services. In addition, services provided throughout the county aim to forestall homelessness of the elderly by providing services that help the elderly to remain in their existing housing. (see the list of Public and Assisted Housing below or the Consolidated Plan, Appendix E, for list of available housing and assisted housing for the elderly) Paratransit provides transportation to and from Medicaid covered medical services to anyone who receives medical assistance through DSHS. Kitsap Transit Access also provides transportation to the elderly and disabled persons who are unable to use the fixed route transit system and meet specific criteria. However, the service has been significantly reduced as the result of legislation that reduced transportation funding. TEMPORARY AND TRANSITIONAL HOUSING OPPORTUNITIES Temporary housing is particularly important for the special needs population for healthier transition periods but is utilized and needed by all segments of the wider community. Unfortunately, such safe houses are under stress, partially due to the lack of awareness and distribution County-wide (see table below showing concentration of these facilities in Bmmerton.) Currently, one women's emergency shelter requires clients to leave during the day, thus, its elderly and "Special Needs" clients do not have somewhere else to go. While need for an emergency shelter for men is not clearly established since the previous shelter facility closed, a group of citizens and providers are currently examining the resources and partners within the community to propose new options, including a "rotating" shelter through various churches in the County, with transportation to Bremerton for public work programs and meal programs, such as those of the Salvation Army located near downtown. Most people seeking transitional housing are referred from emergency shelters or other social service agencies. It currently takes eight months to two years to secure long term affordable housing, therefore transitional housing is a primary need, and it is anticipated to remain the main focus of service providers, as identified for the current 5-year planning period in the Consolidated Plan. The purpose of transitional housing is to give families time to stabilize their financial situation, save money they need for deposits and utilities, seek jobs or training and attend to other family needs before moving into permanent housing. There is a need to increase housing options for persons needing transitional housing. However, successful transitional housing is often difficult to establish and maintain. Agencies and individuals providing transitional housing must be trained in complex, non-revenue driven, property management issues. To be HS Appendix-I 9 349 successful, transitional housing requires convenient access to social services, such as case management, but still be dispersed throughout the larger county. Secondly, they should be integrated with permanent housing opportunities, which suggest a comprehensive housing approach and multi-purpose housing developments. Emergency shelters are not currently staffed to provide diagnosis or triage services for mentally ill or non-sober clients. There is no sobering center for substance abusers. Safety issues and lack of trained staff necessitates that these clients remain out of emergency shelters. Strategies are being studied, with the help of the new Drug Court, to find supportive shelter for persons awaiting treatment. Persons fleeing domestic violence are in need of safe transitional housing to be used in addition to emergency shelter beds. Low cost permanent housing is in short supply. There are no County in-patient alcohol and substance abuse treatment services for youth unless they have been arrested. Family Self-Sufficiency programs and job training are offered and encouraged through public housing organizations. Homelessness causes great instability for an affected individual or family. Case management and resource referral is generally needed for a period of time to restore stability. Several agencies in Bremerton provide intake, assessment case management services to Iow and no income individuals. Due to a lack of funds to fully meet requests, most agencies must prioritize, by greatest need, the persons they assist. A recent homeless count reported in the Consolidated Plan indicate that were 689 persons served by homeless shelters in 1999, while 1872 persons were turned away. Famiiies with children, single women and persons fleeing domestic violence are the largest portions of homeless persons receiving available resources. These populations are often participants in WorkFirst (welfare reform) programs or have Iow paying jobs .(working poor.). The number of men served was significantly reduced with the closure of the men's shelter in 1998. The community is still considering ways to address homelessness among single men. Generally, issues such as alcohol or mental illness contribute to homelessness among single men more so than other demographics. Meanwhile, there has been an increase in the percent of homeless single females with children, and couples with children being turned away. This relates to a change in state regulations that allows families to remain 90 days instead of 60, thereby decreasing the number of different people served. The homeless population are individuals and families who are without shelter due to circumstances that are not of their choice. Many persons often considered homeless, however, do not fit the United State Housing and Urban Development (HUD) definition. Runaway youth who go from friend to friend with an occasional park night are usually not considered homeless by HUD. Ex-inmates waiting for a bed in a half-way home or substance abuse rehabilitation facility (usually 30 days) are also not eligible for homeless funds. Other ex-offenders fall through the cracks of local home~ess support efforts. Sex offenders are particularly difficult to place in the community with enough safeguards and adequate services for the ex-offender. There are no live-in, "half-way homes" treatment facilities available HS Appendix-20 350 locally to ex-offenders, so the opportunity to safely provide treatment support for members of our own population is not realized. Once an individual or family is forced out of their home there are few emergency resources for their support. Kitsap County has only 12 family shelter units, fewer than 30 beds for single people, and 17 beds for women and children who are victims of domestic violence. St Vincent de 10 beds E3remerton Single Paul Women Kitsap 12 units Bremerton Families 5 units Community 32 Beds WestPark 9-Good with Resources children Kitsap Mental 2 beds Bremerton Good CMl 2 beds Health Service YWCA ALIVE 17 beds ;onfidential Good Women & 20-30 beds Children of Domestic I , Violence *information prowded in the Kitsap Count' Consolidated Plan People in the ESAP-funded shelters (the last three in the above table) can come from any community within Kitsap County, of which Bremerton is the largest. This concentration of homeless shelters and services in Bremerton, however, presents a chaltenge to the city's work to establish cohesive neighborhoods with a majority of homeowners. However, a equal distribution of the population and the needs county wide is inhibited by transportation costs which are further imposed upon by Initiative 695, increasing the geographical burden of some areas, while making others practically inaccessible. The Continuum of Care Coalition for the Homeless and the Food Banks Coalition are two network organizations that meet regularly to coordinate services and cooperate to identify and meet the needs of ctients. Self-sufficiency, unfortunately, must be deferred as a long term goal. Homeless special needs populations have been shown to do better with case managers supporting their multiple transitions through resources offering safety and self-sufficiency. Access to affordable transitional and permanent housing is seen as key to the success of supporting homeless individuals and fatuities to self-sufficiency. There is also more need for emphasis on prevention activities to assist those who are at risk of becoming homeless, which will require a proactive community HS Appendix-21 351 effort, especially due to Iow funding levels for additional city-sponsored efforts. While the range of available services is broad, there continues to be unmet needs due to reduced state and federal funding, geographic isolation, un-funded mandates, and growing population, especially within the working poor. III. Future Housing Projections Evaluating local housing needs requires multiple levels of analysis from numerous perspectives. It is meant to be an on-going charge to the city and to housing organizations and can not be fully accomplished in one snapshot in time or in a rigid housing plan. Demographics, studied over time from the local to the national level is a conventional approach to an examination of the housing market. National trends, for example, suggest continued and significant growth in the number of single households (non-married without children), seniors (65 years and older households) and single-parent headed households. The particular housing needs and characteristics of these demographics, including a smaller household size, challenge the predominance of suburban-style single-family detached housing units in the current housing market. While household size nationwide continues to decrease, a significant subset of the nation's minority population shows consistently higher household sizes with different housing expectations. Demographic data taken from U.S Census, described in Current Conditions above and referenced in setting the city-wide projections found in the "Introduction, Setting the Planning Framework", help profile the City of Bremerton, Kitsap County, and the State of Washington. Population and household size are key factors used to estimate the number of new housir~g units which will be needed during the next twenty year period. Income and age information, described above in occupancy and affordability section above, help identify the types of housing and physical improvement which will be in demand. The focus of this Comprehensive Plan, however, is on enticing new growth to the city which capitalizes on Bremerton's unique location and access in the region as well as its metropolitan characteristic, unique in Kitsap County. Existing demographics, household sizes, and incomes are instructive for gauging the existing market but, as detailed above, current data highlights approaching changes in the market. This Plan endeavors not only to address long-standing issues regarding housing, but to attract new kinds of housing and oppoKunities. The Centers Concept, centra{ to this Comprehensive Plan, form the basis for this approach. It is found in the Land Use Element but repeated below as it provides the destination point that the goals and policies are designed to assist the community in reaching. HS Appendix-22 352 Calculation of Future Residential Land Need The population projections employed in this plan anticipate that the 13,000 new persons expected in the community by 2023, will live in a variety of single family households and multi-family settings. The table below is derived from data in the Kitsap County Buildable Lands Analysis 2002 and illustrates the historic trends in this arena, Table LU.i. Housing Types Permitted in Bremerton, 1995-1999 (source data; Kitsap County Bui~ciable Lands Analysis, 2002) Housing type density units % of total SF - 1 1-3 du/ac 2 .5 Total SF: ~ 42.4% SF - 2 1-8 du/ac 26 6.7 (164 units ) SF - 3 3-8 du/ac 129 33,3 DR 3-8 du/ac 7 1.8 MF - CBR 8-18 du/ac 5 1.3 MF - MF 8-18 du/ac 213 55.0 I Total MF: ~ 57.6% MF - MR 8-44 du/ac 5 1.3 I (223 units) Total:387 The table above presents the past - a historical backdrop. While the past certainly influences the future, the goals and policies in this plan represent an attempt by the community to move to a new paradigm. In general, that change is focused on providing a moderate increase in the proportion of future housing opportunity in higher density types. The majority of these opportunities will occur in mixed use centers. In addition to this emphasis, the Plan's community goals and policies also indicate a desire to increase density in existi'ng neighborhoods -both by encouraging smaller lots in new subdivisions, and also by encouraging infill of vacant existing properties. The net result, never-the-less will be small increase in overall density in traditional neighborhoods as well. The following table provides calculation of residential land need to accommodate the City of Bremerton's population growth forecast over the twenty year planning period - approximately 13,000 persons (see Land Use Appendix, "Table 4", pp.20-24.) The table is based for four categories of residential uses. Because the new framework introduced by this Plan results in some new housing environments, these categories are not the same as those for which the historical data depicted in Table LU.i above is available. However, if the assumption is made that 30% of the housing units in the "centers SF + MF" (single family and multifamily residential uses in centers combined) category are single family uses and 70% multifamily, it is possible to estimate that more than 50% of the new housing units anticipated by this calculation are in single family types. It is important to note that even within a model that places nearly 60% of new housing units in centers (and nearly 58% of new population) an overall emphasis on single family housing types remains. In fact, the actual proportion of SF types HS Appendix-23 353 increases over the historic pattern depicted by the data in Table XX above. This is consistent with community goals and policies calling for increased home ownership and supporting traditional neighborhoods, while it also addresses the community's desire to create a new urban experience and living environment - the ability to choose to live in the new mixed-use centers. Table LU.ii. Net Future Residential Land Need net % of hshld Type Density acres tot. population (alu/ac) needed DU Low high Iow high Iow high need* size iow high 1 .Neighborhood SF 4 6 238 402 1429 1607 36.96 2.8 4,000 4,500 2. Non-centers MF 8 18 28 94 500 750 10.87 2.0 1,000 1,500 3. Centers SF+MF 20 20 109 130 2174 2609 47.83 2.3 5,000 6,000 4. DT Center MF 40 40 13 19 500 750 10.87 2.0 1,000 1,500 Total: 387 645 4,603 5,716 totalpop 11,000 13,500 centers pop (lines 3&4) 6,000 7.500 The result of the table above is a calculation of NET acres needed in the four residential housing categories used. In other words, the figures for the land are needed to site the houses and apartments needed along with their related on-site improvements. However, to calculate the number of GROSS ac~'es needed for residential development, allowances must be made for the proportion of land area that will be consumed by roads and streets, and portions of land that are not developable due to the existence of environmental constraints - so-called "critical areas". In Bremerton those proportions have been found to be approximately 17% and 15% respectively. Therefore, the gross land area needed for residential uses is larger than the NET area by a factor of approximately 32%. This document proceeds under the assumption that the actual residential land need is as follows on Table LUiii. HS Appendix-24 354 Table LU.iii. Gross Future Residential Land Needed Type range of net acres needed range of gross acres needed * Neighborhood SF 238-402 314-531 Non-centere MF 28-94 37-124 Centers SF+MF 109-130 144-172 DT center MF 13-19 17-25 TOTALS 388-645 512 - 852 * Net acreage plus 32% (per Kitsap County Buildable Lands Analysis, 2002) Residential Land Supply The land needs analysis above indicates that between 388 and 645 net acres of additional residential land will be needed over the next 20 years to accommodate the expected population increase. This estimate is comprised of two primary components, non-centers residential need and centers need. Of 13,000 new population, approximately 7,475 are intended to be accommodated in Centers, while the remaining 5,600 distributed as "infill" to non-centers locations. Residential population in non-centers locations The Kitsap County Buildable Land Analysis estimates that, in 2002, there were 446 net vacant residential acres in Bremerton. The Buildable Land Analysis also estimates that there was an additional 224 net acres of "underutilized" residential lands, this comprehensive plan analysis will not rely heavily on that additional potential acreage, This is because.the City is not confident about the methodology used in the Buildable Land Analysis to determine the likelihood that a currently utilized pamel is likely to be redeveloped for additional residential uses. If the 446 acres that are more clearty available for siting residential uses is discounted by a 30% market factor, it can be estimated that about 312 acres is likely to be available for residential deve)opment. By dividing the 312 acres into the 5,600 population and employing an assumed household size of 2.4 persons, it is calcu)ated that by employing an average density of 7.5 units per acre the expected population can be accommodated on the available acres. This density is within the range assigned to the Low Densi~ Residential land use designation in this Plan. During implementation of this comprehensive plan, care will be taken to assure that average density in new residential areas {outside of centers) in that range is enabled under zoning and subdivision regulations. The availability of some amount of "redeveiopable" residential land (some portion of the 224 acres referenced in the Buildable Lands analysis and above) HS Appendix-25 355 increases the level of confidence here that the expected population will be accommodated on available lands. (Temporary Note: A relatively small proportion of the available lands employed in this calculation are currently designated for medium or high density residential uses. However, this calculation assumes that all of these MDR and HDR lands will be re-designated to LDR as depicted in Land Use scenario #3. tf Scenario #2 is chosen capacity will increase due to MDR and HDR designations on currently developed parcels that remain. If Scenario #1 is chosen, capacity will be even higher as MDR and HDR designations on vacant and currently developed parcels remain. In Sum, the calculations discussed above demonstrate that there is sufficient capacity in on existing lands outside of centers to accommodate the expected increase in population assigned to those areas. While the demonstrated capacity is at the Iow end of the range of need calculated in this Plan, it must be noted that the number employed uses a significant market factor, and assumes the maximum re.designation to lower density ranges possible under the three land use scenario's currently under consideration. In addition, it is known that there is a high amount of excess capacity available in centers that would be able to accept additional residential growth (see discussion below). This acts as "safety valve". Residential population in centers. The population projection employed by this Comprehensive Plan was developed under an assumption about the potential population accommodation of centers as designated and conceived by the Plan. In other words, once a community decision to employ the centers concept was arrived at, and once the potential centers were identified, sized, and assumptions about densities and mixes of uses in each center Were developed, these factors were employed to calculate population accommodation potential. In addition, full build-out population of each center is tempered by assumptions that much less than full build-out will occur during the current 20-year planning period. The population accommodation assumptions employed for centers in this plan represent only 20-50% of the total potential population in any given center. Table XX, found in appendix PP of this plan depicts the population calculations employed for each center. Given the methodology described above, it can be easily stated that the centers-related proportion of overall population increases in the City during the 20-year planning period are accommodate by design. HS Appendix-26 356 Hou~ GLOSSARY The following definitions have been derived from state law and coordinated countywide policy planning: a. Below Market Rate Housing shall mean housing intended for Iow-to-middle income households. Below-Market Rate Housing is a result of a concerted effort to provide housing for people who can not afford market rates, often achieved through public strategies and subsidies. Qualifying income levels are further defined as follows (WAC 365.195): i. Extremely Iow-income shall mean those households that have incomes that are at or below 30% of the countywide median. ii. Very Iow-income shall mean those households that have incomes that are within the range of 31 - 50% of the countywide median. iii. Low-income shall mean those households that have incomes that are within the range of 51 - 80% of the countywide median. iv. Moderate-income shall mean those households that have incomes that are within the range 81-95% of the countywide median. v. Middle-income shall mean those households that have incomes that are within the range of 96-120% of the countywide median. b. Market Rate Housing shall mean housing intended for households with incomes that are greater than 120% of the countywide median. c. Affordable Housing shall include both below-market and market rate housing. It represents a diverse spectrum of housing choices that supports a diverse po~ulation, Affordable housing choices represent housing costs that are 30% or less of all the various household income levels, throughout the city. d. Manufactured Housing - A "Manufactured Home" means a single family dwelling built in accordance with the Department of Housing and Urban Development Manufactured Home Construction Safety Standards Act, which is a national preemptive building code. They are also built on a permanent chassis, and designed to be used as a dwefling with or without a permanent foundation when connected to the required utilities. A "Modular Home" is a special type of manufactured housing with a different code authority. It must be certified as meeting state building code standards (receiving a "gold seal"). Any factory built housing bearing the proper state insignia is deemed to comply with any local construction standards. f. Mobile Housing - A "Mobile Home" is a factory built dwelling built prior to June 15, 1976, to standards other than the HUD code, and acceptable under applicable state codes in effect at the time of construction or introduction of the home into the state. Mobile hemes have not been built since introduction of the HUD Manufactured Homes Construction and Safety Standards Act. HS Appendix-27 357 Appendix ED: Economic Development Appendix City Profile The City of Bremerton is at the geographic center of the Puget Sound Region, located on the Kitsap Peninsula, only 11 miles across the water from Seattle and just 33 miles northwest of Tacoma off State Highway 16. (See Figure ED#XX). The Washington State Ferry system conveniently links downtown Bremerton to downtown Seattle, providing unobstructed automobile access, a unique feature, in comparison to other satellite cities around Seattle. State highways tie Bremerton and Port of Bremerton facilities (including the Bremerton National Airport), to Tacoma on the south, and to the Hood Canal Bridge on the north, Puget Sound's link to the Olympic Peninsula. Residents, visitors, and Bremerton-based businesses benefit from this unparalleled regional access as well as the city's favorable size for city operations and management. In fact, Bremerton is the largest incorporated city in the West Sound, with a population of approximately 37,000 - more than the combined markets of Gig Harbor and Silverdale, and more than the combined population of the other incorporated cities in Kitsap County. The City has grown in geography over the years, but annexation has become a more complicated process and has generally not kept pace with urban development pressures. Thus, the development and population growth in the unincorporated areas around Bremerton has far exceeded the growth of Bremerton and other cities in Kitsap County. There are many opportunities in Bremerton for "infill" development on small vacant or underdeveloped lots, but most new growth has been occurring in subdivisions and on larger tracts of land available at the urban fringes of the County's Urban Growth Areas. Several significant annexations over the years include federal housing projects of "East Park" during World War II and "Jackson Park" on Ostrich Bay in early 1960s. More recently, there was the annexation of the Anderson Creek area, located on the south side of Sinclair Inlet, as well as the "Port Blakely" property, located to the west of the state highway. Both of these undeveloped large tracks of land are slated for mixed use development to be focused around large industrial park campuses. A number of unincorporated communities remain just outside the City limits today. Enetai, Tracyton, Rocky Point, Erlands Point, Navy Yard City, and Gorst, for example, are considered part of the Greater Bremerton area and will likely grow in their urban qualities and reliance on the City of Bremerton for various types of urban services. ED Appendix l 35,%. The City of Bremerton is 14,800 acres, or approximately 23 square miles. The Puget Sound Naval Shipyard has long been the City's principal economic base despite its federal exemption from paying local taxes and property assessments. Shipyard activities strongly affect the City's population demographics and land use development. Commercial activities are often strategically located near PSNS access points, including automobile orientated business on the edges of Charleston, near the shipyard's main gate on Naval Avenue. Residential patterns have been affected by federal efforts to provide housing for shipyard workers and Navy personnel, particularly during wartime. In fact, the greatest growth period in Bremerton occurred during World War II, when the PSNS workforce reached 30,000 and the population of Bremerton grew to an all-time high of 72,500, severely stressing the available housing stock. Following the war, the population fell rapidly to less than 28,000 by 1950, leaving a legacy of underutilized units, and a large volume of small wartime housing units. One such area, formally known as "East Park", recently received several bids from the private sector for development of a master planned residential community. Recognizing the market for new housing in Bremerton and spurred on by new investments, including the Bremerton Ice Arena adjacent to the city pool and the YMCA Gym in that vicinity, this new project alone will provide for at least 300 new units overlooking Puget Sound with a view of the Olympic Mountains and, less than one mile away, downt9wn Bremert0n. Downtown Bremerton is currently the scene of the most development activity, including public investments into a modern Government Center, and along its waterfront, a new hotel/conference center and market:rate Condominiums. Since its inception, the City of Bremerton has functioned as the principal city of the West Sound, a legacy continuing today as the only recognized "Urban Center" in Kitsap County by the Puget Sound Regional Council. The densities of people per acre, the highly developed infrastructure, the employee base of PSNS, and significant public investments, including the recently renovated state ferry terminal, have proven to outlast the area's cycles of growth and development shifts. Although the Navy remains the dominant stabilizing economic force in the area, its impact is ever-changing and now divided among facilities in Bremerton (PSNS), Keyport, Bangor, and other dispersed facilities. Additionally, the installation of Highway 3 traversing the County, gave regional importance to the Silverdale area which grew from a primarily agricultural area in the 1970's to the new commercial hub for the County. As seen around the country, retail businesses and services left established downtowns for new, auto- oriented shopping centers, including department stores that left downtown Bremerton in the 1980's to become anchors at Silverdale's "Kitsap Mall". The lure of fast food, abundant on-site parking, and drive-up convenience has helped make this a predominant landuse pattern but has also lead to new appreciation of alternatives and more traditional, mixed use development. Downtown Bremerton, with its central location, sophisticated infrastructure, ferry access to ED Appendix 2 35 b downtown Seattle and Port Orchard, and proximity to PSNS, is well poised for this kind of development. In the early moments of the 21st century, the City of Bremerton is reemerging as a commercial, residential, and cultural center in the region. Downtown is the first of the city's newly designated centers, with its own adopted sub-area plan to assure a quality setting for new investments. Each of the centers proposed in the Land Use Chapter, will undergo similar processes in terms of forming private- public partnerships to bring new activity to strategic locations throughout the city. This focused economic activity, with the subsequent protection of quality residential neighborhoods, will lead to new vibrancy and economic well-being city-wide. Inventory of the Local and Regional Economy Economic Assessment, City of Bremerton and Region Table EC-1 (below) illustrates the City of Bremerton's population as a stable segment of the County's total population. While not showing growth in the City, the numbers highlight regional economic stability and growth, with the surrounding county's population more than dOubling since 1970. The State Office of Financial Management details local growth trends, showing net migration - as opposed to natural increase - as the largest source of= new residents between 1990 and 1999. In fact, Kitsap County's population has outpaced the growth in the surrounding region and is now ranked as the sixth largest of Washington's 39 counties. A more relevant factor for the business community, however, is that Kitsap County's average population density of 586 people per square mile, makes it the second most densely populated county in the state. Bremerton, as the designated Urban Center of the County, offers a population density of nearly 4000 people per square mile, making it the largest concentration of people located within a densely-populated county and a growing region. The number of employees per square mile is most dense in Bremerton, according to estimates by the Puget Sound Regional Council of over 50 jobs per square acre. Clearly, Bremerton's strong labor force and population density offer unique economic opportunities within a growing county and region. Population pressure throughout the Puget Sound region has brought more and more people into the labor force. Remarkably, employment growth has outpaced population growth in Kitsap County and Bremerton, suggesting that the new volumes of people are finding jobs while at the same time providing a market for the significant growth in trade industries. Between 1990 and 2000, for example, the county's population grew by 22% while the number of employed people in non-farm industries grew by 27% (U.S. Census 2000.) The number of jobs identified by Census 2000 in Bremerton of 13,463 is an increase of 576, despite ED Appendix 3 the slight decrease in population. The growth in number of local jobs outpacing population growth is also accounted for in changes in demographics, with a higher percentage of the population today being active in the workforce. The census in 1990 showed an unemployment rate in Bremerton of 7%. For April 1, 2000, unemployment was reported by the Census at just 5%. Unemployment rates, however, regularly fluctuate in Bremerton, strongly tied to a highly transient population and to seasonal events (construction periods or increased shipyard work), more so than the surrounding county and national economic factors, such as inflation which bring higher costs for potential employers. During the calendar year of 2001-2002, unemployment in the City of Bremerton averaged 9.5% with a workforce of 15,740, (14,240 persons employed, 1,500 persons unemployed). For this same time period, unemployment county-wide averaged 6.1% of the approximately 93,000 county- wide workforce. The County's larger population diminishes the effect of seasonal and cyclical events but it also appears t9 be a less transient population, stabilized in part through a majority homeownership rate, compared to Bremerton's report Table EC-1 Bremerton's Historical Population Growth: 1940-2003 Year I 'Population IP°pulati°n change I Percent of County Population Reports, U.S. Census (as rep0r~ed on A*pril 1 st of every 10m year), 1940 - 2000 1940 15,134 34.1% 1950 27,678 + 12,544 36.6% 1960 26,681 -997 31.7% 1970 35,307 +8,626 34.7% 1980 36,208 +901 24.6% 1990 38,142 +1,934 20.1% 2000 37,259 -883 16% Population Estimates, Washington State Office of Financial Management (as reported Apdl Ist of each year) 2001 37,260 +1 16% 2002 37,530 +270 16% 2003 38,604 +1,074 Soumes: Washington State Office of Financial Management & U,S. Census of Population and Housing of only 37% homeowners (see Housing Element for more detail.) On the positive side of the equation, however, numbers from the State Employment ED Appendix 4 Security Department show a Iow percentage of jobs in the Bremerton area that are tied to industries which are in long-term decline, reducing abrupt or wide swings in employment. The industrial mix, trained workforce, large government presence, and Bremerton's demonstrated capacity for the influx of new people, is conducive to overall employment stability. The military sector of the regional economy has had the largest economic impact on Kitsap County - specifically, the U.S. Navy. Naval facilities in the area include the Puget Sound Naval Shipyard (PSNS) in Bremerton, Naval Submarine Base (Bangor), and the Naval Undersea Warfare Engineering Station (Keyport). The arrival of the PSNS in 1891 to the West Sound brought uniqueness and stability to the local economy that had begun to slump in the 1890's with a downturn of the once dominant logging and lumber industries of Kitsap County. These industries all but disappeared by the 1950's before making a slight comeback in the 1970's with efforts by multi-faceted business interests such as the Port Blakely company, now involved in logging, financial investments, and land development. In fact, while the City has no natural resource extraction lands or activity any longer, the Port Blakely Company has a land holding within the City of Bremerton which has advanced since the previous Comprehensive Plan was written in 1995. The Port Blakely property has gone through a sub-area planning and population allocation process to accommodate a mix of uses based around an industrial campus setting supported by housing for nearly 1,000 new residents, just west of Kitsap Lake. In this Comprehensive Plan, the master plan for "Port Blakely" sets an example for the proposed Employment Centers. The other Employment Centers are Harrison, National, West Hills, and the Northwest Corporate Employment Centers. (See Land Use Chapter for more information.) Much of the private employment is actually related to military activities. The Naval Hospital and the Naval Supply Center Puget Sound in Bremerton are examples of defense-related employers that accompany the dominant military sector of the economy. In fact, the United States Department of Defense actually employs more civilians in Kitsap County, than it does uniformed personnel. There are approximately 10,500 military personnel stationed throughout Kitsap County and nearly 13,000 civilians in its various military installations, the majority represented by the nearly 8,000 civilians working at the PSNS in downtown Bremerton. The defense-related economy in Kitsap County remains stable, in part due to contractors that also compete for work within the larger Puget Sound region for other Federal projects or private industries such as Boeing Industries in the Seattle area. Most recently, there has been growth in the number of people who live locally but work in the Seattle area, capitalizing on the state ferry system connecting Bremerton (and Winslow on Bainbridge Island) to downtown Seattle. With Bremerton's less diversified job market, yet lower cost of living, the "bedroom community" phenomenon is recognizable, whereby residents and employers do business elsewhere and are not full members of the local economy. This ED Appendix 5 dynamic is expected to intensify as West Sound residents anticipate increased capacity of the Tacoma Narrow Bridge to commute to workplaces in the greater Tacoma area. Employment Trends as a Focus on Growth Industries EC-2 Bremerton-Kitsap County Prima~ Metropol tan Service Area Non-Agricultural Employment Levels De_c. ember 2000 Industry (Sector) Full .T. ime Equivalent Percentage of Tota Positions Government (Federal, 26,300 35% State, Local, including education professionals) Services 19,700 26% Goods 0Nholesale/Retail ) 16,800 .* 23% Construction/Mining 4,800 7% Finance, Insurance, Real 2,600 3% Estate Manufacturing 2,300 3% Transportation and Private 1,900 3% Utilities TOTAL 74,400 100% Source: Washington State Employment Security Labor Market & Economic Analysis Branch Government Despite the predominance and stability of the public sector in Kitsap County's economy, government's economic contribution is not growing as fast as private sector jobs and trade. Except for manufacturing, government has had the least employment growth of any sector amid a ballooning economy. Since 1970, the amount of public employment increased by 143 percent; however, private services expanded much faster during this time period, by 249 percent, alongside population growth of approximately 130 percent. As demonstrated by Kitsap County's distinction of having the second highest percentage of government jobs among counties in Washington at 35% in December 2000 (second to Thurston County), government positions and work still form the base of the economy. These positions include educational professionals, of the various school districts as well as Olympic College. Olympic College is especially related to the local workforce due to its partnerships with local employers, including PSNS for continuing education and retraining ED Appendix 6 opportunities. The College now offers 4-year degrees from several satellite colleges: Washington State University, Western Washington, and Old Dominion. Each semester, the college has over 4,000 Full-Time Equivalent students and maintains a general enrollment over 11,000. The government sector in Kitsap County is clearly at the forefront to influence the future economy. Government wages obviously have a tremendous influence on the trade sector as payrolls funnel directly to retail activities throughout the County. The public sector will remain the economic base of Kitsap County through its employment share, more and more of which is through private contracts. This dynamic coincides with a steady decline of local military personnel over the past 20 years, despite increases in activities and output at local naval facilities. Business models are expected to increase in the public sector that stress efficient, adaptive, and lean workforces that increase productivity through technological advances. Trade (Goods and Services) Growth within the trade sector in Kitsap County has far outstripped statewide growth since 1970 - a 335 percent local increase compared to the State's 165 percent. Since the year 2000, however, there has been a period of no growth, demonstrating the volatility of this sector - as it is strongly tied to the health of the economy and to population shifts, including naval deployments and waning shipyard employment. Business in Bremerton's "Goods and Services" sector must have flexibility, a condition which favors larger operations with greater capacity to weather unpredictable economic cycles. This sector is clearly dependent on consumers, with eating and drinking establishments, for example, representing the largest number of Trade workers at 34%, or 4861 jobs. The food stores, general merchandise stores, and auto dealers and service station sectors all employ about 2000 persons each, and play the most significant role in collection of local sales taxes, contributing to the City's annual operating budget. As partners in securing private investments, securities, and bonds, the service industries of commercial banking, insurance agents and real estate industries are critical to the redevelopment programs outlined within this planning horizon. At the national, state and local levels, the private-sector economy is increasingly dominated by transactions within professional services, that range from financial to hospitality services. While this is true in Kitsap County, the growth rate for industries in Goods (retail) increased the most - by 407%, between 1970 and 1999. This remarkable growth yielded an increase of about 1,300 jobs for a current total of approximately 5,280 retail positions county-wide. The growth rate in Services during this time period seems small in comparison at 239%; however, it represents a growth of nearly 16,000 jobs, yielding a total of nearly 38,000 Service jobs. This local phenomenon of greater increases in retail employment came with expanding retail opportunities in Silverdale, facing a population influx and limited regional retail centers. This type of retail growth, so heavily saturated ED Appendix 7 in the past economic cycle, will likely weaken in the next cycle, as consumers face new lifestyle choices, from shopping on-line to taking advantage of mixed land uses, where retail and service opportunities are close to home and work, and not segregated by separate land uses. Bremerton's land use plans recognize mixed-use development in its strategies to bring new vitality to its urban neighborhoods. Attracting new services to the area is important for Bremerton's economic growth, especially relevant for downtown Bremerton with its large number of employees at PSNS and its urban setting linked to downtown Seattle. Finally, Bremerton's lack of recent significant retail investments presents an untapped market potential for operations that can manage fluctuation and don't typically cater to regional highway traffic, as do suburban big box stores and shopping malls. Manufacturing The role of manufacturing in the Bremerton economy is now mostly contained in the public sector, specifically to the Puget Sound Naval Shipyard (PSNS). Printing and publishing, clothing and textile production, and tool and instrument manufacturing, however, remain strategic aspects of the local economy. More so than other sectors, manufacturing generates primary dollars, defined as money brought to the area from outside the community. This influx has a multiplying factor, spurring on growth in local goods and services, as well as public investments through taxes. This sector is strongly affected by macro-economics (cost of materials and labor standards) as well as national recessions and trends, making it the most difficult to influence at the municipal level. Coinciding with a loss of retail activity in Bremerton, this sector generally went into a major slump in 1982. In the late 1980's and early 1990's, surviving manufacturers emerged with greater strength, encompassing technological advances in the re-tooling and mobilizing of their operations. Stressing efficiency, firms such as Boeing, came into a lead position to "shop around" for communities in which to invest. Government and long range planning must now ensure unique manufacturing opportunities, trained and educated workforce, equitable tax systems, and attractive settings. Supportive, coordinated environments with advanced utility planning and incentives for this sector are critical, especially in facing intense competition in attracting light industrial and high-tech firms. Agriculture, Forestry and Fishing Kitsap County's agricultural employment is mostly (70%) in the area of veterinarian and lawn/garden services. This is obviously more prominent in Bremerton where there is no registered agricultural production. However, the city's urban setting and services do not preclude it from working with the agricultural sector of the larger community, supporting urban gardens and ED Appendix 8 farmers market, produce distribution and warehouse centers, agricultural education, and transportation needs. More broadly, urban growth in cities helps to safeguard farmable lands from sprawl development, which often promises short-term economic growth, with long-term societal costs, including loss of local, even national, food sources and environmental lands. While there are no easily farmable lands within the City, the City's designated watershed and utility-owned lands play a supportive role to fish habitat, groundwater supply, urban forestry, and a cleaner, healthier environment in the region. Likewise, the city provides leadership in this sector with environmental efforts to protect the critical lands, separate sewer and storm water collection, and research uses of effluent from wastewater systems. New industries and services are growing along side such research, especially in the field of bio-engineering, including food manufacturing. Construction The construction sector has three main subdivisions to analyze in planning for economic development: general building, heavy construction, and special trades. The largest industry within this sector is.special trades: the carpenters, plumbers, electricians, etc., who make up 60% of Bremerton's construction employment (approximately 2140 jobs). The special trades sector is particularly dominant in Bremerton due to shipyard laborers. The federally-educated, trained, and experienced workforce of PSNS is a unique and "renewable" attribute of the local economy, one that can be marketed to manufacturing firms. The next largest segment is general builders who make up 31% of the construction sector, though this percentage fluctuates with economic cycles and building season. This sector is mostly engaged in building new homes and readily expands and contracts with local development levels. It is particularly well-suited for areas with continuous growth potential, where construction is a growth industry. Heavy construction work, on the other hand, includes highways and streets, bridges and tunnels, and water, sewer and utility lines. These jobs account for 6 percent of all construction employment, normally associated with government contracts. In an economic development plan, this segment of the economy is often critical at the onset of projects, to provide infrastructure and public investments that attract and leverage private operations. The construction sector has great potential and importance in the city's efforts to position itself for redevelopment, especially for the long term development of centers throughout the city. Transportation and Utilities This sector often correlates with well-developed infrastructure. In Bremerton, the presence of numerous public entities with intense infrastructure needs and capacities, especially the U.S. Navy, augments the role of this sector. In fact, County-wide, the sector had a 210% increase between 1970 and 1999, compared to statewide growth of 157%. Such growth in this sector, however, is often unsustainable and associated with one-time expansions, such as the ED Appendix 9 creation of Banger Base in the 1970's. Total employment in transportation and public utilities was most recently reported at just 2,000 jobs, less than 3 percent of the total county employment. The largest percentage of these jobs/wages were accounted for in trucking and warehousing, mostly located in the Auto Center Way vicinity. Bremerton's location and role as a transportation hub helps solidify its role as a business and tourism gateway to the Olympic and Kitsap Peninsulas. Communication industries in Kitsap County, including telecommunications companies, are the next largest segment of this sector at 26%, with clear potential for growth, especially with the completion of the advanced digital trunk lines throughout the County. Communications is followed by sanitary, gas, and electric services. Finally, the smallest employment percentage of this sector is associated with local and regional transit, at 12 percent. This segment of the economy is often small but with significant impact, far beyond the necessary transit services and livable wages for employees. ED Appendix 10 d' Appendix CS: City Services Appendix Capital Facilities Program (CFP) Sections BACKGROUND This Capital Facilities Section differs from the City's previous Capital Improvement Program (CIP). Previously, the scheduling of physical improvements was based on anticipated available financial resources and on a priority listing of capital improvement needs for a five or six year period. While some projects in the CIP were incorporated into the Annual Budget, the CIP acted merely as a "wish list" of projects, often with no identified funding sources. in contrast, this Capital Facilities Section sets policy direction for determining capital improvement needs, evaluating proposed capital improvement projects, establishing funding priorities, and guiding funding alternatives. In the appendix related to this capital facilities section, a sub-section is devoted to each type of public service. Each such sub-section discusses; 1) existing system conditions; 2) future system needs in a manner consistent with the land use, population and employment assumptions, and LOS standards employed by this plan; 3) an identification of needed projects related to the projected growth; 4) projected project costs; and 5) a funding strategy for implementation of the identified projects. SCOPE The scope of the Capital Facilities Program (CFP) is city-wide and beyond. It includes all areas within the incorporated city limits, as well as areas surrounding the city which have been identified as Bremerton's urban growth area in accordance with the Growth Management Act. Transpor[ation and circulation-related facilities are addressed in the Transportation Element of the Comprehensive Plan. Public and private utilities within the City are addressed in the Utilities Element. The City of Bremerton uses the following definition of a capital improvement project: A project to create, expand or modify a capital facility. The project may include design, permitting, environmental analysis, land acquisition, construction, landscaping, site CS Appendix - 1 359 improvements, initial furnishings and equipment. The project cost must exceed $35,000 in 1995 dollars. Capital improvements are major projects or activities requiring the expenditure of public funds over and above annual operating expenses. They have a life expectancy of more than ten years and result in an addition to the City's fixed assets and/or extend the life of the existing capital infrastructure. Capital improvements do not include capital outlay items such as equipment or vehicles. An exception for rolling stock could be a purchase necessary to accommodate increased service capacity due to population growth such as emergency medical service units or fire apparatus. Examples are: Land or site acquisition; Building or structure acquisition, construction or major maintenance; Major repairs or renovations to the City's infrastructure (e.g., buildings, structures, etc.); Major site improvements; Utility installations or major replacements, repairs or improvements to utilities; Street construction and improvements; and Major design and engineering efforts associated with identified capital projects. The Municipal Utilities and outside agencies (Bremerton School District, Port of Bremerton, Kitsap Transit, etc.) work under their own definitions of capital improvement projects which may or may not include such things as rolling stock. CS Appendix 2 360 Fire and City of Provides facilities that support the Emergency [3remerton provision of fire and emergency Services Fire Dept. services. Law City of Provides facilities that support the Enforcement Bremerton provision of law enforcement services. Police Dept. Parks City of Provides facilities for passive and active · Land Use Element Bremerton recreational activities. · Parks & Recreation Parks & Comprehensive Plan Recreation Dept. Streets City of Provides streets, sidewalks, traffic · Transportation Bremerton controls, and street lighting. Element Dept. of · Six-Year Public Transportation Works & Improvement Program Utilities (TIP) Sanitary Bremerton Provides facilities used in collection, · Utilities Element Sewer Municipal transmission, storage, treatment or · Draft 1992 Wastewater discharge of waterborne waste within t~Tastewater Utility most developed portions of city and Comprehensive Plan some surrounding unincorporated areas. Schools Bremerton Provides elementary and secondary · Bremerton School School facilities for instruction in the several District Capital District branches of learning and study required Facilities' Plan: In by the Basic Education Code of the Support of the School State of Washington. Impact Fee Program, July 1992 Stoma Water Bremerton Provides facilities that collect and · Ord. 4454 Management Municipal transport stormwater runoff. CS Appendix - 3 361 Stormwater Utility Water Bremerton Provides supply of potable water from * Water System Municipal system of surface water and wells. Comprehensive Plan Water Utility Service area includes developed portions of city and surrounding unincorporated areas. Utility also contracts to provide water to additional areas (Tracyton, Rocky Point, PSNS, and Port of Bremerton airport and industrial park. A. Fire and Emer.qenc¥ Medical Services The City of Bremerton Fire Department is responsible for providing emergency and non- emergency fire, rescue and medical services. The capital facilities used by the Fire Department CS Appendix - 4 362 include station buildings, emergency medical services (EMS) vehicles, Fire Engines (See Figure CF- 1) 1. Emergency Medical Services {EMS) Inventory of Existing Facilities - EMS The City has five EMS vehicles. Two units (Medic #2 and Medic #3) each cover half of the city, and when staffing allows Medic 1 is placed into service. Two units (Medic #2-A & Medic 3-A) are maintained as a reserve unit to fill in as needed. Under the City's rotation policy, EMS units are replaced every ten years. Each time a new unit is added, the reserve unit is replaced by the next oldest unit requiring purchase of a unit every two years. (Table EM-l) Table EM-1 Inventory of Existing Facilities -- Emergency Medical Services EMS Vehicle Service Area Unit Capacity ~,ctive Units Vledic # 1 When in service covers from the water to Callow 1 Avenue Vledic #2 ;allow Avenue to West Bremerton City Limits 1 Medic #3 ;allow Avenue to Downtown to East Bremerton City _imits Total Active Units = Reserve Units Medic #2-A Sity-wide (replacement for Medic #2/ 1! City wide ( Replacement for Medic #3) Medic # 3-A 1 Total Reserve Units = 2 Total Units= 5 Source: Bremerton Fire Department CS Appendix - 5 363 b. Forecast of Future Needs -- EMS __,(1) Existing Demand Between 75-80% of Kitsap County CenCom (Central Communications) calls are for EMS, for the City of Bremerton 83.5% is the requests for EMS services. Over the last five years there has been an 8.7% per year increase in CenCom calls. The number of EMS calls inside the city has been increasing even though the population has not grown. This is due to a combination of factors, including an aging population, a concentration of convalescent centers and retirement homes near the hospital, and an economy in which people may tend to call for EMS to avoid the expense of a doctor. The current response time is about 5.18 minutes for all responses. There are deviations in some areas, such as the golf course. These are handled through mutual aid agreements with other fire districts. (2) Level of Service (LOS) The level of service for EMS facilities is a function of response time (location) and cait volumes (staffing). These in turn are dependent on the number and location of fire stations, the number of fire apparatus units, and the number of firefighters available. The City is developing a LOS monitoring system that measures EMS response time (time needed to respond to a call) and call volumes (the number of calls received from different areas). In the meantime, the need for EMS facilities can be estimated by monitoring response times. The American Heart Association recommends a 4.0 minute EMS response time for Basic Life Support (BLS) and an 8.0 minute response time for Advanced Life Support (ALS). Past these times, a heart patient's chance of survival goes down significantly. Current LOS = 5.18 minutes for all BLS and ALS Proposed LOS = 4.0 minutes for BLS 8.0 minutes for ALS (3) Future Demand Bremerton's population is expected to grow by 3,740 by year 2010, and by an additional 9,280 by year 2024. Using a 5-year trendline, the City is expected to continue to receive about a 19% increase for requests for service by the year 2010. (Table EM-2) CS Appendix 364 Table EM-2 Twenty Year Need: EMS Time Period Demand (Population) EMS units required @ LOS 4.0/8.0 minute response times Six-Year Need _~004' 37,38,~ )_004-2010 (new) 3,74~ Total as of 2010 = 41,12; rwenty-Year Need 2010-202 4 (new) 9,26( Total as of 2014 = 50,38; 2004-2024 (new) 13,00£ 2004 Population per KCAP population forecast. Source: Bremerton Fire Department, 01/04 Need for Capital Facility Improvements The anticipated total need for year 2024 is five EMS units -- three active EMS units and two reserve unit. Mutual aid agreements will satisfy other needs. Plans of Other Providers The September 1994 Kitsap County Draft Capital Facilities Element recommends a five-minute response time (from time of call to first unit on site) in urban areas, and a ten-minute response time in rural areas. To provide this LOS, it recommends that stations be located within a five- mile radius of each other, and that a 24-hour career staffed station be located within 10 miles of all areas. It uses replacement schedules for EMS/Aid units based on a five-year replacement cycle, unless otherwise stated. Proposed Facilities CS Appendix - 7 365 The City will need one additional EMS unit (staffed) at Station #1 sometime within the next 20 years. Existing EMS units are scheduled to be replaced every ten years, requiring purchasing one unit every two/three years. However, the replacement schedule may be moved up to every two years if call volumes continue to increase. c. Six-Year Financing Plan -- EMS (1) Six-Year Need The total need for year 2004 is three EMS units -- two active units and one reserve unit. Because the City currently has three units, no additional units will be required to meet the City's need for the next six years. However, three units will need to be replaced within that time. (This includes one unit scheduled to be replaced in 2005.) (2) Six-year Fundinq and Proiects The following chart contains the funding sources, capacity projects and non-capacity projects for the next six years. The last portion of the chart reflects the balancing of funding sources and money expended on projects. Any surplus or deficit is indicated. (Table EM-3) Table EM-3 Six-year Funding and Pro'ects -- EMS Funding Sources 2004 2005 2006 2007 2008 2009 Total General Fund/EMS Levy ¢ 125( (: 130¢ ( 135C 3900 'ALS Billings TOTAL SOURCES 0.(: 125( 0.(: 130(: 0.( 1350 3900 Projects --MS Unit Replacement £ 12.~ 0.0 13(~ 135 390 TOTAL COSTS 0.{~ 12.= 0.0 13( 0.( 135 390 Balance Surplus or Deficit 0,0~ 0.0[ 0.0[ 0.0~ 0.0~ 0.0~ 0.0 Note: All amounts are times $1,000 Sources: Bremerton Fire Department (3) Operating Costs CS Appendix - 8 366 The following chart reflects the six-year operating costs for the projects listed in the Six-year Funding and projects chad above. (Table EM-4) THIS CHART MA Y BE COMPLETED A T A FUTURE TIME TO DETERMINE THE FULL COSTS OF PARKS FACILITIES: Table EM-4 Six-year Operatin9 Costs: Emer lenc¥ Medical Services 2004 2005 2006 2007 2008 2009 Total N/A N/A N/A N/A N/A N/A N/A Note: All amounts are times $1,000 CS Appendix 9 367 B. Fire Protection Services a. Inventory of Existin.q Facilities -- Fire Protection The City has three fire stations, one each located in west, central and east Bremerton. tn 2005, Fire Station # 1/Headquarters will be moved to a new facility located at 911 Park Avenue. The City in partnership with Central Kitsap Fire & Rescue, Kitsap County Fire District #7, Olympic College and the National Guard will complete a drill tower located at 1201 Union Avenue. There are seven fire apparatus and two specialty vehicles. Three of six fire engines are reserve units, on stand-by to replace the three active units. Although there are seven fire apparatus, three engines are not staffed. The ladder truck is staffed by the Engine #1 crew. In April of 2003, due to funding constraints, the marine program was eliminated. The 26" marine response unit was taken from the water and placed into storage until continuing funding is appropriated. In April of 2004, three new fire engines and a new ladder truck will be delivered. At that time the fleet will consist of 3 -2004 fire engines and 3-1992 fire engines in reserve. The ladder truck will be a 2003. (Table FP- 1) Table FP-1 Inventory of Existing Facilities -- Fire Protection Facility Name Address Unit Capacity Buildings Size (square feet) Fire Station No. I 911 Park Avenue - under 15,34( construction Max Meigs Fire Station No. 2 5005 Kitsap Way 9,38c. Ted Tillet Fire Station No. 3 3027 Olympus Drive 7,64( Drill Tower - Jointly owned 1201 Union Avenue 1,50£ Total Buildings = 33,87.: Fire Apparatus Service Area Fire Trucks Ladder #1 ~AII of City Limits 1 CS Appendix 10 368 Total Fire Trucks = 1 Fire Engines Engine #1 Downtown Bremerton to Callow 1 Avenue --ngine #1-A (Reserve) Same as Engine #1 1 =_ngine #2 Callow Avenue to West Bremerton 1 City Limits Engine #2-A (Reserve) Same as Engine #2 1 --ngine #3 East Bremerton to City Limits 1 Engine #3-A (Reserve Same as Engine #3 1 Total Fire Engines =! 6 ~upport Vehicles 0 Total Support Vehicles: C Total Fire Apparatus = 7 ~pecialt¥ Vehicles Vlarine-20 Fireboat Sinclair and Dyes Inlets 1 ~escue One City-wide 1 Total = 2 In addition to the above, the Department has six support vehicles that will cost under $15,000 to 'eplace, but no support vehicles costing more than $35,000 are planned. .~ource: Bremerton Fire Department, 10/94 b, Forecast of Future Needs -- Fire Protection (1) Existinq Demand The City has three fire stations and four active fire apparatus serving about 38,000 persons - approximately one station per 12,667 people, and one fire apparatus unit per 9,500 people. The CS Appendix - 11 369 current response time is about 5.18 minutes. The City has an ISO Class 3 insurance rating based on manpower, water supply, etc. (2) Level of Service (LOS) The need for fire protection facilities is a function of response time (tocation) and call volumes (staffing). These in turn are dependent on the number and location of fire stations, the number of fire apparatus units, and the number of firefighters available. Until the City's monitoring system can be further quantified, fire facilities needs can be estimated by monitoring response times. · Current LOS = 5.1 minutes response time. Proposed LOS = 5.5 minutes response time. (3) Future Demand The projected population growth within the service area is for approximately 3,410 new people by year 2010, and an additional 9,590 new people by 2024. (Table FP-2) (4) Need for Capital Facility Improvements The anticipated total need for year 2014 is seven fire apparatus. No additional buildings will be needed if substantial growth is within the current city limits. Table FP-2 Twenty Year Need: Fire Protection Apparatus Time Period Demand Fire Protection Units Required @ LOS 5.0 (Population) minute response time Six-Year Need 2004* 37,38,~ 2004-2010 (new) 3,74£ Total as of 2010 41,122 Twenty-Year Need 2010-202 4 (new) 9,26(~ Total as of 2024 50,38; 2004-2024 (new) 13,00( * 2004 population State of Washington OFM forecast. Source: Bremerton Fire Department, 01/0 CS Appendix - 12 370 (5) Plans of Other Providers The September 1994 Kitsap County Draft Capital Facilities Plan recommends a five-minute response time (from time of call to first unit on site) in urban areas. To achieve this LOS it recommends that stations be located within a five-mile radius of each other to provide blanket coverage throughout the county. The element uses replacement schedules for most vehicles based on a 20-year replacement cycle, and for rescue vehicles based on a 10-year cycle, unless otherwise stated. (6) Proposed Facilities (a) Buiidinqs (b) Fire Apparatus Because the City currently has seven apparatus, no additional apparatus will be needed. However, the City will need to replace its existing fire engines toward the end of the 10-year period, and additional crews will be needed to staff all seven apparatus. No change in the existing number of stations will be needed if substantial growth is within the current City limits. c. Six-Year Financin,q Plan -- Fire Protection (1) Six-Year Need Because the City currently has six fire apparatus, no additional fire apparatus will be required to meet the City's need for the next six years. (Table FP-2) (2) Six-year Fundinq and Projects The following chart contains the funding sources, capacity projects and non-capacity projects for the next six years. The last portion of the chart reflects the balancing of funding sources and money expended on projects. Any surplus or deficit is indicated. (Table FP-3) CS Appendix - 13 371 Table FP-3 Six-year Funding and Projects -- Fire Protection Funding] Sources 2004 2005 2006 2007 2008 2010 Total General Fund 0.C Bond Issue (2002) 6,00C 6,00C Bond Issue (New) 0.0 TOTAL SOURCES 3,800 0.(: 0.0 0.(: 0.£ 0.0 6,000 Projects Fire Apparatus Replacement 2,200 2,200 Replace Fire Station # 1 3,800 3,800 TOTAL COSTS 6,000 0.(: 0.(: 0.£ 0.(: 0.0 6,00 0 Balance 0.o o.1 0.0 Note: All amounts are times $1,000 (3) Operatinq Costs The following chart reflects the six-year operating costs for the projects listed in the Six-year Funding and projects chart above. (Table FP-4) THIS CHART MAY BE COMPLETED A TA FUTURE TIME TO DETERMINE THE FULL COSTS OF Fire FACILITIES: Table FP-4 Six-year Operating Costs: Fire Protection 2004 2005 2006 2007 2008 2000 Total N/A N/A N/A N/A N/A N/A N/A Note: All amounts are times $1,000 CS Appendix - 14 372 B. Law Enforcement 1. Inventory of Existin,q Facilities -- Law Enforcement The capital facilities used by the Police Department are buildings and vehicles for patrol officers, investigations officers and administrative staff. (Since the cost of vehicles is less than the $35,000 capital facilities threshold, these costs are included in the Annual Budget but not in the Capital Facilities Element.) The Police Department is currently spread out over three facilities in three different locations. Administrative functions are concentrated in City Hall, convenient to the Municipal Court. The Patrol Division is housed in the West Precinct and the Special Operations Group is located in another City facility. (See Figure CF-I) (The City currently contracts with Kitsap County for jail services.) (Table LE-1) Table LE-1 Inventory of Existing Facilities -- Law Enforcement Facility Name Location Size (Sq. Ft.) City Hall/Police _~39 4th Street 7,08[ West Precinct/Patrol Headquarters ~,846 Auto Center Way 3,70(: Capital Hills Fire Station/Special Investigative Unit :~001 6th Street 5,40(: (S~U) Total = 16,19~ Source: "Facilities Mana~tement Alternative Plans", Department of Public Works and Utilities, 2/14/00 2. Forecast of Future Needs -- Law Enforcement a. Existin.q Demand The City has 62 law enforcement officers operating out of over 16,100 square feet of buildings - - 261 square feet per officer (including support staff). b. Level of Service (LOS) The need for law enforcement facilities can be estimated by projecting the number of officers that will be needed to serve the forecasted population, and calculating the building space needed per officer. Currently, with 62 officers, there is one officer per 599 persons. There is no consensus on staffing levels for local police departments. The ratio of both officers and total police employees to population size is significantly related to crime rates. However, there are many variables that enter into crime rates. Such standards have limited meaning because the actual number required will vary depending on the size of a city, geographic region, and type of city. Even cities of the same population size and type may differ widely in staffing needs CS Appendix - 15 373 Table LE-2 Level of Service -- Law Enforcement Officers LOS Officers Officers per 1,000 Population 1990 5~ 1., 1995 * 6;, 1 .(~ 2000 6;, 1 .~ ~referred * 7C 1 .~ 3oth 1995 and Preferred calculations assume an average population of 38,142, consistent with the adopted Kitsap Regional Council (KRPC) population forecast. 3ource: Bremerton Police Department, 12/94; City Treasurer, 2/95. Community Development Department 6/01.2003 because of differences in demographics, socio-economic characteristics, climate or other unique conditions. Washington State cities as a whole have an average of 1.6 officers per 1,000 population. Bremerton's staffing level is the same as the state average. Compared with available staffing levels from several Washington cities, Bremerton's staffing level falls between Yakima, which has a higher population, and Des Moines, which has a lower population. City Population Officers/1000 Seattle (1989) 531,400 3.06 Yakima 54,843 1.7 Washington average -- 1.6 Bremerton 38,142 t.6 Des Moines 21,330 1.5 Moses Lake 12,190 1.9 Poulsbo 5,415 2.3 The Police Department believes that its current staffing level is too Iow, given the City's crime rate. The Department recommends that 70 officers could provide a preferred level of service for the existing population. While the City's staffing level is the same as the state average, it may be that escalating crime rates are catching many cities short of staff. The Police Department considers the existing building space to be inadequate for the current staff level of 62 officers. The existing law enforcement facilities are spread out in three different locations, and building space is not efficiently designed for law enforcement purposes. This is particularly true at the Capital Hill facility, which houses seven officers in 5,400 sq.ft. (771 sq.ft/officer). A more accurate measure of the existing space per officer can be determined by omitting the Capital Hill facility and staff from the calculation. Including the Capital Hill facility Source: Level of Service Standards: Measures for Maintaining the Quafity of Community Life, Municipal Research Services Center of Washington, Report No, 31, September 1994, CS Appendix - 16 374 and staff, the Current Level of Service is 268 square feet per officer. Without that facility and staff, the Adjusted Current LOS is 212 sq.ft, per officer. The proposed LOS is lower than the Current LOS, but higher than the Adjusted Current LOS, assuming that the existing facilities will be replaced with a more efficiently designed facility. The Proposed LOS assumes that new facilities will be located in a remodeled existing building rather than in a new facility that could be designed to meet law enforcement needs most efficiently. Current LOS =268 square feet per officer Adjusted Current LOS = 212 square feet per officer · Proposed LOS = 250 square feet per officer c. Future Demand The projected population growth within the City is for 13,000 new people by year 2023. At the current level of service, the City would need 83 officers by year 2023 -- 21 additional officers. At the Police Department's preferred level of service, the City would need 95 officers by year 2014 -- 25 additional officers. (Table LE-3) Table LE-3 Future Need -- Law Enforcement Officers 2000 2023 Total New Officers 1990-2014 Population * 37,165 50,165 13,00£ Current LOS (1.6 per 62 83 21 1,000) Preferred LOS (1.8 70 95 25 ~er 1,000) 2000 population per US Census. 2023 forecast per 2003 Bremerton Comprehensive Plan. d. Need for Capital Facility Improvements To maintain existing staff levels to year 2023 at 250 sq.ft, per officer, the Police Department would need 20,750 square feet -- an increase of 4,115 sq.ft, over 20 years. To maintain the Department's preferred level of service to 2023, it would need 23,750 square feet -- an increase of 7,115 sq.ft. (Table LE-4) Table LE-4 Future Need: Law Enforcement Building Area (Square Feet) Scenario* 1995 Actual 1995 Need 2000 2023 1995-2023 Increase 1995 Officer LOS 16,63,~ 15,500 17,00£ 20,75C 4,11[ Preferred Officer LOS 16,63,' 17,500 19,00£ 23,75C 7,11~ Staff levels per Table LE-3 ~ 250 sq.ft./officer. CS Appendix - 17 375 The following table shows the future need for Police Department building area by year 2009 and by year 2023 at the proposed LOS of 250 sq.ft per officer. The year 2009 need is based on continuation of the current Officer LOS (1.6 officers per 1,000 population). The year 2023 need is based on a gradual increase in staff levels after year 2000, with the goal of achieving the Preferred Officer LOS (1.8 officers/1000) by year 2014. (Table LE-5) Table LE-5 Future Need: Law Enforcement Building Area Time Period Demand Square Feet Required @ 250 sq.ft. (Population) per Officer Six-Year Need 2003 (2000 census) 37,16~ 15,500 2003-2009 (increase) 3,90£ 1,560 Total as of 2009 = 41,06~= 17,000 Twenty-Year Need 2009-2023 (increase) 9,10¢ 4,095 Total as of 2023 = 50,16[ 21,095 Total 2003-2023 (increase) = 13,00C 5,595 .note: 2003-2009 needed based on current LOS of 1.6 officers per 1,000 pop. 2009-2023 need based on preferred LOS of 1.8 officers per 1,000 pop. e. Proposed Facilities The City is in the process of developing a City Facilities Management Plan. The goal and objective of this plan are the following: 1. Consolidation of Departments to improve communication; coordination; and streamline department management goals and objectives; and 2. Economics resulting in less property to maintain; centralize departmental needs; and reduce department manager's lost-time due to existing decentralized departments. One of the options under consideration includes selling the West Precinct building and the moving City Hall functions. Under this scenario, all police services would be consolidated downtown in a remodeled bank building. There will need to be extensive remodeling of the existing bank facility to meet the varying needs of law enforcement. The City purchased the U.S. Bank facility at Sixth Avenue and Pacific for $1M. Remodeling the building to CS Appendix - 18 376 accommodate the Municipal Court function and Police Department is expected to cost $3.9M. The estimated completion of the Public Safety Building project is December 2004. Arai Jackson is the architect firm leading the project. Design phase is in progress for the Public Safety Building. Growth issues, staffing projections and forecasting future requirements are being addressed. The Public Safety Bond that passed in 2002 that provided for the Public Safety Building, also provided funding to relocate and remodel an existing City facility that would result in a more efficient facility for the Special Operations Group. The 5,000 square foot facility has been acquired and designed for the Special Operations Group. Construction begins in June of 2003. The City is concerned about the rising costs of providing jail services. However, there is no expectation that it would be cost-effective for the City to construct and staff a new jail facility in compliance with State regulations. Therefore, the City proposes to continue to contract with Kitsap County to provide jail services for the foreseeable future. Capital Needs and Funding Plan With the above referenced projects fully funded, the City projects no additional capital needs at this writing. CS Appendix - 19 377 C. Parks The City of Bremerton provides a system of local parks (neighborhood and community parks), regional parks, and open space parks. This system is managed by the City's Parks and Recreation Department with the help of the Bremerton Parks and Recreation Commission. The park system service area consists of all land within the incorporated city limits. This parks capital facilities program drews upon severel planning efforts. The program: Updates and replaces the City's Capita//mprovement Plan: Parks and Recreation Facilities adopted in 1995. Reflects recommendations of the Park & Recreation/nterim Comprehensive P/an. 1. Inventor of Park Lands The following inventory lists local, regional, and open space park lands. Both the number of developed and undeveloped park lands are given. a..Local Parks To assist in analyzing service levels, local parks are divided into two categories: neighborhood and community parks. (1) ~orhood Parks A neighborhood park is a combination playground and park designed primarily for non- supervised, non-organized recreation activities. In addition to their recreation value, they also provide a source of open space and aesthetic quality in the neighborhood. They are generally small in size (about 3-10 acres) and serve an area of approximately one half mile radius. The City's neighborhood parks renge in size from less than one acre to more than 21 acres. (2) .Community Parks A community park is planned primarily to provide active and structured recreation opportunities for young people and adults. In general, community park facilities are designed for organized activities and sports, although individual and family activities are also encoureged. Community parks can also provide indoor facilities to meet a wider range of recreation interests. Where there are no neighborhood parks, the community park can also serve this function. Community parks serve a much larger area and offer more facilities. They usually exceed 20 acres in size and often have sport fields, water bodies, gardens, nature trails or similar facilities as the central focus of the park. Their service area is at least a 1-2 mile radius. The City's community parks range in size from less than one acre to just under seven acres. The following table includes an inventory of local parks, listed as neighborhood or community parks. Since not all local park lands are developed, both the number of developed and undeveloped park acres are listed. (Table PK~I) CS Appendix - 20 378 Table PK-1 Inventory of Local Parks Map# Park Name Address Developed Undeveloped Total (Acres) (Acres) Acres qeighborhood Parks (includes pocket parks) 2 Arvon Park 1512 Arvon St O.2z 0.2z 3 Bachmann Park South end of Trenton Ave 0.2", 0.2,~ 4 Bataan Park Sylvan/Olympus Drive 0.8," 0.8~ 12 Forest Ridge Park 10 Summit Ave 21.3~. 21.3~. 15 Haddon Park 15th & Lafayette 3.6,~ 3.69 18 Kiwanis Playfield 1701 5th Street 3.51 3.51 19 Lent Landing Lebo & Reid 1.26 1.26 29 Lower Roto Vista Park North end of Elizabeth St, 0.6 6 0.66 22 Matan Park & Community Anderson & Bloomington 0.37 0.37 Gardens 23 McKenzie Basketball Crt Morrison Court 0.02 0.02 1 Ninth Street Mini-Park E. 9th St. & Shore Drive 0,03 0.03 26 =at Carey Vista Tracyton Beach Rd. 0.2: 0.23 28 :~oto Vista Park 1800 Warren Ave. 0.70 0.70 32 ~mith Playfield 1198 Elizabeth St. 1.14 1.14 33 ~R-3 Park 601 Bruen 2.50 2.50 36 Nycoff Memorial Park Pacific Ave/lst St 0.02 0.02 Total Neighborhood Park Acres = 36.84 0.00 36.84 Community Parks (Local) 5 Slueberry Park r21 Sylvan Way 1,0¢ 5.97 6.97 8 3ity Hall Park ~,th StJWashington Ave. 0.02 0.02 21 ~anette Playfield 1125 Vandalia Ave. 2.5~ 2.5~ 30 Sheridan Park 381 Lebo Blvd. 6.4(: 6.4(: 35 Warren Ave Playfield 11th & Warren 2.07 2.07 Total Community Park Acres -- 12.07 5.97 18.04 Total Local Park Acres -- 48.91 5.97 54.8~ CS Appendix - 21 379 b. Re.qional Parks Regional parks are recreation areas that serve an entire region. They are usually large in size and often include areas of natural quality suitable for outdoor recreation activities such as golfing, picnicking, boating, fishing, swimming, camping and hiking. If tocated within an urban area, they sometimes offer a wider range of facilities and activities which serves the entire region. The City's regional parks range from two to 360 acres. The following table includes an inventory of the City's regional parks. The list of regional parks includes "local parks of regional significance". These are parks that have traditionally served as local parks, but because of special features such as waterfront access have taken on a regional role as well. These parks are listed as a subcategory of regional parks because they have been identified in the 2002 Kitsap Countywide Comprehensive Park and Recreation P/an as parks with regional significance which are eligible for countywide funding participation. (Table PK-2) Table PK-2 Inventory of Regional Parks Map # Park Name Address Developed Undeveloped Total (Acres) (Acres) Acres 6 Bremerton Boardwalk East end of 2nd St. 2.0C 2.00 11 Evergreen Park 1400 Park Avenue 14.2; 14.22 14 Gold Mountain Golf 7261 W. BelfairWay 360.0C 360.00 Complex 17 Kitsap Lake Park 1978 Price Road 2.0C 2.00 20 Lions Park ¢08 Lebo Blvd. 17.57 17.57 27 Pendergast Regional 199 Union 40.0C 10.00 50.00 Park Total 435.7.~ 10.00 445.79 _ocal Parks of Regional Significance 9 East Park Magnuson Way & Homer 17.6( 17.60 Jones 24 N.A.D. Marine Park West end of Shorewood Dr. 27.50 27.50 25 N.A.D. Upper Park 5002 Kitsap Way 53.17 53.17 Total Local Parks of Regional Significance = 70.77 27.50 98.27 Total Regional ParkAcres = 506.5~ 37.50 544.05 c. Open Space An open space park consists of undeveloped land primarily left in its natural environment, with recreation uses as a secondary objective. It is usually owned or managed by a governmental CS Appendix - 22 380 agency and may or may not have public access. This type of land often includes steep hillsides, wetlands, large forested areas or other similar spaces. In some cases, environmentally sensitive areas are considered as open space and include wildlife habitats, stream and creek corridors, forested areas or unique or endangered plant species. The City's open space lands are often heavily wooded, and development, if any, is usually limited to trails. (Table PK-3) Table PK-3 Inventory of Open Space Map # Park Name Address Size (Acres) 10 EastPark Nature Area Wheaton Way & Ash 15.52 17 Kitsap Lake Wetlands 1978 Price Road 40.1~ 34 Stephenson Canyon between Lewis &Willow 26.4c. Total Open Space Acres -- 82.11~ Other facilities The City also operates the following facilities: Sheridan Community Recreation Center (that serves the general population), the Bremerton Senior Center and the Glenn Jarstad Aquatic Center. The City also operates and maintains Ivy Green Cemetery. (Table PK-3a) Table PK-3a Inventory of Other Facilities Map # Park Name Address Developed Undeveloped Total (Acres} (Acres} Acres 7 Bremerton Senior 1140 Nipsic Ave. Center 13 Glenn Jarstad Aquatic 50 Magnuson Way Center 16 Ivy Green Cemetery 1401 Naval Ave. 10.0£ 4.90 14.90 31 Sheridan Community B80 Lebo Blvd. Recreation Center Total = 10.0~ 4.90 14.90 Total Park Lands The City has a total of approximately 700 acres of park lands. Of these park lands, approximately 8 percent are undeveloped (not including open space). (Table PK-4) CS Appendix - 23 381 Table PK-4 Summary Inventory: All Park Lands (Acres) Type In Place 7/1/03 Undeveloped Total Acres % Developed -ocal 48.91 5.97 54.8~ 89.1 o/~ ~egional 506.5(~ 37.~ 544.0( 93.1 o/~ Open Space 82.1~ 82.1~ 100.0°/~ Sub tota 637.6~ 43.47 681.1~ 93.6% Other Facilities 10.0C 4.c~ 14.9( 67.1% Total 647.6~ 48.37 696.0; 93.1% Note: Open Space parks are listed as developed, since there are no plans for further development. 2. Forecast of Future Park Needs a. Existinq Demand With 681.12 (does not include the cemetery) acres of park lands serving 37,165 (2000 Census), the City has 18.33 acres of park lands per 1,000 people. This is a 31.1% increase in park lands since the 1995 City Comprehensive Plan and is due primarily to the additional 170 acres of the Olympic Course at Gold Mountain Golf Complex. Without this addition, park lands would have remained almost static with 13.75 acres per 1,000 people. b. Level of Service (LOS) Developing a statement of LOS for parks, park facilities, and open space is dependent on local values, availability of land, financial resources, and desired service levels. There are often grey areas depending on interpretations of what constitutes open space or even land availability (e.g. should school playgrounds and athletic fields be included in park inventories). Only Bremerton Parks and Recreation lands and facilities will be used for the ensuing discussion. Past need for park lands has been estimated by comparing the number of existing parks per acre per 1,000 persons with national standards. The National Recreation and Parks Association (NRPA) first released recommended guidelines in 1971, during the growth years of park land inventories. In 1983 NRPA came out with standards that stressed the minimum goals communities should strive to achieve. Most recently, NRPA has encouraged communities to develop a need based, facility driven, and land measured model that meets their community's desires. Over the next nine months, Bremerton Parks and Recreation Department will be conducting an intensive LOS study to best identify the current and future needs of its citizens. This will involve an in-depth survey, public meetings, special task force, and involvement of the Parks and Recreation Commission. The end result will be a unique set of park standards that reflect Bremerton's needs and desires. CS Appendix - 24 382 Until this study is completed, the current LOS guidelines will continue to be used. The National Standards set forth by NRPA are 15-24 acres per 1,000 persons for local and regional park lands. Table PK-5 compares the existing LOS (ELOS) including all park land inventory and the LOS recommended by NRPA. According to the NRPA standards, the overall City LOS falls in the mid-range (18.33 acres). However, when Bremerton's 98.27 acres of local parks of regional significance (Table PK-2) are added to the 54.88 acres of local parks, the City has only 153.15 acres of parks serving local needs (Table PK-6). This is significantly below NRPA recommendations and mirrors what City Council and Parks have known _. more local, neighborhood parks are needed. Table PK-5 Level of Service (LOS): All Park Lands Type Acres Existing LOS NRPA LOS (Acres/I,000) Local 54.88 1.48acres 6 - 10 acres Regional 544.06 14.64acres 5 - 10 acres Open Space 82.18 2.21acres 3.6 acres Total = 681.12 18.33acres 15 - 24 acres Existing LOS = (Acres / 2000 population) x 1000 (2000 pop. = 37,165) Table PK-6 Analysis of Local/Regional Park LOS Type Existing Acres Existing LOS NRPA LOS (Acres/I,000) Local 54.88 1.48acres Local/Regional 98.27 2.64acres Significance Total= 153.1.~ 4.12acres 6- 10 acres c. Future Demand The projected population growth within the City is for 13,000 new people by year 2023, for a total population of 50,165, based on the current city limits. 3. Proposed City Park Facilities The Parks and Recreation 2001-2002 Interim Comprehensive Plan states that ELOS requires the addition of 34 more acres of land by 2006, particularly in resource conservancies, resource activities, athletic fields and special use facilities. CS Appendix - 25 383 Under the proposed LOS, an additional 184 acres are needed by 2006 to attain and support an improved standard for resource activities, linear trails, and athletic field facilities. The forecasted population increase will create an additional citywide need for: 5 more playgrounds 10 more play area acres 2 more miles of developed multi-purpose trail 400 square foot interpretive space I restroom 2 competitive baseball/softball fields 3 additional soccer fields 2,120 additional square feet of indoor recreational center space, plus total renovation of existing buildings. The City recognizes the difficulty in maintaining the recommended LOS, as there are fewer large tracts of undeveloped land left within the developed parts of the City. It will need to seek creative ways of adding park lands within developed parts of the city where vacant land is scarce. 4. Six-Year Fundinq and Projects Table PK-7 contains the funding soumes, capacity projects and non-capacity projects for the next six years. Table PK- 7 Analysis of Local/Regional Park LOS ~2004 12005 12006 12007 12008 12009 Funding Sources General Fund 7~ Park Facilities 112 25~ 155 136 23." 120 130 Convention Center 301 1,40( Equipment Rental 510 3( PFD 750 1,200 Voter Approved Bonds 7,00¢ Grant - CDBG 52( 73 2E 6[ 80 20 Grant - lAC 901 30( 134 860 Grant - DOE 750 Grant - UPARR 262 17 40 Grant - Tony Hawk 25 Unidentified 62.~ 1,734 10£ 70( 66 1,890 State Capital Funding 1,17.~ 850 Donations 4( 25 Fund 407 18[ 235 21~ 18(: 160 170 Bataan 1( Blueberry Development 1,00( Boardwalk 2[ CS Appendix - 26 384 Community Center - New 7,000 Dog Park~ 2£ Eastpark 30( 3£ Evergreen Park 1,50( Gold Mountain Golf Complex 18.~ 23.' 215 18¢ 16( Haddon Park 20( Ivy Green 15 Jarstad Aquatic Center 20( 100 15(] 20( Kitsap Lake Kiwanis 22," Lions 130 1£ 10 20£ 1£ Maritime Park incl. Naval Museum 650 2,20£ N.A.D. Park 10( N.A.D. Marine Park 2,50¢ 3ark Maintenance Facility/Lower Shred 600 ~ark Plaza at Conference Center 2,400 =endergast Regional Park 775 1,20(; ~urchase Tur[ Sweeper 13 Recurring 140 140 14( 140 14(} 14(} Sheridan Park Community Center 25 175 ~/ans - Purchase two 15 passenger 50 rOTAL 4,233 5,760 7,57£ 1,48( 1,900 3,070 CS Appendix - 27 385 D. Sanitary Sewer Sanitary sewer facilities are provided by the Bremerton Department of Public Works and Utilities. A complete inventory, analysis of need, and capital improvements program are provided in the update to the 1995 Wastewater Comprehensive Plan which is scheduled to be adopted in January 2005. The Plan addresses the 6-year planning horizon extending between 2005 and 2011. It therefore provides an analysis that satisfies the City 2003-2004 Comprehensive Plan Update's six year concurrency requirement. The City Comprehensive Plan must address service needs for the period from 2004-2010. 1. Service Area The Wastewater Comprehensive P/an identifies existing and future service areas served by the Wastewater Utility. The Wastewater Plan estimates the population of the service area at 43,330, of which 37,260 are within the city limits and 7,070 outside the city. The plan estimates that approximately 36,120 persons are connected to the sewer system, leaving an unsewered population of 8,210. The service area covers 15 drainage basins, of which nine extend beyond the city limits into unincorporated county areas: Trenton Avenue, Sinclair Park, Oyster Bay, Pine Road, Cerry Avenue, East Park, Callow Avenue, Phinney Bay, and Kitsap Lake. The Utility provides sewage treatment to the sewered areas in the service area through direct service and through specific contractual agreements with the U.S. Navy and Kitsap County Sewer District No. 1 (Navy Yard City). (Figure 2-2 "Service Area") 2. Inventory of Existin,q Facilities The City sewerage system consists of sewage collection, transmission, treatment, and bio- solids reuse facilities. Included are more than 188 miles of gravity sewers, approximately 16 miles of pressure lines, and 35 pump stations. These facilities convey combined sewage to a secondary wastewater treatment plant located just south of West Hills. Additionally there are 15 combined sewer overflow (CSO) sites located within the sewer collection system. During peak flows, CSO's in East Bremerton are conveyed to the East -side treaternent plant, a high rate clarification plant that starts automatically to treat peak flows that would otherwise overflow as CSO's. Approximately 60 percent of the system is composed of combined sanitary system. (Table SS- 1) CS Appendix - 28 386 BremertonWastewaterTreatmgntPlant(1) 1600 Oyster Bay Ave W (3) 10.1 mgd Eastside Treatment Plant 2475 Stephenson Ave. (4) 20 mgd Forest Enhancement Sites One & Two (2) Near Gold Mm. Golf Course 300 acres (1) City of Bremerton Final Draft Wastewater Comprehensive Plan, April 1992. (2) City of Bremerton 1993 Biosolids Report to Bremerton-Kitsap County Health District. (3) Average flow for maximum month per NPDES permit. (4) Peak hydraulic flow. (a) Wastewater Treatment Plant The existing wastewater treatment plant was designed to have a peak hydraulic capacity of 29.5 million gallons per day (mgd). Normal dry weather peak flow capacity without stormwater inflow is estimated at 5.05 mgd. Current annual average and maximum monthly flows to the wastewater treatment plant are about 50 percent of the average annual and maximum monthly flows for which it was designed Population Sg,000 36,120 21,880 Connections '25,2 ] 7 15,096 ] O, 12 l Sources: Final Draft Bremerton Waxtewater Comprehensive Plan, April 1992; Bremerton Dept. of Public Works (11/94). * Connections = Population capacity / 2.30 average persons per household size. (A change in average household size would change the number of possible connections.) (b) Forest Enhancement Proqram -- Biosolids Utilization The wastewater treatment plant produces approximately 5.8 million gallons of anaerobically digested biosolids each year. Because biosolids have fertilizer and soil amendment value the City began an active land application (silviculture) program several years ago to utilize the benefits of this wastewater process. Biosolids are used to enhance tree growth and are currently applied to 300 acres of Utility-owned forest land. Since June 1992, 100 percent of the biosolids produced at the treatment plant have been utilized in this beneficial manner. CS Appendix - 29 3. Future Needs a. Existin,q Demand There are 15,096 existing connections, including several connections at the Puget Sound Naval Shipyard (PSNS), serving approximately 36,120 people in the service area. The annual average daily flow is 5.91 mgd. b. Level of Service (LOS) The capacity of existing sewer facilities to serve future needs is determined by comparing the gallons of effluent per day now approved by the State, the number of existing connections, and the number of new people to be served. The number of new people is converted into the number of new residential connections based on assumptions of the number of persons per household, and the number of gallons of effluent generated per capita per day (gpcd). The capacity can also be estimated based on an existing and planned LOS for sewer service. The calculation of the current LOS excludes stormwater inflow. The proposed LOS is the existing county-wide average. Current LOS =97 gallons per capita per day (gpcd) Proposed LOS = 100 gpcd c. Future Demand City and County estimates of future demand differ. (Tables SS-3 & SS-4) (1) County Estimate The Kitsap County Comprehensive Plan Capital Facilities element estimates the 1994 population in the "Bremerton Area" sewer service area as 57,475. The County forecasts a 2014 service area population of 81,408 -- an increase of 23,933 persons. The County projects a need for an additional 9,031 connections by year 2014, which it estimates would exceed the capacity of the system by 1,914 connections. (Table SS-3) (2) City Estimate The City's Draft 2005 Wastewater Comprehensive Plan estimates the 2004 service area population at 44,330, of which 7,070 are outside the city limits. All but 8,210 persons are connected to the sewer system. Assuming 100% of this unsewered population will connect to the system within the next 20 years, there is a remaining capacity to serve an additional 21 ,§80 persons. The City estimates that the actual 2014 service area population will be 51,198 (rather than 81,408 as forecasted by the County). CS Appendix - 30 388 Coun~ 57,475 81,408 23,933 Ci~ 44,330 51,198 6,868 Di ffer~ce = 13,145 30,210 17,065 Sources: Ciw of Breme~on Final Draft Wastewater Comprehensive Plan, October 2004. Kitsap Coun~ Draft Comprehensive Plan Capital Facilities Element, October 1994, pg. 176. * 2014 population = 58,142 / 84% - Breme~on Planning. The City projects a year 2014 deficit capacity of 11,217(1992 figure updated figure will be available in 2005). This compares with the County projection of a deficit capaci~ of 5,072). Table SS-4) :ASl~ate Capa~i~ ~ema~d , , , , D d ~ Demand Surplus Coun~ (1) 55,581 37,000 68,245 81,408 -5,072 Ci~ (2) 58,000 37,000 58,022 69,217 - 11,217 Difference = -2,419 0 10,237 12,191 6,145 Sources: Ci~ of Bremerton Final Draft ~astewater Gomprehenxive Plan, Aphl 1992. Kitsap County Draft Comprehensive Plan Capital Facilities Element, Octob~ 1994, pg. 176. (1) 1994 CapaciF = 20,974 possible connections x 2.65 pph. Deficit Capaci~ = - l 914 connections x 2.65 pph. (2) Year 2000 Demand = 85% of Coun~ estimate - Breme~on Planning. Year 2014 Demand (85% of Coun~ estimate) -- Table SS-3. (3) Difference Between City and County Estimates These estimates of sewer system capacity are dated and will be updated in 2005. They differ for several reasons: (a) 1994 Population -- The County estimate of the existing service area population is 12,265 higher than the City Wastewater Plan estimate. The City estimate was based on a 1991 count of structures from aerial photos within actual service area boundaries, adjusted to match 1990 Census data. In contrast, the County estimate is based on the population of "transportation analysis zones" (TAZ's), which only roughly correspond with actual service area boundaries. CS Appendix - 31 389 (b) 2000 Population -- The County estimate of the 2014 service area population is 12,191 higher than the City estimate. The City estimate assumes that within the city limits the population will increase by 20,000 (to 58,142), and that the population outside the city will remain 16% (11,075) of the total service area population. (c) Household Size -- The average household size is used to calculate the number of connections to the system. The County estimate assumes an average household size of 2.65 persons per household (pph), the 1990 county-wide average. As updated in the Draft of the 2005 Water Comprehensive Plan, the City estimate assumes 2.30 pph household size in the 2004 service area. (d) Treatment Plant Design Capacity (Population) -- Due to a mistake in the City Wastewater Plan, the County lists the design capacity of the wastewater treatment plant as 55,300 rather than 58,000 population. (e) Sewer Facility Connections -- The County estimates the number of existing sewer connections at 13,858, while City records show that there are 15,096 existing connections. (f) Unsewered Population -- The County forecast does not recognize the existing unsewered population of 8,210. The City estimate is adjusted to add the existing unsewered population to the projected new population to be served. (4) 2014 Demand Estimates of 2014 sewer system capacity will be updated in 2005. Currently no deficit is identified. (5) Six-year Forecast Over the next six years the City projects an increase of 10,237 persons within the service area. In addition, it is assumed that 30% (2,463) of the existing unsewered population will also hook up to the system by year 2000. In this case, there would still be a surplus capacity to serve 5,725 additional people in year 2000. (Table SS-5) CS Appendix 32 390 City Limit 37,260 39,552 41,158 45,464 Port Blakel¥ area 0 2,230 2,230 2,230 Outside City limits 7,070 7,505 7,8 I0 8,627 49,287 51,198 56,321 Total Population 44,330 Population with septic tanks 8,210 6,900 6,000 4,000 Total Sewered Population 36,120 42,387 45,198 52,321 d. Need for Capital Facility Improvements The Draft 2005 Wastewater Plan will be developed for an ultimate service area population of 52,321 in the year 2024. The Plan willalso project service are population in 2014 of 45,198. Therefore, planned improvements will be adequate to serve the projected sewered population. e. Plans of Other Providers The draft plan will also integrate the individual wastewater plans within the county, and includes recommendations for expanding county facilities to serve projected needs. 4. Proposed Facilities The Wastewater Plan recommends four types of improvements at the treatment plant to accommodate projected sewage flows at ultimate plan service area development. Regulatory requirements -- improvements needed as a result of new or modified codes, guidelines, or laws initiated from federal, state, and local government; Growth and system extensions -- improvements resulting from new development or system extensions; Other system improvements -- recommendations that contribute to the improved operation or function of the system but are not a result of infrastructure needs, regulations, or system growth. CS Appendix - 33 5. Six-Year Financial Plan It is estimated that the existing sanitary sewer system has 8 million gallons per day (mgd) available capacity, which is sufficient to meet the total need of 5~23 mgd through the next six years. a. Six-Year Data (pending information) c. Operatin.q Costs It may be useful to consider the impact of each completed capital improvement on the City's future operating budget. An analysis of operating costs is optional; it is not required by the Growth Management Act. The following chart may be used to reflect the six-year operating costs for the projects listed in the Six-year Funding and projects chart above. (Table SS~9) CS Appendix - 34 392 393 394 E. Schools (1995 Plan element School District to update 2004-05 Note: The Schools section has not been updated. The following analysis is from the 1995 City Of Bremerton Comprehensive Plan. The School District' s ability to provide the services discussed in this section was based on a projected population growth of 20, OOO persons between 1995 and 2015. The population projection employed by this Plan (The 2003-2004 Bremerton Comprehensive Plan Update) is substantially less (approximately 13,000 population growth by the year 2023). ~Is a result, it is assumed that the analysis here demonstrates adequate capacity to serve during the period extending to at least 2015. The Bremerton School District will be conducting an update of its capital facilities analysis during 2004-2005. This section will be update when the revised District capital facih'tie$ work becomes available. Bremerton Public School District #100C provides public education in most pans of the City. The exception is a small area in the vicinity of the Bremerton Watershed, which is served by South Kitsap School District #402. The Jackson Park Naval Reservation is jointly served by the Bremerton School District and Central Kitsap Public School District g401. Only the Bremerton School District is included in this inventory, since such a small fraction of city residents is served by the South Kitsap School District, and no school facilities operated by that district are located within the city limits. 1. Inventory of Existing Facilities - Schools The capital facilities used by the school district are elementary, middle, junior high, and high schools. The district also administers a vocational skills center that serves other school districts. The present school enrollment requires the use of 50 portable classrooms. Crownhill Elementary School is scheduled to be replaced after being destroyed by fire in 1993. In the meantime Crownhill students are being temporarily housed in 20 portables, and fourth and fifth grade students are bussed to another school. The current grade configuration in the district is based on grades K-5 (elementary); grades 6-7 (middle school); grades 8-9 (junior high); and grades 10-12 (high school). Class size and student to teacher ratio vary by grade. The average class size inn the district is about 28 students per teacher (28:1). The district seeks to maintain the following average class size ratios of students to classroom teachers: Grades K~3, 23:1; Grades 4-5, 28:1; Grades 6-8, 30:1; Grades 9-12, 32:1. Class size is dependent on availability of local levy funds, which must be provided by the voters every two years. (Table SCsi) School capacity is defined as the number of students a school is designed to accommodate, and includes only permanent facilities. Portables are used as temporary classrooms until new facilities are built, or used to accommodate enrollment fluctuations. Current square footage cannot be directly correlated with existing school capacity. School capacity is determined by the number of teacher stations, which is in turn determined by school design, the educational program, and State funding criteria. a. Existing Enrollment The school district has a total enrollment of nearly 6,700 individual students. This includes 486 students in the vocational skills center program and 152 students in the alternative high school program. Some students attend only half-time or part-time in the pre-school program, kindergarten, alternative school, or vocational center. This CS Appendix - 36 395 inventory counts individual students for its enrollment figures. Bremerton enrollment fluctuates significantly depending on homeported/overhaul ship movements. Elementary school students make up about 50% (3,273) of the total enrollment. The middle school and junior high school have a combined enrollment of 1,675 students. Bremerton High has about 1,237 students including the alternative high school students. Since the vocational skills center is a county-wide educational program, the inventory does not include its enrollment. The district administers the vocational program and has agreements with the other districts to serve their students. (Table SC-I) ~in Ja~ - 800 Dibb 337 367 -30 Cro~hill - 1537 Be~ha Ave. 0 472 472 Kitsap Lake - 1 l I 1 Ca~ Blvd. 550 518 32 Naval Avenue - 900 Olympic 412 487 -75 Olympic View - 2442 Pe~ 486 513 -27 View Ridge - 3220 Wheaton Way 374 463 -89 West Hills - 520 National Ave So. 561 453 108 Total Elementa~ School Facilities = 2,720 3,273 -553 y Mountain View Middle School - 2400 Pe~ 900 924 -24 Ave. Bremerton Jr. High- 1300 E. 30th 1,236 751 485 ~0n ~i~h ~i 1,500 1,237 263 Total Seconda~ Facilities = 3,636 2,912 724 Iotal School Facilities = 6,356 6,185 171 Note: Capaci~ figures do not include potable classrooms. Source: Bmme~on School Dis~ict No. 100C, 10/94. CS ~ppendSx - 37 396 b. Existin- Capacity Five of the seven elementary schools arc over capacity. Only two elementary schools have room for more students - West Hills and Kitsap Lake. Overall the elementary schools are over capacity by 553 students, or 22 classrooms. After replacement of Crownhill school, they will still be over capacity by 395 students, nearly the equivalent of a new school. The middle school, built in 1992, is already over capacity. Four portable classrooms were added to begin the 94-95 school year. The junior high can house an additional 485 students. However, it is nearing forty years old, and is functionally inadequate in terms of technology, energy efficiency, ventilation, and classroom configuration. The high school can accommodate an additional 263 students. Fifty portable classrooms are required to accommodate current enrollment. Twenty of these are being used at Crownhill while awaiting State funding to replace the school. The developing need for a new elementary school in addition to the Crownhill replacement is apparent, as is a potential need for another middle school as larger elementary grades rise to the 6-7 level and population growth targeted for Bremerton begins to appear. The junior high and high schools still have some capacity for the near future. (Table SC-2) School TYPe 1994 S!rplus ~dtltflonal ~u!~ded !995 $u~plus Elementary (K-5) -553 * 158 -395 Middle (6-7) -24 0 -24 Jr. High (8-9) 485 0 485 Senior High (10- 263 0 263 12) Total = 171 158 329 · Crown Hill School is funded for replacement due to fire damage. CS Appendix - 38 397 ** Includes Bremerton Middle School (grades 6-7) and Bremerton Junior High (8-9) Source: Bremerton School District, 10/94. School officials also cite a need for supportive facilities -- a central food facility, a new administration building, a maintenance shop, and a bus barn. The district points out that it should be emphasized that any snapshot of facility requirements based strictly on current enrollment is subject to misinterpretation because of the fluctuating Navy population. 2. Forecast of Future Needs -- Bremerton School District a. Existing Demand - Enrollment There are 6,185 students in Bremerton's elementary, middle, and high schools. b. Level of Service (LOS) The Bremerton School District has established the standard size for schools as 550 for elementary, 1,000 for middle school/jr, high, and 1,250 for senior high. The overall student to teacher ratio is set at 23 for elementary students and 30 for secondary schools. However, the district is concerned that the use of average classroom size as a standard may be misleading, since classroom size varies by program and contract provisions. (Table SC-3) School Size (Students) 550 1,000 1,250 Classroom Size 23 30 30 Source: Bremerton School District No. 100C, 10/94. c. Future Demand -- Enrollment Proiections The need for new schools is based on projected school enrollment. The Washington State Superintendent of Public Instruction (SPI) provides enrollment projections based on thc "Cohort Survival Method". The school district considers thc SPI system useful, but inadequate to represent thc unique growth conditions of thc Breme~ton district. For ~ The Cohort Survival Method uses historic patterns of student progression by grade level to measure the portion of students moving from one grade level up to the next higher cohort or grade This ratio or survival rate is used in conjunction with current birth rates as a base for state-wide enrollment projections. CS Appendix - 39 example, 1992 enrollment forecasts based on SPI projections predicted a school population of 8,370 in 1994 -- 2,185 higher than actual 1994 enrollment. The largest single factor in Bremerton enrollment has historically been the fluctuation in naval population, which can be difficult to predict very far in advance. The Kitsap County Department of Community Development (DCD) has projected county-wide school enrollment based on the current percentage of student enrollment to population. The County estimates that the present Bremerton School District population is 56,786. Based on this estimate, the total enrollment (6,185) is 11% of the total district population. (Table $C-4) 56,486 6,185 11% Source: Kitsap County Draft Comprehensive Plan, Part III, September 1994. County-wide, the percentage of enrollment to population averages about 18 percent, with Central Kitsap the highest (26%) and Bremerton the lowest (11%). The County estimates that the Bremerton School District can expect 6,942 students in year 2000, and 8,710 students by 2014. (This estimate assumes that 18% of Bremerton's future population will be K-12 students. An assumption that students would continue to make up only 11% of the population would lower the projected enrollment.) The School District points out that the difficulty with making accurate student projections is illustrated by the middle school projected year 2000 enrollment of 1,037 students. The October 1994 actual figure was 1,030, so the District is effectively six years ahead of the County projections already. (Table SC-5) Elementau 2,720 3,674 -954 4,609 -1,889 Middle 900 1,037 -137 1,301 -401 Jr. High 1,236 843 393 1,058 178 Senior High 1,500 1,388 112 1,742 -242 Total = 6,356 6,942 -586 8,710 -2,354 CS ~ppendix - 40 S~urces: ( ~ ) Tab~e SC-~3~ Kitsap C~unty Draft C~mprehensive Plan~ Part III~ September ~994~ pg. SC-24. (2) Bremerton School District (10/94) d. Need for Capital Facility Improvements Based on County population projections alone, the Bremcrton School District is expected to need one new elementary school by year 2000 (in addition to the Crownhill replacement), and an additional 4.4 elementary schools by year 2014. However thc District feels that population projections alone do not accurately reflect thc need for a new middle school by year 2000. The 1992 Bremerton SchoolDistrict Capital Facilities Plan recommends that new elementary and middle schools bc constructed when demand exceeds supply by 10 percent. The projected year 2000 demand for middle schools will exceed the supply by 15%, but that level has already been reached in 1994. The need for a new middle school by 2000 remains a distinct possibility. Facility costs are based on average site acquisition/development and construction costs in the school district, excluding any site clean-up costs. The Dis~ct cautions that the projected facility needs do not include any school modernization or replacement costs, nor do they include any costs for essential support facilities replacement, acquisition, or expansion. In addition, the District points out that environmental cleanup costs are becoming more burdensome. (Table SC-6) ~hool Type: 2000 : Cosf + Elcmcntar~ (K-S) * 1 $7.3M 4.4 $32.3M Middle (6-7) 1 $13.7M Jr. High (8-9) High (10-12) 0.2 $5.4M N/A 2 ! .0M N/A 37.7M · Projected needs do not include replacement of Crownhill Elementary School. Source: Bremerton School District, 10/94. e. Plans of Other Providers The Kitsap County Comprehensive Plan Capital Facilities Element projects facility needs for ali school districts in the County, including the Bremerton School District. This element is a valuabIe resource for comparing class size, school size, construction costs, CS Appendix - 41 400 etc. between districts. For example, construction costs for a typical middle school in the Bremerton District ($13.7M) are much lower than in the neighboring Central Kitsap District ($21.3M). 3. Proposed Facilities Based on outdated enrollment projections, the 1992 Bremerton School District Capital Facilities Plan proposes construction of High School #2 in 1993, Elementary #8 in 1994, Elementary #9 in 1997, High School #3 in 1999, and Elementary #10 in year 2000. The recently completed middle school is not listed. The 1992 plan is obviously outdated and overdue for an update. 4. Six-Year Financial Plan The School District estimates it will need one new elementary school (in addition to the Crownhill replacement) and one new middle school by year 2000. If the City were to decide to collect Impact Fees to help offset the costs of schools needed to serve growth, Table SC-7, below would be necessary to document how those schools would be funded. At present the District points out that it has no approved levy, and the State match percent or timing is an unknown. a. Six-year Funding and Proieets The following chart contains the funding sources, capacity projects and non-capacity projects for the next six years. The last portion of the chart reflects the balancing of funding sources and money expended on projects. Any surplus or deficit is indicated. (Table SC- 7) POLLOW ? O rA Le IS INCLUD O AS AC CaROWO SHOVLO Be COMPLETED IF THE CITY DECIDES TO COLLECTSCHOOL IMPACTFEES. State Match 9 Future Lev~ ? Insurance ? Impact Fees ? TOTAL ? ? o ? 9 ? ? SOURCES Crown Hill School 5,240 5,240 Elementar7 #8 7,328 7,328 CS Appendix - 42 401 Middle School ~2 13,688 13,688 TOTAL COSTS 5,240 0 0 0 7,328 13,688 26,256 [ -s,240 I 0 I 0 I 0 -7,328 [-a3,688 II-26,256 Note: All amounts are times $1,000. Figures are in 1994 constant dollars. * Cro~hill school replacement cost does not include any site acquisitio~development costs. b. Capacity Balance The following cha~s demons~ate how ~e projects to be developed over the next six years provide the required amount of capaciW at the adopted level of se~ice standard to meet the needs of the existing population and projected ~o~h. (1) Elementa~ Schools The cons~ction of one elem~taw school by year 2000 will meet e~ollment needs by year 2000. (Table SC-8) sC~8 '~ Ca~aci~ ~atan~ Sheet, ~ement~ SChoOlS Y~ !Projects Schoo!s Required~ Sgh~ Ava~ab!e ~et Rese~e o~ 1994 7.6 7.0 -0.6 199~-2000 (~cw) 0.7 0.0 -0.7 Total as of 2000 ~.3 7.0 -1.3 Elcmcnta~ ~ 1.0 -0.3 Total as of 2000 8.0 0.3 * The capaci~ of new elemcnt~ schools is assumed to be ~0 students. ~ Year 1994 Schools ~cquircd = 3273 (cxistin~ c~ollmcnt) - 2967 (existing capaci~) / ~0 (stud~ts per school) + 7 (existin~ schools). ~ Year 2000 New Schools Required = 3674 (2000 enrollmem) - 3273 (1994 c~ollmcnt) / ~0 students per school) CS Appendix - 43 402 (2) Middle Schools According to the following chart, the construction of one middle school by year 2000 would create a surplus of 0.9 middle schools by year 2000. However, the District justifies this need with its goal to begin construction of new middle schools when demand exceeds supply by 10 percent. (Table SC-9) ; ~i ~ CabaeR-wBalanee shee~:: Mld~S~i'°01s~ : 1994 1.0 1 0.0 1995~2000 (new) 0.1 0 -0.1 Total as of 2000 1.1 1 -0.1 Middle School #2 1 l~0 Total as of 2000 2 0.9 * Thc capacity of new middle schools is assumed to bc 1000 students. · Year 1994 Schools Required = -24 (existing deficiency) / 1000 (students per school) + 1 (existing schools). . Year 2000 New Schools Required = 1037 (2000 enrollment) - 924 (1994 enrollment) / 1000 students per school) c. Ol~eratiml Costs (Optional} It may be useful to consider the impact of operating costs of proposed new school facilities. Such an analysis is optional, and is not required by the Growth Management Act. The following chart may be used to reflect the six-year operating costs for the projects listed in the Six-year Funding and Projects chart above. (Table SC-lO) THIS CHARTMA Y BE COMPLETED A TA FUTURE TIME TO DETER3%~INE THE FULL COSTS OF SCHOOL FACILITIES. CS Appendix - 44 403 F. Stormwater The Stormwater Utility was formed by ordinance in 1994 as a funding source for the stormwater program. A Stormwater management plan was completed for the City in August 1996. The mission of the Program is to control flooding, enhance water quality, protect sensitive habitat areas, and optimize the recharge of local aquifers. 1. Inventory of Existin,cI Facilities With the exception of a few more recent developments, the existing drainage system within the City can be characterized as a conveyance system of surface drainage swales and a series of pipes which collect and mute drainage away from homes and businesses. AI~ drainage facilities eventually are discharged into Sinclair Inlet, Dyes Inlet, or Port Washington Narrows (see Exhibit 4-1 .) The City has a storm drainage system which is partially separated for the sewer collection system. Much of the storm water collection system is combined with the sewer collection system. The City, as part of a compliance decree, adopted Combined Sewer Overflow (CSO) Plan. The purpose of the plan was to identify capital projects that will improve the combined sewer and storm drain collection system to timit CSO's to no more than one per year. A number of natural drainage facilities exist in the Bremerton drainage system. These natural systems include swales, channels, creeks, ravines, and natural drainage ways that discharge directly to marine waters. Bremerton currently has 14 drainage basins. The basins include those areas outside of the city limits that drain into the City and contribute runoff to some of the City's localized drainage problems. Inventory of Capital Facilities: Storm Water Basins Basin Name Location - Drainage Acres 1. Anderson Avenue N. shores of W. Brem. - Port Wn. Narrows 400 -.?. Callow Avenue Central W, Brem. - Sinclair Inlet 650 3. Cherry Avenue = Brem. NE of Warren Ave. Bridge - Port Wn. Narrows: 250 .L East Park --. Brem. S of Sylvan Way - Port Wn. Narrows 33( 5. Kitsap Lake /V. Brem surrounding Kitsap Lake - Chico Bay 1,55£ 6. Oyster Bay NW part ofW. Brem - Oyster Bay & Ostrich Bay 1,57~ 7. Pacific Avenue SE part of W. Brem incl. Ferry Terminal - Sinclair Inlet 15(* 8 Phinney Bay N central part of W. Brem - Phinney Bay 225 CS Appendix - 45 404 3. Pine Road W part of E. Brem. - Port Wn. Narrows 680 10. Sinclair Park SW podion ofW. Brem - 1,400 11. Stevens Canyon E. Brem. in vicinity of Wheaton/Sylvan - Port Wn. 350 Narrows 12. Tracyton Beach Along W. edge of city limits in E. Brem - Port Wn. 60 Narrows 13. Trenton Avenue E part of E. Brem ~ Port Wn. Narrows & Port Orchard 670 Bay 14. Warren Avenue Downtown Bremerton - Port Wn. Narrows 275 Total =i 8,56~ 2. Forecast of Future Needs Existinq Demand The City of Bremerton averages 39 to 50 inches per year of precipitation. Most of the precipitation occurs between October and the end of May. For the most part the storm drainage system works well with the exception of the CSO. In the last few years the City has directed much of its efforts to improving the capacity of the system to eliminate the CSO overflows to one per year. The following is a list of CSO projects completed in the last few years. The East Bremerton CSO Treatment Facility. This facility was built to be used as an interim sewer treatment plant. The treatment plant is automatically activated when combined storm and sewer flows exceed the capacity of the collection system. The combined sewer and storm water is then treated to an acceptable quality and discharged into the Port Washington Narrows, Residential Downspout Separation Projects, The City has been active with homeowners to disconnect all roof downspouts from the sanitary sewer collection system. Callow Basin Improvements. These improvements were in three different projects. The first project was a large separation project in the vicinity of Callow Avenue between Burwell and 11th streets. The other two project were upgrades and construction of two sewer pump stations WB-3 and WB-6. Trenton/Cherry Basin improvements, These improvements consist of improvement of sewer pipes in selected locations, the reconstruction of a sewer pump station (EB_2) and the improvement of the force main from sewer lift station EB-2. This project is presently under construction as of this writing and is scheduled to be completed in the fall of 2003. b. Standard For Construction -- Level of Service (LOS) The City regulates storm drain activities in BMC 15,04. and floodplain regulations in BMC 17,60, The City's standard for design of storm facilities is the King County standards. The City has also adopted "Standards for work in the Right-of-Way". These are City standards which contain written standards along with standard drawings to regulate the construction of storm drain related facilities. CS 46 405 Future Demand The City will be updating the stormwater comprehensive plan in the next few years. Most anticipated development that is anticipated to occur in that period of time will be reconstruction on existing lots or small development that would not significantly effect the capacity of the collection system. The one exception is the anticipated development of the Port Blakeley area west of Kitsap Lake. Due to the magnitude of this development, a storm drain plan would be required of the developer to address both the quality and quantity of storm water being discharged into Kitsap Lake. At the current time the department anticipates no publicly funded capital costs associated with growth. 3. Proposed Facility Improvements The 1996 Stormwater Plan identified eleven existing flooding problems and recommended solutions to alleviate these problems. These drainage problems were eliminated by CSO sewer separation projects and other maintenance or capital projects. The only existing flooding area is in the Stevens Canyon Basin in the vicinity of Eagle Avenue and Dibb Street and in the Pabific Avenue Basin. The present Capital Improvements Plan has the following improvements for storm drainage improvements over a multi-year planning period. Stormwater Capital Improvement Projects and Costs Project # Basin ProJect Cost 31P #1 All Basins Upgrade piping and catch basins throughout the 255,000 storm drainage collection system, (annual cost) ,31P #2 Stevens Piping improvements at Eagle Avenue and Dibb 245,000 Canyon Streets StP #3 Pacific Avenue Piping improvements along Park Avenue, 5th St to 250,000 Burwell Total = 750,000 ~ource: Capital improvement Program 2004-2009 In addition to these storm drain capital projects, CSO project are planned to the sewer collection system to accommodate the storm water that is collected by the sanitary sewer collection system. The following is a list of planned projects. CS 47 406 CSO Capital Improvement Projects and Cost., Basin Project Costs Anderson Anderson Cove Basin CSO project, Upgrade of pump 1,800,000 Cove station CW-4 Pacific Pacific Avenue Project~ Miscellaneous upgrades of 1,000,000 Avenue sanita~ sewer and storm drain collection system Total = 2,800,000 The City in compliance with State and federal regulation recently submitted application fro NPDES Phase II Strom Water permit. The terms and conditions of this permit will focus upon water quality. CS 48 407 G. Transportation See Appendix TR and main Transportation Element CS 49 4138 H. Water The City of Bremerton Water Utility (Water Utility) provides potable water within the City and the surrounding area. A complete inventory, analysis of need, and capital facilities program is provided in the adopted 1999 City of Bremerton Water System Plan Update. While the 1995 Plan employs projections for years and time-frames that are not identical to those in the City 2003-2004 Comprehensive Plan Update, the projections include a period of time that goes beyond the first six years of the Update and therefore the data can be used to address the concurrency requirement. 1. Inventory of Existing Facilities (a) Service Area The Water Utility serves a population of approximately 56,000 in Bremerton (80% of the water use) and portions of Kitsap County. The water utility contracts to supply water to the Puget Sound Naval Shipyard (PSNS) and to the City of Port Orchard. The Water Utility also is under contract to provide water and operation and maintenance to the Rocky Point Water District. Adjacent water purveyors include the Silverdale Water District, North Perry Water District~ Erland Point Water District, and the Sunnyslope Water District. The service area includes the City's West 517 Zone, which is considered a separate system by the Washington State Department of Health. (See Figure __ "Bremerton Water Plan Service Map".) There are eight aquifers that the City draws drinking water from, the Anderson Creek ShalJow Artesian Aquifer, the Anderson Creek Deep Artesian Aquifer, the Twin Lakes Aquifer, the Gorst Creel Aquifer, the Manette Sea Level Aquifer, the Meadowdale Aquifer, and the Parkwood East Aquifer. (b) Capacity and Water Riqhts The Water Utility supply consists of the Union River Reservoir behind Casad Dam and 12 active production wells. Approximately 65 percent of the supply comes from the 2,964-acre Union River watershed, which is 98 percent owned and controlled by the Bremerton Water Utility. Wells in multiple aquifers supply approximately 35 percent of water use. Current average daily demand is approximately 8 million gallons per day (MGD). The current capacity of the water system is 13.8 MGD for an average day demand and 28.1 MGD for a maximum day demand. The Union River supply has such exceptional water quality, it is one of the few surface water systems in the country to be allowed to operate unfiltered by DOH. This does mean, however, that during unusual events such as when high winter rains increase the turbidity (a measure of water clarity) or during a drought, surface supplies may not always be fully available. During these times the City must depend on well supplies to meet demands. The firm yield from the Union river is 5.6 MGD. All water in use by the City has been properly appropriated through certificates of water rights or registered claims. The agency with regulatory oversight of water rights is the Washington Department of Ecology (Ecology). Bremerton's groundwater rights consist of 12,706 acre- feet/year (ac-ft/yr) annual quantity of primary rights, 1,408 ac-ft/yr annual quantity of CS 50 409 supplemental rights, 9,855 gallons per minute (gpm) instantaneous rights, and 880 gpm supplemental rights. Bremerton's surface water rights consist of 40 cubic feet per second (cfs) instantaneous rights from the Union River. Historically-used surface water claims of 5,000 ac- flJyr from Gorst Creek and 3,000 ac-ftJyr from Anderson Creek are maintained for emergency use and potential future use pending required treatment. (c) Water Quality The Water Utility provides high quality water which is verified by an extensive monitoring program that goes beyond minimal requirements. The regulatory agencies that provide oversight for drinking water quality are US EPA and DOH. The Water Utility meets all the protective standards set by the federal Safe Drinking Water Act and state laws and regulations. The Water Utility practices a multiple-barrier approach to protecting water quality from the source to through the distribution system. Bremerton's Union River surface source is of such excellent quality that it is currently authorized to remain unfiltered. Groundwater sources are safeguarded by a Wellhead Protection Program. All sources are disinfected with chlorine and chlorine residual is maintained throughout the system. In 1999, the corrosion control facility was completed to adjust the pH of the water to prevent corrosion of internal plumbing. An annual water quality repod is provided to all customers and is available on the City's web site, (b) Facilities A summary of the Bremerton water system is provided in Table 1. Table 1 Bremerton Water System Summary Sources currently in use ~Union River and 12 production wells 5-Year average day demand t7.8 Million Gallons per Da}, Equivalent Residential Unit ~200 ~lallons per day per sin~lle famil}, residence Number of Connections I16,052 Population served t56,000 Miles of Pipe t289 miles Number of Reservoirs 3 raw water, 17 treated water Number of Pump Stations Number of Pressure Booster Stations Number of Pressure Reducin,(:j Stations 12 Number of P~:essure Relief Valves 9 (includes 2 sur~le anticipatomI Service Area 13,800 Acres (not includi%l the watershedI Pressure Zones W256, W440, W517, W650, E240, E398, E490 Disinfection Chlorine Treatment pH adjustment for corrosion control There are seven pressure zones in the system designated by the overflow elevations in Utility reservoirs. The water system control and alarm is provided through a telemetry system. Operations staff are certified, and the system is operated in compliance with all federal and state regulations. CS 51 410 (c) Fire Flows One of the major purposes of the water supply and distribution system is to meet fire flow demands. The City's water system must meet Bremerton's fire flow requirements within city limits and Kitsap County requirements in the service area in unincorporated Kitsap County. Both the City and County Fire Marshal's offices have adopted by ordinance Appendix III-A and III-B of the Uniform Fire Code (UFC) for estimating fire flow needs and identifying design criteria for pipelines and fire hydrants. Both authorities allow the nesting of fire suppression storage and emergency standby storage when evaluating reservoir capacity. Minimum fire flows to be provided by the Bremerton water system have been identified as: Residential 1,000 gpm for 2 hours Commercial 1,500 gpm for 2 hours Fire flows required by the UFC are considered minimums for new construction. When evaluating new construction, Bremerton Public Works and Utilities Department personnel determines the ability of the water system to meet fire flow requirements at that location with a minimum of 20 psi residual pressure throughout the distribution system. If the water system cannot provide the required fire flow for the specific project, the developer is required to revise building construction and/or make the necessary improvements to the distribution system to meet the project's fire flow requirements. The Washington Survey and Rating Bureau rates the fire fighting and protection abilities for municipalities which is then used by insurance companies for setting rates. The water system's capability is 39% of the total rating score. Bremerton's last survey was completed in 1997 and the water system ranked as Class II, an excellent rating. 2. Forecast of Future Needs (a) Existinq Demand The average daily water system demand in 2003 was 7.3 MGD. The 5-year average is 7.8 MGD. Figure 1 shows the average day demand (ADD) and maximum day demand (MDD) since 1994. Figure 1 Source: Bremerton Public Works and Utilities Department As shown in Figure 2, approximately 80% of the water demand is "in-City" demand, and 20% outside the city limits. PSNS is the largest single water user with an average day demand between 2 - 3 MGD. Figure 2 Source: Bremerton Public Works and Utilities Department Average day demand is affected by the year's rain patterns and other factors. For example, 1993 was a wet summer, resulting in less outside water use. The highest MDD ever recorded in Bremerton was 20 MGD during unusually Iow temperatures in December 1990 when pipes CS 52 411 broke and customers ran water to prevent pipes from freezing. 2001's drought affected Bremerton's surface supply and the Water Utility requested a voluntary 10% reduction in water use that summer. Customers responded with an 18% reduction in use which averted a need for water restrictions. (b) Level of Service (LOS) Standard The estimated 1999 LOS is 200 gallons per equivalent residential unit. The Equivalent Residential Unit (ERU) is the amount of water consumed by a typical full-time single family residence. This value is calculated by dividing the amount of water used by single family accounts that used water in all of the year's billing cycles by the total number of single family accounts. The value for an ERU is specific to a particular water system and reflects the characteristics of a water system's customer base and weather patterns. ERUs are used by DOH to calculate a water system's capacity. For example, if a system has been determined to have capacity to serve 100 single family homes, it would be able to serve any combination of commercial, industrial, or residential customers equivalent to the needs of 100 single family homes, that is, 100 ERUs. Currently Breme~on has the capacity to serve in excess of 50,000 ERUs. The Puget Sound Naval Complex is equivalent to about 10,000 ERUs. Bremerton's ERU value of approximately 200 gal/day/ERU is on the Iow side when compared to other systems in Kitsap County and the state. Reasons for this include: Smaller urban lot sizes common in the service area use less water for landscaping. A high rental population - Bremerton is about 60% rental housing while the national average is about 40%. Renters tend to use less water, especially outside. An effective conservation program. Bremerton has actively worked with customers on conservation since 1992. An effective public awareness campaign during the summer 2001 drought. Bremerton requested 10% voluntary conservation and customers saved 18% that summer. Customers appeared to continue conservation measures into 2002. A relatively high sewer rate based on water use. The ERU values for Bremerton continue to decline. This is due to the reasons listed above plus the implementation of plumbing regulations in 1992 that require newly-installed toilets to use only 1.6 gallons per flush. The City's conservation program is expected to reduce per unit consumption by an average of 3% over the next 10 years. Domestic unit demands are then expected to remain constant. (c) Future Demand The 1999 Water System Plan demand projections were based on data from the 1990 census and the 1998 Bremerton Comprehensive Plan. More recent projections are now available using 2000 census data which are somewhat lower than previous projections. Since using the water demand data from the 1999 Water System Plan is more conservative, these data will be used rather than performing an extensive recalculation of demand projections which will occur in for the 2006 Water System Plan Update. Figure 3 presents the population forecast used. CS 53 412 The 1999 Water System Plan identifies needs for a 20-year planning period from 1999 to 2019. During that time it is expected that ADD will increase from 8 MGD in 1999 to 12 MGD by year 2019. MDD is expected to increase from 14 MGD to 23 MGD during this same time period. Figure 4 presents the demand forecast used. Figure 3 Source: 1999 City of Bremerton Water System Plan Update Figure 4 Source: 1999 City of Bremerton Water System Plan Update 3. Proposed Facility Improvements Water Utility improvements are discussed in more detail in the 1999 Water System Plan Update. Chapter 9 of this plan outlines a 20-year Capital Improvement Plan (CIP). Each year the Utility fine-tunes its 6-year CIP which is presented at the end of this section. (a). Water Sources The Water Utility has sufficient water to meet demands for the next six years. From a water rights standpoint, the Water Utility appears to have sufficient water rights for the near future. However, there are several considerations that affect the Utility's ability to use all the water as indicated in the rights. For instance, several wells need to be rehabilitated or replaced to use the water and hydraulic circumstances do not allow all soumes to be used simultaneously. Projects to address these issues are listed in the CIP. To ensure reliability and redundancy, it is the Utility' s goal to be able to meet demands with groundwater only. Future water rights will be from groundwater. The Water Utility has several water rights applications submitted to Ecology: Change application for five Domsea Wells with a priority date of 1992. New application in Gorst for 1,000 gpm with a priority date of 1992 One new application for Well 21 with a priority date of 1992 One new application for 1,000 gpm for Well 9 with a priority date of 1994 Processing of new applications has been stalled for many years due to staffing and resources at Ecology. Ecology's focus will be on processing change applications first and it is not known when they will begin on new applications. (b) Water Q~uality Meeting strict water quality standards is a primary objective of the City. Drinking water is regularly tested at the soumes and in the distribution system. To continue to use the unfiltered Union River source, the City should continue to pursue either acquisition or controlling agreements over the remaining 2% of private lands within the watershed, and should vigorously implement the Watershed Control Plan. Responsible operation of the entire water system is critical to maintaining compliance with the non-filtration CS 54 413 status of the surface water treatment regulations. Even with these precautions, a drastic change in source quality or changes in regulations could require the City to provide filtration. Proposals for the upcoming federal Enhanced Surface Water Treatment Rule may require another disinfectant in addition to chlorine. Use of ultraviolet (UV) light currently appears to be the disinfectant of choice at this time and installation of a UV system is in the Utility's CIP. (c) Stora,qe The Water Utility was analyzed using hydraulic modeling software program. The evaluation completed for the 1999 Water System Plan indicated that the only immediate storage deficit was in the W440 Zone. This deficit will be eliminated by the construction of a 1-million gallon reservoir in the W650 Zone which is expected to be completed in the fall of 2003. There is a deficit of total storage by 2019 in the three east-side pressure zones which will be addressed by added storage and a possible new well in this area. These projects are included in the CIP. (d) Distribution System Improvements in transmission and distribution mains are necessary to improve flows and pressures in certain areas and to replace sub-standard mains. The Utility allocates funds each year to address sub-standard mains. Other larger main improvements are listed in the ClP. 4. Plans of Other Providers There are no other providers of potable water within the City. However, there are severat nearby water districts, public utility districts and municipalities that may have interests in local surface and groundwater resources. These include: Silverdale Water District, North Perry Avenue Water District, Erland Point Water District, Sunnyslope Water District, and the City of Port Orchard. The Water Utility has service area agreements with each water system with adjacent boundaries. The Kitsap County Coordinated Water System Plan (CWSP), a regional water supply, transmission, and storage plan, was developed by the Water Utility Coordinating Committee (VVUCC) in 1992 to comply with state law. The plan assesses water supply needs in Kitsap County and presents a program to provide water supply and service to users. The plan provides a process and strategy for existing water utilities to define their role in a program consistent with adopted land use policies and projected growth strategy. The CWSP is currently being updated with completion expected by the end of 2003. Watershed planning for Water Resources Inventory Area 15 (the "2514 process")commenced in 2000. The City of Bremerton is one of the initiating governments for this process. The final plan is scheduled to be completed in 2005. 4. Six-Year Financial Plan (a) Six-year Fundinq and Proiect,~ The following chart contains the funding sources, capacity projects, and non-capacity projects for the next six years. cs 55 414 415 416 Utilities Section A. NATURAL GAS Cascade Natural Gas Corporation (CNG) builds, operates and maintains natural gas facilities serving Kitsap County. CNG is an investor-owned utility serving customers in sixteen counties in the State of Washington, as well as parts of Oregon. The Pacific Northwest receives its natural gas from the Southwest United States and Canada. Natural gas is supplied to the entire region via two interstate pipeline systems. The Pacific Gas Transmission Company (PGT) and Northwest Pipeline Corporation (Northwest) each owns and operates its respective regional pipeline network that supplies natural gas to Washington, Oregon and Idaho. (See Map 1) Natural gas can be stored in two ways. First, it can be pressurized and then injected into underground geologic structures which are suitable for gas storage. This is done at Jackson Prairie Gas Storage located south of Chehalis. This gas is used to supplement the region's gas supply in colder weather. Secondly, natural gas can be stored by cooling it to -258 Fahrenheit, where it becomes a dense liquid and can be stored in storage tanks. Such a storage facility exists in Plymouth, Washington. The Cascade Natural Gas supply and transport system begins at the "gate station", the delivery point of natural gas from the upstream interstate pipeline to CNG's system. Gate stations normally include metering stations, odorizing stations and pressure reduction stations. High pressure lines transport gas to district regulators throughout CNG's service area. Pressure reduction stations are installed at the point of delivery of natural gas from the high pressure transmission lines to the lower pressure distribution systems. (1) Existinq System The Cascade Natural Gas service area includes all of the City of Bremerton and the adjacent unincorporated areas. Gas is not available at this time to all areas inside the service area. (See Figure UT-l) Connections to CNG's distribution system are initiated by customer demand and requests. As of January 1994 there are over 17,000 users of natural gas in CNG's service area. According to CNG studies completed in 1991, current peak demand is approximately 1,950,000 therms/day. (2) Proposed System The location, capacity, and timing of these improvements depend on opportunities for expansion and on how quickly the Bremerton area grows. There are usually several possible routes to connect different parts of the system. The final routes taken will depend on right-of-way permitting, environmental impact, and opportunities to install gas mains with new development, highway improvements or other utilities. CNG has an active policy of expanding its supply system to serve additional Cs 57 427 customers. The maximum capacity of the existing distribution system can be increased as required by one or more of the following: (a) Increasing distribution and supply pressures in existing lines; (b) Adding new distribution and supply mains for reinforcement; (c) Increasing existing distribution system capacity by replacement with larger sized mains; or (d) Adding district regulators from supply mains to provide additional intermediate pressure gas sources to meet the needs of new development. Customer hook-up to the distribution system is determined by the WUTC pursuant to its rules. Connection to the system is driven by demand, this means that connections cannot be planned in advance; rather, connections are initiated by customer requests. CNG's 20-year plan is to continue developing distribution systems and services to meet growth at lowest possible costs. Planned improvements include adding distribution elements when needed. Specific improvements in the Bremerton area include a 10-inch looping line. Existing distribution capacity will be tripled over the next three years with installation of a 37.5 mile long 16" line alongside the existing 8" line that brings supplies to the area from the south. B. ELECTRICAL UTILITIES Puget Sound Energy (formerly Puget Sound Power and Light) serves Kitsap County with electrical power. Power is moved through transmission lines, and voltage is lowered at transmission substations. Voltage is further lowered (stepped down) at distribution stations located in neighborhoods, and carried over distribution lines toward homes and businesses. (1) Existinq System There are three main access points for receiving power in Kitsap County: at Kitsap Bonneville Power Administration (BPA) 230/115 kiloVolt (Kv)Transmission Station located north of Gorst; at PSE's Sounth Bremerton Substation - also north of Gorst" and Command Point Cable Station 115 Kv Line in Fragaria through underwater cables originating from Puget Power's O'Brien station in Kent. PSE has divided Kitsap County into North and South subareas for planning purposes. Bremerton is in the North Kitsap subarea, which extends northward of Sinclair Inlet. From the Kitsap BPA station, 115 Kv delivery feeds into Puget Power's South Bremerton, Bremerton, and Valley Junction (east of Siiverdale) 115 Kv switching stations. Power then flows from these switching stations through transmission lines to serve subarea distribution substations. cs 58 418 The existing electrical system within the city consists of the following: Transmission Substation: South Bremerton Distribution Substations: Bremerton; Sheridan; Rocky Point. Transmission Lines (230kV)BPA Shelton - South Bremerton Transmission Lines (115kV): South Bremerton-Valley Junction; Bremerton-Foss Corner; South Bremerton-Bremerton; O'Brien-South Bremerton; Bremerton-US Navy PSNS-BPA Kitsap. Transmission Lines (other): Presently, there are several de-energized transmission lines intended for future use. Other utilities with facilities in Bremerton: Bonneville Power Administration. (2) Existinq Capacity The power utilization factor of all distribution substations is at 81 percent in the North Kitsap subarea, with South Kitsap at nearly 75 pement utilization. The utilization factor is a comparison of current peak system load in Kitsap County during the winter heating season, divided by the design capacity of the substations in the County, The following table illustrates the capacity used during peak winter loads at Bremerton area distribution substations and in the North Kitsap subarea as a whole: Tab e UT~2 Bremerton 50 21.7 Rocky Point #1 20 15.5 Rocky Point #2 20 14.5 Sheridan #1 20 18.1 Sheridan #2 20 11.6 North Kitsap Subarea Total Loads = 445 360.5 Utilization Factor = 81% MVA = Mega Volt Amperes Source: Puget Sound Energy. The electrical system can be expanded as the area load develops. The joint BPA and PSE 230kV project, completed in 2002, is a direct response to the continuing load growth in the County. If additional loads do not develop, or develop more slowly than anticipated, the construction timing of individual projects is simply extended so that the overall plan completion date is deferred. If the electrical load stops growing altogether or decreases, no further construction would be necessary, except for facility maintenance and replacement needs. CS 59 419 Likewise, if the load develops faster than anticipated, the timing of the construction of the projects can be accelerated. (3) Proiected Needed Capacity Puget Sound Energy's 2020 Electrical Facilities Plan for Kitsap County predicts a projected load level in Mega Volt Amperes (rvIVA's) of 483.7 for North Kitsap. This projected load will be revided (most likely upwards) in the near future. PSE's long-range plans are based on electrical growth projections anticipated for the years 2010/2020 and beyond. County population projections produced by the state Office of Financial Management (OFM) are used to determine new load growth for the next 20 years. Puget Sound Regional Council (PSRC) population and employment forecasts are used for load growth beyond 20 years. Projected load is calculated as the existing load, minus conservation reductions, minus demand side management, plus the forecast of new load. The population and employment forecasts and their distribution produced by the PSRC are used to reflect land use activities, which in turn are used to develop a model for forecasting new load. The location of the population and employment increases is determined by the cities and counties. In Kitsap County, the population and employment is broken down into PSRC Forecast Analysis Zones (FAZ's). Using these resources, PSE predicts a 223.1 MVA total load growth in the North Kitsap subarea by the year 2020. This forecast was made in mid-1995 and will be revised (most likely upwards) in the near future. (Note: Capacity is measured by MVA, which measures energy, whereas kV measures voltage.) (4) Proposed System Puget Sound Energy has identified system and transmission improvements required to serve the forecasted load growth. Based on these system improvements, North Kitsap subarea utilization factor will maintain or slightly increase. Many improvements are in progress or planned for the future; others have been identified as future improvements to meet the growth demand. (a) System Improvements in Progress South Bremerton-Foss Corner 115/230kV Line - These improvements wilt provide a transmission route from South-to-North Kitsap for a future 230 kV transmission system link between the South Bremerton and Foss Corner Switching Stations. The first leg of this long range project will start by constructing a 115/230 kV line between Bangor substation and Foss Corner. The major portion of the line south of Bangor substation, will be constructed on a right- of-way parallel to the Kitsap-Bangor BPA Line, which was purchased from the BPA. cs 60 4£0 (b) Future Transmission Improvements Bremerton Substation Additions -- These additions will provide better protection for the Bremerton Switching Station 115 kV bus and reduce the exposure to faults on the South Bremerton-Valley Junction 115 kV Line. The line would be broken into two segments d the South Bremerton-Bremerton #2 115 kV line and Bremerton-Valley Junction 115 kV line -- and terminates on separate breakers at the Bremerton Switching Station. North Kitsap 230kV Plan - This plan will involve further development of Foss Corner 230 kV with additional 230 kV tie lines to points north of Foss Corner. The ultimate plan for Foss Corner includes 2-3 230 kV tie lines and a 230-115 kV transformation. The need for such a plan, based on current growth forecasts for the county, would most likely be triggered beyond the 2020 Planning horizon. Westsound Transmission Reliability (Submarine Cable) - This project was initially planned to be completed in late 1990s. However, due to budget constraints and other issues, PSE pursued other cost-effective alternatives and deferred the project to future years. (c) Future Distribution Substations Wemer -- This is one of eight new substations being considered for serving forecasted load growth in the North Kitsap subarea. The Werner Substation would serve new developments in the area south of Kitsap Lake and the west end of Werner Road. A loop- through of the South Bremerton-Bremerton 115 kV Line will be needed. C. TELECOMMUNICATION SYSTEM Telecommunications is the transmission of information by wire, radio, optical cable, electromagnetic energy, or other similar means. For the purposes of this element, telecommunications include telephone, radio communication, cellular telephone and cable television. Telecommunications is often referred to as the medium for the "information highway". Telecommunication service is regulated by the WUTC, and is subject to various federal laws and regulations administered by the Federal Communications Commission. The telecommunications industry is required to provide service upon demand. Local laws and rules also exist with which telecommunication providers must comply, such as those governing land use and public rights of way. (1) Telephone Bremerton is served by US WEST Communications, which has the largest service area in Kitsap County. US WEST's goal is to maintain its routes at 85 percent capacity. When usage exceeds 85 percent, additional facilities are planned, budgeted and installed. US WEST regularly evaluates the capacity of its facilities. US WEST has approximately 77,000 access lines in Kitsap County. The projected growth rate in the service area for the next three years is approximately 4 percent per year. There is the possibility that this rate could change because of new service offerings. CS 61 42~ Forecasting beyond three years in a county and telecommunications environment with so much potential for change is very difficult. There are many projects planned to meet the projected growth. Some of these will increase capacity, while others will provide new service capabilities. The capacity increases include additional fiber optic and copper infrastructure in key growth locations, while new service capabilities include new switching technology in central offices and at remote locations. (2) Radio Radio communication forms an integral part of an established communications system within Kitsap County. Public sector communications provides services for law enforcement agencies, municipalities, interagencies, fire departments, search and rescue organizations, the American Red Cross, departments of emergency management, Puget Power, medical administration, and maritime enterprises. An emergency broadcast network has been in place for many years with links throughout the county. Alternative emergency communications exist which are designed to supplement or replace existing public safety communications during times of emergencies or disasters. Emergency communications may include the use of local radio stations and HAM operators who provide a link to federal and state emergency management personnel during emergencies or disasters. (3) Cellular Cellular calls use signals to and from mobile phones. Cellular calls are routed by a series of Iow-powered transmitting antennas through a central computer called the Mobile Telephone Switching Office (MTSO), which connects the call to its destination. Transmitting antennas are located at "cell sites", and their coverage areas are known as "cells". A network of strategically placed antennas allows a "handing off" of the signal as the carrier of the phone travels. Capacity overload and cellular system expansion is a response to several factors: an increase in the number of customers residing within a designated area; a shift in traffic volumes affecting cellular users; or a record of service inadequacies such as dropped calls or poor quality sound. In these cases, additional antennas are then planned, with site selection influenced by topography and other engineering constraints. The Bremerton Area is served by two cellular providers: Cellular One and US WEST - New Vector Group. Cellular One plans to construct four additional cell sites in Kitsap County during the next one to three years in order to increase and enhance coverage. No new sites are planned for the Bremerton area. US WEST New Vector Group plans to construct eight additional cell sites in Kitsap County during the next one to three years in order to increase and enhance coverage. No new sites are planned for the Bremedon area. (4) Cable Television CS 62 422 Cable television service is delivered to customers through a complex series of electronic components and many miles of cable installed throughout the community. A central collection point, called a "headend", receives signals by satellite, microwave or broadcast antennas and converts them to VHF frequencies that correspond to those in the tuner of a television set. Cable television companies are regulated by the Cable Television Consumer Protection and Competition Act of 1992 and enforced by the FCC. Cable companies must enter franchise agreements with local governments, who regulate service rates according to FCC guidelines and formulas. The City has a "non-exclusive" franchise which allows any qualified cable television company to construct, operate and maintain a cable television system by use of City-owned rights-of-way. CS 63 422 ATTACHMENTS TO AGENDA BILL # ADOPTING 2004 BREMERTON COMPREHENSIVE PLAN · Staff Report · Minutes of Planning Commission Meeting of May 18, 2004 424 City of Bremerton Department of Community Development Staff Report Applicant or proponent (file number): City of Bremerton Date of Proposal: July 15, 2003 (hearing before the Planning Commission) JProposal: Adoption of City of Bremerton 2003 Comprehensive Plan Update Contact: City of Bremerton, Department of Community Development: (360) 478-5275 Preface: Hearing Process, Recommended Schedule The proposed City. of Bremerton Comprehensive Plan Update is a large, complex document. Presentation of an adequate staff report, time for public testimony, and allowance for Planning Commission questions and discussion will take significant amounts of time. Staff recornmends as a preface to this staffreport, that before proceeding ~vith the hearing, the Plarming Commission consider a motion adopting the following schedule for furore agendas. The recommended schedule assigns discussion of particular portions of the Plan to specific dates. To implement this suggestion, the Plarm/ng Commission would, at the end of each evening listed, continue the hearing to the suggested next suggested date rather than closed the heating Suggested Hearing Schedule: July 15 Discussion of process/hearing schedule, open hearing, presentation of Introduction section, Land Use Element (includes first discussion of land use map scenario's), public testimony, Commission discussion, continue hearing. July 29 Re-open hearing, discussion of Community Character Element, Environment Element, and Housing Element, public testimony, Commission discussion, continue hearing August 12 Re-open hearing, presentation of Economic Development Element, City Services Element, Transportation Element, public testimony, Commission discussion, continue hearing August 26 Re-open heating, presentation of Summation and Element consistency, Second discussion of land use scenario's, selection of preferred alternative, close hearing, action. Please note: Dates are on t~,o week inte~ al. thi3 allows Commi,~sion and s',aff adequate stu~(~;~reparation time..4ctual dates can be adjuste& preferabO' u.~on initial adopdo~ oj the schedule. 1 425 This staffreport will be configured hereafter to conform to the above order. Procedural Ilistory and requirements Existing comp plan adopted. The City of Bremerton adopted the comprehensive plan currently in effect on April 5th, 1995. The plan is fully compliant with the Growth Management Act. GMA requires update. In 2002, the Washington State legislature amended the Growth Management Act to establish that Kitsap County and the jurisdictions within must revise their comprehensive plans (and related development regulations), "On or before December 1, 2004, and every seven years thereafter..."( RCW 36.70A.130(4)(a)) City of Bremerton sets earlier target date. Responding to an earlier legislative mandate that was subsequently amended as related above, the City of Bremerton has committed to adopting a comprehensive plan Revision (Update) in mid 2003. The Update comprehensive plan that is the subject of this staff report and the public hearing)s) that it supports, is a response to that commitment. Mandatory Elements. The Growth Management Act establishes at RCW 36.70A.070, that each (city) comprehensive plan includes; 1) a land use element, 2) a housing element, 3) a capital facilities element, 4) a utilities element (note: the capital facilities and utilities elements are combined in Bremcrton's plan under the title "City Services Element", 5) a transportation element, 6) an economic development element, and 7) a park and recreation element. Additional requirements. The Growth Management Act also includes several additional requirements that govern the form of the Plan. These include a requirement that the plan be/ntemally consistent, compatible with the plans of adjacent jurisdictions, and include an assessment of an ability to serve urban areas with urban services. Citizen process "Early and continuozts "public participation required. The Growth Management Act requires that comprehensive plans be developed under a program of intense and continuous community participation (RCW 36.70A.140). This Plan was developed after nearly one and a half years of just such citizen leadership. The "Shaping Bremerton" process employed in the development of this plan consisted of early community workshops, followed by nearly a year of citizen subcommittee work focusing a different citizens group on each plan element, and completed by the work of a "coordinating council" of citizens who reconciled the work of the earlier groups into an internally consistent whole. Public hearings before the Bremerton Plamfing Commission and the City Council will complete the participatory program. Elements; Introduction Section: In addition to setting the stage and providing some discussion of the structure and legal requirements of Comprehensive Planning under the Growth Management Act, the primary feat-are of the introduction section is a fairly detailed description of the population and employment forecasts that form the basis of much of the remainder of the Plan. Population projections. Population and employment projections are calculated for each of 125 zones in the ci~. For convenience and consistency, the zones employed were Transportation Analysis Zones (TAZ's) employed by Kitsap County and for which at least some .h/storic data is available. Based on records of permit issuance for residences over the period from 1995 to 2000, existing 2000 data for each TAZ was projected forward to the year 2023 - the end of the 20 year planning horizon employed by t,~is plan. That projection was made by assuming 2 ,126 that the rate of residential development in most TAZ's would continue at approximately the same rate as reflected by the 1995-99 growth. (about .46% annual) The viability of this growth was checked by referring to the 2002 Kitsap County Buildable Lands Analysis. The Analysis confirms that more than sufficient developable property exists to accommodate this level of growth. In addition to this "background" growth, new residential uses in the "centers" were added in appropriate TAZ' s. Centers population expectations were calculated as follows. Population projections for neighborhood and district centers were based on commonly accepted models of centers size and proportion of residential to other uses. The potential residential acreage of each center was calculated. Multiplying each centers' residential acres by assumed residential densities and household sizes yielded a potential population within the center at fail build out. The fall buildout was then reduced to a number that corresponds to the expected population grov~h within the twenty year time frame. This was accomplished through a G.I.S/aer/al photo based analysis of the proportion of land within the center that was undeveloped Or significantly underdeveloped. The analysis then looked at the relative availability o£key services such as water, samtary sewer, storm sewer, and transportation at the center. Centers were "rated as to what proportion of the full build out could be expected within the next 20 years. These calculations are reflected in Tables 1, 2, and 3 of Appeodix pp. Population projections for two employment Ceuters. The Port Blakely Employment Center and the Pope and Talbot Employment Center, were added based on discussions with the owners of the sites. A modest buiidout of 750 persons was assumed for each emplovment center over the twenty year pla~ming period. That number was assigned to the appropriat'e TAZ. It should be noted that these calculations assume that no portion of the population in the two employment centers will occur within the first six ),ears o£the plamfing period. As a result, total population and ernplovment figmres were employed for purposes of capital facilities anali, sis_ including that fbr transportation needs and growxh impacts - that do not include these 1 ~500 additional people. - Twenty year centers populations were disaggregated to appropriate TAZ's and added to the non- center population projection for the T.~Z. Final year 2023 population projections for each TAZ and for the entire City resulted and are indicated on Table 4. Footnotes follo~ving each table cite data sources, and provide additional detail regarding methodology. In summary the following projections emerge; Population: Total projected Ci.ty population in 2023 is projected at just over 50,000 (Table 4, column 10), This is an increase of approximately 13,000 over the 2000 census figure of 37,165. Of this increase, 757-1, or approximately 58%, occurs in the new neighborhood or district centers (see Table 4, colunm 8). Pop~latio~ in the [GA reaches over 58,500 compared to an estimated 2000 population of 44,815. 427 Employment: Employment is calculated in essentially the same manner. Year 2000 Kitsap County TAZ employment data in seven categories was used to make projections of year 2023 employment by applying growth rate data from the Washington State Department of Employment Security. · - ' * ......~-~ XX Table 5 Emnloyment forecasts for Employment projections are summanzeu m each center were added to the appropriate TAZ without regard to category. Appendix XX Table 5, provides the resultant projection for each TAZ. Further details of non-centers employment growth calculations are reflected in Table 6. In sum, employment forecast indicates that overall employment in the City will rise from its current level of approximately 45,000 to approximately 54,000 over the next twenty years. Of that total growth of 9,000 jobs, about 4,000 or 45% will be in the centers· One factor suggested here is that significant vacant and developable land area will be needed for employment generating activities. It should be noted that those areas are already part of the City. Notable large blocks among these areas are the Pope and Talbot and Port Blakely Properties in the west hills area. Land Use Element After a discussion of existing land use conditions, the Land Use Element moves to a forecast of projected land use conditions. This section and those that follow are the heart of the Land Use Element. Land Nee& Through a complex series of calculations, the Plan estimates levels of residential, commercial, and industrial land needed to accommodate the expected population. These calculations are discussed on pages LU9 through LU 13. Table LU.iv on page LU13 summarizes the result. Table LO.iv Summary of Additional Land Need ~ Type Additional Land Needed (gross acres) 314 -531 Neighborhood SF 37-124 Non-centers MF 144-172 Centers SF+MF 17-25 DT center MF Total Residential 512-852 65 Cen~.~r Commercial 52 Non-center Commercial Total Commercial 127 126 Llndustrial (to~a!) 4 428 The population and employment projections for the outline of the challenge that the plan must respond to. In the case of the land use element, it must be shown that adequate land is provided for the new residences, commercial areas, industrial areas, parks, schools, and open space to accommodate the expected population. This is the technical work of the Land Use Element. In addition to demonstrating that adequate land is provided, the Land Use Element must show that the organization of land uses responds to community vision, goals and policies. These expressions of community desires form the policy framework, upon which the technical work must be based. Comrnuni~. Fision, Goals, and Policies. Community participation efforts employed in preparing the Land Use Element - and the other Plan elements as well - focused intense community attention of crafting a set of guiding principals that are to be used in responding to the challenges implied by the population projections and land need calculations. The most fundamental iteration of that set of principals is the Land Use Vision Statement found on the first page of the Element (page LU1). Primary themes that emerge in the Land Use Vision Statement are; providing for economic vitality and diverse lifestyles, providing housing and transportation options, supporting and improving viable walkable neighborhoods, addressing shorelines views, and parks needs, and protecting community charm, historical character, and cultural heritage. The land use goals and policies that be~n on page LU 14 further expand and detail these basic themes. Taken together, these themes form the policy framework upon which a response to the challenges posed by the land needs must be hung. They are the heart of the Land Use Element and guide the remainder of this Plan section. The land use scenario maps that follow represent alternative responses to satis~,ing the v/sion and community goals expressed wh/le addressing the technical needs calculated. Centers approach. In crafting a holistic response to the technical challenges and the community's expressed vision, goals, and policies, it became evident that a physical planning model built around the concept of urban "centers" presented the best possible solution. Two general types of Centers are employed in the land use concept that shapes this Plan; Neighborhood Centers and District Centers. In addition, the downtown is a regional center. While this plan employs two general types, no two centers are envisioned to be exactly alike. YVhile the centers types are based on sound planning principals that assess proper mixes of uses, necessary quantities of residential and commercial uses, and proven design principals, there is a range of mixes, quantities, and design approaches that can be successful. Within that range, then, each center will vary somewhat as it responds to its neighborhood environment, its specific function within the large fabric of the city, and local preferences. More detailed plarming for centers implementation will further recognize the particular quality of each center. Neighborhood Centers Neighborhood centers are the smaller of the two general types. Neighborhood centers provide a focus for a single neighborhood area of approximately one square mite. Key ser,qces are provided w/thin a walkable distance to the se~ed neighborhood. Neighborhood centers place services in locations and w/thin a design paradi~m~n that encourage walking and reduce 5 429 dependence on automobile travel. This serves to reduce use of automobiles and reduces congestion and pollution in Bremerton. In the early stages of implementation of the centers concept in Bremerton, the first neighborhood centers may be expected to serve a somewhat larger area until additional neighborhood centers become viable. Size and internal population and commercial bases for a neighborhood center are calculated to combine with nearby residential areas to provide a market base for businesses. Small groceries, shops, and professional and public services are encouraged. Moderately intense residential use is incorporated above the commemial spaces within mixed use structures or near the center's core to create a busy, pedestrian oriented, activity center. Design reference is given to pedestrians to the greatest degree possible. Neighborhood centers typically have at least one "focus amenity" such as a park/open space, community center or civic space, post office or other public facility, or a school. In sum, neighborhood centers place convenient and attractive nodes of mixed uses within easy walking distance of a majority of Bremerton's citizens, adding a place for social contact, and a pleasing urban experience. District Centers District centers are the larger center type. They are sized and designed to provide a focus, and services, for several neighborhoods. Commercial and professional uses are more plentiful and of larger scale than those in neighborhood centers. Residential uses are also focused in more dense patterns. While district centers are characterized by a pedestrian based design ethic, they also recognize that a segment of users will access the center by automobile. Alternative circulation to and from nearby arterials, parking immediately outside the pedestrian core, and a recognition that certain medium intensity employers may locate within the center, are distinguishing characteristics. District centers will typically have several key "focus amenities", tn the larger district centers, focus amenities may be needed on either side of major arterials to minimize pedestrian/traffic conflicts. Land Use Scenario Maps. During the Planning Commission hearing process, three alternative map responses will be presented. Because; i) they are currently available in large- format only, and 2) none has been chosen as the alternative to be moved forward, they are not printed in the Plan document as yet - or in this staffreport. A "place-holder" page is provided in the Draft Plan indicating the future location of the one alternative that is chosen. This staffreport will summarize the rationale and major features of each alternative map. Scenario #1 Current Patterns The "Current Patterns" alternative depicts the possible future development pattern if the development rationale currently operating continues to guide development in the community. Most notably, the scenario shows continuing expansion of new commercial development along high traffic corridors. New "strips" of commercial development appear along busy arterial streets such as Svlvan Way and Riddell Read - expanding the commercial areas into neighborhoods not currently'witnessing such development. In addition, new areas along existing commercial corridors such as Wheaton way are devoted to commercial expansion - effectively "widening" these condors and encroaching into current residential areas behind. Lands currently designated for apartments but vacant, are more fally built-out, introducing m_edium density housing complexes into existing neighborhoods with increasing frequency. There are significant levels of new single family subdivisions created at the periphery of the City and into the surrounding 6 430 Urban Growth Area. This scenario does not attempt to respond to the vision, goals, or policies created by the community during the Shaping Bremerton process. Scenarion #2 Moderate Implementation Scenario #2 responds to the vision, goals, and policies. This map approach (and #3 to follow) employ a community design that relies on the installation of"centers" to implement the guiding vision, goals and policies received from the community. Scenerio #2 is subtitled, "Moderate Implementation". This means that it attempts to support the creation of the centers model with somewhat more tempered strategies than are employed by the third scenario. The primary rationale' employed is as follows; 1) neighborhood centers, district centers, employment centers, are designated, and 2) medium and high density residential designations on properties that are vacant or that are not immediately adjacent to a center are replaced by low density residential designation. In essence, the approach reflects an effort to direct the majority of new multifamily residential development and a large proportion of new commercial projects into centers by reducing opportunity for that ~owth to disperse across the community. At the same time, Scenario #2 avoids re-designating properties with existing development to legal non-conforming status. Scenarion #3 Ambitious Implementation Scenario #3 is subtitled, "Ambitious Implementation". This subtitle refers to the relatively more aggressive steps taken to support the establishment of centers. This scenario also clearly implements the vision, goals, and policies developed by citizens. The primary rationale employed by Scenario #3 is: 1) neighborhood centers, district centers, employment centers are designated, and 2) virtually all medium and high density residential designations (outside of centers) are re-designated to low density residential. The approach reflects a stronger effort thm~ seen in scenario #2 to direct the majority of new multifamily residential development and a large proportion of new commercial projects into centers by reducing opportunity for that growth to disperse across the community. In re-designating medium and high density residential properties to low density residential ,and in some cases re-desiguating commercially designated properties to non-commercial uses, this scenario would eventually result in a sigmficant number of properties becoming legal non-conforming under implementing zoning. Impact Comparison Matrix. The attached matrix presents a qualitative comparison of the effects and impacts of the three land use scenario's. (see attachment A) Land.4vailability. This comprehensive plan must demonstrate that adequate land exists to accormnodate the projected ~o~'th. To make this demonstration, the Plan compares the land needs discussed above with the designations depicted on the Furore Land Use Map(s) Residential Land Supply The land needs analysis indicates that between 512 and 852 acres of additional residential land will be needed over the next 20 years to accommodate the expected population increase. This estimate is comprised of two primaW components, non-centers residential need and centers need. Of 13,000 new population, approximately ~ ~ ~* .... ~ are intended to be accommodated in Centers, while the remaining Z600 distributed as :'infi!l" to2 non-centers locations. 7 431 Residential population in non-centers locations The Kitsap County Buildable Land Analysis estimates that, in 2002, there were 446 net vacant residential acres in Bremerton. While the Buildable Land Analysis also estimates that there was .... lands, this analysis does not rely on that an additional 224 net acres of"undemtd~zed" residential additional potential acreage, This is because the City is not confident about the methodology used in the Buildable Land Analysis to determine the likelihood that a currently utilized parcel is likely to be redeveloped for additional residential uses. If the 446 acres that are more clearly available for siting residential uses is discounted by a 30% market factor, it can be estimated that about 312 acres is likely to be available for residential development. By dividing the 312 acres into the 5,600 population and employing an assumed household size of 2.4 persons, it is calculated that by employing an average density of 7.5 units per acre the expected population can be accommodated on the available acres. This density is within the range assigned to the Low Density Kesidential land use designation in this Plan. During implementation of this comprehensive plan, care will be taken to assure that average density in new residential areas (outside of centers) in that range is enabled under zoning and subdivision regulations. (Temporary Note: A relatively small proportion of the available lands employed in this calculation are currently desienated for medium or high density res dential uses. However, this calculation assumes that all of these MDR and ~ 'o LDR as depicted n Land U~e scenario #3 It' Scenario #2 is chosen capamty HD~ ands will be re-des~gnateu t : · ,. " " thcrease due to MDK and HDR designations on currently developed parcels that remain. If Scenario #1 is chosen. capacity wilt be even higher as M~DR and HDR desikmations on vacant and currently developed parcels remain. In Sum, the calculations discussed in the draft plan demonstrate that there is sufficient capacity in on existing lands outside of centers to accommodate the expected increase in population assigned to those areas. While the demonstrated capacity is at the low and of the range of need calculated in the Plan, it must be noted that the number employed uses a significant market factor, and assumes the maximum re-designation to lower deasity ranges possible under the three land use scenario's currently under consideration. In addition, it is known that there is a high amount of excess capacity available in centers that would be able to accept additional residential growth (see discussion below). This acts as "safety valve". Residential population in centers. The population projection employed by the draft plan was developed under an assumption about the potential population accommodation of centers as designated and conceived by the Plan· In other words, once a community decision to employ the centers concept is arrived at, and once the potential centers are identified, sized, and assumptions about densities and mixes of uses in each center arc developed, these factors are employed to calculate population accommodation potential. In addnjon, full build-out population of each center is temPered by assumptions that much less than full buii~-out will occur during the current 20-year planning period. The population accommodation ass~_mptions employed for centers in this plan represent only 20-50% of the total potential population in ani given center. Table XX, found in appendix PP of the plan · . · r~ ca~h center. depicts the population calculatmns employeo t~ 432 Given the methodology described above, it can be easily stated that the centers-related proportion of overall population increases in the City during the 20-year planning period are accommodate by design. Commercial Land Supply Vacant commercial land need is calculated in two major categories, centers commercial and non- centers commercial. These needs are calculated at 65 and 52 acres respectively. (see table LU.iv, page LU13 of the Plan). Centers commercial land is calculated on (Table 1, appendix PP). This table indicates the proportion of each mixed use center that that is expected to be available for commercial uses. Those lands total to 135 acres. This number exceeds the amounted needed (65 acres). This excess is attributable to the expectation that not all of the available commercial land in centers will be built-out during the initial 20-year planning period. The non-centers commercial land need is calculated at 52 acres (Table LU.iv). An estmate of vacant commercial land. Outside of centers designations was performed by City staffusing GIS technology and a review of aerial photography. That estimate reveals that there are approximately 86 acres of such land designated under scenario's #2 and #3. this, once again exceeds the calculated need. The issue of parcel size is crucial in such calculations and discussions. Commercial development occurs at a variety of scales. It is important that at least some commercial properties are of sufficient scale to accommodate larger stores and commercial establishments. The City analysis indicates that several larger parcels are available in or near the Upper V~eaton District Center as well as within the larger mixed use employment centers anticipated in the western areas of the City (see land use map(s). While these western areas are formally designated for industrial uses, the employment centers designation also calls for mixing commercial (and residential) uses on these properties. Industrial Land Supply The land needs analysis in the previous section indicates that approximately 126 new acres of vacant industrial land is needed within the twenty year planning per/od to accommodate the expected population increase. Al1 tth"ee scenario maps indicate large tracts ofthdustrial or business park designation in the western areas of the City. Of the approximately i ,075 total acres in these two land use designations, up to 90% is currently vacant. The primary areas of vacancy are on properties known as the "Pope and Talbot" and Port Blakely" properties. In sum, vacant industrial land far exceeds the need calculated in the previous section of the Plan. L)'ban GrmAth Area This staJf re~ort *~,ill be amended to include thL~ section 9 Community Character Element This staff report will be amended to include this section Housing Element This staff report will be amended to include this section Environment Element This staff report will be amended to include this section Economic Development Element This staff report will be atnended to include this section Transportation Element This staff report will be antended to include this section City Services Element Utilities Capital Facilities This staff report will be amended to include this section Land Use Scenarios and Plan consistency This staff report will be amended to include this section Decision Criteria: This staff report will be amended to include this section Staff Recommendation: This staff report will be amended to include this section Environmental Determination: pending P.C. action Date and Method of Public Notice: Notice of public hearing of July 15, 2003 was published in the Bremerton Sun on July 5,2003 staff Report Prepared by: Paul Rogerson, AICP, Planning Manager Attachments: . Exhibit A: Lan~ Use S,.enano, impact Comparison Analysis Exhibit B: Introduction, $~ction Exhibit C: Land Use Element Exhibit D...Z .....as per amended staff repor~ lO Staff Report Before the Bremerton Planning Commission Case # ................ Adoption of the 2003-2004 Bremerton Comprehensive Plan Update January 20, 2004 Procedural Recommendations Phasing of staff reports/plan topics and elements Staff recommends that the Planning Commission receive staff briefings regarding the 2003-2004 City of Bremerton Comprehensive Plan Update in a phased manner. In such a phased format, the Commission would hear staff reports on a limited portion of the plan during each of several evenings of public hearing. Public testimony would be allowed following each presentation of a portion of staff report. This approach enables the Commission and public alike to digest this large and complex document in reasonably sized "portions" Staff estimates that - at a minimum three hearing sessions would be necessary for this approach. Potential hearings/staff report topics could be arranged as follows; Hearing opens (January 20th) Introduction to the Plan, Community Vision, challenges identified, Centers concept. First continuation (approx February 3rd) Population and employment projections, land use element community character element. Second continuation (approx February 17th) Transportation Element, Housing element, Environment Element Third continuation (approx March 2nd) Economic Development Element, City Services Element, Closing summary) Continuance To facilitate the phased hearing approach outlined above, Commission should be prepared to continue hearings to subsequent sessions as necessary. Staff recommends that approximately two weeks between sessions of the hearing would be appropriate and allow sufficient time for public notice and for staff to respond to instructions from the Commission issued at the previous hearing session. R:~,,Comznun~u, Development,shaping breme~'ton',CP heamngs~,Piaruning Commission Staff Report - adoption heaMng 012004 #t~doc 1 43§ Background Community Process On January 16, 2002 the City Council adopted by an 8-0 vote the Bremerton Comprehensive Planning Public Participation Program instructing the Bremerton Planning Commission to conduct an open, public process culminating in a recommended Comprehensive Plan Update for consideration by the City Council. With the assistance of staff, the Planning Commission has completed and satisfied all requirements of that Program appropriate to date. The Public Participation Program and files demonstrating this compliance are available at the City's Department of Community Development. The Public Participation Program is attached to this staff Report as Exhibit A. Growth Management Act Requirements While the foremost requirement placed on communities by the State's Growth Management Act is perhaps that a plan address local challenges as defined by "early and continuous public participation", There are a number of technical requirements defined in the Act as well. These are too numerous to list here in their entirety. However the following is a summary of the most important of the GMA requirements. in 1990 the Washington State Legislature passed the Growth Management Act largely a response to the realization that "business as usual" was leading to significant problems. The GMA provides a framework for each community to address the challenges of growth and change in a more realistic and sustainable way. It also recognizes that some central issues exist for all communities and that these issues have implications for the state as a whole. At the heart of the GMA is a requirement that each community deal with what had become a traditional tendency toward sprawling development patterns. It has been widely recognized that sprawl is central to the problems that are facing Washington's communities, including dsing traffic congestion, environmental degradation, loss of the resource lands that provide the states' economic engine, and costly regulatory/property rights conflicts. The Growth Management Act outlines a planning framework that encourages each community to respond to these issues (and others) in a way that is consistent with its unique situation and in keeping with its vision, values, and goals as a community. The Act also encourages the creation of local plans that address some key values of the people of the State as a whole, and that such plans are coordinated from one jurisdiction to the next. An important measure employed to assure this planning approach is the requirement that all plans constructed under GMA address 13 basic planning goals. The Thirteen Basic Goals of GMA The thirteen goals of the Growth Management Act are as follows: R:~,Cowanuni,5, Deve!opment',~shaping bremeaoff,~C? headngsLPlamning Cormmission Staff Rcpo~., - adoption heating 012004 #1 .doc 436 Urban Growth. Encourage development in urban areas where adequate public facilities and services exist or can be provided in an efficient manner. Reduce Sprawl. Reduce the inappropriate conversion of undeveloped land into sprawling, Iow density development. Transportation. Encourage efficient multimodal transportation systems that are based on regional priorities and coordinated with county and city comprehensive plans. Housing. Encourage the availability of affordable housing to all economic segments of the population of this state, promote a variety of residential densities and housing types, and encourage preservation of existing housing stock. Economic Development. Encourage economic development throughout the state that is consistent with adopted comprehensive plans, promote economic development opportunity for all citizens of the state, especially for unemployed and for disadvantaged persons, and encourage growth in areas experiencing insufficient economic growth, all within the capacities of the state's natural resources, public ser'¢ices, and public facilities. Property Rights, Private property shall not be taken for public use without just compensation having been made. The property rights of landowners shall be protected from arbitrary and discriminatory actions. Permits. Applications for both state and local permits should be processed in a timely and fair manner to ensure predictability. Natural Resource Industries, Maintain and enhance natural resource based industries, including timber, agricultural, and fisheries industries. Encourage the conservation of productive forest lands and productive agricultural lands, discourage incompatible uses. Open space and Recreation. Encourage the retention of open space and development of recreation opportunities, conserve fish and wildlife habitat, increase access to natural resource lands and water, and develop parks. Environment. Protect the environment and enhance the state's high quality of life, including air and water quality, and the availability of water. Citizen Participation and Coordination. Encourage the involvement of citizens in the planning process and ensure coordination between communities and jurisdictions to reconcile conflicts. Public Facilities and Services. Ensure that those public facilities and services necessary to support development shall be adequate to serve the development at the time the development is available for occupancy and use without decreasing current service levels below locally established minimum standards. Historic Preservation. Identify and encourage the preservation of lands, sites, and structures, that have historical or archaeological significance. (RCW 36.70A.020) In addition to responding to these thirteen goals, the GMA asks that each community address certain additional core issues. Some of the key issues addressed by the Plan and required by GMA are listed below: R:',ComnmpJty Development shaping bremenon' CP headngs,Pianning Core-mission Staff' Report - adoption hearing 012004 #1 .doc 3 437 Citizen Participation The Act requires "early and continuous" citizen participation throughout the planning process. A previous section oft this staff report summarizes the extensive public participation effort that has been conducted. Protection of Natural Resources and Critical Areas The Act requires jurisdictions to identify and protect steep slopes, wetlands, aquifer recharge areas, fish and wildlife habitat, and other critical areas as well as forest, agriculture and mineral resource lands. Urban Growth Areas Following suggestions from its cities, Kitsap County was required to identify existing urban areas, determine 20-year urban growth needs, and establish Urban Growth Areas (UGA's) as needed to accommodate urban 9rowth. The existing cities and their UGA's are intended to accept the majority of the County's new growth, as directed by the Countywide Plannin9 Policies, thus relieving development pressures in rural areas. Coordinated Policies Cities and counties work together to establish Countywide Planning Policies that guide the individual planning programs and help ensure consistency. Concurrency Plans must be realistic and workable. If plans call for new development, the Plan must indicate how the needed public services and utilities will be provided within a reasonable amount of time. If adequate resources cannot be identified, development cannot be allowed. Levels of Service In order to deal with traffic and congestion resulting from new development, new requirements for transportation planning include the measuring of existing Levels of Service (LOS), discussion within the community leading to adoption of future Level of Service Standards reflecting levels of congestion and transportation quality that are acceptable to the community, and a plan that assures that - as development occurs -the adopted standard will not be violated. This is called the concurrency requirement Plans under GMA may also require that other urban services, such as police protection, water and sewer service, library services, etc., be maintained at a LOS set by the community concurrent with growth. This Plan does institute that requirement for 11 types of services. Agency Compliance Not only are local plans required to be consistent with each other, but State agencies are also required to comply with local plans and development regulations. ,, ' ~ CP hearings"~Phnning Commission Staff' R: ~Com~mumb' DevelopmenL ,shaping brem~rton, J Report - aaop~o,, h~a;, ~ 012004 ~l.doc 4 438 Relationship to ReguLations Land use regulations are the tools that implement the Comprehensive Plan and, therefore, must be consistent with the Plan. If the Plan shows high-density residential development in a particular location, the Zoning Map must show a similar zoning designation. If the Plan calls for certain street development standards within Iow-density neighborhoods, then these standards must be adopted and applied as new development occurs. Following preparation of the updated Comprehensive Plan, development regulations will be prepared and revised as necessary. The primary regulations to be dealt with include those governing critical areas; zoning; development standards and guidelines; subdivisions; and shorelines. Periodic Review and Update of the Comprehensive Plan Following adoption of the updated Comprehensive Plan and related development regulations, the City shall continually monitor their effectiveness and document needed amendments. A major review of the Plan will be conducted at five-year intervals and annual amendments will be considered in accordance with the process established in this plan and implementing regulations. Introduction to the Plan Overview of Plan organization The 2003-2004 Bremerton Comprehensive Plan Update is organized as provided in the Growth Management Act. It is organized into elements addressing Land Use, Transportation, Housing, Economic Development, Utilities and Capital Facilities (addressed together within the City Services Element), and Environment. in addition, the City has chosen to create a unique element summarizing themes of the overall document in an urban design context. This additional Element is called the Community Character Element. Internally, each of these elements is formatted in a similar manner. Typically, an element begins with a vision statement - prepared by citizens - that outlines community vision for the future of Bremerton in a way that is specific to that topic area. The element will then provide; 1 ) an analysis of existing conditions and challenges visa vie the topic; 2) a forecast of future conditions consistent with the plans' population forecast and other base assumptions; 3) a set of goals and policies that represent the community's desired response to those conditions and forecasts; and, 4) other data and/or descriptions that provide additional detail regarding the solutions set-forth by the goals and policies. These additional materials often include crucial items such as the Future Land Use Map. Four of the elements, Land Use, Transportation, Housing, and City Services are accompanied by technical appendices. The appendix sections are located in a companion volume entitled "Technica/Appendices- 2003-2004 City of Bremerton Comprehensive P/an Update" R:~Comznunity Development' sh~?ing bremerton',CP hearings ~Plannin~ Commission Staff Repo~ - adoption hearing 012004 =1 .doc 439 Challenges During the initial stages of community dialogue, members of the public identified a number of challenges. They were aware that - to create a successful future - Bremerton would have to address these issues. The identified challenges are not part of the Comprehensive Plan, but one particular issue is, in fact, one of the major drivers of this plan. That issue is the fact that Bremerton has not had significant population growth for several decades. The citizens recognized that to recapture social and economic vitality it would be necessary to create a new climate, offer new opportunities, and otherwise change the planning model that has been employed during this period of stagnation. The vision statement that followed, as well as much of the remainder of the new plan, is a response to these challenges. Plan Foundation: the Community Vision The 2003-1004 Bremerton Comprehensive Plan Update is based on a vision of the future shared by Bremerton's citizens. During the initial stages of the public process that guided the creation of this Plan, exhaustive effort by community members led to the writing of a "Vision Statement" describing the qualities, capacities, look and feel that community members felt shoutd be apparent in Bremerton by the end of the twenty-year planning period covered by the Plan. In other words, citizens described the community that they wished to create over the next twenty years. This provides the "target" toward which all other goals, policies and recommendations contained in the plan seek to move the community toward. The Vision Statement is too long to re-print here. It is found at the beginning of the Community Character Element of the Plan. In summary, however, it speaks of a desire for strong neighborhoods, new opportunities for vitality in urban centers, a strong downtown, and "healthy" growth. Plan Themes As citizens created goals and policies that would act as a guide, leading individuals and, (especially) decision makers consistently toward the future envisioned in the community's Vision Statement, a series of "themes" emerged. Without preconception, citizens working on separate sections (elements) of the Plan began to address a set of core ideas. These core ideas signaled that a diverse array of citizens identified very similar ideas and needs as central to the future success of Bremerton. Eventually, these core themes were assembled into a new ptan element that is now called the Community Character Element. The themes are; 1. Distinctive growth, with viable neighborhoods and centers that provide greater choice and convenience 2. Enticing new development, with a focus on the town center 3. Supportive transportation, with seamless, efficient, and varied choices R:,,ComrnupJU' Development,,shaping bremerton',CP hearings',Plar~ning CormmSssion Staff Report - adoption headng 012004 #1 .doc 6 440 4. Improved accessibility, especially for the pedestrian 5. Quality housing, with broader choices 6. Business support, with increased opportunity 7. Environmental management, integrating natural systems 8. Community service, focusing on assets Design Review As citizens refined community goals and policies, another primary realization emerged; that many of the aspirations for the future guiding this Plan were related to urban design issues. The citizen authors noted that the route to reaching goals as varied as; 1 ) providing vital urban nodes a core for successful neighborhoods, to; 2) returning to a more friendly pedestrian based community, to; 3) increasing our attractiveness to new business and employment (just to name a few) ALL ran through a consideration of the key design issues. The took and feel, the way complex systems are integrated, and the amenities provided needed to be carefully designed if the complex solutions being considered for complex problems had any hope of successful implementation. The Community Character Element especially summarizes the communities recommendations visa vie urban design issues. The Centers Concept The final, and perhaps most important, realization that emerged from the citizen-par[icipatory process was that many of the challenges identified by the Planning process, and the vast majority the goals set by the community as a response, pointed toward the same solution - the idea of "centers". Community desire for; stronger neighborhoods, more pedestrian oriented development, more transportation options, increased housing choices, more locations for attracting new business opportunity and employment, more efficient use of public dollars; and for a more attractive, better designed community could all be addressed by a concept called "centers". In general, centers are carefully designed areas of mixed-use development featuring retail, commercial, office, and residential uses within easy walking distance. They provide living, shopping, employment, recreational, and social opportunities at the core of a larger neighborhood. Often they are described as similar to the old-fashioned small town downtown. The Land Use Element describes the centers concept as implemented in Bremerton. The section of this staff report on the Land Use Element will provide greater detail. That section will discuss centers characteristics, centers benefits, the demographics of centers, and the part centers play in the larger planning scheme presented by the Plan. The Plan will suggest that three types of centers be located in Bremerton, neighborhood centers, district centers, and employment centers. In addition the downtown is identified as a regional center. The Plan's Future Land Use Map designates locations for all centers types. R:',Corrmmnity Devel~prnenr,shap~ng brernerton,CP heahng$'Pianning Commission Staff Report - adoption hea.dng 012004 ~:l.doc 441 Plan data In addition to the challenges identified, and the community response to those challenges as expressed in goals, policies, themes and concepts, the 2003-2004 Bremerton Comprehensive Plan Update has technical underpinnings that also must be understood. As required by the GMA, the plan projects future technical conditions and crafts a response. The eventual implementation of the directions set by the Plan's goals and policies must be adequate to address future conditions as described by population and employment projections and related traffic forecasts, land needs, housing needs, economic conditions, environmental challenges, financial needs - and the like. The following section explains the methodologies and results of population and employment projections that drive the technical factors addressed by the Plan. Population and Employment forecasts population By state law, the Washington State Office of Financial Management (OFM) is tasked with providing a range of population projections for each county in the State. It is left to the county, and the jurisdictions within, to cooperatively decide how those new persons will be accommodated. It should be understood from the outset that the OFM range - while mandated by State law (GMA) - is quite broad. Kitsap County and its jurisdictions, including the City of Bremerton, have agreed that each jurisdiction should conduct a community dialogue about its desired future, decide how it wants to grow, and calculate its ability to accommodate some portion of the county population allocation. Bremerton has conducted just such a process. The Comprehensive Plan Update is the conclusion of that exercise. Citizens have spoken regarding the type of future community they envision. The City has employed that vision to determine locations for new growth and set development intensities. The resultant land use map and policies accommodate new people and endeavor to attract new commercial and industrial activity. The following population projections grow out of that design and, in turn, guide the form and content of much of this Plan. The population projection is guided by several key parameters. First, there has been very little history of population growth in Bremerton during the past several decades. However, sole reliance on such historical population trends for forecasting purposes is not consistent with local, regional, or State goals that include increasing the proportion of new growth that occurs in existing urban areas. Under the Growth Management Act and the regional strategy agreed to within the Kitsap County County-Wide Planning Policies, it is assumed that this decades-old pattern of stagnant population leve!s within Bremerton will be broken. Finally, this plan includes changes in community design ethic, and R2Co_mmurdt2- Development',shaping bren~enon\CP heafings¢la~ning Comrmss~on Staff Repo~ -adopdon hearing 012004 # 1 doc 442 emphasis on regulatory incentives, which should prove sufficient to attract larger portions of County population growth to the City than in the past. Perhaps foremost amongst these basic assumptions is the belief that the new design ethic contained in this plan will attract significant levels of growth. The key urban design concept contained herein is the "Centers Concept". While centers are more fully discussed in the Land Use Element and throughout the Plan, it is important to understand, that the population growth calculated is based largely on the ability of the centers - including the revitalized downtown - to attract new residential and commercial/office uses. The following is a summary only. For analysis, population and employment projections are calculated for each of 125 zones in the city. For convenience and consistency, the zones employed were Transportation Analysis Zones (TAZ's) employed by Kitsap County and for which at least some historic data is available. Based on records of permit issuance for residences over the period from 1995 to 2000, existing 2000 data for each TAZ was projected forward to the year 2023 - the end of the 20 year planning horizon employed by this plan. That projection was made by assuming that the rate of residential development in most TAZ's would continue at approximately the same rate as reflected by the 1995-99 growth. The viability of this growth was checked by referring to the 2002 Kitsap County Buildable Lands Analysis. Analysis confirms that more than sufficient developable property exists to accommodate this level of "background" growth throughout the City of Bremerton. In addition to this "background" growth, new residential uses in the "centers" were added in appropriate TAZ's. Centers population expectations were calculated as follows. Population projections for neighborhood and district centers were based on commonly accepted models of centers size and proportion of residential to other uses. The potential residential acreage of each center was calculated. Multiplying each center's residential acres by assumed residential densities and household sizes yielded a potential population within the center at full build- out. The full build-out was then reduced to a number that corresponds to the expected population growth within the twenty year planning time frame. This was accomplished through a Geographic Information System/aerial photo based analysis of the proportion of land within the center that was undeveloped or significantly underdeveloped. The analysis then looked at the relative availability of key services such as water, sanitary sewer, storm sewer, and transportation at each proposed center location. The proposed centers were "rated" as to what proportion of the full build out could be expected within the next 20 years. These calculations are reflected in Tables 1, 2, and 3 of Appendix LU, R:'~Co~nmunib, Development',s~ap~ng breme~on CP heanngs,Plarming Cormmission Staff Report - adoption hearing 012004 5! .do,; 443 Population projections for two employment Centers, The Port Blakely Employment Center and the Pope and Talbot employment Center, were added based on discussions with the owners of the sites. A modest buildout of 750 persons was assumed for each employment center over the twenty year planning period. That number was assigned to the appropriate TAZ. It should be noted that these calculations assume that no portion of the population in the two employment centers will occur within the first six years of the planning period. As a result, total population and employment figures employed for purposes of capital facilities finance planning - including that for transportation needs and growth impacts - do not include any portion of these 1,500 additional people for the growth expected because of new centers... Twenty year centers populations were disaggregated to appropriate TAZ's and added to the non-center population projection for the TAZ. Final year 2023 population projections for each TAZ and for the entire City resulted and are indicated on Table 4. TAZ boundaries do not always lay entirely within the current city limits. Table 4 adjusts certain TAZ populations to account for this. In addition, totals for populations in all portions of all TAZ's are provided in Table 4 and 5. It should be realized that these numbers indicate populations that are in areas not within the current city boundary, Footnotes following each table cite data sources, and provide additional detail regarding methodology. In summary the following projections emerge: Total projected City population in 2023 is projected at just over 50,000 (Table 4, column 10). This is an increase of approximately 13,000 over the 2000 census figure of 37,165. Of this increase, 7,574 people, or approximately 58% of the growth, occurs in the new neighborhood or district centers (see Table 4, column 8). Population in the UGA reaches over 58,500 compared to an estimated 2000 UGA population of 44,8~ 5. Employment Employment is calculated in essentially the same manner. Year 2000 Kitsap County TAZ employment was used to make projections of year 2023 employment by applying growth rate data from the Washington State Department of Employment Security. Employment projections are summarized in Appendix LU, Table 5. Employment forecasts for each center were added to the appropriate TAZ. Appendix LU Table 5 provides the resultant projection for each TAZ. Further details of non-centers employment growth calculations are reflected in Table 6. p.:,,Commu~Jty Deveioprnent".sh~ping breme, rton'CP h~afin~s~Plamning Commission Statff~ Report - adoption hearing 012004 #t .doc i0 444 In sum, employment forecast indicates that overall employment in the City will rise from its current level of approximately 45,000 to approximately 54,000 jobs over the next twenty years. Of that total growth of 9,000 jobs, about 4,000 or 45% will be in the centers Significant vacant and developable land area will be needed for new employment generating activities. It should be noted that those areas are already part of the City. Notable large blocks among these areas are found in the Employment Centers based, especially the Pope and Talbot and Port Blakely properties in the West Hills area. The projections employed by this Plan are the most accurate estimates possible of these key measures of the scale and scope of the future. These estimates are the result of employing base data that does not always match completely with the City's ideal needs and they utilize multiple steps that, in turn, rely on the best estimates available of projected growth rates. They further attempt to make predictions in a world affected by political and societal change that will happen in future years. One of the base rules of planning is that such predictions will need constant monitoring, reassessment, and recalculation. (End, staff report portion for hearing of January 20, 2004) R:~',Community DeYelopment',shaping bremenon' CP headngs',21a2ning Cow=mission Staff Repo~ - adoption hearing 012004 ~1 .doc 1! 445 Addendum #1 (Addition to staff report for hearing session of February 3 rd, 2004) Procedural Recommendations Staff has some additional procedural recommendations. First, Commission may wish to consider how comments from the public are addressed during the hearing process. The options include the following; 1 ) Each commissioner is responsible to take whatever note of verbal testimony they wish. An audio recording is being made of the hearing as well. Written testimony is assigned an exhibit number and added to the public record as part of a packet of testimony. 2) In addition to the above, at the conclusion of ant portion of the hearing, Commission instructs staff to present additional information, analysis, or recommendations related to any particular written or verbal testimony. That additional information can be presented as part of subsequent hearings. Second, Commission may wish to clarify the deliberation process. Will deliberations extend to additiona1 Commission meetings after the closure of the public hearing? If so, will staff be instructed to provide information, analysis and/or recommendations related to testimony presented during (presumably later stages of) the hearing, but not previously responded to? Legal counsel should be consulted regarding this issue. Land Use Element Vision The basis of the Land Use E~ement is a land use vision statement. That statement is on the top of page LU1. in summary the vision for land use recognizes that land use patterns and decisions affect economic vitality and lifestyles. The statement envisions a future with a variety of jobs, housing and transportation options, and convenient and dispersed locations for commercial activities. It describes a walkable community with neighborhoods connected to vibrant, mixed-use "town centers". It also reminds that waterfronts views and parks are key parts of a successful urban environment. Challenges Like all Plan elements the Land Use Element, this element responds to three types of challenges. Foremost amongst these are the vision, goals and policies R:'~Comn2un~' Development',shaping breme~on',CP heanngs,~tarming Com_m~ssion Staff' Repo~ - adoptmn hearing 0 ~ ~.004 ,~. ,do 446 set forth by the community to guide us toward the future. These will be discussed in later sections of this staff report. The element also responds to two other types of challenges' technical challenges and the "concerns of the wider public". Concerns of the wider public. While the aspirations of the local community take the primary lead, the Land Use Element must also respond to the concerns, needs, and rights of two larger constituencies; the people of the region and the people of the State of Washington. This is accomplished in two ways. First, regional coordination is accomplished through making this and all other elements of Bremerton's comprehensive plan, consistent with "County-wide Planning Policies* adopted by the jurisdictions in Kitsap County. The County- wide Planning Policies are adopted by the County and cities within to guide the plans of each jurisdiction in ways that assure that the plans of one will not thwart the plans of another. This is accomplished by setting a common policy framework in many topic areas. The county-wide planning policies will be included in the technical appendix that supports the Plan. Detailed description of the nature of the consistency thus created is to complex to include in this report. However, it should be noted that City staff has made all necessary efforts to assure such consistency. The second "wider public" that has a stake in a local plan is the people of the State as a whole. The Growth Management Act includes numerous provisions regarding the format, topics, and technical discipline that must be evident in a Plan. By addressing these topics, local jurisdictions can assure the people of the state that larger issues such as environmental protection, fair housing, and sustaining natural resource lands is accomplished. This plan also addresses those concerns. Throughout the public hearing process - and in this staff report - staff will routinely comment on State requirements that apply to the creation of a comprehensive plan. Most often, the3 underlying rationale for such requirements of law is to protect or forward the interests of the people of the State as defined in the legislation. Technical challenges, The Land Use Element - as well as most other sections of this Comprehensive Plan - must respond to the specific challenges posed by the type and scale of change expected over the next twenty years. In the simplest terms, it must be shown in the Element that the projected population growth that is delineated in the Plan will be accommodated with adequate land for housing, businesses, and industry. The technical appendix provides a detailed discussion of population projections, resultant expected land needs, and other calculations and discussions that support the Element. Those technical sections demonstrate that the land set-aside for each type of land use in this Element responds to the need for such lands that result from the projected growth. R:xCommunity Development',shaping breme~on CP hea,dngs'.Piamning CozTLmission Staff Report - adoption hearing 012004 ¢i.doc !3 44? Goals and policies Goals and policies were developed by the community as a response to the challenges outlined above. These - along with the vision statement that they serve - form the heart of the Element. The goals and policies begin on page LU13. While it is not possible to discuss each goals and supporting policy here, a few of the most notable goals include the following; · LU1 Identify and enhance distinctive neighborhoods, communities, and centers throughout the City, · LU4 Designate neighborhood, district, and employment centers....that provide mixed-use environments which serve as the primary focus for growth centers. · LU7 Provide for walkability throughout centers and neighborhoods · LU13 Achieve a vibrant and active downtown Centers This Plan - the land use section and all the others - is based on the centers concept. "Centers" or "the Centers Concept" refers to a general development model that calls for creation of new "downtown village" nodes. These nodes, or "centers", cannot be standardized or cast in the same mold for use in any location. In the Land Use Element each center in Bremerton is described separately with particular attention to the types of heights, densities, and uses that fit best in the particular location. Centers descriptions begin on page LU28. In general, however, a center is a mixed-use area placing residences, many of the basic services that they require, employment opportunities, and amenities such as public spaces and parks, in a well integrated and somewhat concentrated area. Centers will often have the "look and feel" of a small downtown surrounded my moderate to high density residential uses. Common characteristics are: 1) a core area characterized by welt designed mixed-use structures featuring residential uses above street level commercial or office uses; 2) a carefully designed pedestrian orientation that begins with the active street frontages provided by the mixed-use core area - but also extending to the outer areas of the center and into surrounding neighborhoods; 3) the presence of public gathering places such as parks, or public plaza's; and 4) a well considered linkage to public transit. Neighborhood centers are designated at Manette, Perry Avenue Mall, the intersection of Sylvan and Pine, the Haddon area north of Charleston, and on Kitsap Way at Oyster Bay Road. Larger District Centers are designated on Wheaton Way at both Riddell Road and at Sheridan, and in Charleston. Employment Centers are designated in the Harrison Medical district and on a large property in the West Hills area. Downtown Bremerton is a designated "Regional Cente¢'. The element contains unique descriptions of each center outlining its size, approximate characteristics. It is anticipated that more specific R:',Co.%murfity Developrnent'sl~aping brerne~on'..CP hearings Pla,'u'Jng Commission Staff Repo~ - adoption hear/ng 012004 #1 .doc 448 district plans will be created for each adding further details through local planning processes. Centers respond to the vast majority of the goals and policies in the Land Use Element and in other elements of the Comprehensive Plan. The goals and policies most directly applicable include those addressing better neighborhoods, more transportation and housing choices, increased economic viability and opportunity, and more efficient uses of public monies. UGA The Growth Management Act requires that local plans designate Urban Growth Areas. The Land Use Element includes a discussion of UGA issues and a UGA map on page LU10. The element proposes to expend the UGA as formerly designated in the 1995 Plan. In summary, this proposal hinges on the recognition that the growth future of large urban or industrial areas - not currently associated with any city - should indeed be associated with a City, In the case of the proposed area the logical city is Bremerton. Other topics of note Open Space An important goal of the GMA is a requirement that communities include open space in their land use design. The Land use Element includes an Open Space Map (page LU12) that illustrates a network of open space comprised of natural areas, more developed parks, and school yards. In addition, the open spaces are connected by a series of connecting features such as trails, more traditional pedestrian routes on sidewalks, and wildlife corridors. It should be noted that the open space system is intended to be compatible with larger regional projects such as the mosquito fleet trail. It also attempts to address the need for wildlife to move across the urban area. Note that the open spaces mapped are not land use designations, but rather represent a proposed design for open space that should be accomplished by a variety of other means including public acquisition, park planning, and coordination in school planning, and incorporating trails and pedestrian facilities in public and private development projects. Area Specific Plans On Page LU5, a brief section calls attention to the need for more specific area planning in centers, at the special Redevelopment Opportunity Sites (West Park and East Park), and in several other neighborhood areas. Land Use Map and designations (revised) The Land Use Map is located on Page LU36. It depicts the centers and other land use designations, A detailed description of each land use designation R:',Commurdt) Development\shaping bremerton',CP hearings,,Planning Corm'nission Staff Repo~ - adoption hea:fing 012004 #1 .doc 15 449 employed by the Element begins on page LU$7. In addition to the centers previously discussed, major designations include CC (Commercial Corridor), a new designation that seeks to encourage more creative development along Kitsap Way and Wheaton Way. Note that these designations have been recently revised to include several not previously found. The new designations include; I (Industrial), BP (Business Park), and LTA (Limited Transition Areas). In sum, the land use designations have been crafted by staff as the most efficient and logical means possible of implementing the goals and policies created by the community. Decision Points Land use "scenario's" (see LU8 and policies LUSa, LUSh) Land Use goal LU8 points out a future "decision point" that the Planning Commission will be called upon to make during the hearing process currently underway (see page LU17). Staff will require instructions as to the policy direction that should be moved forward surrounding this issue. That instruction to staff will not be needed until final action is taken buy the Commission. In the current draft Plan, policies LU8a and LUSh present differing methods of implementing land use approaches that encourage most multi-family development to occur in centers. Before the end of the hearing process, the Commission should advise staff as to the preferred method. Both methods will be sent forward for environmental review with the chosen method being describes as the "preferred option". Public Comments recorded so far (section reserved pending Commission instructions to staff) Housing Element Vision The Housing Element is (also) based on a foundation provide by citizen participation. That foundation is the Vision Statement for housing found in page HS1 of the Element. The vision statement focuses on; quality homes; cohesive, safe neighborhoods; safety; and broader housing choices. In calling for locating new (housing]) in strategic locations that support diverse lifestyles, more R: ,Con~mupJt~' Dewlopment',sh~ping brem~rton' CP h~a~'ings',Pla2ning Con.mission Staff Repo~ - adoption hea:ing 012004 ~1 .doc 16 450 innovative housing choices, and capture local amenities, the Housing Element suggests the centers concept as a key strategy. The housing Element notes that," Coordination is particularly important with the Land Use Element that prescribes types of uses, densities, and measures to protect quality single-family areas while encouraging new growth in strategic locations for new, more intense vibrant urban settings." Challenges Growth Management Act requirements The requirements of the Growth Management Act for preparation of a housing element are relatively simple; inventory existing and proiected conditions and needs; develop goals and policies to respond to the identified needs; identify adequate land for the needed housing; and make adequate provisions for housing that serves all economic segments of the community {commonly referred to as the "affordable housing" requirement, This element satisfies all those requirements. It should be noted that identification of adequate land is demonstrated in the land use element and repeated in the housing appendix section. Housing Challenges in Bremerton The Housing Element includes an extensive analysis of current housing conditions and related factors such as income and demographics. Primary among these challenges is the iow level of housing construction in the past several decades, the aging of the housing stock, and a related deterioration of typical housing conditions. The Element also contains projections of future housing conditions and a calculation of future housing needs. In sum, the element identifies that to replace units lest to obsolescence and provide units for expected population growth, between 5300 and 6400 new units will be needed over the twenty-year planning period (see page Hsg). Other challenges. In addition to the requirements of the Growth Management Act, and the unique challenges identified in the local community, the Housing Element responds to the numerous mandates articulated in federal funding protocols, the State of Washington's Growth Management Act, the County-wide Planning Policies, and the Consolidated Plan of Kitsap County (a County-wide housing repod required for federal funding). Housing policies, especially those providing for an equitable distribution of below-market subsidized housing; require inter-jurisdictional coordination and cooperation in meeting needs and in attracting new housing development. Therefore, housing strategies are also recognized from other plans and other legislation for integration with this element. R:xComr:lurdty Dexrelopment'~shaping bremerton'CP heanngs,?ianning Commission Staff Report - adoption heasng 0! 2004 ffl doc !7 451 Goals and policies Goals and policies were developed by the community as a response to the challenges outlined above. These - along with the vision statement that they serve - form the heart of the Element. The goals and policies begin on page HS10. While it is not possible to discuss each goals and supporting policy here, a few of the most notable goals include the following; H3 Provide a variety of housing types and densities to meet the changing needs of Bremerton residents, H4 Provide housing in mixed-use centers for a variety of incomes, age groups, and household types. H5 Promote access to quality affordable homes for all Bremerton residents regardless of their economic capabilities or special needs. Note: A special section of the Element follows the goals and poficies section. Beginning on page HS 16, the reader finds a section presenting a more detailed strategy for providing affordable housing. The section presents ideas for coordination between the City and other agencies involved in housing issues and some special strategies to encourage creation of housing units for middle and lower income residents. H6 Build Strong, cohesive neighborhoods with a majority of Bremerton households owning their own homes. (note: end of public hearing session of February 3~d, 2004) Community Character Element Vision The Community Character element is a unique section of the Comprehensive Plan. It attempts to summarize themes that occur throughout the remaining elements. Moreover, it also illuminates the recognition that these themes are largely matters of urban design. The vision statement that introduces the Community Character Element is the overall vision statement governing the entire Plan. That statement was summarized in a previous section of this staff report. The Community Character Element highlights the goals and polices of the Comprehensive Plan that focus on the quality of new growth in Bremerton. In sum, it provides the foundation for citizens and city officials to prescribe design parameters, incentive programs for new developments, and, most broadly, the manngr in which the city grows. This Element aspires to summarize and clarify the issues of growth and to elsvate understanding of the planning of our city's R:",Cormmunity Development',shaping breme~on'~CP hea~ngs',Ylarming Commission Staff Report - adoption boa_ring 012004 ~t .doe 18 452 physical future. Themes During the development of this Comprehensive Plan, goals and policies related to functional areas - such as land use, transportation, economic development, and the environment - were created. The citizens soon realized that a set of distinct themes were also emerging. These themes encapsulate the community's aspirations for the future. A second realization also became apparent - all the major themes of the Comprehensive Plan were also largely speaking about urban design issues. Without a preconceived intent, the community had identified that the look, feel, and character of new development was, perhaps, the crucial aspect in determining whether the community reached it's overarching goals of becoming a better place to live. If one can understand the design-based themes that underlay this plan, one can perhaps best understand the entire plan. This staff report will not discuss the themes in detail, but simply list them. The full discussions begin on Page CC3 of the Community Character Element. 1. Distinctive Growth, with Viable Neighborhoods and Centers that provide greater choice and convenience 2. Enticing new Development, with a Focus on the Town Center 3. Supportive Transportation, with Seamless, Efficient, and Varied Choices 4. Improved Accessibility, especially for the Pedestrian 5. Quality Housing, with Broader Choices 6. Business Support, with increased opportunity 7. Environmental Management, integrating natural systems 8. Community Service, focusing on assets Design Review The Community Character also provides a discussion of the concept of design review. This discussion indicates a realization that occurred during public discussions that the more intense modes of development being discussed in the Plan presented challenges. Careful design was necessary to insure that the mixed-use environments discussed in the Plan met human needs, were viable economically, and addressed concerns of the community surrounding more intense urban environments. The Element suggests a general outline for how R:'~Commur2D Development,shaping bremer~on,CP hcarings~..Plap~ning Cormmission Sta~'f Report - adoption heating 012004 #1 .doc 19 urban design concerns might be addressed during Plan implementation. The discussion of design review begins on page CC11. Goals and policies As with the other Plan elements, goals and policies developed by community members form the foundation for the Community Character Element. In the case of this Element there are only four goals presented. Each, however, is supported by numerous policy statements that give them a relatively high degree of specificity. The four goals are as follows; CC1 Demonstrate excellent urban design qualities in new development CC2 Assure that new development relates to surrounding uses and provides for urban livability. CC3 Provide for a safe, pleasant, and rich pedestrian experience. CC4 -Promote the development of areas of special character, encouraging a diversity of communities within the city. R:',Cormmunity Dex ¢lopment',shaping brem¢_.-ton~CP heafings',Pla;~ning Conm'-nission Staff Report - adoption h:a.dng 012004 # 1 doc 2~54 Addendum #2 (Addition to staff report for hearing session of February 17th, 2004) Recommended changes to land use maps and recommendation regarding mapping issues (page LU36) At the close of the public testimony portion of the February 3rd session of the public hearing, the Planning Commission issued a series on instructions to staff requesting further analysis of several issues raised during testimony. In addition, Commission asked that the "Land Use Scenario Maps" discussed during the planning process be brought to the hearing so that the public and Commission could better understand the alternatives available for land use designations. The following section of this staff report addresses both of these requests. Many of the issues raised during testimony were matters relating to mapping. Members of the public had suggested changes to the land use map for instance. Staff recommends that the proper analysis of these "requests" should be made on the basis of their consistency with the overall-directions set by the comprehensive plan. As suggested above, Commission also requested that the "land use scenarios" discussed during earlier phases of the comprehensive plan drafting process be brought back during the current hearing process as a way to assess the testimony. This then suggested a further refinement of the "scenario maps" so that they better represented consistently applied alternative paradigms. The result is that the scenario maps have been clarified so that each mapping change suggested by testimony can be more clearly fit into the appropriate scenario - or scenarios. The scenarios can now be described as follows; Scenario #1 No Change Scenario #1 represents the approximate land use pattem that will occur with no changes in land use designations or implementing zoning. These patterns and implementing standards have been determined by staff to be inconsistent with the intent and spirit of GMA. The scenario features the 1995 land use designations and further assumes that density in Low Density Residential designation will be continued at the levels currently found in the zoning code. Existing zoning allows densities as Iow as one unit per acre in this area. For reference, the implementing zoning is currently as follows; SF1 (1-3 units per acre), SF2 (1-8 units per acre), and SF3 (3-8 units per acre.) In the 2002 Kitsap County Buildable Lands Analysis, it was estimated that during the period from 1995-1999 (the first five years under the current comprehensive plan) R:xCorrmmmty Development"shaping breme,'ion CP hea~ings<Plarming Commission Staff Repo~ - adoption hearing 012004 ~! .doc Il 455 development in these areas was occurring at approximately 2.36 units per acre on average. Under this scenario, multi-family uses continue to spread in nearly all regions of the City and UGA. Multi-family densities are approximately 10 units per acre (current estimate from Buildable Lands Analysis). The result of this continuation of very Iow density residential growth and this unstructured pattern of multi-family projects is also an extensive pattern of new commercial growth along traditional corridors - largely arterials outside of the current City. This pattern arises in support of the new residential occurring widely across the landscape. Scenario #1 assumptions: Land use designations remain the same 2. There are no policy changes that drive changes in residential densities. Development in the LDR designation continues at approx. 2.36 units per acre (per 2002 Buildable Lands Analysis) 3. Density as Iow as 2.36 du/ac in the City results in increased development outside of the city. Automobile oriented commercial and office development occurs in patterns best serving the highly dispersed residential base. Commercial development infill$ along most arterial streets with slightly higher concentration in areas of the UGA immediately outside of the City as residential growth outside of the City outpaces that inside. 4. Absent policy changes, new multi-family development continues in a dispersed pattern across the City and UGA. Redes]gnat]ohs and rezones routinely are granted for new muir]family development. It occurs on many larger parcels and occasionally in areas of congregated smaller parcels. Scenario #2 Current Patterns Scenario #2 appears on a map to be quite similar to scenario #1. There is a significant difference however. This scenario assumes that, while the general pattern currently employed will continue, Plan policies will require that implementing zoning be changed to set a minimum density of 4 units per acre in the LDR designation. This change represents an effort to bring the planning design into rough compliance with at least one major requirement of the Growth Management Act - that cities seek to assure minimum residential densities that are "urban in nature". Multi-family residential uses continue to tocate in heady all regions of the City. In very limited cases, the rise in single family densities results in some property owners developing single family projects where multi-family projects may have previously been requested. This effect is limited. This pattern suggests somewhat less new commercial along the traditional corridors than is seen in Scenario #1, but a significant pattern of growth outside of the current City limits remains. Scenario #2 assumptions: ~ Land use pattern remains essentially the same as current (f995 Plan), but employs 2003 Update designations without centers. 2 Policy changes are made that assure residential densities in the LDR designation rise to urban levels of 4 du/ac at a minimum for new development. R:',Conm2unity Development',shaping brcme,'ton~CP heanngs,Plannmo Commission Staff Report - adoption heating 012004 '-I .doc 22 456 $ Absent other policy changes, automobile oriented commercial and office uses infill along most arterial streets within the City. Commercial growth also extends along arterials outside of the City but to a somewhat slighter degree than in scenario #f 4 Absent policy changes, new multi-family development continues in a dispersed pattern across the City and UGA. As in scenario #1, new multifamily development occurs on many larger parcels. Slightly higher densities in the LJ)R designation reduce the market for medium density multifamily as compared to scenario #1 with fewer redesignations and rezones o£ smaller parcels. Scenario #3 Centers Concept Scenado #3 represents the development pattern occurring as a result of full implementation of the "centers" approach. It is the scenario that is fully consistent with the goals and policies brought forth in the Draft Comprehensive Plan Update. The scenario parameters discussed below are based on those goals and policies, Residential densities in the LDR designation rise to between 4 and 10 with an average for new development of approximately 8 units per acre, Multi-family uses occur only in the Centers. Parcels designated for multi-family outside of centers are redesignated for Iow density residential use. Policies related to this scenario suggest that existing multi-family development outside of centers be more strongly protected from the deleterious effect of legal non-conforming status by significant amendments in the zoning code as it relates to non- conforming uses. Most new commercial and office development occurs in Centers. This scenario represents a combining of the former scenario's 2 and 3 which were both centers based approaches. This combination is a result of analysis of the legal ramifications of two major impacts of the two earlier scenarios. It was determined that creating more extensive areas with legal non-conforming status (essentially the former "scenario #3) was superior to allowing former multi-family designations to continue on built-out parcels while removing them only from vacant parcels (former scenario #2). This was determined to be less desirable because of the perception and legal danger that the approach was treating formerly equal properties in an unequal manner without defensible basis. In scenario #3 therefore, essentially all multifamily residential designations outside of centers are re-designated for Iow density residential use. The scenario assumes that the resultant concentration of residential uses in centers will result in a corresponding concentration of commercial uses in centers or in nearby existing (connecting) corridors. The resulting pattern is the most compact of the three, with vew little new commercial or multi-family activity in the current neighborhoods or along arterials outside of existing areas. Scenario assumptions; Residential density in the LDR designation rises to 4-10 units per acre. New medium and high density residential development occurs only in centers 3. A high proportion of new commercial and ofT'ice growth is also in centers ?.:'Cormmunity Develo ment',shapmg bremcrt~,n',CP hearin_%' Pla[m:.ng. Commission Staff Re?orr - adoptio~ heating 012004 #1.doc 23 457 4. Growth along arterial corridors in the city is limited to existing commercial designations. There is little or no significant increase in commercial or office growth along arterials in the UGA. By applying these three rationales, it becomes logical to incorporate certain changes in the maps as they apply to specific properties. The new maps depict several of those changes. Staff recommends that the methodology that be applied to analysis of testimony regarding land use map designations be as follows. Staff should recommend which, if any, scenario the change discussed by any testifying party fits into. The recommendation from staff would supply the suggested appropriate scenario placement (if there is one) and additional reference to plan goals and policies that support the recommendation. Commission would not indicate approval or disapproval of any particular recommendation as this would represent quasi- judicial action in a legislative setting. Commission could discuss Plan goals and policies that affect the map and determine if additions, subtractions, or re- wording of existing goals or policies might affect the scenario maps. After recommending any changes to goals and policies that it wishes to consider, staff could revise the scenario maps to respond to the changes in policy. Commission would then, during final deliberations, select a preferred scenario. Staff has already stated in this staff report that it believes that scenario ¢3 is currently the land use design that best implements the current set of goals and policies found in the draft plan. Staff recommends that this selection not occur until the end of the hearing process. This is so Commission has had benefit of exposure to all plan elements, the entire goal and policy framework found in the Plan, and all public testimony and can make such a selection on the basis of a holistic understanding of the Draft Plan and of public concerns. Transportation Element Vision The Transportation Vision Statement forms the foundation of the Transportation Element. The statement calls for a future transportation system that is convenient, accessible, safe, and environmentally responsible. It envisions that pursuit of those goals will mean creating a system that provides multiple transportation alternatives and a system that is integrated with efforts to enhance R:,~Comzr, unity Development~,shaping bremenon,.CP hearings',PlarmJng Commission Staff Report - adoption heating 012004 ~! .doc 24 458 neighborhood character, vibrant and healthy neighborhoods, and economic vitality. Challenges As with most elements of the Comprehensive Plan Update, the Transportation Element must address some very specific challenges. Those challenges come two primary forms; the requirements placed on transportation elements by state law - the Growth management Act; and local challenges identified by community members as they led the writing of the Transportation Element. Technical/GMA challenges The technical requirements defined in the Growth Management Act for Transportation Elements are probably the most detailed and stringent of any. They include some that are similar to the requirements for other elements and a few that are unique for transportation elements. The element must provide an analysis of current conditions and a projection of conditions that are expected as a result of the twenty-year growth forecast by the Plan. In addition to these typical types of analysis, the transportation element must go further. It must classify current conditions under a level of service (LOS) regime, predict future levels of service, and compare these future levels with a Level of Service Standard (or a set of LOS standards) adopted within the Element. The Element must also describe additional facilities needed or programmatic solutions to instances where future LOS violates the adopted LOS standard. Finally, the Transportation Element must provide a Capital Facilities Program that demonstrates a financial plan for funding needed facilities. In addition, the Transportation Element must demonstrate that selected solutions are consistent with several layers of regional and State transportation planning. All these functions are satisfied by the Draft Element. Challenges identified by the community In addition to these technical challenges, the Transportation Element addresses local desires and needs identified during the community participatory' efforts upon which the Plan and the Element are founded. In the case of the Transportation Element, the Vision Statement and its' supporting goals and policies illuminate several issues that were seen by the community as transportation related challenges. These include; 1) The need for more transportation options, 2) a desire for more pedestrian opportunity in the City, and 3) protection of residential neighborhoods from traffic. Goals and Policies As with the other elements of the Comprehensive Plan Update, the goals and policies section presents citizens responses to the identified challenges. The R:\Conmaunity Developn'~ent',shaping br~menon CP hearings'Planning Cormmission Staff Report - adoption hearing 012004 #1 ,doc 25 459 section begins on page TR9. The section presents 13 broad goals - each further detailed by numerous and more specific policies. In the interest of brevity, the following is a listing of seven of the key goals found in the element. Readers should consult the document for the supporting policies and to look at additional goal/policy sets. T1 Encourage the development of an integrated multimodal transportation system that provides a variety of convenient transportation choices to improve the movement of people, goods, and freight T4 Protect residential neighborhoods from negative transportation impacts. T6 Improve connectivity and mobility within Bremerton's transportation system through the identification and implementation of improvements that maintain Level of Service standards. T9 Coordinate with Washington State Ferries and other possible providers to operate ferry service to Bremerton that meets local service and commuter needs, coordinates with all travel modes, and provides significant regional service. T11 Encourage the use of public transit and encourage transportation agencies to operate and maintain local and regional service and facilities that reduce the need for single-occupant vehicles and support the needs of transit-dependent users. T12 Provide a transportation system that effectively serves the needs of and encourages pedestrian, bicycle and other non-motorized travel. T13 Incorporate the needs of business and commercial traffic flow in the development of transportation improvements that affect commercial and industrial centers. The Land Use Element also contains goals and policies with significant impact on transportation issues. This is especially true in the case of the downtown where a section of that element that lists the downtown goals and policies - including some directly related to transportation. Technical Analysis Consultant, Parametrix, Inc. prepared the technical portions of the transportation Element. The Parametrix document in its entirety is found in the Appendix document as Appendix TR. John Pedic of Parametrix will discuss the technical analysis. John's portion of the staff report will be attached as an Appendix B of the report. R:\Commur~ity Development",shaping breme~on\CP hearings',Plar, ning Corm~ission St..fi' Report - adoption hearing 012004 ¢1 doc 26 460 (end, February 17~h session of pub#c hearing) Economic Development Element Vision The Economic Development Element begins with a Vision (statement) for Economic Development. in summary, that foundational vision statement speaks of a desire to bring economic vitality to Bremerton. It offers that a variety of jobs, housing and transportation options, convenient services, and strategically dispersed commemial activities are keys to bringing this desired vitality forward. The vision statement includes recognition that good neighborhoods with a distinctive focus and walkability are also keys. It specifically calls for a strong downtown. It adds that views, waterl'rent areas and parks are also important to economic success. Finally, the vision statement speaks of new vitality that is sensitive to historical values and character. This vision statement is remarkable in it's recognition that economic success is intimately tied to a wide spectrum of issues that generally could be called "quality of life" issues. Challenges Following the vision statement in the Economic Development Element are two sections that present an inventory of economic conditions and challenges facing the community. The first is a section called City Profile. The City profile section describes characteristics of Bremerton that are instructive as to its economic climate and regional position. The section recaps demographic information, geographic factors, and key economic trends. Following the City Profile is a section entitled Inventory of Local and Regional Economy. This section provides more complete date regarding population, employment trends, and a summary of data, trends, and activity in six primary economic sectors. Together these analytical sections summarize the challenges facing Bremerton in the economic realm. Central issues that emerge include the following; 1) loss of a large proportion of the retain sector to areas outside of the City; 2) a growing number of people who live locally but work outside of the local economy - notably in Seattle, doing significant amounts of their purchasing outside of the local economy; 3) the largest employment sector being the government sector - the slowest growing of all employment sectors; and 4) a general lack of population growth and resultant new economic activity. Goals and Policies Once again, community-written goals and policies form the backbone of the Element. The Economic Development Element presents goals and policies that represent a response to the conditions and challenges brought forward by the R:'~CormmmfiD' Development,shapin~ bremerton',CP he~dngs,Plarmin=~ Cormmission Staff' Repo2 - adoption heating 012004 --1 doc 27 461 previous sections of the element. There are six goals and each goal as a number of supporting policies. Only the goals are listed here. They are; ECl Promote a vibrant environment for economic development EC2 Maintain the existing asset of being a small city with convenience and quality EC3 Provide for a full-service, 24-hour, regional downtown center EC4 Support the expansion of commerce EC5 Establish Bremerton as a city that welcomes the opportunity to serve business, residents, and visitors. EC6 Provide greater economic opportunity for residents Environment Element Vision The foundational vision statement for the Environment Element provides a focus on sustainable growth. It envisions a future in Which development contributes to the preservation of natural amenities and systems; and where the City encourages environmental education, conservation, recycling, brownfield redevelopment, and public acquisition of sensitive lands. Finally, the environment element vision recognizes that walkability, access to views, and open space are keys to a healthy community. Challenges Growth Management Act The primary challenge handed to communities under the Growth Management Act is the requirement that so-called "critical areas" be designated and protected. In addition, GMA requires that communities indicate how they will preserve open space in the urban setting. Both these topics are addressed in the Environment Element. Local residents also identified environmental challenges not specifically mentioned in the Act. These are also addressed by the Element. They include air quality and brownfields. Following the vision statement just summarized and a brief introduction section, the Environment Element provides sections discussing all the topics just listed· · ~ .r- k~.~;=o.,o;am~ino Commission Staff R:',,Comcmumty Dcvsbpm~nt',shzp~ng b,em ~o~ ,~P ...... =~'¢ ' = ~ ~ .. ~hea~ngOl?O04¢l doc m~po,~ - adop¢o-, - 28 462 Goals and Policies As in each element of the Plan, the community responded to the challenges identified by creating goals for the future that would move the community toward solutions that were consistent with the vision and with the remainder of the plan. There are14 goals in the Environment Element. Each has a number of supporting policies. It is not possible to list ali goals and policies here. The following is a summary of four of the most important goals. E1 To ensure the long term health of Bremerton, promote sustainable growth and activities E4 Encourage conservation of critical areas and nonrenewable resources. E7 Create an openspace system that increases the amount of openspace, protects Bremerton's natural resources, and provides a source of beauty and enjoyment for all residents. Ell Integrate the natural and built environments to create and urban setting with comfortable and secure places for people to live, work and recreate. R:~Corr~_~uni~' Development' shaping brerne~on CP head_rigs .Ptanning Comz?,i~.~ton Staff' Report - adoption hearing 012004 #1 .doc 463 Addendum #3 (Addition to staff report for hearing session of March 2, 2004) City Services Element The City Services Element addresses services that are essential to a community and its ability to grow. This element guides how the provision of services such as water, sewer, parks, and schools support the future growth and development of Bremerton. This City Services element provides direction that will assure three primary goals are met; 1) expected levels of quality for services will be maintained as growth occurs, 2) the locations chosen for needed public and quasi-public facilities will not conflict with other community goals, and 3) careful planning of public and quasi-public facilities will assure the services are provided in the most cost- efficient manner possible. The City Services Element of the Bremerton Comprehensive Plan combines the function of two plan elements required under the Growth Management Act, the Utilities Element and the Capital Facilities Element. To accomplish this · requirement in a manner that is clear, the element is divided into two distinct sections, one called the Utilities Section and the °ther the Capital Facilities Section. Each section will present discussions of current and projected conditions, including levels of service, as appropriate. In the case of the Capital Facilities especially, the section will also discuss capital projects necessary to maintain urban services at the levels of service acceptable to the community and present a plan for financing those needed improvements. This exercise - commonly called the concurrency requirement - will be discussed in greater detail in this staff report. The Utilities and Capital facilities begin on pages CS12 and CS20 respectively. Vision Both sections respond to a City Services Vision prepared by the citizens who guided creation of the City Services Element. The vision speaks of partnering with residents, and public and private organizations to provide the services needed to maintain and enhance Bremerton's quality of life. In addition to the more traditional "infrastructure" most people associate with City Services, the vision mentions the importance of recognizing that we must address maritime heritage, neighborhood vitality, and customer service in the process of matching urban service provision with growth strategies. R:',Cormmu~ty Development,shaping breme~on~,CP heafings".Ptanning Commission Staff Repo~ - adoption heating 012004 #1 .doc 30 464 Challenges Perhaps more than any other element of the Comprehensive Plan, the challenges addressed by the City Services Element are technical in nature. The element has several primary duties; 1 ) set Level of Service (LOS) standards for urban services and infrastructure that express the community's expectations for the level of quality and/or quantity at which of those services should be maintained as growth occurs; 2) assess future service needs as the expected growth occurs in terms of projects and/or expenditures that will be incurred if the LOS standards is maintained; and 3) provide a capital facilities program that demonstrates a reasonable strategy for funding the necessary services. In short, the capital facilities/utilities portions of a comprehensive plan is "where the rubber meets the road" Also called by some the "truth in planning" sections, this Element must demonstrate a strategy for maintaining urban services - at an agreed-upon level- as growth occurs. Goals and Policies The goals and policies section of the City Services Element presents the community-written road-map for addressing the challenges just mentioned. The goals and policies section begins on page CS3. There are 28 goals, each with supporting policies. The goals and policies are organized into sections addressing key topic areas, the topic areas are; 1) General goals and Policies for City Services; 2) goals supporting customer se,vice and orientation; 3) goals supporting safety and health; 4) goals related to beautification; 5) goals addressing neighborhood revitalization; 6) goals supporting economic development; and, 7) goals supporting consistency with the rest of the comprehensive plan. Key goals are as follows; CS6 Ensure adequate funding for public facilities and services for existing development and new growth CS14 Facilitate the provision of utilities that are environmentally sensitive, safe and reliable, aesthetically compatible with surrounding land uses, and available at reasonable economic costs CS22 Assure that all capital projects and expenditures are consistent with the Comprehensive Plan. CS25 Progressively become the primary provider of capital facilities and services within the city's Urban Growth Area CS26 Adopt Level of Service Standard(s) (LOS's) for public facilities reflecting community preferences for quality of service delivery R:',Cormnunib' Development shaping br~me~on CP heafings',P!amning Commission Staff' Report - adoption heating 012004 ~1.doc 31 465 The Utilities Section The Utilities Section of the City Services Element begins on page CS12. The utilities section addresses services by private service providers such as natural gas, electricity, and telecommunications. The services covered by the utilities section are not addressed in the same manner as urban services that are publicly funded. These providers are either driven by market forces and/or directed by Federal or State regulations or franchises to maintain the utilities at adequate levels as growth occurs. It is therefore assumed that the services will be maintained at what amounts to acceptable levels of services as growth occurs. The physical locations of needed facilities have been provided to the City and are shown on maps included in the section. In so much as the new facilities projected occur in existing rights-of-way or at pre-existing locations, there is minimal to no conflict with the future land uses projected by this comprehensive plan. Because of these factors, the section meets the two basic challenges that it must address; 1 ) assuring the these privately controlled services will be provided at acceptable levels as growth occurs; and 2) assuring coordination with the proposed land use patterns and other portions of the remainder of the Comprehensive Plan. The Capital Facilities Section The Capital Facilities Section represents in many ways the point at which the "rubber meets the road" in planning. This section, and its' supporting appendix, establishes the community's strategy for paying for the patterns of growth that it prefers. In the other elements of the comprehensive plan, the community has set a course toward realizing its vision for the future. It has created goals and policies that will help it establish the land use pattern, types of housing, transportation system, urban design, and environmental protections that it desires as the future unfolds. The Capital Facilities Section is where the community puts forth a strategy to pay for the services needed to support the desired type and intensity of growth. Without such strategies, the rest has no meaning - and little hope of ever being accomplished. That strategy has two major parts; the establishment of the community's desired Levels of Service (and a related concurrency requirement); and the establishment of a meaningful and related capital facilities program (CFP). The Capital Facilities Program that supports the established LOS Standards is contained in a large technical appendix. R:'..Commurd~' D~velopment'.shaping breme~on~,CP h~afings'.,ptanning Commission Staff Repo~ - adoption heaMng 012004 ~1 .doc 32 The Capital Facilities Section addresses the full range of urban services provided by public and quasi-public agencies. Under the County-wide Planning Policies for Kitsap County, a "full range of urban services" is defined to include the following. (CWPP A.3.d.i) Police storm water potable water Fire sewer (sanitary) solid waste Transportation Parks & Rec. Facilities Schools Telecommunications (including Broadband) With the exception of telecommunications, which was addressed in the Utilities Section, the Capital Facilities Section and its appendix presents discussions of current conditions, projected conditions, level of services standards, and implementation strategies for each type of service. At the heart of the functions performed by this section is the requirement that the community demonstrate how key urban services will be provided to new development - and provided in a way that maintains the community expectation that a cleady defined quality of life be maintained as growth occurs. This is commonly called the concurrency requirement. This concurrency demonstration entails several basic steps; 1 ) The community defines the Level of Service (LOS) Standards that must be maintained for each urban service 2) The current LOS for each type of urban service is inventoried 3) Projections of the impact to levels of service created under the growth assumptions of the plan are calculated. 4) If projected growth will result in the LOS for any particular urban service being diminished below acceptable levels (LOS Standard), projects and other capotal expenditures needed to return the LOS to acceptable levels (LOS Standard) are identified. 5) Methods of funding the needed improvements are identified 6) If funding cannot be identified, alterations to the growth assumptions, land use design, or LOS Standard may need to be considered. The LOS Standards for each type of urban services are discussed in an appendix subsection devoted to each service type. In addition, the LOS Standards are summarized in a table on page CS22. Each subsection (see appendix) provides the required analysis of the projects or other capital expenditures that will be necessary during the first six years of the Plan to maintain ser-¢ices at the established LOS standard. These lists include RSCommunity Developrnent~,shaping bremerton'CP hearings',Plarming Commission Staff Report - adoption heating 012()04 ~1 .doc 33 467 estimated costs. Finally, an analysis of the mechanisms available to fund the needed facilities of services is provided. In all cases, this Plan establishes that the needed funding can be realized over the next six years. End, public hearing session of March 2, 2004 R:\Community Development\,shaping breme~on\.CP hea~ngs'd?lan_tQng Corn_mission Staff Report - adoption heating 012004 -~ 1.doc 34 468 Addendum #4 (Addition to staff report for hearing session of March 16, 2004) Summary This staff report has discussed in sequence each element of the 2003-2004 City of Bremerton Comprehensive P/an Update. Taken together, the Plan elements form a response to both technical and community-perceived challenges that must be faced by the community during the coming twenty years. Each element analyzes the challenges in a topic area. The responses are founded on "vision statements" related to the topic areas. Citizen written goals and policies give more specific direction to decision-makers and community members leading to long-term implementation of the visions. These community goals can be re-organized into themes that run through-out the Plan. Such a reorganization facilitates an understanding that certain desires and ambitions cut across all topic areas. These overarching ideas, community ambitions, and values form the true heart of the Plan. The Community Character Element provides one attempt at bringing several Plan themes forward. This staff report will provide another list of themes that help summarize the Draft Comprehensive Plan Update. They are as follows; 1. A desire to revitalize Bremerton, to grow, and to increase economic activity 2. A recognition that the development approaches of the past have lead to stagnation 3. A desire to return to a more pedestrian oriented development pattern 4. A desire to combat the dominance of automobiles and traffic 5. A desire to include more socially interactive, safe and interesting urban environments. 6. Recognition that the family structures of the past will not dominate the future 7. A recognition that mixed use centers are a development pattern that addresses the other desires and ambitions for the future. 8. A desire to balance growth with open space, trails, and a healthy environment In addition, some technical matters are attended to. These include; 1. Population and employment forecasts a. Internal consistency 2. Level of Service Standards and concurrency 3. Capital Facilities analysis 4. Urban Growth Area and regiona! growth issues R:',Co~r~munib, Deve!opment'~shaping bremerto~',,CP heatings Pl~r, ning Commission St~ff Report - adoption heating 0120(;4 #1,doc 35 469 Decision Points/Recommendation Issues 20th 3rd During the public testimony heard on January , February and 17TM, and on March 2nd, testimony has been received on a number of topics. In the following section staff summarizes the testimony and makes recommendations regarding possible responses. 1. Elevate the importance of sidewalks in the Land Use Element. A citizen made suggested that the general tone employed to discuss sidewalks in the Land Use Element needed to be strengthened to more strongly support the wide-spread emphasis on walkability and related issues. a. Staff recommendation: i. strike word "sidewalks" from policy LUll ii. add new policy LUlm to read; To support walkability in neighborhoods, centers, and commercial areas, require installation of sidewalks as new construction occurs 2. Give the Economic Development Element a more positive "voice" and a more innovative approach. The suggestion was made that the Economic Development Element was somewhat dry and took an overly negative view of current economic conditions. It was further suggested that, at a minimum, such negativity should be accompanied by a more positive outlook on future potentials, It was also suggested that a more innovative approach to economic development was needed. a. Staff recommendation, Staff has not had time to address this testimony. Staff further recommends that this exercise be scheduled after more pressing work on the comprehensive plan is complete- perhaps as part of 2005 amendments. 3. Testimony was received opposing mention ora "tunnel" in the Transportation Element. This testimony came from an individual who opposed any mention of the "Bremerton Tunnel" in the Plan. a. Staff recommendation; Previous to receiving this testimony, the Planning Commission had instructed staff to remove the word "tunnel" from the Transportation Element. The Bremerton Transportation Center (BTC)/Pedestrian improvements project remains in the Transportation Element as a project discussion co- equal with others. R:\Comrnunity Devetoprnent'~shaping brememon,CP heanngs'Piammng Cormm~ss~on Sta~' Report - adoption hearing 01200'4 #1 .doc 36 470 4. Provide an explanation in the Land Use Element at goal LU17 as to why the Seattle/King County Stormwater manual is recommended, The Planning Commission requested this information be added. a. Staff recommendation. Staff recommends that a "discussion" paragraph be added after goal LU17 that reads; Discussion; The Seattle/King County Stormwater Manual is recommended for its ability to provide storm water related development standards in a clear manner, its uae has the additional advantage of providing consistency for many development professionals who are familiar with it as a result of their work in most of the more populated portions of the State - where it is the more common document. 5. Rename the "Upper Wheaton" and "Lower Wheaton" District Centers as the "North Wheaton Way District Center" and the "South Wheaton Way District Center" respectively. This was suggested to help possible avoid confusion between the location of the "Lower Wheaton Way Center" and that portion of Wheaton Way the parallels the Port Washington Narrows between Manette and the general vicinity of the Warren Avenue bridge areas. a. Staff recommendation. Staff recommends that this change be made throughout the document and maps. 6. Place Erlands Point in the UGA. It was suggested that the Edands Point area be added to the proposed UGA. a. Staff recommendation; With only small exceptions, the current recommended UGA includes only areas with current UGA designation. The suggested areas are either in the current City UGA or within the current "unassociated" UGA in the central Kitsap area. The City has limited capacity to provide the full range of urban services identified in the Plan to new areas, but assumes that ability to serve has been demonstrated in the currently designated areas. Staff cannot recommend addition of areas that are currently outside of any designated UGA and therefore not associated with any demonstration of service capacity. 7. Anderson Cove Area. It was noted that there is no specific mention of the Anderson Cove area in the document. The person testifying felt that the Plan should address this area specifically as it not only has some unique problems, but unique opportunities as well. It was noted that the Housing Authority was exploring a project in the area. a. Staff recommendation. Staff recommends that Anderson Cove area should be added to the list of sub-areas where additional area- specific plans should be created in the future. That listing is on the top of page LU6. 8. Various requested changes to the Land Use Maps, Parties have made requests for changes to the draft land use scenario maps either through testimony at hearing or previously submitted written requests. R:',Corm~uni~? Development".~haping breme~on'.CP headn~s'~la.~ing Core_mission Staff Repo~ - adoption heating 012004 #i.doc 37 471 a. Staff Recommendation; Staff has analyzed each request and placed the change requested on one or more scenario maps if it fit the mapping paradigm employed to create the map. In some cases the request did not appear to be indicated by any of the three paradigms and there is no change shown. In scenario's 2 and 3 the land use designation applied to reflect a requested change employ the Draft 2003-2004 Comprehensive Plan Update's land use designations and will not match the specific request if it referred to the 1995 plan designation. Staff recommends that after deliberation, the Planning Commission adopt all three scenario maps as drafted or amended and designate one map as the "recommended alternative map" 9. HE designation heights. This is not the base mapping issue regarding the Olympic College boundary. It was suggested during testimony that the height limit in the HE designation be high enough to facilitate two or three story buildings. This was seen as a way to encourage college expansion to go "up" not "out". a. Staff recommendation. Note that the height limit suggested for the HE designation is already listed as 60 feet in the Draft plan (see page LU48). To further support this suggested standard, staff recommends that the HE land use designation be amended in the section entitled "discussion" to read; Discussion; The HE designation recognizes the Olympic College campus. It encourages appropriate growth of the campus facilities in ways that are compatible with surrounding uses. Liberal height standards are proposed for campus structures. 10.Maps. For purposes of moving the Draft 2003-2004 Comprehensive Plan Update forward for SEPA analysis and later for City Council adoption, it will be necessary to include all three land use scenario maps. In addition, if either scenario map #1 or #2 is determined to be the recommended map, additional changes to goals and policies to bring the Plan and map into consistency will be needed. a. Staff recommendation; Before through separate motion, or within a motion to adopt the Plan, move to establish either land use scenario map #1, #2, or #3 as the "recommended land use map". End hearing session, March 16, 2004 R:\Conmmumty De-,,e!opment',shaping br~merton~CP hearings'Planning Commission Staff RepoFt - adoption heating 012004 #I .doc 3~ 472 Addendum #5 (Addition to staff report for hearing session of March 30, 200 4) Transportation Element There are several recommendations we would like to make to this element to ensure its consistency with the rest of the Comprehensive Plan, what we heard from the Citizens who participated in the process, and internal consistency. Page 4-2 paragraph (2) titled Kitsap Way: This section talks about improvements to be made to Kitsap Way for capacity improvements. There is no mention about bike paths and bike path improvement. It is our recommendation that we add a bullet to include bike path improvements. This is consistent with the goals and policies of the transportation element and the bike path map that is also contained in the transportation section. -~ Page 4-2 paragraph (3) titled SR 304 (Navy Yard Highway/Charleston Blvd/Burwell Corridor) The last sentence of the initial paragraph in this section states "A separate downtown project (the Downtown Bremerton BTC Access/Pedestrian Improvements project) complements the SR 304 project by further improving traffic circulation and pedestrian mobility and safety in the downtown core." It is our recommendation that this Sentence be removed per the guidance the Planning Commission gave at our study session pertaining to the Transportation Element and the lack of input from the public making the tie this sentence suggests. * Page 4-5 first bullet point under heading 4.2.1 Proposed Transit Projects This bullet point states, "Bus Rapid Transit (BRT) between Kitsap Mall in Silverdale and Bremerton Transit Center. The preferred alternative extends from the Bremerton Transportation Center north along Washington Avenue, across the Manette Bridge, north on old Wheaton Way and Cherry Street to a new Transit Center located between Old Wheaton Way and Sheridan Street. From there the system would enter SR 303, and continue north to Silverdale?' R:\Cormmu~ty Development'shaping breme~on~CP hearings',Ptann/ng Commission Staff Report - adoption heahng 012004 #1 .doc 39 473 It is our recommendation that the language about a "preferred alternative" be stricken. The transportation committee was not opposed to having Bus Rapid Transit options throughout Bremerton, but it did recommend that this proposed alternative NOT be recommended or endorsed in the Comprehensive Plan. We suggest making some adjustments to the proposed bike paths and open spaces. The purpose of these adjustments to make them more consistent with the centers policy and ensure that the centers are connected through alternative transportation methods. Environment Element Finally, we finalized a few details in the environment chapter. Most notably, we inserted a paragraph about stream/creeks and ripadan zones. R:'~Community Development',.shaping breme~on~CP hearings'~lapmJng Commission Staff Report - adoption hea.dng 012004 #1 .doc 4O 4?4 Planning Commission instructions to staff/amendments to plan resulting from deliberations Comprehensive Plan adoption 4/20/04 [] 1. Integrate edits provided by Planning Commission members into Economic Development Element. Edits will relate to adding a more "positive voice". (pending P.C. notes) (later implemented by No. 's 29, 30, 31 below) 2. Remove sentence referring to BTC project from Transportation Appendix, page 4-2, paragraph (3). 3. Add "discussion note" after Goal LU17 explaining rationale for referencing King Count)' Stormwater Manual to read as follows; "The Seattle/King County Stormwater Manual is recommended for its ability to provide storm water related development standards in a clear manner, its use has the additional advantage of providing consistency for many development professionals who are familiar with it as a result of their work in most of the more populated portions of the State - where it is the more common document. 4. Rename Wheaton Way DC's to Wheaton/R/dell DC and Wheator~/Sheridan DC. [] 5. Add discussion recommending that Erlands Point and Rocky Point be treated as "Joint Planning Areas" Add the following paragraph at the end of the UGA discussion ending on page LU9; "Joint Planning Areas (JPA's). In addition to the proposed UGA, the City and Count3' should investigate the potential for additional planning coordination in specific areas. Study and analysis may lead to inclusion of these areas in future recommended additions to Bremerton's UGA. JPA's should be designated in the Count3' Comprehensive Plan for the Erland's Point and Rocky Point areas. 6. Add Anderson Cove to list of areas recommended for furore sub-area planning. List is in page LU 6. [] 7. Re-write discussion portion of HE land use designation on page LU 48 to further illuminate concept of"compatibility" with nearby uses/neighborhood. The new discussion section to read as follows: "Discussion: The HE desig'nation recognizes the Olympic College campus. The designation provides for growth at the OC Campus, but promotes growth that is compatible with the surrounding neiohborhoods and other nearby areas. In general, the College is encouraged to see~c to accommodate new facility needs by growing "up" rather than by occupying lands in the surrounding areas. Increased building height is suggested to accommodate such growth. In addition, campus growth through infill of underutilized ground area within the existing campus boundary is also encouraged. The City will re-asses maximum lot coverage standards and consider other reg~!atory measures to accommodate the desired infiI]." 475 $14104 [] 8. Amend policy LU9i by adding the word "library" so as to read as follows: "Centers should include at least one core amenity. These include; a public meeting space, park, or plaza; a community center or school; or a public building such as a post office, police substation, librats, etc. (boldface italics not to be included in Plan.) [] 9. Amend policy CC2f, discussion section, 2~d paragraph, 1 st sentence to read; "The City should establish criteria for determining when planting strips between the road and sidewalk should be required." Add new second sentence to read; "Planting strips will typically be at least 5 feet in width and make maximum possible use of indigenous plants." 10. Amend policy CC3a. by making several minor changes and by striking all words after the word "sidewalks" so as to read as follows; "Encourage a sense of neighborliness and community by orienting one or more entrance to a commercial building toward the pedestrian sidewalk". 11. Amend policy CC2d to read as follows; "Promote consistent massing of buildings". [] 12. Amend discussion section following policy CC2d. by striking ail existing language and replacing with the following: "When new buildings are created within an existing row of structures, attention should be given to the height and mass of the new structure. In general, new structures should be similar in height and mass to surrounding buildings. Variations in height and mass that respond to desired changes in the character of the area as expressed in the comprehensive plan or implementing zoning regulations should be allowed and encouraged." 13. Amend policy CC2e. to read as follows; "Human scale can be further achieved through architectural detailing and by variation in the three-dimensional character of the building as it rises skyward. Monolithic, vertical extrusions of the maximum building footprint are strongly discouraged. Lower levels should be differentiated architecturally from the rest of the building. Street level portions of buildings should be occupied by active uses that create interest for the pedestrian and architectural variety. In buildings along busy arterials, residential uses should be on the second floor or above." 14. Amend policy T 1 a., second bullet point, by striking the word "adequate". 15. Amend policy T2b to read as follows; "Reflect the urban nature of roadways within Bremerton by promoting:" 476 16. Move first bullet-point under policy T 12a to become a new sixth bullet-point under policy T8a and amend to read as follows; "-maximize safety for pedestrian and bike path corridors." 17. Add a new policy T5d. to read as follows: "Promote creation of parking structures in Centers that reduce surface-level parking. [] 18. Add new bullet-point under new policy T5d. that reads as follows; "- parking structures in centers (including the Downtown Center) should generally not face pedestrian streets, but rather be placed in the interior of blocks, provide retail space along the street edge, or otherwise be accessory to a mixed-use project." 19. Amend policy CS 1 Ob by striking existing language and replacing with the following; "Prepare, distribute, and educate citizens and public staff about emergency preparedness plans including instructing Bremerton's citizens what services will or will not be available immediately following an incident and listing locations where support services will be provided." [] 20. Add new policy E7e to read as follows; "Encourage connectivity between open space areas with a system of paths and trails for pedestrians, bicyclists, and other non-motorized users." 21. Add new bullet-point under policy £3f. to read as follows: "Adopt incentive based development standards which reward environmentally sensitive development practices and projects and that lead to preservation of urban forests." [] 22. Add new' bullet-point under policy E3d to read as follows; "Develop a "night skies" ordinance that addresses issues of urban light pollution. [] 23. Add new policy Elg. to read as follows; "consider the adoption ora local tree ordinance that promotes retention of trees and forested areas as growth occurs." 24. Amend policy E3c to read as follows; "Encourage developers of new projects in Bremerton, including public projects, to provide improvements that reduce the use of single occupancy vehicles." [] 25. Amend policy E6d. to read as follows; "Whenever reviewing development proposals, identify habitats that may be adversely impacted." 26. Amend goal E7 by adding the words "and visitors." at the end. 27. Amend policy ESc to read as follows; "Promote alternatives to traditional stormwater practices for new construction, encourage off-site filtration, and require the use of current Best Management Practices." 477 5/18/04 28. Add new section describing the Reserve Center land use designation following description of the DRC(Downtown Regional Center) description on page LU41. New RC section to read as follows; RC (Reserve Center) Development Parameters: Density; up to 20 units per acre Height; mid-rise, ranging fi.om one to four stories. Higher buildings should be generally concentrated nearer the center of the designated area. Structure types: Mixed. Various commercial, residential and mixed-use structures Location; As mapped. Policy direction: The reserve center designation anticipates development patterns that will be implemented beyond the 20 year planning horizon employed by this plan. This designation seeks to preserve options for future development as a. neighborhood or district center. Development occurring during the current planning period should be carefully monitored so as to not preclude successful center-type development patterns in the future. Discussion; The Reserve Center designation recognizes that the area designated is likely to be appropriate for development as a Neighborhood or District Center sometime beyond the twenty-year horizon addressed by this plan while recogrfizing also that there is a possibility of re-designation of the area to full center status even ~vithin the 20 years. It recogn/zes that it is important to discourage types of development that - if they were to occur in the shorter-term - would make future development as a center more difficult and/or unlikely. Implementing zoning during the planning period should encourage mixed-use development in buildings of more than one story and discourage site designs that place parking and other non-pedestrian uses along the arterial street frontage. The implementing zoning should also discourage the placement of new structures and uses out-of-scale with eventual creation of a pedestrian-oriented commercial node. In the immediate time frame, implementing zoning should treat this entire area in a like manner. Uses during the period pre-dating the anticipated future re-designation as a center may be a variety of commercial uses. 29. Amend Economic Development Element by re-writing introduction section, first paragraph, to read as follows; "Bremerton, as the urban center of Kitsap County, is a vibrant environment which fosters economic vitality through its broad diversification of jobs and strategically dispersed commercial activities. The ciD' provides a superior natural setting, a nationally recognized quality of life, and a regionally significant deep water port, home to a newly rebuilt state ferry terminal and the Puget Sound Naval Shipyard, the West Sounds largest employer. Rediscovery of the city's qualities and its economic durability entices new investments as well as rejuvenates residents and business in pursuit of the city's economic interests. 478 30. Move "city profile" and "inventory" sections of Economic development Element to a new Economic Development Appendix. 31. Re-write Economic Development Element Vision Statement to read as follows; (per testimony from Richard Neff 1/18/04) "Bremerton is a metropolitan city with economic vitality and diverse lifestyles. The city provides a broad variety of jobs, housing, transportation options, convenience services, and strategically dispersed commercial activities. Communities and established neighborhoods within the city each have a distinctive focus, yet all are walkable and well-connected to each other, satellites to a vibrant downtown with the most interesting mix of activities. Residents and visitors alike enjoy the accessible waterfronts, water and mountain views, and urban parks. New development merges with established styles, enhancing and protecting the charm, historical character of the city, and its cultural heritage." 32. Strike existing and add new policy EC3a. to read as follows; "Encourage the development of the downtown as a neighborhood as well as the heart of the city and region." 33. Amend policy EC3c to read as follows; "Encourage services downtown for commuters as well as residents. 34. Amend policy EC6d, 2~a bullet, to read as follows; "Support educational opportunities through public, private, and higher education institutions." 35. Add a new policy EC41. to read as follows: "Encourage a more diversified economic base to increase elasticity in the local economy." 36. Add a new (2ud) bullet point under policy EC4b. to read as follows; "Pursue eligibility for all areas of the City that may qualify for State Empowerment Zone designation." 37. Amend description of the Sylvan/Pine neighborhood Center on page LU31 in the first sentence to replace words "is located at the" with "in the vicinity o~". 38. Amend description of the North Wheaton Way District Center, east portion, third sentence, at the bottom of page LU32 by replacing words, "six to eight stories" with '~up to five stories". 39. Amend description of the Lower Wheaton Way District Center, page LU33, 4~ paragraph, 5t~ sentence, by replacing the words, "Three to four stories" with "four to five stories". 40. ,~mend section describing the CC (Commercial Corridor) land use designation, "discussion" section, page LU42 by adding the following; "Incentive-based ,:t79 development should be encouraged with a priority on preserving existing vegetation through the use of open space and vegetative buffers." 41. Amend last sentence of the CC (Commercial Corridor) land use designation, "discussion" section, page LU42, to read as follows; "A full range of services may be accommodated, including such uses as food markets, theaters, restaurants, hardware stores and automobile-oriented businesses such as gas stations and fast- food outlets." 42. Amend section describing the WWRC (Wheaton Way Redevelopment Corridor) land use designation, page LU43, 4t~ paragraph, by adding the following to the end of the paragraph, "Vehicular access should be encouraged on secondary roads near or at the rear of sites whenever possible. Such secondary circulation routes should be linked to those on adjacent sites and/or the existing street system whenever possible. Site designs should consider the possibilit3, of developing secondary circulation routes within the corridor over time and linkages to the circulation system in adjacent centers: Care should be taken ~o assure that providing such alternatives to access fi-om the busy Wheaton Way frontage does not introduce inappropriate traffic to neighborhood areas." 43. Amend discussion of the PSRS (Public Sector Redevelopment Sites) land use designation, discussion portion, 3rd sentence, to read; "Potential development includes mixed-use type residential developments with an open space component that integrate sensitive commercial and/or office development as a secondary component." 44. The following steps implement a general instruction to remove reference to existing (adopted) neighborhood or specific area plans from the discussion of Specific Area Plans found on pages LU5-6 and incorporate reference to the adopted plans in appropriate land use designation sections, or other text sections, that apply to the areas covered by the plmas. a. Amend section of Land Use Element discussing Specific Area Plans, list at the top of page LU6, by removing the parenthetical references to the Charleston Conununity Plan, Harrison District Plan and the non- parenthetical listing of the Campus/Evergreen Plan. b. Add the following sentence to the discussion of the Charleston District Center, page LU34, end of first paragraph; "The adopted Charleston Community Plan will perform as a resource and beginning point for area specific planning for the Charleston District Center." c. Add the following sentence to the end of the discussion of the Harrison Employment Center, page LU36; "The adopted Harr/son District Plan will perform as a resource and beginning point for area specific planning for the Harrison Employment Center" d. Add the following sentence to the discussion of the downtown regi°nal center, page LU35, first paragraph; "The adopted Campus/Evergreen 480 District Plan, Plan will perform as a resource and beginning point for area specific planning for those portions of the Downtown Regional Center addressed by that plan. 45. Strike policy LUSa. 46. The following steps implement a general instruction to eliminate reference to building height as expressed in feet in all descriptions of land use designations Pages LU38-48. a. Amend description of LDR land use designation page LU38, general development parameters' section, height subsection by striking the words, "35 feet maximum" b. Amend description of NC land use designation page LU39, general development parameters section, height subsection by striking the words, "45 feet maximum" c. Amend description of DC land use designation page LU39, general development parameters section, height subsection by striking the words, "50 feet maximum" d. Amend description of CC land use designation page LU42, general development parameters section, height subsection by striking the words, "35 feet max." e. .~nend description of WW~RC land use designation page LU342, general development parameters section, height subsection by striking the words, "35 feet max." f. Amend description of PSRS land use designation page LU44, general development parameters section, height subsection by striking the words, "/35 feet maximum" g. Amend description of NB land use designation page LU44, general development parameters section, height subsection by striking the words, "/25 feet" h. Amend description of LDR land use designation page LU38, general development parameters section, height subsection by striking the words, "35 feet maximum" 47. a. Add the following sentence to the description of the downtown regional center, page LU35, first paragraph following the new sentence added per instruction 43d above; "Specific area planning for the entire downtown regional center that considers these portions and all other areas within the designation will be conducted". 48. Add "Downtown Regional Center" to the list of areas that will receive specific area planning, top of page LU6. 49. Amend title of GC ( General Corr~mercial) land use designation, page LU45, to "LC (Limited Commercial) (also amend labeling on Land Use Maps) 481 50. Amend discussion of North Wheaton Way District Center, page LU32, first paragraph, 8th sentence by striking the hyphenated phrase; "- although automobile focused uses such as gas stations and repair garages are not permitted.". 482 Addendum #6 To the staff repor~ on the Comprehensive Plan) May 18, 2004 Staff has one final recommendation. After review of the Land Use Element staffbelieves that it is necessary to define the parameters of the "Reserve Center" designation that appears on the Scenario #3 Land Use Map in the Kitsap Lake area. This designation is not considered to be a center designation. It is instead a more traditional land use designation that should be implemented by a (single) zoning classification - but does not necessarily requires a specific area plan for full implementation. The suggested designation description is needed to guide development of that zoning classification~ The following designation description should be added at the bottom of page LU41 immediately after the discussion of the DRC (Downtown Regional Center) designation. RC (Reserve Center) Development Parameters: Density; up to 20 units per acre Height; mid-rise, rang/ng from one to four stories. Higher buildings should be generally concentrated nearer the center of the designated area. Structure types: Mixed. Various commercial and mixed-use structures Location; As mapped. Policy direction: The reserve center desig'nation anticipates development patterns that *vill be implemented beyond the 20 year]planning horizon employed by this plan. This desig-nation see~ to preserve options for.future development as a neighborhood or district center. Development occurring during the current ~vlanning period ahould be carefully monitored so as to not preclude successful center-tyRe deYelopment patterns in the future. Discussion; The Reserve Center designation recognizes that the area designated is likely to be appropriate for development as a Neighborhood or District Center sometime beyond the twenty-year horizon addressed by this plan. It recognizes that it is important to discourage types of development that - if they were to occur in the shorter-term - would make future development as a center more difficult and/or unlikely. Implementing zon/ng during the planning period should encourage mixed-use development in buildings of more than one story and discourage site designs that place parking and other non- pedestrian uses along the arterial street frontage. The implementing zoning should also discourage the i31acement of new structures and uses out-of-scale with eventual creation of a pedestrian-oriented commercial node. In the immediate time frame, implementing zon/ng should treat th/s entire area in a like manner. Uses during the period pre-dating the anticipated furore re-designation as a center may be a varieD of commercial uses. 483 Summary of status of specific land-use requests The following section o£this addendum to the staffrepor~ summarizes staff recommendation regarding the appropriate response to several items o£testimony (all found in the matrix of testimony provided to the Commission). These items are those that made very specific requests to land use designations on specific parcel(s) of land. The section describes how each Land Use Map scenario responds to the request. 1. Penn Plaza (William Palmer and McConkey) Summary of request: At present the property in question is designated BP (Business P[rk) on the north and MDR (Medium Density Residential) on the south. The part)' testifying requests that the entire property receive a BP designation. a. Scenario #1: reflects existing status which is consistent with the current Evergreen Campus Plan b. Scenario #2: suggests re-designation as requested (although designation is called "Industrial Park". This reflects Scenerio#2's philosophy of continuing to allow expansion of comm~cial uses in a dispersed pattern across the City based primarily on market request - but using new designation set. c. Scenario #3; coverts north portion designation to Industrial Park, wh/le designating south portion Low Density' Residential (up to 10 units per acre). This is based on Plan goals and policies that move ail higher densiD, residential uses to Centers while leaving industrial and business park type uses in place (as there are no employment centers to send then to). 2. Roberts/O'Dormoghue property, vicinity of Northwest Corporate Campus Summary of request: Designate property along Hwy 16 southeast of Gorst for commercial use. (current plan designation is residential) a. Scenario #1; The propertY receives a generaI c°mmercial desiL'nati°n reflecting scenario #1 philosophy that commercial uses would expand along arterials. b. Scenario #2; Property received Industrial Park designation reflecting scenario #2 philosophy that new designations will be used to address traditional market forces calling for more industrial land. c. Scenario #3; indicates designation of the subject property as part of the Northwest Corporate Campus Employment Center. This designation potentially allows commercial uses, but subject to a future area~specific planning process that lays-out a design approach for the entire Emplo;anent Center. 3. KJtsap County Health District; Health District Campus adjacent to Jackson Park Summaw of Request; Re-designate from cu~ent MF designation to "General and Professi,~nal Office" 484 a. Scenario #1; reflects exiting MDR designation, request to re-designate for public uses is not provided for in existing (1995) goals and policies. b. Scenario #2; indicates re-designation as a Public Sector Redevelopment Site reflecting the Scenario #2 philosophy that public agency needs will be enabled as requested - but using new designation set. c. Scenario #3; Indicates re-designation as Public Sector Redevelopment Site reflecting Plan Goals and policies regarding providing public sen, ices in accessible locations. 4. Whitcomb Property (William Palmer), vicinity, ofHwy 3 and Kitsap Way. Summary of Request; designate one parcel "behind" existing motel for commercial use. Current designation is LDK. a. Scenario #1; Property received CG designation, reflecting Scenario #1 philosophy that existing commercial designations are expanded near arterials, etc. b. Scenario #2; Property remains designated LDR, reflecting Scenario #2 philosophy that commercial expand near arterials, but not in locations not fronting on an arterial. Remaining ownership receives Freeway commercial designation, potentially increasing intensity, of uses. c. Scenario #3 Property remains LDR Property remains designated LDR, reflecting Scenario #2 philosophy that commercial expands only in centers. Remain/rig ownerskip receives Freeway commercial designation, potentially increasing intensiD, of uses. 4. Rosander Summau of request: Designate the subject parcel to unspecified designation allowing wood flooring sales and storage use. a. Scenario #1; Property is re-designated to Industrial Park reflecting scenar/o #1 philosophy that the City would continue to allow expanded industrial uses in areas where industD' already existed. b. Scenario #2; Property, receives Industrial Park designation, essentia! same rationale' as above c. Scenario #3; Property receives Reserve Center desi~aation. Reserve Center will be implemented with zoning that allows a wide va-deW of commercial uses while preserving the potential for future neighborhood or district center designation. 5~ McDonald Summary of request; designate port/on of one lot to General Commercial desi~muation. a. Scenario #1; Property is re-designated to GC reflecting scenario #1 philosophy that commercial uses expand in exiting commercial areas. b. Scenario #2; Propegy is not re-designated consistent with scenario #2 philosophy that wh/Ie commercial uses are generally expanded in existing 485 coramercial areas, properties not fronting an arterial and adjacent to existing residential areas would not be re-designated to comxnercial. c. Scenario #3; Property is not re-designated reflecting scenario #3 philosophy that cormmercial uses are not generally not located outside of centers or corridors (except large scale freeway oriented uses). 486 StaffReport October 26, 2!)04 Staff Report, Bremerton Planning Public Hearing Regarding Changes to the Draft Recommended Comprehensive Plan I. Amendments of the Planning Commission Recommended Draft Comprehensive Plan Update. Background On May 18, 2004, the Bremerton Planning Commission reconm'~ended approval of the Draft 2003-2004 City of Bremerton Comprehensive Plan Update to the City Coanci! Since that date, several changes to the draft have been made. The changes are viewed by staffas minor, and are not intended to alter the intent, effect, or overall goal and policy directions set by the approved draft. However, staff recommends that the Planning Commission conduct a public hearing to consider the recommended changes. As the changes could be considered substantive, this will assure that proper legal process has been conducted. Separate sections discussing each proposed change ,,','iii follow. Format and Voice The draft has been reformatted. This re£omiatting includes a new page layout, addition of graphics and illustrations, and some limited editing to change passive voice to active. The changes are seen within all elements of the pr, mary plan document with the exception of the City Services Element. The Technical Appendices will not be reformatted. The new page layout and addition of graphics necessitate little explanation The document now exhibits a two column per page design with photos, drawings and other ~aphic aids added to illustrate text. The graphics include photos of areas within the City as well as more generic photo~aphs and illustrations from regional and national sources Staffhas endeavored to find examples that accurately illustrate the intent of the give~n section of text. Akeration of text from a passive voice to active was performed to make the document read better. Great care ,,vas given to assure that the meaning was not altered. Marine Industrial (M1) designation A new designation appears in an area generally between Pe~sylvania Avenue and Margurite on the east and west and by the Po~2 '¢,'ashington Na~ov,'s on the nomh and 15th Street on the south This area u, as desi~ared Park Industhal in the draft appro','ed 487 Industrial" The new designation is similar to the previous designation, but with a few keF differences. The new designation adds an emphasis on marine related industrial uses not found in the, "Industrial Park" designation. These marine related industrial uses in¢lnde boat storage. Emphasis (in both designations) on addressing the interface with nearby residential areas remains. The Marine Industrial designation provides a even stronger mechanism for protecting adjacent uses in that it requires an internal circulation system within a marine industrial site so that movement of boats and other activity will not occur near neighboring properties. Both designations appear on page LU$3 of the new draft. Centers Supporting Residential (CSR) designation A new designation called "Center Supporting Residential" (CSR) appears along the north side of the Port Washington Narrows. This recommended change implements a discussion at the Planning Commission meeting of July 20th, 2004, At that meeting, the Commission moved to instruct staff to prepare a policy proposal for tim land use element related to connecting Downtown, the Harrison Employment Center, and the Manette Neighborhood Center. The CSR designation applies to large parcels that are in close proximity to the Downtown Regional Center, the Manette Neighborhgood Center and the Harrison Employment Center and are linked to those centers by transit, a City designated trail system, and other alternative transportation modes. The designation allows medium density residential uses. Specific density is not delineated in the proposed text, but would instead be added daring development of implementing zoning. In the past, medium density has been defined as up to 18 units per acre. The CSR desi=mmtion is described on page LU47 of the ney, draft. The recommended new text is as foilows: (New name) Core Centers Supporting Residential (CCSR) General Development Parameters Density: Varies, urban in nature Height: Three stories maximum Structure type: Medium density residential Character: Well integrated, planned residential development Policy Direction: Create potential for residential development that will add a critical mess of population supportin9 a strong downtown, the nearby Manette Neighborhood Center, and the Harrison Employment Center. This residential population should be able to circulate between the three centers by using the City's planned "Freedom Trail", mass transit, and other non-motorized modes of transportation. Discussion: The Core Centers Supportin§ Residential designation provides for medium density residential development in locations along, or very near, a public trail system linking the Manette Neighborhood, Harrison Employment and Regional Centers. The designation provides opportunity for residential development that places additional population within easy walking distance of the commercial activities in the three centers at the core of the City, In addition, 488 CCSR locations will be well served by public transit. The intent of the designation is to increase opportunity for significant population to locate near these centers thus increasing their viability and level of activity, while at the same time supporting a pedestrian option for circulation within a "loop" connecting these three key closely related nodes of future growth. Oyster Bay Neighborhood Center description In the approved draft, a description of the Oyster Bay Neighborhood Center was missing. The proposed amendment adds that description. The recommended description appears begirming on page LU11 of the new draft. The Oyster Bay Neighborhood Center is described as featuring open space and trail systems that link the center to the nearby Oyster Bay shoreline and playfields at Westpark as welt as taking advantage of excellent marine views. Heights at the core of the center are carefully describes to encourage the protection and utilization of view opportunities - especially for the residential component of the center. The Oyster Bay center is described as an area that is not expected to develop as rapidly as several other neighborhood centers in the Plan. UGA designation and Eventual Growth Intent discussion There is a change of approach regarding Urban Growth Areas included in the set of proposed changes. This is evident in two locations in the new draft. First, there is a new section in the introduction chapter entitled "Eventual Growth Intent" (see page Introduction 10 in the new draft). Large portions of the text found in this new section ~vere previously found in a section called "Unincorporated Urban Growth Area" This old section was also on page Introduction 10 and was repeated in the Land Use Element on page LU6. The new %ventua! Growth Intent" section describes a new policy direction for most areas beyond the current (1995) Urban Growth ,~-ea. A supporting "Eventual Growth Map" on page Introduction 13 depicts most areas currently in the East Brernerton Unassociated UGA and a large area encompassing the SKIA area as part of the eventual ~owth area. To clarify, the old section had indicated an intent to include these areas in a new larger Bremerton Urban Growth Area while the new section indicates that most of this geo~aphy is an area of future interest for the City but will not be included in a proposed UGA at this time. In the Land Use Element, a new section called "The Urban Growth Area" is found on page LU22. This section essentially replaces the earlier draft's discnssion. The new UGA section - supported by the UGA Map on a following page ~ indicates that, at this time Bremerton will propose a UGA that is essentially the same as the current (1995) area. This is consistent with the new' introduction section discussed above. The reasons for this recommended policy change spring from the technical requirements of the Growth Management Act. In summary, one of the primary requirements connected with establishing an Urban Growth ,~ea is making a demottstration o~'abiliD to provide urba~ ser¥ices to that area. At the current tin:e, that. technical work is not in place th,~s making the assex-tion that the City UGA should extend t:; these areas _ms '.??o~ab!e t','om th:.~ tech~ :_d [_,¢rspectiv¢. req,.dred bi/!au Ho-. ever, 489 from the perspective of good planning policy, the City must continue to assert the logic and benefit of eventually guiding the destiny of these larger areas. There is one exception to this generally consistent change in philosophy. Gorst is included in the proposed UGA now described in this Plan. The intimate relationship of this area to Bremerton, its service areas, and to its image and future, indicate to staffthat it must be included in the UGA as soon as possible. Staff recommends that this proposal be supported by a corrmfitment to provide the needed service analysis for Gorst as soon as possible. Finally, the recommendation to propose a more limited UGA at this time drives inclusion of a new section recommending that Joint Planning Areas (JPA's) be established in cooperation with Kitsap County. JPA's are recomrnended at Erlands Point and Rocky Point. JPA's could speed the ability of both jurisdictions to be prepared to transfer these areas to full UGA status. Amendments to the water section of the TechnicalAppendices The Public Works Department has provided updated numbers for insertion in the water section of the Technical Appendices. These numbers come from the draft 2005 Water Comprehensive Plan now under development. The changes do not affect the sections ability to demonstrate adequate water capabilities to setwe projected development over the first six years of the Plan. II. Summary of the DEIS A Draft Supplemental Environmental Impact Statement (SEIS) for the Comprehensive Plan Update was published officially in Friday October 22~d. There public comment period began on that date and runs until November 22, 2004 at 4:30 PM. The Draft SEIS identifies impacts and recommends mitigation measures as needed. In alt cases the core conclusions of the draft SEIA support selection of Land Use Scenario #3. The Draft SEIS also concludes that the Comprehensive Plan meets all requirements of GMA and minimizes adverse environmental impacts adequately. The Published Draft SEIA will be provided to the Planning Commission at the earliest available date prior to the hearing. Prepared by: Paul Rogerson, P!~.mqing Man~g:r 10/21/04 490 Minutes for Planning Commission Meeting May 18, 2004 I. Call to Order The meeting was called to order by Commissioner Buckingham at 5:36 p.m. II. Roll Call Those present were: Commissioner Cockbum, Commissioner Kosusko, Commissioner Streissguth, Commissioner Wood and Commissioner Buckingham. Quorum certified. IlL Approval of Agenda Commissioner Buckingham introduced the agenda. A motion was made by Commissioner Kosusko and seconded by Commissioner Wood to approve the agenda as presented. Called for a vote: Cockbum: Yes; Kosusko: Yes; Streissguth: Yes; Wood: Yes; Buckingham: Yes. The motion carried. IV. Approval of Minutes The minutes of the Special Meeting held on March 30, 2004, were presented for approval by Commissioner Buckingham. A motion was made by Commissioner Streissguth and seconded by Commissioner Wood to approve the corrected meeting minutes of March 30, 2004 as presented. Called for a vote: Cockbum: Yes; Kosusko: Yes; Streissguth: Yes; Wood: Yes; and Buckingham; abstain. The motion carried. V. PUBLIC MEETING A. Call To The Public (public comments on any item not on tonight's agenda): Seeing none, Commissioner Buckingham closed this portion o£ the meeting. B. Public Hearing: Paul Rogerson, Planning Manager, began with the Staff Report. Addendum #6 was distributed to the Commission before the start of the meeting. This addendum contains issues that had come up during staff's examination of the plan over the two weeks prior to this evening's meeting that staff felt needed to be remedied. Item #1 on the addendum recommended the addition of a description of the Reserve Center designation to the Land Use element. It had been earlier recommended in Land Use Scenario #3, the application of a designation to the Kitsap Lake area ("Reserve Center"), but the plan did not have a description of what the parameters of the designation are. Staff's recommendation was to add the RC (Reserve Center) designation be added to the plan on page LU-41, immediately after a similar Planning Commission Meeting May 18, 2004 Page 1 of 18 description of the Downtown Regional Center. Commissioner Buckingham questioned the density of up to 20 units per acre in the Reserve Center and wanted to know if that would allow future neighborhood or district center designation. Paul explained that 20 units per acre is the density recommendation used in other segments of the plan that discuss neighborhood and district center designations. Staff also recommended a change in the language within the development portion of the description in regard to structure types. It should read, "Structure types should be mixed with various commercial, residential, and mixed use structures", noting the insertion of the word "residential". Paul also proposed that in the discussion section it is made clear that it may be appropriate to re-designate the areas as full centers sooner than the 20- year planning period. The current language states that development of the area(s) as a full center would not occur until sometime after the 20-year planning period; while that is the most likely scenario, Paul wanted to be prepared in the event it takes less than 20 years. Chris Hugo, Director of Community Development, added that the reason staff has not proposed to designate the areas now is because everything that has a designation also has to have a population assigned to it. At this time, approximately 21,000 in new growth in and around the city has been included in the urban growth plan which works out to about a 50% increase in population over the next 20 years. If the potential centers were added [to the plan] now, a certain number of people for each center would have to be added to the estimation, pushing the number over 21,000 which is already an ambitious amount. The amendment of the language is just to prevent any frustration in the ultimate conversion of the traditional areas to centers; it would allow for change in the interim but it would not work against the realization of a future center's designation. Commissioner Buckingham noted that, since Addendum #6 only dealt with Land Use issues, it would be timelier to discuss this addendum while deliberating on the Land Use element after the Economic element had been addressed. All were in agreement. Commissioner Buckingham asked for any comments related to the Economic element. Commissioner Wood began with discussion regarding revamping the introduction with a more positive note. Commissioner Streissguth proposed the Commission adopt the language of the revised Mission Statement submitted through public comment. She also suggested moving the city profile to an appropriate appendix and a re-write for the first paragraph of the element which would read: "Bremerton, as the urban center of Kitsap County, is a vibrant environment which fosters economic vitality through its broad diversification of jobs and strategically dispersed commercial activities. The City provides a superior natural setting, a nationally recognized quality of life and a regionally significant deep water port, home to newly rebuilt State ferry terminal and the Puget Sound Naval Shipyard, the West Sound's largest employer. Rediscovery of the City's qualities and its economic durability entices new investments as well as rejuvenating residents and businesses in pursuit of this City's economic interest." Commissioner Streissguth remarked that by placing the city profile portion in the appendix, it takes out current state of affairs that can become dated over time and makes the Economic element consistent with the other element's formats. Commissioner Kosusko commented that he was a little hesitant to change the vision statement without more consideration due to the fact that the original had been drafted by citizens. He wanted to compare the original with the proposed change before making that decision. Commissioner Wood read directly from an example of an updated vision statement submitted by Richard Neff on January 18, 2004. Commissioner Streissguth had compared this example with the original and didn't feel there Planning Commission Meeting May 18, 2004 Page 2 of 18 492 were any substantive changes; it was more of a rephrasing of what already existed. It was agreed by the Commission to change the first paragraph of the element as suggested by Commissioner Streissguth, to rephrase the Vision Statement as proposed by Mr. Nerf, and to move the city profile and inventory (list of existing conditions) to the appendix. Commissioner Kosusko noted that in §EC3, the element promotes a full-service, 24-hour regional downtown center, but the section does not contain language regarding residents in the downtown area; having full-time residents in the downtown center is essential to the economic vitality of the area. Commissioner Buckingham agreed, noting the residential aspect may be covered in the Housing element, but should also be mentioned in the Economic element when describing what a full-service, 24-hour center is. Commissioner Streissguth suggested referencing downtown residents under §EC3a, expanding the features that attract people to downtown to include a residential component, or in §EC3d where there is discussion on incentives for downtown redevelopment and reinvestment. Commissioner Kosusko thought it should be treated as its own policy. There was some discussion on the vagueness of §EC3a and it was decided some clarification should be applied such as listing the types of events or programs envisioned to attract people to the downtown area. Commissioner Buckingham thought a broad statement regarding livability downtown could be included in §ECl. Paul Rogerson raised the issue of §EC3i which lists cultural activities and special events which appears to repeat §EC3a which could then possibly be available for other uses. It was generally agreed to rewrite §EC3a to include reference to residential uses. Chris Hugo commented that one of the ideas used by other urban areas looking to revitalize their downtown area, including residential uses, is to create a downtown that is not only the heart of the community, but also as its o~vn neighborhood. Once the idea of the downtown area being a neighborhood is introduced, other residential amenities such as shopping (grocery and retail), services, etc. come into the picture. Commissioner Buckingham felt that, in §EC3c, "Encourage services downtown for commuters", should include "... and residents". Chris Hugo thought there may have been some significance to only having commuters listed, so he proposed it read "... commuters as well as residents". All were in agreement to amend §EC3c as Chris proposed. Chris Hugo proposed §EC3a to read, "Encourage the development of downtown as a neighborhood as well as the heart of the City and region." The Commissioners approved of the change. Commissioner Kosusko voiced some concern as to whether or not "neighborhood" conveyed a strong enough sense of' having full-time residents in the downtown area. Commissioner Strelssguth noted that there would be more opportunity over time to revisit this issue, especially when the Commission deals with zoning, in terms of density and creating consistency between implementing zoning and what the goals and policies are. Commissioner Wood read directly from Citizen Judith Frieberg-Nerf's comments regarding the Economic Development of Bremerton, dated January 15, 2004. In summary, her comments dealt mostly with developing Bremerton's commitment to the arts and education, and promoting green or eco-friendly businesses and what part the City could play in bringing about that vision. Commissioner Kosusko expressed concern about making such specific changes/additions to the plan at this time. Commissioner Buckingham noted that §EC3i covers arts and cultural events. There was some discussion about adding bullet points to §EC3, but Commissioner Kosusko reminded the Commission that §EC3 pertains only to the downtoxvn region, but perhaps §ECl Planning Commission Meeting May 18, 2004 Page 3 of 18 493 might be more appropriate. Chris Hugo cautioned the Commission against introducing new material into the plan at this time because of time constraints; the task at hand was to review and comment on what the various committees had produced and any additional input should be weighed in terms of how consistent it is with what the committee had presented, how much work does it entail and how much time would be needed to implement the additions. Larger ideas can be given to staff to hold on to until the first annual update. Items that appear to be critical should be addressed immediately to prevent gaps in policy. There was additional discussion regarding the higher education items in Judith Frieberg-Nerf's comments. Commissioner Kosusko suggested expanding on §EC6d and include a reference to higher education by changing the second bullet to read, "Support educational opportunities through public, private and higher education institutions". There was general agreement on this addition. In response to Judith Frieberg-Nerf's suggestion on promoting eco-friendly businesses, Commissioner Cockburn noted that, the way the plan was written, no reasonable business would be precluded from being part of the Bremerton's economic plan and didn't see the benefit of listing specific types of businesses. Chris Hugo asked if there was a policy statement about diversification; he felt the public comment was questioning the diversity of businesses, noting the main businesses within Bremerton are Puget Sound Naval Shipyard and car dealerships. Paul Rogerson noted there were a couple of references to promoting new business within the text and appendix, but thought those statements may not be strong enough to satisfy the request for more specific language regarding diversity. Chris suggested adding a policy to §EC4 that reads, "Encourage a more diversified economic base to increase the elasticity in the local economy." The Commissioners were in agreement on this proposed addition. Chris Hugo asked for clarification on broadening the geographic area for the empowerment zone. It was his understanding the document was supposed to set the framework for a city-wide empowerment zone designation. Paul Rogerson did not think that subject was addressed. Matthew Keough, Growth Planner, responded in kind. [His full comment was not audible on the recording as he was speaking from the audience and not using a microphone.] After reading §EC4b regarding tax breaks and incentives, Chris remarked that that was what an empo~verment center was and suggested adding a comment to include enabling a city-wide empowerment zone or something to that effect. This was an item that the State of Washington had been advised would be included in Bremerton's Comp Plan. It was suggested to list this item as a second bullet point under §EC4b that ~vould read, "Maintain all eligible areas of the city as an empowerment zone to qualify for state tax credits". All were in agreement. Commissioner Cockburn thought only certain areas were designated for empowerment zones, not the whole city. Chris agreed, noting only census tract 8-13, (part of a "blight" designation), is currently designated as an empowem~ent zone. When reviewing the criteria for getting tax breaks, nothing that could be done in census tract 8-13 qualified, so an eligible piece of geography was created that inherently wouldn't be eligible because of the types of jobs created (primary jobs), the magnitude of development that has to occur to create those jobs, and where the people have to live in order to enable the tax break. He stated, "We made application to do something, and in our form of application we limited our geography so greatly we made sure we could never do it. That's what we did back in 1994." In talking ~vith the State, the State said there was no reason why one wouldn't qualify as much of the city as one could because that has to do with where the resident workers come from. Planning Commission Meeting May 18, 2004 Page 4 of 18 494 Moving on to the Land Use element, Paul Rogerson continued with the staff report. In Addendum #6, there were five specific requests via public comments for changes to the 1995 Land Use map; the Commissioners' task is to assess how the changes fit (or do not fit) in one of the three scenario maps that have been discussed throughout the deliberation process. This portion of the addendum goes through the requests and relates to the Commissioners staff's assessment of how the requests fit in one, more than one or none of the scenarios. The first request was related to the Penn Plaza area at the end of Pennsylvania Avenue, submitted by Mr. William Palmer and Mr. Paul McConkey. Paul read directly from the request which was asking for the entire property in question to be redesignated as BP (Business Park). Under Scenario #1, the north end of the property remains designated BP and the south end of the property remains MDR (Medium Density Residential); in other words, no change to the existing designation. In Scenario #2, the property is redesignated as requested. For clarification, Paul explained that the designation BP is no longer available and would be referred to as IP (Industrial Park). Scenario #3 recommends that the north portion be designated IP and the south portion be designated LDR (Low Density Residential), which allows density in that designation to go as high as ten residential units per acre. This is based on plan goals and policies that move all higher density residential uses to centers while leaving industrial or business park type uses in place as there are no employment centers to send them to. In reference to the scenario #3, Commissioner Kosusko asked where a new business would be located. Paul rephrased his previous statement: Limited areas of commemial or business park-type development would not fit easily into an employment center because their large site or planned-unit approach to industrial park development. In Scenario #3 staff did not recommend that all IP uses be thrust into non- conforming status and essentially directed toward employment centers. It does allow some of those types of uses to remain in place in contrast to what staff has done with multi-family residential development, for example. Wemer Road is one of the IP designated areas that is not part of an employment center; areas such as this exist primarily because not all of that type of use is going to fit in the large plan environment of the employment center. The second request was submitted by the Roberts and the Donahues, co-owners of a property in the vicinity of Northwest Corporate Campus. The request was to designate their property along Highway 16 (south and east of Gorst) for commercial use. In Scenario #1, the property receives a general commercial designation, reflecting Scenario #1 's philosophy that commercial uses would expand along arterials. In Scenario #2, the property receives an Industrial Park designation, reflecting Scenario #2's philosophy that new designations will be used to address traditional market fomes calling for more industrial land. It is a similar treatment of the property as Scenario #1, but employs the new Industrial Park designation. In Scenario #3, the property is designated as part of the Northwest Corporate Campus employment center. This designation potentially allows commemial uses, but is subject to future area specific plan process. [Using the Scenario #3 Land Use map, Paul showed the area of the Northwest Corporate Campus employment center and where the property in question is located in relation to the center.] Chris Hugo further clarified the location of the property; it is where Highway 16 comes around the end of Sinclair Inlet. At this point, Highway 3 comes from Belfair and splits to run North and South. The southbound traffic is heading toward Port Orchard and is merging right befbre this property, so there are three-lanes of highway traffic and a merging lane of traffic with the speed limit increasing to 50 mph. In Chris' opinion, the biggest issue is what can reasonably be achieved with [that property] where the transportation is consistent with the land use. The transportation function is this area is established, and it is a severe one; it is difficult road geometry because the Planning Commission Meeting May 18, 2004 Page 5 of 18 495 three lanes of Highway 16 traffic coming southbound around the comer creates a dangerous situation for any vehicle attempting to access property along the road on the hillside. Under Scenario #3, waiting until there is a sub-area plan that addresses all aspects [of this property and its location], is most likely the only way this property could be redesignated from its current LDR zoning. The terrain of the property makes it inaccessible from the highway; the current access is via a long driveway that leads to an older single-family home. Chris commented that sometimes you have to defer to the least dangerous situation; perhaps some development could occur if the owners were able to secure access through the west side of the property (via Sunnyslope, for example). Currently, with the situation of the road system, it is difficult to see a better option than what is offered under Scenario #3. General Commercial could be another option, but another growth strategy would have to be chosen and it wouldn't be consistent with the overall plan framework; there is still the question as to how the County and State could support a major road access at that property location. Chris speculated that the owners might not have ever asked that question if they had, it might have solved their interest in the redesignation. Paul Rogerson further explained that when staff developed the paradigms used to create scenario maps #1 & #2, they were not complex enough to address some of the transportation issues. When staff recommended Scenario #1, for example, it was done on the basis of the philosophy that did not have enough depth to it to anticipate or address all of the issues Chris Hugo had described. Scenario #3, while it was not predicated with more attention to transportation issues, it happens to address the transportation dilemma better than #1 or #2. The third request was submitted by Kitsap County Health District asking to redesignate a piece of property owned by Kitsap County Health District in the Jackson Park area from its current designation of MDR to General/Professional Office (as described in their testimony). In Scenario #1, staff recommends the property remain MDR; redesignated public use is not provided for in this scenario that would indicate it should be redesignated. Scenario #2 indicates that a public sector redevelopment site designation should be applied to the property reflecting Scenario #2's philosophy that public agency needs will be enabled as requested, using the new land use designation. Scenario #3 also indicates a redesignation to a public sector redevelopment site for the Health District's campus of buildings in the Jackson Park area, arising from plan goals that are in the current draft plan regarding providing public services, accessible locations, etc. Commissioner Buckingham asked if there currently is a public sector redevelopment site designation. Paul confirmed this; the designation is in the plan and is applied to the map, not only to this parcel, but to East Park and West Park. The basic philosophy is it is in the public interest to [redesignate] and there is an overriding public benefit. The fourth request is in reference to the Whitcomb property with testimony provided by William Palmer. The property is in the vicinity of Highway 3 and Kitsap Way. The request was to designate a small parcel behind an existing motel for commercial uses; the current designation is Low Density Residential (LDR). In Scenario #1, the property receives the commercial designation that is requested, reflecting the scenario's philosophy that existing commercial designations are expanded near arterials. In Scenario #2, the property remains designated LDR, reflecting Scenario #2's philosophy that commercial expansion does happen near arterials, but not in locations not fronting on that arterial. As an aside, Paul explained the remaining ownership owned by this property owner receives the Freeway Commercial designation which potentially increases the utility of this property. To clarify, this scenario does not redesignate the parcel requested to Freeway Commercial, but does redesignate the other ownership this person maintains in that vicinity to Freeway Commercial; there then is a benefit on existing property but Planning Commission Meeting May 18, 2004 Page 6 of t8 496 does not receive the requested redesignation on the small parcel in question. In Scenario g3, the property remains LDR, reflecting the Scenario g3's philosophy that commercial uses expand only in centers. Remaining ownership receives the Freeway Commercial designation, potentially increasing utility of the adjacent property but not on the property requested. The reason neither Scenario gl and g2 recommends the designation be reassigned to General Commercial [and remains LDR] is because there is LDR designation immediately behind the property; currently the property in the adjacent areas are developed for single family residential uses. Staff cannot see that redevelopment of the property under the commercial designation (if it were given) would be compatible with the nearby neighborhoods. [Using the GIS map, Matthew Keough showed the Commissioners where the property the request is for is located.] The property is currently accessible only through the residential neighborhood; there is no access via the existing General Commercial area due to topography and the nature of the development on the site. Commissioner Cockburn asked if [the property owner] wanted to expand the motel out [into the redesignated] area. Paul replied that while the description provided did not specifically state that, it is staff's opinion that that is the property owner's plan. He commented that without a specific development request and uncertainty as to how the development would be accessed, staffis hesitant to recommend redesignation at this time. If the property owner were to submit a specific development request that demonstrated access would not be through the residential area, adequate buffering would be provided between [the development] and the neighborhood, and would require an amendment to the Comprehensive Plan and a subsequent rezone, staff could review the request differently. Without that additional information, staff felt [the request] was not consistent with the goals and policies to recommend the redesignation. Chris Hugo asked if there was opportunity for buffering on the north side [of the property] to protect the neighborhood if the expansion were to occur. Paul responded that he could not say with certainty, but he assumed it would be difficult to provide adequate buffering because of the size of the development site. After viewing a short plat of the area on the GIS, Chris Hugo noted the significance of the lots directly north of the requested redesignation site; these lots are all single- family residences and there is a market for the current designation of LDR. Chris asked if the requested site's topography would allow for single-family residence development. Dri Ralph, Environmental Planner, confirmed this and explained there is a stream and other drainage running through that particular piece of land. The fifth request was submitted by John Rosander asking for redesignation for property he has an interest in located in the Kitsap Lake vicinity. He was not specific about the designation he was requesting, but he "wished have a designation that allowed a wood flooring sales- and storage-type activity." Under Scenario gl, the property is redesignated as [Business] Park, reflecting Scenario gl's philosophy that the City would continue to allow expanded industrial uses in areas where industry already existed [there is currently adjacent industrial uses in the general vicinity of this site]. In Scenario g2, the property receives an Industrial Park designation, essentially the same rationale as above, but using the newer 2003/2004 designation to accomplish the same outcome. In Scenario g3, the property receives the Reserve Center designation (discussed earlier). The Reserve Center will be implemented with zoning that allows a limited variety of commercial uses while preserving a potential for future neighborhood or district center designation. Chris Hugo commented that he had recently met with the property owner's representative. Mr. Rosander is not the property owner's official representative; he is promoting the comp plan change because, as a citizen, a person can propose any change to the [zoning] map through this legislative process; no person needs any particular standing to speak for a property - they can speak on what they think is in the best interest of the City. In Chris' Planning Commission Meeting May 18, 2004 Page 7 of 18 497 conversation with the attomey representing the property owner, it was made kmown that the property owner wants to have the same plan designation as the adjacent commercial uses. That redesignation is not an issue since both properties share frontage on a four-lane arterial. Chris assured the attorney that his client will be treated the same as the other property owner, whatever that is, under the center strategy. Chris said he would talk more about a zoning implementation approach in the Director's Report. Paul Rogerson reminded the Commission that the Reserve Center designation is the entire red "hatched" area on the GIS map, not just the area Mr. Rosander was submitting a request for redesignation on. The sixth and last request is on the McDonald property, with testimony supplied by Mr. McDonald who is asking to redesignate a l~ortion of a lot (approximately ¼ of the lot) to General Commercial. Under Scenario #1, the property is redesignated General Commercial, reflecting Scenario #1's philosophy that commercial uses expand in existing commercial areas. Under Scenario #2, the property is not redesignated, reflecting Scenario #2's philosophy that, while commercials are generally expanded in existing commemial areas, properties not fronting on an arterial and adjacent to exist residential areas are an exception to the role. In Scenario #3, the property is not redesignated, reflecting Scenario #3's philosophy that commercial uses are generally not located outside of centers or corridors, with the exception of large scale commercial uses that are allowed in freeway-oriented areas. Chris Hugo asked if existing commemial areas were allowed to be in-filled. Paul said that that policy had been discussed, but staff did not consider this request to be in-fill. Chris clarified his question by adding the point that there could be commercial [uses] outside of centers and corridors, but only when they in-fill within a contained area. Commissioner Buckingham asked what currently exists on the lot in question. Matthew Keough responded that the property is currently designated residential and currently there is a house on the property; the portion of the lot that the owner is requesting a redesignation has had some development by the property owner in the form of Mr. McDonald expanding his business onto his residential lot. This expansion conflicts ~vith zoning and the Comprehensive Plan. Commissioner Buckingham asked for any additional comments or questions concerning the requests for redesignation. Seeing none, he moved on to deliberations on the Land Use element. Commissioner Streissguth started with a question of clarification on page LU-7, Urban Growth Area (UGA): The last sentence in the first paragraph contains a question about the non- associated UGAs and Commissioner Streissguth felt the question was partially answered with the CPPs and a portion of the area that is being referred to [within the paragraph] is now associated with Bremerton. It was her understanding that in the CPPs there was a section that runs from Riddell Road to the ravine that is now associated [with City of Bremerton], and she asked if the language should be amended to reflect consistency with the CPPs. Chris Hugo commented that Commissioner Streissguth had raised a good point because this is an item that is timely now, but is not going to have much value in a couple years. He did note that the reason this is in the Land Use element is because there is a large paradigm to break which has not occurred yet, even with the CPPs. Bremerton will have to make an historic case and it's being made [within the deliberations]. If Bremerton is successful in redirecting that history into a more positive outcome, using the CPPs m~d these arguments, in two to four years [the reference to non- associated UGAs] will be taken out. Currently, the area above Riddell Road is still a non- associated UGA and will remain as such until Bremerton makes a case and the County acts on it in one of their own comp plan updates in the future that redesignates the UGAs. Planning Commission Meeting May !8, 2004 Page 8 of 18 498 Commissioner Streissguth moved on to Open Space, directing the Commission to page LU-I 1 and the goals and policies (§LU2) on page LU-15. Both items discuss the linkage of a trail system and pedestrian pathways. Commissioner Streissguth felt a reference to linkage between centers should be added either to the text on page LU-11 or to the sub-goals in §LU2. Paul Rogerson noted in §LU12b there is specific mention of pedestrian and bicyclist access between communities, centers and neighborhoods. The Commissioners were in agreement that this wording addresses Commissioner Streissguth's concerns adequately. Commissioner Streissguth proposed the wording on page LU-31 be amended to read, "The Sylvan/Pine neighborhood center in the vicinity of the namesake intersection..." instead of"... located at the intersection..." Public comment had been received recommending this change; there are different amenities in the vicinity that may be a more appropriate location for the actual center, so when the neighborhood plan is developed, the neighborhood can have that discussion. Commissioner Kosusko commented that this change would be consistent with the Commission's past discussions of centers where the centers are not necessarily intersection- centered. On page LU-32, Commissioner Streissguth questioned the reference to the height restriction of six to eight stories in the commercial [areas]; she felt the eight stories was inconsistent with what had been decided on for other centers and wondered if the limit should be six stories or if a [numerical measurement] should be used in place of a reference to the number of stories. Commissioner Kosusko commented that what had been discussed previously was in reference to inconsistencies with the WWRC designation, which is the corridor outside of the centers; that item had been resolved, which leaves the question of the appropriateness of the eight-story height restriction. Paul Rogerson noted that, although this topic had come up in several of the past meetings, no change had yet been made because of the lack of clear direction on the amendment. He pointed out that the District Center designation refers to a five-story/50-feet maximum height limitation. Chris Hugo commented that, even at five stories, a local amendment to the building code is needed to go four stories of wood over a first story concrete podium. Commissioner Kosusko amended that statement by saying it was five stories of wood over a first story of concrete; anything more than that would require a special exception. He wondered if the height might be too restrictive because of the way heights are measured. Chris reminded the Commission that it had been decided to propose removing the references to height. Commissioner Buckingham then asked if any reference to the number of stories should be removed from the text and refer only to the District Center designation and what is allowable under that designation. Commissioner Kosusko pointed out that on the next page under "West Portion" there is a four- to six-story height limitation and felt that if the references to height were removed from "East Portion", it should be removed throughout the document for consistency. Paul spoke about the different height limitations and how each center is unique; in the designation descriptions [later in the chapter] the general parameters are given which would be the maximum height allowed for that area. It was agreed to remove the reference to five stories on pages LU-32 and amend the "West Portion" to read "four- to five-stories" instead of"four- to six-stories". On page LU-42 under Commercial Corridor in the discussion section, Commissioner Streissguth suggested to adding a sentence that talks about incentive based development and encouraging placement of priority on preserving existing trees and vegetative buffers, especially along Kitsap Way. Commissioner Streissguth offered to e-mail the exact wording of the Planning Commission Meeting May 18, 2004 Page 9 of 18 499 additional sentence to Paul Rogerson after the meeting. Paul referred to a recommended staff mnendment on the same discussion paragraph pertaining to going with a form based zoning approach. The last sentence in the discussion reads "... a full range of services are included as permitted uses including grocery, theaters, etc." Paul's recommendation is to strike that sentence because not only is it too specific, but it also is not consistent with the form based zoning approach that will be discussed later in the meeting. Chris Hugo disagreed, saying there should be additional discussion with staff and with Paul on how far form based zoning can be taken. Chris felt [form based zoning] works best when trying to manage a mixed-use environment so not retaining more traditional language in more sterile commercial environments or industrial parks; he advised against deleting that portion of the discussion section. It was agreed that no change would be made until more information regarding form based zoning was available. Commissioner Kosusko proposed deleting the portion of that same sentence that reads "... as permitted uses..." because the body of the paragraph is "plan language" and that phrase is more regulatory zoning. It was agreed the sentence should read "A full range of services are accommodated, including groceries, theaters, restaurants, hardware, and gas stations, etc." Commissioner Cockburn asked if there were other corridors in addition to Kitsap Way that have the Commercial Corridor designation, for example 11tl~ Street or 6th Street. Using the map for Scenario #3, Paul Rogerson pointed to the area designated Commercial Corridor, which is essentially along Kitsap Way. The portions of 11th Street and 6th Street Commissioner Cockbum was asking about are designated Commercial with no reference to a corridor designation. Commissioner Streissguth again referred to page LU-32, specifically the Wheaton Way Redevelopment Corridor and the circulation issues there. She felt the discussion portion of this section should address the appropriateness for access from the rear of a business via a frontage or local access road in portions of the WWRC area. She thought that there should also be a reference in the discussion section dealing with buffeting between commercial and residential areas. Chris Hugo offered clarification: The first option ora frontage road was explained as a suburban feature; they are primarily seen near large shopping malls in the form of large (six- lane) arterials with smaller two-lane roads on each side that separates the uses tremendously which result in large expanses of asphalt areas which is opposite of the goals the Commission is working toward. Use of rear access roads is already referenced in the Land Use element and Chris thought the addition of language regarding [traffic] circulation would be helpful. Commissioner Streissguth mentioned that the comments they had discussed in the group were reflecting local access, not necessarily frontage roads. Paul made note that in the fourth paragraph on page LU-43, language was to be added regarding accessing properties from the rear to retain pedestrian friendly streets. Matthew Keough suggested coordinating with the centers adjacent to those areas because he feels that is where the Land Use committees were focused on when buffering alternative circulation routes was discussed. This could be achieved by adding the phrase, "... in coordination with the centers' altemative circulation routes and buffeting." All were in agreement on those two issues. Commissioner Streissguth moved on to the Public Sector Redevelopment Sites on page LU-44. She felt a provision should be added for an open space requirement, her thought being, with public projects it is the best opportunity to be looking at open space requirements and the link there with public ownership. She did not see this as a strict requirement, but would like to have language added to the discussion portion to reflect this thought. Her suggestion was, "Potential development includes mixed-type residential developments with an open space component that Planning Commission Meeting May 18. 2004 Page 10 of 18 500 integrate context sensitive commercial and office development." Paul Rogerson made note of that addition; all were in agreement. In reference to the General Higher Education portion of the Land Use element, Commissioner Buckingham questioned the scenario zoning maps which showed areas that are currently residential, but are proposed to be zoned Higher Education. He asked if the maps should be changed to reflect the decision of having Olympic College grow up rather than out. Paul Rogerson replied that that would be a policy decision and reminded the Commission that the intent of the scenario maps was to reflect the Higher Education designation in place today; what is noted on the maps was taken directly from the current designation. Chris Hugo asked Commissioner Kosusko if he knew what the Master Plan boundaries were. Commissioner Kosusko responded that the Master Plan included the residential areas in question. The college is currently in the process of putting together a SEPA for that entire Master Plan area. Chris commented, "This doesn't mean that you're bound by anything, but the intent of the policy statement is it was drafted or conceived by staff to essentially look at this and say, (as opposed to the last public issue that came up about expanding north to the water), 'Stay within this boundary and get more efficient and more vertical; convert asphalt to parking structures; get a more urban style campus and stay away from a suburban model.'" Commissioner Buckingham asked for clarification of the phrase "Stay within this boundary..." Commissioner Kosusko and Chris Hugo both stated that the current Comprehensive Plan includes that area. Commissioner Kosusko further explained that the architectural firm he works for is the architect for this planning process and currently the college has buildings "in the pipeline" that they are getting funding for: A four-story science building which is in the permitting process at this time and a four-story humanities building which will be built in the space vacated by the original science building. There are plans to construct an academic building and a performing arts center in the area that is currently being used as residential and is located between Warren Avenue and Broadway. Also, a parking garage will be constructed where the arts/music building is presently. Chris Hugo added that to the south of the campus, there had been discussion of creating a more "campus friendly" urban environment by encouraging campus oriented retail such as book stores, coffee shops, music stores, etc. Paul Rogerson noted that on page LU-6 there is specific language dealing with the area south of Olympic College and how future planning could better meet the needs of college students. Referencing the list of Specific Area Plans, Commissioner Kosusko noted that "Special Redevelopment Sites" on page LU-6 should be "Public Sector Redevelopment Site" per previous discussions. Also, in addition to Westpark and Eastpark, the Health District site should be listed in the description, as well as clear delineation between the Evergreen Park Plan and the Campus/Evergreen Plan. Paul Rogerson commented that these changes will be regarded as staff edits for clarification and would not be listed in the proposed amendments. Chris Hugo asked for an explanation of why the Campus/Evergreen Plan was named as such. Matthew Keough said that it was an existing plan from the 1995 Comp Plan that encompasses a large area which includes Bremerton High School as well as Olympic College campuses and extends as far as the Manette Bridge. Although it is a very generic name for a plan, it has some suggestions for future projects, and staffdoes not want to lose sight of the provisions set forth in that plan which is why it has continued to be honored. This does not prevent the Commission from issuing instructions to make changes to reflect the acknowledgement that the area is too broad and needs to be more specific to the neighborhoods within in it. Chris reminded the Commission that, unless the existing sub-area plans have been posted/advertised for public comments, their formal validity Planning Commission Meeting May 18, 2004 Page 11 of 18 501 expires once the Comp Plan has been adopted because the public did not have a chance to comment on [the sub-areas]. The sub-area plans are of value because they provide information on what the planning histories and desires of the neighborhood are so they are kept in [the Planning Department] library and will be updated as time allows; that means the titles can be changed any way the Commission wants, for example, splitting the Campus/Evergreen Plan in two to clearly define these distinct areas. Chris also pointed out that the language in the introduction of that section references anticipated planning or work, not completed work. Matthew Keough confirmed that staff's intent in writing this section was to say that the work on the community plans that had already been completed would be honored and, he thought, to incorporate [the work] to keep the validity of them. Chris thought a better place in the element for this item was in the section that discusses the various centers designations such as in the Charleston Center designation which is based on the Charleston Community Plan. Matthew suggested referencing the Campus/Evergreen District Plan elsewhere in the document because it is the only existing district plan. Paul summarized the instructions to staff as "Move reference to existing neighborhood plan, etc. on page LU-6 to discussions of ..." [Paul's sentence trails off here.] Chris Hugo asked Matthew Keough and Paul Rogerson if there had been discussion of the mixed-use district around Evergreen as a part of the expanded downtown area. Paul said there bad been mixed-use designation discussions which, in some cases, where that area falls would decide if that would be a centers or land use designation discussion. Commissioner Kosusko commented that in the Neighborhood Center and District Center descriptions, there was still a reference to the height of buildings measured in feet as opposed to the story restriction suggested at previous meetings. Paul Rogerson responded that discussion earlier in the meeting dealt with the height restrictions and it was proposed that all reference to height measurements in feet be stricken from the various land use designation discussions. Commissioner Kosusko asked if the height limitation would be referred to in stories only, would there be a definition as to what a "story" consists of. Chris Hugo said the specifics would be explained in his explanation of form based zoning. Commissioner Kosusko suggested that, since Bremerton does not have a Design Review Board, the Planning Commission could be utilized to review projects and centers until regulatory language is established. He was concerned about the amount of time that would elapse while the centers are going through sub-area planning and committee meetings that need to occur; opportunities may be lost in the centers during that time period. Chris Hugo explained that a change like that would have to be presented in the form of an ordinance review which, in his opinion, would not be any easier than creating another committee to get the design regulations in place. On page LU-41 in the description of the Downtown Regional Center, Commissioner Kosusko asked for clarification on the boundaries of the DRC. Paul Rogerson replied that the DRC is larger than the Calthorpe [Plan] Boundary (listed in the description); it extends from the ~vaterfront and shipyards to Warren Avenue on the west and to the edge of Evergreen Park on the north. Paul suggested striking the reference to the Calthorpe Plan Boundary in the description, as well as changing "DRC zone" to "DRC designation". All were in agreement on the editorial corrections. There was some discussion regarding the density definition in the Downto~vn Regional Center. It was agreed upon that a minimum density should be listed in the description, not a maximum Planning Commission Meeting May 18, 2004 Page l 2 of l 8 502 density. Commissioner Buckingham expressed concern over the proposed boundaries of the DRC because they incorporate established neighborhoods and he felt that by expanding into those neighborhoods, the Commission was not being consistent with other elements of the Comp Plan. There are areas north of the Manette Bridge that could potentially be shops and businesses and Commissioner Buckingham felt that type of activity would not be appropriate for any area north of 6th Street and from Cogean to the water. Chris Hugo responded that there are two paradigms and it is up to the Commission to determine which is appropriate. He continued: "Some of the conditions in that area between 6t~ and 11th include Pacific [Avenue] and Park [Avenue] which both have quite mixed frontage environments and other uses which tend to disrupt the residential area and character. But then Highland and Pleasant and down below the fire station seem to have some nice neighborhood qualities. It's mixed, but there are some nice houses in there and there are some that have been redone recently.., and downtowns do need a good residential support environment around them. So maybe the thing to do is we need to say something here about doing more sub-area planning... Finish the job (the Calthorpe effort) for the whole regional district, including going up into the Evergreen neighborhood again and kind of confirming some things because the neighborhoods have some ideas we need to consider. Right now the designation that comes around there kind of picks up that south side of Evergreen Park and tries to recognize that hillside from the park up towards 11th as a potential mixed-use environment where you can have some three- and four-story condo development over some partial street-floor retail which could be really interesting and urban and serve that neighbor hood well. I'm building off the Caf~ Destino back up the hill with residential on top of more of that kind of neighborhoods serving retail or services or restaurants. So there's one paradigm that would protect that residential between 6th and 1 lth; there's another one that says 'Go for it - convert it all to three- or four-story residential.' Those are the two things that could happen in there and that's what you have to decide amongst those two paths now." Commissioner Buckingham liked the first option of establishing a sub-area plan that recognizes the residential districts. He felt this is important on many levels for many reasons, especially in keeping with the other elements, the areas discussed should be preserved. Commissioner Buckingham did acknowledge that there would be in-fill activity going on in those areas. Chris Hugo pointed out that the way the scenarios had been created by staff tended to be most protective of low density neighborhoods that had been planned and zoned as such. The reason the above scenario was presented this way is because under PSRC it is part of the urban center of the metropolitan center that Bremerton is. Historically, it has been planned for the kind of increased density that is shown; it has been that way in the past and is consistent with the regional framework. Paul Rogerson reminded the Commission that any of the centers implies automatically by the fact of center designation that there will be an area specific planning exercise applied to it; during that exercise, compatibility issues will be dealt with. In Paul's opinion, in addition to what Chris had covered, the reason the designation is as broad as it is, is it is recognized that there is potential for linking Evergreen Park with the downtown, providing continuity in pedestrian experience between downtown all the way to Evergreen Park; taking advantage of the park as an amenity for increased intensity of development to help bring more residential base to the center in general and to somehow meld ali those factors along with the ones [Chris] mentioned requires an exercise like an area specific plan. In other words, a center designation would enable just the exercise necessary to accomplish that kind of synthesis. Commissioner Buckingham asked if there was language that specifically states that there will be sub-area planning. Paul replied that there was not, but if the Commission felt that this is one of the areas where a specific area plan would be applied and would like to recommend that the Planning Commission Meeting May 18, 2004 Page 13 of 18 503 discussion paragraph repeat that which is found in §LU6 [on page LU-16], staff could make that change. All Commissioners were in agreement to the proposed amendment. Commissioner Kosusko commented that on the list of center on page LU-6, the Downtown Regional Center had not been listed and thought it should be added. Chris Hugo responded that the staff recognized that, even though there is a somewhat directed plan for the core, the support environment around the core (west to Warren and north to Evergreen Park) is very mixed; there are a lot of things that could happen there and more guidance is needed. At this time, areas between Pacific Avenue and Warren Avenue are allowed to build higher than any building in the core which is permitted in the existing zoning; this could lead to all kinds of speculative possibilities so a revamping of the document is needed in the long run. Paul summarized the staff instructions: Add reference to a specific area plan as needed in the Downtown Center and add the Downtown Center to the list of areas subject to the specific plan requirement that is in the discussion on LU-6. The Commissioners agreed on these two items. On page LU-45, Commissioner Kosusko discussed the inconsistencies of the General Commemial designation, specifically how multi-family structures outside of centers is not encouraged, but commercial uses [outside of centers] are not treated the same way. One of his main concerns was how other types of commercial designations have crept back into the centers concept and thought there should be more language in the discussion portion of the document to make the description more contained. Paul referred to the last sentence in the discussion section, "Expansion of these areas is not consistent with the intent of this plan" as the key to the inclusion of the General Commercial. Staff felt it was necessary to recognize the limited area of commercial uses and not widely force them into non-conforming status. The area in question is along 6th Street and a portion of High Avenue where there are some existing commercial uses that are not part of the Charleston District plan and cannot be described as a corridor; also, the nature of the businesses is not consistent with the description used to create the corridors. The remaining existing commercial areas fall within the newer corridor designations. It was suggested to change the designation name to Limited Commercial with the intent of "capturing" areas and containing the commercial growth within those areas. It was further clarified that this change of designation title was not to stop commercial growth, but to recognize that these are areas are holdovers from the previous plan that need to be defined. It is understood that commercial infilt is allowed under the Limited Commercial designation, but expansion is not. Commissioner Buckingham suggested spending more time on this subject and revisiting it at a later meeting. Commissioner Buckingham moved on to page LU-32, specifically the Wheaton Way/Riddell District Center. He questioned why gas stations, repair garages, etc. where not allowed in an area that is primarily accessed by automobiles. Commissioner Cockburn suggested encouraging automobile specific businesses such as a repair shop within a parking garage. Chris Hugo commented that that portion of the element is based more on the traditional way of looking at zoning and the restriction of language used when trying to get away from an auto-dependent zoning model. Chris thought that it might not be necessary to use that type of language or perhaps in the discussion section, talk about it more in terms of relationships rather than outright prohibition and keep in the ideas to make it more living friendly and not so auto-dependent. That's not to say it won't be allowed for cars to still have a way to access the site and get auto needs met. Commissioner Buckingham agreed, saying it needs to be remembered that Wheaton Way is a highway; it is a major arterial - a road that has usage beyond the local intent Planning Commission Meeting May 18, 2004 Page 14 of 18 504 for it and seems like an ideal location for gas stations, etc., if there is a need. Paul reminded the Commissioners that the corridor designation should anticipate automobile oriented uses, but the centers themselves were more pedestrian oriented; that is why this type of language crept in. In the Staff Report, Director Hugo will be talking about a zoning approach that will move away from the type of language that discussed what prohibited uses in various places are. Paul felt that the dilemma of implementing this type of zoning approach is it may not be productive to go through the plan and try to find and eliminate all the places where prohibiting various uses is discussed until after the Commission had heard Chris' presentation and perhaps revisit this subject at a future date if the Commission accepts the zoning approach. Commissioner Cockburn commented that he thought the Wheaton Way/Riddell District Center is more automobile oriented than the other centers and would remain that way. He felt perhaps there should be focus on planning for it to be the most automobile oriented center and focus more on walkability in the other centers. Chris Hugo commented that the Commission has to decide what direction they want to take this subject because if the decision is to promote Wheaton Way/Riddell as automobile dominant, it no longer is considered a center which promotes residential growth with pedestrian access. Originally, Wheaton Way/Riddell was designated a center because it seemed like there was much opportunity to redevelop land on the east side into an urban village like University Village [in Seattle]. Commissioner Streissguth proposed deleting the sentence in question because she felt the specificity is addressed Director Hugo's proposal for zoning and this should be treated as a zoning matter. Paul summarized the instruction to staff: "To eliminate the phrase after the hyphen that says 'although automobile focus uses such as gas stations or repair garages are not permitted.'" All were in agreement on this proposed amendment. Commissioner Buckingham asked for any other comment from the other Commissioners on the Land Use element. Paul Rogerson recommended a 50th instruction to staff to clarify Land Use Goal #8 and choose between the two policies offered. Chris Hugo explained that there were two policies listed because there ~vas concern about the issue of creating non-conforming properties and what the liability would be to property owners and to the City. Since then, there has been council from another city's attorney (not Bremerton's attorney) saying that nonq conforming properties still have the ability to be insured and to be borrowed against because there are protected non-conforming rights in Bremerton's code. He went on to explain, "The dilemma was if you come up with a growth strategy based on these goals and policies, then how do you leave existing built up multi-family projects in the middle of nowhere - how do you leave them and say that's OK without saying 'If it's OK there, why isn't it OK across the street?'" That is what the [other] city's Land Use attorney challenged Bremerton with; to not create non- conformities that will bring about issues for borrowing and insuring and without generating unequal treatment under the current Land Use laws. The Land Use attorney advised that if [Bremerton] has the right non-conforming protections in the zoning code (which Bremerton does), then it should not be an issue. Paul noted in the instructions to staff to strike §LU8a. All were in agreement. A motion was made by Commissioner Streissguth and seconded by Commissioner Kosusko to close deliberations on the Comprehensive Plan, have staff incorporate into the document the fifty proposed amendments, designate Land Use Scenario Map #3 as the preferred option while retaining the other scenario maps for review and analysis under SEPA, hold the Comprehensive Plan until the associated zoning package is prepared and then forward ali components as a preliminary decision to the City Council for official review and adoption. Called for a vote: Cockbum: No; Kosusko: Yes; Streissguth: Yes; Wood: Yes; Buckingham: Yes. The motion carried. Planning Commission Meeting May l 8, 2004 Page 15 of 18 505 VI. Business Meeting A. Chairman's Report: Commissioner Buckingham acknowledged that completing deliberations on the Comprehensive Plan to this point was a historic moment for the Planning Commission, and also wanted to acknowledge Commissioner Wood's contribution to the Commission. B. Director's Report: Chris Hugo, Director of Community Development first spoke about the Shoreline View Corridor issue. It has been decided to take a simple regulatory change and add that into the zoning work; when the Commission goes through the zoning update, the Shoreline View Corridors will be updated as well. It will be packaged and advertised in a way so it can go through a public review process to be addressed with all the new zoning. If the policy needed to be amended it would not be feasible to present the Shoreline View Corridor in this manner, but the policy does not need to be amended, only the regulation. Chris explained, "We'll advertise it and then talk about it during that process, and then send it off to the State once we act on it. They have six months to confirm what we've done after that." Chris moved on to the subject of Commissioner Wood's replacement. An advertisement had been posted in the Bremerton Sun; once applicants respond there will be a selection process to find a replacement. Chris reminded the Commission of Commissioner Wood's additional duty as a member of the Capital Projects Review Committee, which was an appointment by the Chairman; it is the discretion of the Planning Commission to fill that position. If any [Commissioner] is interested in that position, they need to inform Commissioner Buckingham because the Block Grant staff needs a replacement. This committee meets every year and it would be beneficial to have somebody participate two or three years in a row. Chris then referred to copies from the County that had been distributed to the Commissioners prior to the start of the meeting. The copies were of two Comp Plan amendments that have come to the County's docket. The first is a proposal by Mr. Paul Pazuki and Kitsap Transit dated May 5, 2004, to change the zoning in the area where Highway 303 tums into Waaga Way from Urban Low Residential and Urban Restricted to Highway Tourist Commercial. Examples of that usage are a motel, an outlet store or a convenience store, etc. The area in question is adjacent to rural or non-UGA and has some environmentally sensitive land near it. Our goal is to maintain a non-urban separator between Bremerton and Silverdale and to retain as much non-urban frontage on as possible on Highway 303. The second proposal involves changing the zoning of 144 acres of land outside the Urban Growth Area from rural residential (5 acre lots) to urban restricted (l 5 dwelling units per acre). Having less than four dwelling units per acre is not allowed under the GMA unless it is greatly restricted by environmental conditions. There are no urban services in that area so this would involve moving the UGA boundary. Chris stated that both of the proposals are inconsistent with the County-wide planning policies as well as the direction that Bremerton is trying to go as a community. Direction from the Planning Commission is needed as there is a hearing on June 22, 2004 with a comment period through that date. Both Planning Commission and City Council can make comment on these two proposals. Chris encouraged the Commissioners to Planning Commission Meeting May 18, 2004 Page 16 of 18 506 make comments, particularly on the proposal involving 144 acres because of the myriad problems related to the fact that the County still has a land use category that is inherently inconsistent with the GMA. Chris reminded the Commissioners that time was of the essence, giving the interim forest lands as an example of what happens when comments am not submitted within the time allotted. Commissioner Kosusko remarked that the proposed actions are counter to what the CPPs are presenting and therefore felt the [Planning] department and City Council should make an argument against the proposals. All Commissioners were in agreement. A motion was made by Commissioner Buckingham and seconded by Commissioner Streissguth to have staff draft a letter to the County on behalf of the Planning Commission suggesting the Bremerton Planning Commission does not approve of the proposed actions and also recommend to the City Council that they address the issue as well. Called for a vote: Cockbum: Yes; Kosusko: Yes; Streissguth: Yes; Wood: Yes; Buckingham: Yes. The motion carded. Zoning was the last subject in the Director's Report. Chris gave a brief overview of how traditional zoning is currently accomplished and how Bremerton's view on zoning is mom contextual and relational. During his trip to Washington DC for the APA National Planning Conference, he ~vas introduced to some of the newest zoning concepts: Form based zoning and performance zoning. Form based zoning is regulating based on how the form of something fits into the streetscape or development environment such as building rise, setbacks, building details, orientation of building to parking and to entrances, etc. Another way to regulate is based on how things perform [performance zoning]: How much traffic, light pollution or noise is generated, odor, glare off of signage, etc. If the enviromnental aspects can be controlled in ways that can make it compatible with the neighborhood, then perhaps all of the issues have been addressed. Therefore, if the performance is compatible and the look is compatible, one might ask what the zoning would be. Chris remarked that the zoning could be almost anything. He has been doing research on "hybrid zoning" which is taking form based zoning and performance zoning, "melding" them together and regulating on the result rather than referring to a list of uses and prescribed setbacks. Chris went on to say that when centers are being described with what could or couldn't be in one, at this point there is no definite answer: If the right set of form based and performance based regulations, there are a lot of things that could possibly fit, but [the projects] would have to prove they could fit. Chris proposed taking this approach for Bremerton's mixed-use, but not in the low- density neighborhoods environments or auto districts where the traditional zoning methods work best. The Commissioners agreed ~vith Chris that this sounded like a good approach. Chris also commented that if Bremerton was to incorporate this new approach to zoning, it would be among the first 100 local governments out of 12,000 in the US to do so. Commissioner Buckingham expressed concern that, by using this new zoning it would make the permitting process more complicated. Chris responded that, with enough up-front knowledge on what "compatible" means in terms of form and performance, through a simple administrative review process up to design review (for more complex developments) the permitting process could be accomplished more quickly and efficiently. Chris hoped to have some ordinance examples within a couple months to present to the Planning Commission and then subsequently introduce the new zoning approach to public groups such as homebuilders, developers, commercial property owners, etc. to get them involved in the dialogue. Chris further explained that the neighborhoods would like the new zoning approach because it protects neighborhoods Planning Commission Meeting May 18, 2004 Page l 7 of 18 507 more consistently, plus the focus on form and compatibility in the centers sets the stage to ensure the centers will work well esthetically as well as operationally. C. Old Business: Reminder to the Planning Commission regarding the rules and by-laws. D. New Business: None. VII. Adjournment Meeting was adjourned at 9:03 p.m. The next regular meeting is scheduled for June 15, 2004. Respectful~ submitted by: Executive -Secretary (~J Approved by: B. Sqott~BUCkifi: :'~' ' ~m, Chairman Planning Commission Meeting May 18, 2004 Page 18 of 18 508 DATE SUBMITTED: 10/28/04 BILL # 0~]- ~,3~-. AGENDA BILL CITY OF BREMERTON ~C CITY COUNCIL SUBJECT: Public Hearing on Proposed Committee Meeting Date: 10/27/04 FY2005 City o£Bremerton Budget COUNCIL MEETING Date: 11/3/04 & 11/17/04 Department: Financial Services Presenter: Michael Wilson Phone: 473-5590 SUMMARY. A public hearing has been scheduled for November 3, 2004 and November 17, 2004 to afford citizens of Bremerton an opportunity to be heard regarding the FY2005 Proposed Budget. ATTACHMENTS: 1) Mayor Bozeman's Budget Letter to City Council; 2) Notice of Public Hearing FISCAL IMPACTS (Include Budgeted Amoum): APPROVALS: DEPARTMENT DIRECTOR:~~-~---~ ~(~ CITY ATTO RNE Y: ~--,~--~-. '-'~ FINANCE DIRECTOR: ""d MAYOR: FISCAL/BUDGET: /'[ea.,-d alu,,',,,,_ ~, ,~"l~t.~f'e~..,~ . t*./:o./~l CONSENT AGENDA [] OPERATIONS: COUNCIL PRESIDENT: - RECOMMENDED MOTION: No Action required. COUNCIL ACTION: [~ Approve L'-] Deny [] Table [] Cominue [] No Action §09 Office of the Mayor 239 Fourth Street, Bremerton, WA 98337 Telephone: 360-478-5266 Fax: 360-478-5883 cbozeman @ ci. bremerton, wa. us Cary Bozeman, Mayor October 22, 2004 Honorable Bremerton City Council City of Bremerton Bremerton, WA 98337 Dear Bremerton City Council Members: On behalf of the staff of the City of Bremerton, I am very pleased to submit my proposed 2005 City Annual Budget. Though the Council has not traditionally received the Mayor's proposed budgets until the first of November, this early submittal should provide addit~nal time for review, consideration and adoption of the 2005 Annual Budget. It was our intent to again develop a practical and realistic City Budget that would carry forward municipal services, programs and capital projects into the new year. Even with us continuing to straggle with limited revenues, this budget demonstrates our ability to still fund the current level of services while undertaking some significant capital improvement projects. The 2005 Annual Budget has been developed with a strong emphasis on enhancing economic development and opportunities for investment in our community, maintaining a responsible level of public safety services, providing customer-oriented municipal service delivery, implementing the growth management programs, and pursuing major arterial streets and water/wastewater/stormwater utilities capital programs. Our approach in preparing this budget document was to build upon the cun'ent budget format that would evolve into a stronger policy document with focus on clearly delineating the programs and objectives to be accomplished by each of the City departments. In addition to some format and planning changes, this budget proposes implementing sound financial management policies and a comprehensive long-range (six- year) capital improvement program. This financial and budget planning effort should result in improved efficiencies and accountability of all City departments in the effective delivery of municipal services to the Citizens of Bremerton. This document provides the necessary direction and adequate financial resources to work toward achieving the City Council's goals and meet the proposed 2005 programs and objectives as guided by the City's overall mission. City Mission Statement: "Provide quality services as required by law or mandated by the public to enhance the hea)th, safety and general well-being of the citizens of the City of Bremerton. " Guiding Principles: In the development of City policy direction, the following principles have been developed to guide the City in carrying out its mission statement. °:° Conduct City operations in a legal, ethical and fair manner · :'Provide professional leadership and operation excellence °:° Conduct the public's business in a manner that is responsive, accessible and open to all °:' Recognize that City employees and citizen volunteers are the foundation upon which these services are provided · :' Preserve the heritage of the City both environmentally and culturally 510 Core City Values/Goals: + Provide quality customer service We are here to serve the citizens Utilizing available resources, maintain a consisteat level of service that meets or exceeds state and federal mandates and community expectations · Avoid fi'equent and/or dramatic service level fluctuations Promote and maintain the highest level of employee morale · We are all part of the team, everyone counts · We encourage individual initiative · Attract and retain qualified, committed employees · Promote a commitment to continuous improvement · Promote teamwork and strong labor-management cooperation · Provide a healthy/safe working environment · We celebrate our wins, and learn from our losses Foster operational efficiencies, innovation, inter-departmental and inter-governmental cooperation and service coordination Promote long-term perspective/planning approach to avoid crisis management °.*oFocus priorities on "mandatory" a ...... nd essentral Crty services °.*°Promote public trnst in city government by ensuring a high level of accountability and communication °:° Allocate resources to the support of the public safety system as a major priority within practical funding restrictions °:° Provide sound comprehensive planning to effectively manage the City's future growth and development · :° Maximize available revenue resources · ." Ensure the City maintains a financial base sufficient to provide a consistent level of City services · maintain sufficient cash flow to meet normal operating obligations as well as contingent and unforeseen needs · maintain depreciation reserves establish and sustain sound credit rating · restrict deficit spending Council Goals: · Develop a financial plan for the City with long-range vision and goals, and shore-term priorities. · Improve community teamwork and communications. · Stimulate small business expansion, new economic growth, and vitality in downtown and the neighborhoods. · Increase home ownership by providing a wider range of housing choices and improving the existing housing stock. · Promote, encourage, and embrace the community's diversity. · Take the initiative and provide visionary leadership on policy issues. Consistent with the Council's goals, our primary attention will continue to be focused on putting together a community partnership to turn around the economic depression the City has faced over the past twenty years. This effor~ will emphasize changing the image of Bremerton, increasing the city's tax base in order to improve service, appreciating property values so citizens can reinvest in their homes, bringing in new businesses to the downtown core, and changing the physical connection between the Naval Shipyard and the downtown. With these major goals in mind, the following is my list of budget priorities for 2005: l) Economic Development o Promote the redevelopment of the downtown core by attracting new investors o Sign agreement with developer on Eastpark, complete master plan, and begin installing basic infrastructure and utilities o Collaborate with Bremerton and Kitsap Consolidated Housing Authorities on the redevelopment of Westpark, begin Phase I on the commercial site o Secure two million dollars from State Capital Budget to complete Maritime Park and Freedom Trail o Issue building permits to the Honsing Authority on waterfront condominium project o Collaborate with the Department of the Navy ~n the move of Building 50 to its permanent site and commence remodel work for the new Naval Museum o Complete the Bremerton Downtown Library renovation project o Work with the Bremerton Port District on the downtown marina expansion project 2) Public Safety o Place a high priority on adequately funding public safety services and the criminal justice system (police, fire/emergency medical and court services) o Complete construction of new fire station o Commence construction of Public Safety Building 3) Financial Management o Develop a long-range revenue plan to provide sufficient resources to fund mandatory, essential and priority city services o Implement and update Financial Management'policies o Update the City's Capital Improvement program and funding options o Place Patrol vehicles under the Equipment Rental & Reserve Fund 4) Streets/Transportation o Work with the State Department of Transportation on the downtown pedestrian and transportation center ingress and egress capital improvement project. o Identify funding options and establish a strategy for implementing a street overlay program ($1.3 annual liability) o Promote the operation of private fe~-y service 5) Utilities o Restore financial stability to the water, wastewater and stormwater utilities through a utility rate structure to adequately fund these services (3-year utility rate increases) 6) Community Development o Implement an Urban growth plan: downtown/centers & Wheaton Way Corridor design standards, downtown parking plan o Develop an annexation program 7) Parks o Develop plan for a 2005 Park Bond Issue to take to citizens to fund parks capital projects o Prepare an urban trail system plan o Parks funding - secure financial resources to provide on-going funding of parks operations and maintenance pro.ams 8) Personnel/Communications o Develop~a plan for controlling the escalating employee medical benefit costs o Modify the City's c~v~l service process, update personnel pohcms o Conduct community diversity forum o Improve conununity teamwork and communications 9) Conference Center/Parking System o Operate the Conference Center as a business enterprise with financial support from the use of Hotel/Motel taxes o Maintain the Parking System as a business at a level sufficient to pay debt, expenses and on-going financial support to the Street Fond and General Fund 522 2005 BUDGET OVERVIEW The proposed City of Bremerton's 2005 Annual Budget is comprised of thirty-four separate funds which includes the creation of four new capital improvement fi]nds for the utilities and deletion of oue fired. The proposed 2005 City Annual Budget totals $129,791,347. This compares witb the 2004 Budget of $142,877,232. The decline in the total City Budget for 2005 is primarily attributed to two factors: l) the remaining cost of the Conference Center being expended in 2004, and 2) significant reduction in Wastewater capital projects in 2005. Despite projected growth in the City's population, renewed efforts to pursue annexations and the increased cost of providing City services, this budget continues to be a cost- couscious pIan with limited financial resources to fund all of the needed services and programs. The City of Bremerton has endured many years of very tight and restrained budgets due to the limited growth, modest sales taxes revenues and restriction on property taxes. Although the significant challenge in the development of the City budget is focused on balaucing the General Fund budget, this comprehensive budget has made considerable strides in identifying financial resources to fund future general government capital projects. The recent growth in growing real estate excise taxes is, however, allowing the City to fund some additional, but still limited, general government capital projects. One of the most significant priorities in 2005 will again be to pursue the maintenance of a utility ]'ate structure that will ensure the financial stability and service the debt obligations of the Wastewater, Water and Stormwater utilities. It will also be a priority th examine different resources for funding the growing maintenance liability of our Streets since there are virtually no resources available from the General Fund to support the Street maintenance program. As we continue to enhance the development of our Parks and open space areas, we will need additional resources to fund the increased Parks maintenance obligations. Despite our continued effort to contain the growth of City staff, the budget does include the addition of 8.75 new regular positions, 4 deleted regular positions, 1 deleted contract position, and 4 classification/job title changes. positions Salary Range/Band · Municipal Services Coordinator (Executive) - new position Salary Band 13 ......... ~ ~ .vv ......... V~ ) - delete contract position $5,000/month ~e, ..........nt Paralegal (Legal) - reclassification Salary Band 6_8 · Planner I (Community Development) - new position Salary Grade 14 · Clerical/Accounting - part-time/temp. (Municipal Court) Salary - $9.04/hr. · ~ Aquatics/Recreation Mgr. (Parks) - reclassification Salary Band 9 1~1 ................... g~t (Parks) - delete position Salary Band 9 · ~ (Parks) - delete position Salary Grade 15 · Parks Maintenance Supervisor (Parks) Salary Grade 17 · Par!~: 5pcc[a!izt Sr. (Parks) - delete two positions Salary Grade 10 · Parks Laborer (Parks) - two new positions Salary Grade 4 · Parks Laborer (Parks) - three new ~A-time positions (2.25 FTEs) Salary Grade 4 · Parks L~borer (Parks) - one new V2 -time position - Conference center Salary Grade 4 · ^ .......5~' Sr. Accountant (Water/Wastewater) - reclassification Salary Grade ~ 14- · Electronics Technician (Electronics/Water/Conf. Center) - new position Salary Grade 15 · Office Assistant II (PW - Utilities Ops) - new position Salary Grade 5 There are seven categories of City funds within the Annual Budget comprised of the following: General Fttnd, Special Reventte funds, Debt Sen,ice funds, Enterprise funds, Capital Project funds, lnteraal Service funds, and Trust/Agency funds. In addition to preparing a comprehensive overview/surranary of each of the major budgets, a comparison of the 2005, 2004 and 2003 expenditures of each fund is provided in the summary below. 53_3 1. GENERAL FUND The proposed 2005 General Ftmd Budget, which is comprised of eighteen departments, totals $29,929,985. This 2005 General Fund Budget reflects an 8.55% increase over the 2004 Budget (or $2.17 milliou). After pulling out the new expense of General Government debt, the adjusted iucrease will actually Genetial Ftmd Budget increase over last year would be 6.86%. The most significant factors contributing to this increase are: 1) payment of Government Center debt payment ($430,000) - new expense to the General Fttnd; 2) increase payment to the LEOFF I Pension fund ($162,718); 3) increased set aside for medical and salary increases ($187,713); 4) increase in PERS and LEOFF employer contributions ($119,000); 5) increased paymeut to the ER&R fund - adding patrol vehicles to ER&R ($167,000); increase to Streets - overlay program ($50,000); Engineering ($176,000); and General Facilities ($46,000). The high cost of employee's medical benefits, which has been budgeted at a 25% increase next year, is taking a significant toll on the budget. It will be a major priority to explore with City employees and the labor unions the prospect of shifting away from the traditional City-funded medical program to establishing a medical benefit allowance for each employee to apply to their selected medical plan. In order to fund this additional General Fund liabilities, the General Fund actual revenue resources have been projected to increase by approximately 5.2% (or $1.37 million). Taxes comprise 79% of the General Fund revenue resource and it is projected that we will see a 7.75% increase in this resource next year. B&O, utility and gambling taxes are all projected' to provide healthy revenue resources in 2005, with property tax only growing by 1.6% and sales tax growing by 3.5%. As a result, we are not proposing to increase or add any new fees or charges for services in this budget. The other good news is that two of our primary financial management objectives have been met this year: 1) not issue debt (interfund loans or tax anticipation notes) to fund the City's cash flow needs, and 2) balance the General Fund budget without using "beginning fund balance". It is projected that the Genercd Fund will end this year with a fund balance of $2.35 million which compares to this year's "beginning fund balance" of $975,000 (budgeted $600,000) since our 2004 revenues will likely exceed projections by nearly $1 million. As a result of sound budgeting and strong fiscal constraints this past year, this will provide the General Fund with a sufficient level of "beginning funds" to meet the General Fund's cash flow needs without having to borrow money through interfund loans or issuance of tax anticipation notes. The most distinguishable objectives in the 2005 General Fund budget are as follows: · Balance the General Fund Budget with expenditures balancing with projected revenues · Increase the beginning fund balance to a level sufficient to support General Fund cash flow needs · Maintain focus and continued support and strength for law enforcement services · All Police Department patrol vehicles are be funded for maintenance and replacement through the ER&R fund · All services related to each department are funded by the respective departments (i.e., information technology services and vehicle maintenance/replacement) · Add an additional planner to the Community Development Department to assist in the annexation program and growth planning efforts · Enhance the level of maintenance of City parks by implementing some organizational improvements to the Parks Department (delete Recreation Manager, Lead Services Specialist and two Parks Specialist Sr.; add two Parks laborer and three 3A-time Parks Laborers, Parks Maintenance Supervisor to the Parks Department with an additional V~-time position funded to support the Conference Center Park plaza) · Add Municipal Services Coordinator back into the Executive Department to provide the Mayor with administrative support · Focus on the development of long-term funding options for Streets and Parks maintenance · Maintain same level of funding from the General Fttnd for Street operation and maintenance 514 · Expand the use of technology for the delivmT of City services and use of the City,s website General Fund 2003 Actual 2004 Budget 2005 Budget Legislative - City Council $ 186,515 $ 211,149 $ 225,925 Executive 341,816 255,037 299,158 Financial Services (Adnsnistmtive Services/Finance) 971,839 948,081 1,074,783 Information Technology 569,713 -0- -04 Home Detention 94,752 -0- -0- Parking System 610,000 -0- -0- Municipal Court 717,704 799 932 818,809 Police & Fire Pension (no longer a General Fund department) 1,553,572 -0- -0- Legal - City Attorney 525,621 529 351 571,354 Human Resources 253,819 291 824 347,067 Community Development 833,407 947 983 1,034,118 City Auditor 98,466 106 879 104,354 Economic Development 72,462 150 509 136,467 Law Enforcement 6,779,797 7,891 535 8,467,750 Fire/EMS 5,104,427 5,385 756 5,699,465 Equipment Services 1,377,206 ~0- -0- General Facilities 451,196 508,040 530,369 Engineering 296,088 287,647 469,696 Parks, Recreation, Pool 2,325,493 2,392,835 2,689,049 Non-departmental 7,584,989 4,748,510 5,1 l 1,621 Ending Fund Balance 974,875 !,355,964 2,350,000 General Fund $27,452,001 $26,811,032 $29,929,985 II. OTHER FUNDS Most of the City's programs are funded from revenue sources outside the General Fund. These other funds have combined expenditures well in excess of the General Ftmd budget amounting to nearly 78% of the total City Budget. The nature of the sources of revenue for these funds mandate that these monies only be used for specific purposes. As a result, they are budgeted and accounted for in separate funds. Summaries for each fund can be found in the total Expenditure/Expense table. A. SPECIAL REVENUE FUNDS The Special Revenue Funds are a category of funds which account for proceeds of specific revenue sources which are legally restricted for specific purposes and expenditures. The proposed 2005 City Budget includes eleven special revenue funds: · Arterial S~treets (Fund 101) - dedicated capital construction fund for the purpose of making capital improvements to the City's arterial street system as provided in the City's Transportation Improvement Plan. The design and construction of the Navy Yard Highway Phase 1-D of the SR 304 Project and Warren Avenue off-ramp projects are among a number of transportation system capital projects programmed for 2005. · Street Operating (Fund 102) - the Street program is comprised of three sections: Streets Maintenance (streets/sidewalk maintenance, snow/ice control, assist in abatement of hazardous properties), Traffic Maintenance (traffic control devices maintenance), and Electronics (maintenance of traffic signals, streetlights, telephones, radios, public facilities electrical). · Contingency Reserve (Fnnd 103) - this fund was established as a special revenue fund to protect the City's General Fund in the event of unforeseen and unfunded emergency requirements. The sale of 515 City Hall, Community Development building, and Fire Station are prograrmmed in 2005 with much of the sale proceeds scheduled to be nsed to pay off the ? ~' -00~ interfund loan secured for the purchase of the land for the construction of the uew Fire Station. · Civic bnprovement (Hotel/Motel Tax) (Fund 104) - established as a special revenue fnud for the collection and expenditure of lodging taxes which are to be used for stadinm facilities, convention center facilities, performing arts facilities, visual arts centers and the promotion of tourism. The proposed use of these funds is to provide on-goiag financial support for the new Confereuce Center and Admiral Theater. · Parking System Operating (105) - established to account for the revenues and expenditures for all of the City's parking facilities and lots comprised of the City Parking garage, Bremerton-Harborside Conference Center Parking Garage, Fifth and Park lot and the Craven lots, all metered on-street parking in the City and all fees collected from parking violations. The installation of a new security system and elevator in the City Parking garage are projects programmed in 2005 in the Parking System Operating Fund. In order to adequately examine the fnture fiscal health and liability of the Parking System, a ten-year financial pro forma has been prepared. · Commtmity Development Block Grant (Fund 106) - the CDBG program is responsible for: 1) administration of federal Community Development Block Grant and HOME programs, and 2) establishment and implementation of housing projects using federal, state and private funds. · Abatement RevoMng (Fund 108) - this fund was established as a source of funding for carrying out repair, demolition or removal of conditions which are subject to abatement under the City's building, fire, zoning aud nuisance ordinances. · Police Special Projects (Fuud 110) - created to account for monies and proceeds from the sale of property seized during drug investigations and forfeited pursuant to state and federal law. · Public Access Television (BKAD (Fund 113) - this fund accounts for revenues and expenditures of the Public, Education and Government (PEG) channel which provide public access television service to the citizens of Kitsap County through franchise agreements with local cable providers. The primary objective in 2005 is to resolve the governance issue of BKAT with focns on creating an operational and funding partnership with the County and other public sector entities. · Gift & Donation (Fund 114) - this fund was established as an expandable trust fund for the purpose of accepting gifts and donations on behalf of all departments of the City. · Conference Center Operating (Ftmd 120) - this fund was established to account for and fund the operation, maintenance, security and capital improvements to the new Conference Center and related complex. Monies have been programmed to set aside for fixtures, fnrnishing and equipment in addition to future capital improvements. These additional costs will require an on- going dependent use of hotel/motel tax revenues and the possible need for funding from the General Fund. It is proposed to have a half-time parks laborer and half-time electronic technician position funded from the Conference Center to provide necessary maintenance and support for the plaza grounds, fountain, and exterior and interior of the complex. In order to adequately examine the future fiscal health and liability of the Conference Center, a ten-year financial pro forma has been prepared. Fund ~. 2003 Actual 2004 Budget 2005 Budget Arterial Street $2,121,714 $9,698,270 $16,237,545 Streets Operating 2,342,498 2,391,809 2,493,677 Contingency Reserve 1,623,281 890,000 2,536,300 Civic Improvement (Hotel/Motel Tax) 287,779 437,000 288,800 Parking System Operating 908,667 1,747,509 2,132,301 Comm. Dev. Block Grant 2,523,159 4,027,788 3,352,399 Abatement Revolving 182,813 197,100 357,330 Police Special Projects 324,291 255,000 278,300 Public Access Television 171,043 217,420 237,420 Gift & Donation l l 1,608 I i2,658 109,274 Discretionary Reserve (fund deleted io 2004) 1,082,000 1,020,000 -0- Conference Center Operating _80,168 _865,000 1 246,131 Special Revenue Funds $10,677,021 $21,859,554 $29,269,477 B. DEBT SERVICE FUNDS The Debt Sera,ice Funds are budgeted in order to establish a clearer understanding of the accounting and expenditure of such debt service accouots. The City cun'ently has two debt service funds: · Bond Fund (Fund 201) - established to account for the accumulation of resources for the payment of principal and interest for various general obligation and local improvement district (LID) bonds used to fund capital improvement projects and capital equipment acquisitions~ · LID Guarani. (Fttnd 202) - this fund was established to guaranty the payment of bonds and warrants issued through the establishment of various local improvement districts (LIDs). I Fund 2003 Actual 2004 Budget 2005 Budget / Bond Fund ' $1,843,789 $ 1,958,780 $1,964,310 LID Guaranty Fund 45,308 169,800 !71,500 Debt Service Funds $1,889,097 $2,128,580 $2,135,810 C. ENTERPRISE FUNDS The Enterprise Ftmds am proprietary funds which contain activities that operate in a manner similar to private business. The City has budgeted funding for eight enterprise funds for 2005: · Water Operating (Fund 401) - the program was established to maintain a water supply system that meets state water quantity and quality requirements. The most significant challenge to the water utility will be to regain the financial health of the water utility through maintaining the plan set forth in the utility rate study. The plan includes the increasing of revenues from user fees sufficient to fond the Water system operations and no longer rely upon the use of water shed timber revenues to support the operating fired. Add a new office assistant II position to assist utilities operation and an electronics technician position (position is being split between the water utility and conference center). · Water Capital Improvement (402) - this is a new fund established to segregate and account for the receipt of revenues and expenditure of funds for water utility capital projects. The Eastside Flow & Pressure Zone, Pump Station 4 Reconstruction, Anderson Creek West 580 Zone Development, water main replacement program are among twenty-nine capital projects programmed for 2005. Increased general facilities charges, revenues from timber sales and Water Operating funds will be used to support funding from this capital program. · UL1D No. 2002-Ol(Fund 308) - this fund was established to account for and fund the construction of the water system capital improvements that are to provide special benefit to property owners within the boundaries of Utility Local Improvement District (ULID) No. 2002-01. This capital project will be closed out in early 2005 with the establishment of the final assessment roll and issuanc*of ULID revenue bonds. · Wastewater Operating (Fund 451) - the wastewater treatment plant and wastewater utility system provide for sewerage transmission, treatment and disposal services for utility customers. Similar to the Water Operating Utility, the most significant challenge to the Wastewater utility will be to improve the management of the wastewater debt and regain the financial health of the utility through maintaining the plan set forth in the utility rate study. The plan includes the increase of revenues from user fees sufficient to fund the Wastewater utility operations. · Wastewater Cctpital bnprovement (452) - this is a new fund established to segregate and account for the receipt of revenues and expenditure of funds for wastewater utility capital projects. The Wastewater Treatment Plant capacity upgrade, Pacific Avenue CSO, Anderson Cove Basin 12, 517 Tracyton pump station, Cherry Beach Maiu are among sixteen capital projects planned fox- 2005. · Stormwater Operating (Fnnd 48l) - the stormwater Utility program has been established to provide a city storm drainage capital improvement and maintenance program. Stormwater Cupital bnprovement (482) - this is a new fund established to segregate and account for the receipt of revenues mid expenditure of funds for stormwater utility capital projects. The Storm drainage and catch basin replacement program will be funded in 2005. Utili~. Debt Reserve (Fund 499) - this is a new fund established to more effectively track and account for the reserve funds needed to meet the debt reserve requirements for the three utilities. · GolfCottrse Operating (Fund 407) - this enterprise fund was established to provide for the funding for the operation and maintenance of the Gold Mountain Golf Complex. The Golf Course will expend limited funds for pond improvements and minor capital projects. Fund 2003 Actual 2004 Budget 2005 Budget Water Operating Utility $11,035,184 $ 13,002,591 $ 8,778,736 Water Capital Improvements (new fund) 5,803,000 ULID 2002-1 500,085 963,654 935,860 Wastewater Operating Utility 13,649,353 21,976,127 12,295,010 Wastewater Capital Improvements (new fund) 3,530,000 Stormwater Operating Utility 1,759,683 1,190,804 1,561,027 Stormwater Capital Improvements (new fund) 180,000 Utility Debt Reserve (new fund) 539,000 Golf Course Operating 3,861,851 4,195,728 3,865,280 Enterprise Funds $30,806,156 $ 41,328,904 $ 37,487,913 D. CAPITAL IMPROVEMENT FUNDS The Capital Improvement F~mds account for the acquisition and/or construction of major capital projects by the City unless projects are financed by Proprietary funds. The City of Bremerton currently has eight Capital Project Funds: · Conference Center Capital Project (Fund 301) - this capital fund was established to account for and fund the planning, design and construction of the Conference Center, Parking facility and Park Plaza capital improvements. The sources of revenues include funds from the Kitsap County Public Facilities District, real estate excise taxes, Kitsap Transit, sate of property, and LTGO and revenue bonds. A small amount of resources ($200,000) will be carried over into 2005 to close out this project. · Public Safety Capital Projects(Ftmd 302) - established to account for and fund the costs for constructing public safety capital facilities and acquisition of public safety vehicles as approved by the voted approved 2002 Public Safety-Unlimited Tax General Obligation bond measure. · Government Center Capital Project (Fand 308) - this fund was established to account for and fund the City's proportionate share of the capital costs for the construction of the Bremerton Government Center administered through the Kitsap County Housing Authority using funds from the City's real estate excise tax, LTGO Bond proceeds and General Fund resources. A small amountmf resources ($150,000) will be carried over into 2005 to close out this project. · Parks Development (Fund 310) - this capital fnnd was established to account for expenditures related to Parks capital improvement projects, including the skatepark construction in Eastpark, thermacoat boardwalk railings, Lions shelter and other capital improvements in 2005 which may be contingent upon successfully acquiring related funding. · Pedestrian/BTC Access (Fund 309) - this fund was established to account for and fund the administration, planning, design and construction of downtown pedestrian and transportation center ingress/egress capital improvements which is being administered by the City on behalf of the Washington State Department of Transportation. · Maritime Park (Fired 303) - this is a capital improvements fund established to account for and fired 518 the administration, planning, design and construction of the Maritime Par'k/Naval Museum capital improvement project from state and federal grant funds. · General Goverameat Capital h~provemeats (real estate excise tax) (Fired 305) - this fund accounts for expenditures related to various General Government capital improvement projects, major leases and purchases and special projects. Excise taxes from real estate sales are receipted into this fund and will be used to fund Government Center and Conference Center Park Plaza projects. Significant growth has occurred over the last two years in the collection of real estate excise tax resulting in additional capital pro.am fi~nding for 2005. Our proposal is to use some of these resources ($250,000) to apply toward the Conference Center Park Plaza principal debt. · 2005 Capital Projects - this list of capital improvement projects totals nearly $65 million in parks, general government, golf conrse, water, wastewater, stormwater and streets projects to be initiated in 2005. · 2005-2010 Capital Improvement Program - this is a comprehensive list of capital improvement projects totals more than $183 million in parks, general government, golf course, water, wastewater, stormwater and streets projects which are planned for over the 2005-2010 timeframe. Fund 2003 Actual 2004 Budget 2005 Budge_t Conference Center Capital Project $16,736,514 13,770,809 200,000 Governmeut Center 1,035,492 7,862,956 150,000 Public Safety Capital Projects 13,201,236 9,950,998 8,965,825 Park Facilities Development 1,139,661 928,606 548,240 Pedestrian/BTC Access 324,165 5,700,000 4,359,000 Maritime Park -0- 1,000,000 2,885,000 General Govt. Capital (Real Estate Excise Tax) 4,221,244 _, 928,606 _ 548,240_ Capital Improvement Funds $36,658,312 $39,979,369 $19,387,065 E. INTERNAL SERVICE FUNDS The b*ternal Service Ftmds are used to account for the financing of goods and services provided by one department/agency to another department/agency on a cost reimbursement basis. Within the City budget, are three Internal Service Funds. · Risk Management (Fund 503) fund - all expenses of risk management personnel (Risk Manager and one-half of a City Attorney position) are funded out of the Risk Management Fund. In addition, an adequate level of reserve funds will be maintained to continue to provide the City with security for the general fluctuation of insurance premiums and claims. · Equipment Reserve/Revolving (Fund 550) fund will assume the maintenance and support of 31 patrol vehicles which are planned to be brought into the ER&R fund by the end of 2004. Policies which will address the ER&R fund's vehicle replacement practices are scheduled to be prepared in 2005, in addition to implementing new software pro.am to improve fleet management. ·Inforrnation Technology (Fund 551) fund is to provide an on-going source of revenues through contribu..tions from various departments to fund the purchase of new and replacement computer systems, software and support of the City's network systems, in addition to enhancing the City's website and records management systeln. .Fund 2003 Actual 2004 Budget 2005 Budget Risk Management $2,020,564 $2,306,071 $2,611,507 Equipment Rental & Reserve 5,017,755 5,814,141 5,896,711 Information Technology 75_._6.,44Q 1,009,239 Internal Service Funds $ 7,038,319 $ 8,172,061 $ 9,517,457 519 F. TRUST/AGENCY FUNDS The Trttst/Agency (Fidnciclry) Flmds acconnt assets held by the City of Bremerton in a trustee capacity or as an agent for individuals, private organizations or other governmental units or hinds: · Police/Fire Petzsion (Fund 601) - this fund accounts for payments for medical premiums, pension and disability payments for firefighters and law enforcement officers hired under the LEOFF 1 retirement program. The sonrce of revenue that hinds this program comes from the General Fund which includes a 9% increase in funding from the General Fund to support increased medical & pension costs. Fund 2003 Actual 2004 Budget 2005 Bud?.~!et I Police/Fire Pension -0- 1,903.141 $2,063,640 Trust/Agency Funds $ -0, $1,903,141 $ 2,063,640 SUMMARY We saw truly remarkable progress this past year in the changes to Bremerton's image with the redevelopment of the downtown core. The opening of the new Government Center and Kitsap Conference Center are landmark accomplishments in this revitalization effort. Next year, however, promises to be even more special and rewarding as we embark upon new partnerships and opportunities which will lead toward even further capital improvements and enhancements to our City. The 2005 City Budget will provide the fnnding and policy roadmap for accomplishing the Council's goals. Certainly the increase in demands for municipal services far outweighs the resources available to meet existing needs. Over the years, the City has exhausted its cash reserves and has resorted to borrowing funds to maintain services. We have been working hard to reverse this trend by presenting balanced budgets which do not depend upon the use of bon'owed hmds to fund services, proposing the adoption of sound financial management policies, and finding new ways to "grow" the local economy. We believe the direction and decision of the City Council are appropriately reflected in this budget document. As a result, this proposed 2005 Annual Budget provides the Council with a comprehensive n~~~/~ to guide the City of Bremerton into the new year. Cary Bozeman, Mayor City of Bremerton §20 NOTICE OF PUBLIC HEARING NOTICE IS HEREBY GIVEN that the City Council of the City of Bremerton has fixed November 3, 2004 and November 17, 2004 at 5:30 p.m. in the Bremerton City Hall Council Chambers, 239 4th Street, Bremerton, WA as the time and place for the public hearing to consider the following: 2005 PROPOSED CITY OF BREMERTON BUDGET General Fund City Council $ 225,925 Executive 299,158 Financial Services 1,074,783 Legal 571,354 Human Resources 347,067 Community Development 1,034,118 Municipal Court 818,809 City Auditor 104,354 Law Enforcement 8,467,750 Fire/Emergency Medical 5,699,465 General Facilities 530,369 General Parks 2,689,049 Engineering 469,696 Economic Development 136,467 Non-Departmental 5,111,621 Ending Fund Balance 2,350~000 Total General Fund $ 29,929,985 Arterial Street ( 101) 16,237,545 Street (102) 2,493,677 Contingency Reserve (103) 2,536,300 Civic Improvement (I 04) 288,800 Parking System ( 105 ) 2,132,301 Community Development Block Grant (106) 3,352,399 Abatement Revolving (108) 357,330 Police Special Projects (110) 278,300 Public Access Television (113) 237,420 Gitt& Donations Fund (114) 109,274 Conference Center Operating (120) 1,246,131 Bond Fund (201) 1,964,310 LID Guaranty (202) 171,500 Conference Center (301) 200,000 Government Center (305) 150,000 Park Facilities Construction (310) 548,240 Public Safety Bond (302) 8,965,825 Maritime Park (303) 2,885,000 General Government Capital Improvement (308) 2,279,000 Pedestrian/BTC Access (309) 4,359,000 521 Water Utility (401) 8,778,736 Water Capital Improvement (402) 5,803,000 ULID 2002-01 (403) 935,860 Gold Mountain Golf Complex (407) 3,865,280 Wastewater Utility (451 ) 12,295,010 Wastewater Capital Improvement (452) 3,530,000 Stormwater Utility (481) 1,561,027 Stormwater Capital Improvement (482) 180,000 Utility Debt Reserve (499) 539,000 Risk Management (503) 2,611,507 Equipment Rental Reserve (510) 5,896,711 Information Services (511) 1,009,239 Police & Fire Pension (601) 2,063,640 Total Ali Funds $129,791,347 A copy of the proposed 2005 City Budget will be available to any citizen at the City Clerk's Office located in the new City Hall, Norm Dicks Government Center, 345 6th Street, Six'~ Floor, Bremerton, WA after October 26, 2004. All interested citizens may appear at the public hearing and be heard for or against any part of the proposed budget. Paula Johnston, City Clerk Publication Dates: October 25 and November 1, 2004 Number of Insertions: Two No. Affidavits Required: Two 522