HomeMy WebLinkAbout2322RESOLUTION NO. 2322
WHEREAS, the Comprehensive Plan for the City of Bremerton is
the official statement of City policy that establishes direction
the City will follow as it grows, changes, and redevelops; and
WHEREAS, the Comprehensive Plan which was developed over
several years with tremendous community involvement and discussion
envisioned population growth in Bremerton; and
WHEREAS, the Zoning Ordinance is the tool or mechanism used to
implement specific land uses to achieve the objectives outlined in
the Comprehensive Plan; and
WHEREAS, through increased housing density, the existing
Zoning Ordinance provides for high density residential zones that
can accommodate an increase in population per the Comprehensive
Plan; and
WHEREAS, an increase in population can be accommodated by
providing additional housing units on land already zoned for high
density residential, and on vacant land zoned for single family;
and
WHEREAS, the City of Bremerton desires to provide leadership
to encourage new development consistent with the existing
Comprehensive Plan and Zoning Ordinance while maintaining the
quality of life that makes Bremerton a most liveable City and while
preserving existing stable residential neighborhoods; and
WHEREAS, the City Council adopted Resolution 2307 creating
"Housing Bremerton" with objectives, target areas, and target
populations to guide its deliberations in developing housing
strategies to implement the housing element of the Comprehensive
Plan:
NOW THEREFORE, BE IT RESOLVED THAT THE BREMERTON CITY COUNCIL:
Does hereby adopt "Housing Bremerton" which outlines specific
housing strategies and priorities to be implemented by City staff
in 1991-in order to develop and carry out programs to achieve the
housing policies and objectives in the Comprehensive Plan to
encourage housing development to accommodate growth by:
City-wide strategy:
1. Pro-Active Code Enforcement
2. Complete Scheduled Update of the Comprehensive Plan
3. Development of Incentive Based Development Standards and
Amenities for Urban Renewal, High Density Residential,
and New Construction; such as Standards to Preserve Light
and View Corridors and Public Access to Shorelines.
Neighborhood strategies:
1. Urban Redevelopment Plan for Downtown, including
development of higher density multi-family projects.
2. New Construction in East Bremerton and Kitsap Lake/West
Hills
3. Rehabilitation of Owner-occupied Homes in West Bremerton
and Manette; and
BE IT FURTHER RESOLVED, that this Resolution supersede
Resolution 2307.
PASSED by the Bremerton City Council this 10th day of October, 1990.
ATTEST:
~sk~j~y,~'ty Clerk
HOUSING BREMERTON
"Housing Bremerton" is an implementation strategy designed to
direct and prioritize City efforts to stimulate housing development
consistent with the existing Comprehensive Plan and Zoning
Ordinance to accommodate population growth through increased
housing density that maintains viable liveable neighborhoods
including the downtown core.
TNTRODUCTTON
Bremerton was recently named by Money MagaZine as the #1 Most
Liveable City in America. The criteria used to evaluate areas and
determine ranking consisted of items such as: quality of the
natural environment and concern for its preservation, low
unemployment rate, housing that is "affordable", and a low crime
rate.
Bremerton, Kitsap County and the Puget Sound region are under
tremendous pressure to grow and develop--while at the same time
preserving the "quality of life", and the natural environment that
make this are so desirable.
Events are Upon Bremerton: Vision 2020 proposed by the Puget Sound
Council of Government spotlights us as one of four metropolitan
centers of Puget Sound. The recently adopted Growth Management Act
"2929" requires cooperative City-County planning to focus growth in
urban centers in order to protect what is left of rural and natural
areas. Housing in Bremerton is affordable to middle class working
people. However, the vacancy rate for rental units is currently
less than 2%, rents are increasing, and the number of homeless is
on the rise.
In its desire to get development going, to implement the plans it
has developed in cooperation with local residents and business
owners, the Mayor and City Council directed City Staff to develop
a specific housing strategy. "Housing Bremerton" is the City's
strategy to guide staff efforts and the budget in 1991 to implement
the Comprehensive Plan and Zoning Ordinance which provide for
population growth by increasing housing density. This means
construction of hew housing units, demolition and redevelopment of
obsolete and inappropriate residential and commercial buildings, as
well as rehabilitation of sound economically viable residential
structures.
Housing Bremerton directs staff efforts to complete studies, take
actions, and finance housing programs in 1991. There are
strategies that will be carried out City-wide, and separate
strategies for individual neighborhoods in order to take advantage
of existing development and preservation opportunities.
City-wide staff will:
1. Conduct an aggressive Code Enforcement Program;
Conduct the scheduled update of the Comprehensive Plan in
coordination with regional implementation of the State Growth
Management Act; and
3. Develop urban design standards for urban renewal, high density,
residential, and new construction areas.
Neighborhood Based~Strategies:
1. New construction of single and multifamily housing emphasizing
East Bremerton, Kitsap Lake and West Hills,
Conduct an urban redevelopment study of "DowntOwn" in
preparation of an Urban Renewal determination, such study to
include the goal Of stimulating higher density multi-family
housing in Downtown;
Rehabilitation of owner occupied units city-wide emphasizing
the West Bremerton and Manette neighborhood.
Each of these strategies will be discussed in more detail later in
this document. A map of the neighborhoods referred to is attached
in Exhibit A.
RELATIONSHIP TO EXISTING COMPREHENSIVE PLAN
The Comprehensive Plan is the official statement of City Policy
that establishes the direction the City will follow as it grows,
Changes, and redevelops. It contains goals, policies and
objectives upon which City Land Use decisions will be based.
The Comprehensive Plan was adopted on July 9, 1986. It is the
product of two years of work involving over 100 meetings with more
than 300 individuals representing residential and business
interests.
Housing Bremerton relates directly to implementation of three areas
within the Comprehensive Plan--Neighborhood Land Use, Residential
Land Use and Central Business District Land Use. Housing
development envisioned in the Comprehensive Plan and proposed
through Housing Bremerton will involve construction of new high
density residential buildings in and immediately adjacent to the
During 1991, the Comp Plan will be reviewed to determine if it
still provides the necessary direction to accommodate anticipated
population growth per Vision 2020 and the Growth Management Act
2929.
Housing Bremerton did not attempt to forecast the results of this
planning effort, nor to organize and staff the citizen
participation effort necessary to add to the high density
residential areas already proposed.
RELATIONSHIP TO EXISTING ZONING ORDINANCE
The Zoning Ordinance was adopted in 1988 to specifically map out
the land use objectives of the Comprehensive Plan. The zoning
Ordinance provides for specific areas where high density
residential, multifamily and single family are to be located
consistent with the Comprehensive Plan.
The Zoning Ordinance provides the opportunity to change to higher
density development through new construction. It identifies areas
of incompatible land use. For example, single family homes may be
present on land zoned for multifamily, and in some cases there are
existing older commercial uses on multifamily zoned land.
Consistent with zoning, these structures can be demolished or
redeveloped to provide higher density housing.
New construction of higher density on appropriately Zoned, but
underutilized land is the primary development opportunity in
Bremerton today. Mousing Bremerton is designed to focus attention
on and to direct City efforts to promote development of high
density residential zones.
Housing Bremertom also emphasizes preservation of existing single
family neighborhoods. Many neighborhoods today, such as Manette,
provide a good mix of multi-family and single family development.
Manette is one of Bremerton's most diverse yet stable
neighborhoods.
However, Mousing Bremerton in no way prevents a private developer
from seeking a fezone to increase or change residential zones. All
fezone requests will be reviewed and a determination made by the
Planning Commission and the City Council.
RELATIONSHIP TO VISION 2020 AND GROWTH MANAGEMENT ACT 2929
Mousing Bremerton is intended to focus on a combination of specific
development actions such as new construction and rehabilitation,
and specific planning efforts such as the scheduled update of the
Comprehensive Plan -- immediate and longer-term actions to
stimulate development needed now and to plan for changes over the
longer term. Longer term planning needs to be done with full
citizen participation from the affected areas, and must be
coordinated with required City-County planning efforts to comply
with Vision 2020 and the Growth Management Act 2929.
PROCESS
Housing Bremerton was developed in two steps. Step one consisted
of identifying objectives, target areas and target populations to
guide discussion to ensure that all neighborhoods and all income
level persons/households were considered in developing housing
programs or strategies. The objectives, target areas, and target
populations were adopted by City Council Resolution #2307 on August
8, 1990.
Step two involved identification of target neighborhoods,
discussion of population, income demographic and housing
information for the neighborhoods for the purpose of identifying
housing strategies to be initiated by the City for each area/
These strategies were then prioritized in terms of immediate and
longer term. A list of various organizational and agency as well
as financing mechanisms were developed and reviewed in order to get
a sense of "who and how" the priority strategies would be
implemented and funded. These are attached in Exhibit B.
At the conclusion of the meeting the Housing Sub-Group had
identified the "first priority" housing strategy for each target
neighborhood. Staff has then worked to incorporate these "first
priorities" into the 1991 budget. The second, third, and fourth
priority strategies identified will be evaluated during 1991 to
determine how and if they should be reprioritized, and if each is
still a priority. Housing Bremerton is flexible and is designed to
be revised by City Staff, Mayor and City CoUncil.
Subsequent to the Housing Sub-Group meeting, staff met with all
other members of the City Council to brief them on the process and
conclusions reached during step two of Housing Bremerton.
Throughout this process, staff and the Housing Sub-Group have met
with and considered comments from Housing Flagship, a task force of
the Flagship group. Flagship is a non-profit organization
consisting of private citizens and business leaders in the
community interested in the growth and development of Bremerton.
Flagship has organized itself into separate task forces to study
and make recommendations to the City in issues such as Housing,
Transportation, Tourism and the Waterfront.
The process to adopt Housing Bremerton will culminate with City
Council adoption of a Resolution amending the Comprehensive Plan to
incorporate the housing objectives, target areas, and strategies.
A public hearing before the full City Council will preface
consideration and adoption of the Resolution.
HOUSING BREMERTON OBJECTIVES
Accommodate population growth by increasing housing density as
per the City's Comprehensive Plan·
Housing Bremerton consists of actions to implement a plan
developed over several years involving input from a vast
cross-section of the Bremerton Community. It is not meant
to be a replacement or alternative plan.
Expand the tax base -- increase Commercial and employment
options.
Housing that is both affordable and desirable to the existing
work force, the growing employment market -- service industry,
along with new housing construction opportunities attractive
to new industries looking to relocate in Bremerton and
Kitsap County is key to our continued growth, stability and
continued low unemployment. Increasing the tax base will
generate revenue that can be used to improve and expand basic
services and amenities such as parks and open space.
3. Support development of housing for all income groups.
Bremerton is seeking to diversify the range of household
incomes in the City. Currently, 67% of the total households
have incomes at or below 80% of the area median income. The
federal Department of Housing and Urban Development or MUD
defines 80% of area median income as low income. Therefore,
the City desires to attract households with higher incomes as
the population grows in order to provide a better mix of
incomes and households.
Increase home ownership throughout the City for all income
groups. ~
Only 40% of current households own their own homes. This
is surprising since the majority of housing units are
single family detached structures. The average home price is
$55,000 to $65,000, the lowest in the entire Puget Sound
Region. Monthly mortgage payments are generally lower than
rent payments. Of the 40% who own their own homes, household
incomes are low, middle and upper income. Increased home
ownership is key to long term stability of neighborhoods,
growth and pride in the community.
Demolish and/or redevelop deteriorated commercial and
residential structures.
Scattered throughout Bremerton are commercial and residential
structures that have outlived their "useful economic life."
These structures are too deteriorated to be rehabilitated or
are inappropriate uses for current zoning or were not
designed, built nor maintained up to code. These structures
need to be demolished. Demolition will provide opportunity
for land assembly, new construction and in some cases
rezoning to foster new higher density development.
In addition, there are numerous residentlal and commercial
structures in all neighborhoods in the City that are
structurally sound, interesting architecturally, are
increasing in value and suffer only from deferred maintenance.
These structures will benefit from rehabilitation, maintain
the backbone residential character of existing neighborhoods,
and are affordable to many first time home buyers, low income
and middle income households.
No displacement of existing low income residents· One-for-one
replacement of low income units demolished or lost, or
relocation of low income residents if one-for-one replacement
is unfeasible.
Bremerton recognizes that it is home to many low income
households in the country and accepts its responsibility to
provide decent, safe, and affordable housing for this and all
other income groups. However, as population growth occurs in
Bremerton, the City wants to emphasize increasing the number
of middle and upper income households to provide balance to
the existing low income households. At the same time, the
City is not interested in displacing existing low income
households for new middle and upper income households.
Develop Housing strategycatering to a diverse housing market,
including the Navy as one segment.
Bremerton is proud to be the home of Puget Sound Naval
Shipyard, many of its workers, and Naval personnel. However,
Bremerton recognizes that it is more than "just a Navy toWn."
Bremerton is emerging as a metropolitan growth center within
the Puget Sound Region and its "affordable" housing is
attractive to many middle income households who can no longer
afford to both live and work in King County. The City intends
to encourage these households to live in Bremerton and commute
via ferry to Seattle and King County jobs.
TARGET AREAS
Housing Bremerton is a city-wide effort encompassing all Bremerton
neighborhoods, including the downtown. Five major neighborhood
areas have been identified including: Downtown, West Bremerton,
West Hills/Kitsap Lake, Manette and East Bremerton. The boundaries
for these neighborhoods conform to the census tract boundaries for
ease of compiling and analyzing data. A map of the neighborhoods
is attached, Exhibit C.
Housing Bremerton identifies the "areas" most in need based on
demographic population, income and housing quality data. Specific
housing strategies have been developed for each neighborhood and
prioritized.
TARGET POPULATION
Housing Bremerton affects all households in Bremerton regardless of
size or income. As is stated in the objectives, the City desires
to promote programs for all kinds of households.
The focus of population growth and construction of new single and
multi-family units will be targeted to middle and upper income
households in order to attract them into Bremerton and provide
balance to the number of existing low income households.
Rehabilitation of existing economically viable housing units, as
well as replacement of existing units occupied by no-income, low
income and moderate income households will maintain housing
affordability , prevent displacement, and upgrade the quality of
the existing housing stock. Standards for acceptable housing
quality applies across the board and is not determined by the
income of the household occupying the unit. A double standard on
quality which sets one standard for low income and another for
upper income is not acceptable.
SUMMARY OF DEMOGRAPHIC HOUSING AND INCOME PROFILES BY NEIGHBORHOOD
The following summary was derived by looking at available census
and PSCOG (Puget Sound Council of Governments) data. The data,
displayed by neighborhoods is contained in Exhibit B.
DEMOGRAPHICS
o West Bremerton which has twice the population as other
neighborhoods and is primarily single family, is also
nearly twice as dense as other neighborhoods.
o Elderly households are evenly located throughout the City
and comprise 11% to 16% of total population, except for
Kitsap Lake/West Hills which has substantially fewer elderly
residents.
o Family households defined as households with children
comprise 46% to 53% of total households in all areas with
two exceptions. Kitsap Lake/West Hills is comprised of 67%
family households and Downtown which as only 29% family
households.
o Female heads of household comprise 14% - 18% of family
households throughout the City, again except for Kitsap
Lake/West Hills which has substantially fewer.
o There are more non-family households and single householders
in Downtown which is typical.
HOUSING
o The oldest housing stock is located in DowntoWn and West
Bremerton where 99% and 75% of housing units respectively
were built prior to 1969.
o The majority of housing units in the City were built in
1949-1969 and were located in East Bremerton, Manette and
West Bremerton. Fewer units were built during this time in
Downtown which was a traditional commercial cove and
therefore did not include residential units.
o Since 1969 the majority of new construction has occurred in
East Bremerton and Kitsap Lake/West Hills.
o Owner occupancy is much higher in West Bremerton where 53%
of the units are owner occupied.
o Owner occupants comprise 38% to 44% of units in East
Bremerton, Manerrs and Kitsap Lake/West Hills.
o Downtown has the highest number of rental units - 76% of
housing units, which is typical.
INCOME
o Downtown contains the highest percent of the lowest income
households of all areas of the City.
0 Manette, West Bremerton and Kitsap Lake/West Hills have
roughly the same number of low income households--43% to
47% of total households. East Bremerton has the lowest
number of low income households--36% of total households are
low income.
o Households with incomes in the moderate to middle income
range, $20,000-$40,000 are evenly spread throughout all
neighborhoods, except for downtown which has fewer moderate
and middle income households.
o Middle and upper income households are generally located
East Bremerton and Kitsap Lake/West Hills.
o There are very few upper income households, 1% - 2% of total
households, but these are evenly spread throughout all.
neighborhoods.
CONCLUSIONS
Manette and West Bremerton have similar profiles.
East Bremerton and Kitsap Lake/West Hills have similar
profiles.
The profile of Downtown is consistent with that of older
established cities.
The strategies developed to meet housing needs should
address the three areas above.
The strategies should be tempered to:
1. conformwith existing zoning ordinance and comprehensive
plan;
emphasize use of vacant or underutilized parcels of
land;
rehabilitate what is sound and demolish what is
unsound--and rebuild on an infill basis; and
provide both rental and owner occupied units in price
ranges that
attract new middle and upper income households; and
provide some mix of low and moderate income
households with middle income households in certain
areas to ensure that low income households do not
become concentrated in any one area, such as
households Downtown or West Bremerton.
HOUSING STRATEGIES POINTS OF EMPHASIS
Following is a list of the recommended housing strategies to
address the objectives, needs, and demographics of existing
neighborhoods and proposed growth and development within these
neighborhoods.
1. Construction of new single family in Kitsap Lake and West
Hills· Provide incentives to include some moderate/low income home
ownership opportunities within these developments.
2. Rehabilitation of existing sound residential units City-wide,
with an emphasis on West Bremerton and Manette. The focus of this
effort will be on owner occupied units.
3. Construction of new multifamily housing units in existing zones
that permit multi-family development throughout the City with an
emphasis on: a)development of market rate units in West Bremerton
and Manette, and b)development of some mixed income multi-family
units in East Bremerton and Kitsap Lake/West Hills.
4. Demolish dilapidated units and construct new infill single
family and multi-family housing designed to fit-in with the
character of the surrounding residential units in West Bremerton
and Manette as well as city-wide. Market purchase single family
homes to middle and upper income households in these neighborhoods.
5. Institute an aggressive code enforcement program' beginning in
West Bremerton and Manette (but eventually getting to East
Bremerton and Kitsap Lake/West Hills) to force
uPgrade/rehabilitation or demolition and redevelopment. The City
will work with the Navy to encourage it to upgrade the housing
units at East Park. Consider establishing a minimum housing code
as the basis of deter mining the suitability and habitability of
units. Code enforcement will be conducted in Downtown consistent
with Urban Development Plan described below.
6. Downtown - rehabilitate, .demolish, and construct--through
process of urban renewal--new rental, tOwnhouse, condominium units
and commercial space per the zoning ordinance and comprehensive
plan. Develop specific density and design standards to ensure that
highest quality of units and pedestrian amenities ar provided. An
urban renewal determination can only be made after a substantial
planning effort involving existing residents and business owners
(including new owners of the Bremerton Trust properties) is
completed consistent with State Urban ReneWal law.
7. Develop design standards for new development, particularly new
multi-family; including requirements for set backs, landscaping,
modulation, playscapes, unit sizes/bedroom mix, tenant amenities,
alley/street vacations and street closures. Special design
standards are required for areas designated as "Urban Renewal,, such
as in the Downtown Waterfront Urban Renewal Area. Design standards
are important because they set the standard for expectations on the
quality of housing produced to ensure that developments do not
deteriorate over time into "slums."
1991 CITY HOUSING PRIORITIES - IMPLEMENTATION
The City of Bremerton will adopt a "First Priorities First"
approach to implement Mousing Bremerton in 1991 by directly
matching staff and budget resources to specific tasks. A "First
Priorities First" approach will dedicate limited resources
efficiency to produce tangible effective results.
1991 Housing Priorities are two-tiered. There are three city-wide
strategies, and three neighborhood specific strategies to be
implemented. The City's Department of Community DevelOpment will
have the lead in developing and carrying out each strategy..
It is necessary to state again that the City's emphasis on these
priorities in no way precludes or prohibits private and non-profit
developers from producing housing, including applications for
rezones. All permits and fezone requests will be processed
consistent with established City policy and plans.
CITY-WIDE STRATEGIES:
1, Code Enforcement: to be developed and conducted by the
Building Department. Code enforcement will be pro-active and
aggressive consistent with a plan developed with and approved by
the Mayor and City Council. .
2. Update of Comprehensive Plan: to be completed by the Planning
Department as scheduled in the Plan. The update of the
Comprehensive Plan consisting of broad based community input is the
proper vehicle to consider if and where additional high density
residential zones should be located in Bremerton. Housing
Bremerton will be revised accordingly to implement the updated
Comprehensive Plan.
3. Development of Design Standards: to be completed by the
Planning Department beginning with the Downtown Waterfront Urban
Renewal Area. A point of emphasis in development of design
standards for higher density housing will be "environmental design"
which identifies ways to locate and design structures in order to
make them safe, provide privacy for tenants, and reduce
opportunities for crime.
NEIGHBORHOOD STRATEGIES:
1. Urban Redevelopment Plan--Downtown: to be completed by the
Planning Department. This will be a study to determine, consistent
with State Urban Renewal Law, designation of "an' urban renewal
area." It will incorporate business and resident input in
developing a plan for higher density residential and commercial
development. One element to be considered when developing the
Plan, will be identification of the appropriate agent to implement
urban renewal and whether or not it is an Urban Renewal Agency.
2. New Construction --East Bremerton and Kitsap Lake/West Hills:
to be completed by Community Services in partnership with a private
or non-profit developer. Community Services can assist the
developer to obtain permanent financing at a below market interest
rate to provide homes and multi-family rentals affordable to
moderate and middle income households.
3. Rehabilitation of Owner OccUpied Homes--West Bremerton and
Manette: to be completed by Community Services This program will
be based on the current successful Housing Rehabilitation Loan
Program. Emphasis will be placed on the West Bremerton and Manette
neighborhoods. However, it is the intent of the program to be
available to homeowners city-wide. The City desires to work
coOperatively with the Bremerton Housing Authority to provide the
financing for the rehabilitation loans.
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