HomeMy WebLinkAbout4917 ORDINANCE NO. q'~17
AN ORDINANCE of the City Council of the City of
Bremerton, Washington, adopting a new Bremerton
Comprehansive 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 l, 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-om
analysis, mad 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 1995 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
Bremerton 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
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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 staff and 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
heating 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 governn~ental 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.
SECTION 2. 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
anaending 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. SeverabiIity. 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.
by the City Council theJ_~,at4.2~ day
APPROVED
2004
PASSED by the City Council the~,~___ day of ~_~.z~_~..d_~, 2004
DP~REN NYGP,_E'N, d~cil President
Approved this ~caC day of ~.t~,,_,~t..4~ ~____~ 2~
CARY BOZEMAN, Mayor
3
2004 Comprehensive Plan
ATTEST: APPROVED AS TO FORM:
P ~o',(~ ~)~q, ~i~y Clerk '~GER A. I~UBOVICH, City A~
PUBLISHED the~.a~/t.L_ day of S/j~LL.~,~'~ ,2004 .~
EFFECTIVE the~day of .~c 4 j,.,~,~,~-e~ ,2004
ORDINANCE NO. 4017
R:\LEGAL\Ordinances\Community DevelopmentL2004 Comp Plan Adoption].doc
4
2004 Comprehensive Platt
AFFIDAVIT OF PUBLICATION
No. Ad # 100133098
STATE OF WASHINGTON
COUNTY OF KITSAP
I, Christine Nelson, being first duly swom on oath, deposes and says: That she is now, and at all times
embraced in the publication herein mentioned was the principal clerk of the printers and publishers of THE
SUN; that said newspaper has been approved as a legal newspaper by order of the Superior Court of the
County of Kitsap, in which County it is published and is now and has been for more than six months prior
to the date of the publication hereinafter referred to, published in the English language continually as a
daily newspaper in Bremerton, Kitsap County, Washington, and is now and during all of said time, was
printed ......... h
~n an office matntmned in the aforesmd place of pubbcat~on of sa~d newspaper; December 7 , 2004
and that such newspaper was regularly distributed to its subscribers during all of said period. That the full
mount of the fee charged for the foregoing publication is the sum of $27.90 which amount has not been
paid.
,,,,..%
,-' ~'- ..... 90%
,,- ¥..- -..e~.¢
rfP:" ~O~'A'9 k '{.~ % (Signature of Principal Clerk)
: : ~p,¥4,2008 :z
Subs~b*d anCswora, qo b~r~ me this day of December 14~, 2004.
?
",xx,'' ' /~
ORDINANCE NO. 49 l?'
AN ORDINANCE of the City Council of tb¢ City of Bremerton, Washington, adopting a new Bremerton
Comprehensive ?lan.-
APPROVeD by the City Conncil ~¢ 1?th of November, 2004.~
PASSED by the City Connci] the I st of December, 2004.-
The full te×t of this ordinance is available ~'om the City Clerk's Office, 345 6th Slzeet, Bremerton, WA
98337-1873.-
Deceurber 7, 2004.°#]00]33098-
City of Bremerton
Comprehensive Plan
Adopted:
December 2004
EXHIBIT A
City of Bremerton
Comprehensive Plan
Adopted:
December 2004
Department of Community Development
345 6th Street, Suite 600
Bremerton WA 98337
(360) 478-5275
City of Bremerton
Comprehensive Plan
Acknowledgements
Mayor
Cary Bozeman
City Council
Daren Nygren, Council President, District 3
Cecil McConnell, Cotmcil Vice President, District 2
Carol Arends, District 7
Brad Gehring, District 1
Will Maupin, District 8
Wendy Priest, District 4
Dianne Robinson, District 6
Mike Shepherd, District 5
Mike Short, District 9
Planning Commission
John W. Cockburn
Judith Freiberg-Nerf
Jessica Kennedy
Andy Kosusko
Clarence Nelson
Linda Streissguth
City of Bremerton
Comprehensive Plan
Elements of the Plan
Table of Contents
Introduction
Community Character
Land Use
Housing
Transportation
Environment
Economic Development
City Services
Technical Appendices
(In a separate volume)
TABLE OF CONTENTS
INTRODUCTION SECTION ~ 1
MAKING VISION INTO REALITY: COMPREHENSIVE PLANNING ................... 3
Planning's Inverted Pyramid ................................................................................................... 3
The Format of the Comprehensive Plan ................................................................................. 4
The Growth Management Act ................................................................................................. 4
The Thirteen Basic Goals of GMA ........................................................................................... 5
Citizen Participation .................................................................................................................. 6
Coordinated Policies ................................................................................................................. 6
Concurrency and Levels of Service ......................................................................................... 7
Agency Compliance .................................................................................................................. 7
Relationship to Regulations ..................................................................................................... 7
Periodic Review and Update of the Comprehensive Plan .................................................. 7
MEETING THE CHALLENGE OF GROWTH ............................................................. 8
The Parameters of Change: Population and Employment Growth Projections ............... 8
Growth Projection Summary ................................................................................................... 9
Eventual Growth Intent .......................................................................................................... 11
EVENTUAL GROWTH MAP ....................................................................................... 14
COMMUNITY CHARACTER ELEMENT ~ 15
THE VISION FOR BREMERTON'S FUTURE ............................................................. 16
INTRODUCTION ........................................................................................................... 17
SHAPING BREMERTON THEMES ...................................................................................... 18
1. Distinctive Growth, with Viable Neighborhoods and Centers that Provide
Greater Choice and Convenience ....................................................................................... 18
2. Enticing New Development, with a Focus on the Downtown Regional Center..... 19
3. Supportive Transportation, with Seamless, Efficient, and Varied Choices ............. 20
4. Improved Accessibility, especially for the Pedestrian ................................................ 20
5. Quality Housing, with Broader Choices ....................................................................... 21
6. Business Support, with Increased Opportunity ........................................................... 22
7. Environmental Management, Integrating Natural Systems ...................................... 23
8. Community Service, Focusing on Assets ...................................................................... 24
9. Design Review: Advancing quality urban development ........................................... 25
OVERVIEW: SHAPING THE COMMUNITY'S CHARACTER ............................... 26
Design Review Process Description ...................................................................................... 26
COMMUNITY CHARACTER GOALS AND POLICIES .......................................... 28
CONCLUSION ................................................................................................................ 38
City of Bremerton Comprehensive Plan i
LAND USE ELEMENT I~ 39
LAND USE VISION ........................................................................................................ 39
INTRODUCTION ........................................................................................................... 42
Concerns of a Wider Public: State and Regional Issues .................................................... 43
Responding to the Technical Challenges ............................................................................. 43
THE CENTERS CONCEPT: THE FOUNDATION OF THE LAND USE
ELEMENT .................................................................................................................. 44
Common Center Characteristics ............................................................................................ 44
Why Centers? ........................................................................................................................... 45
What Are the Benefits of Centers? ........................................................................................ 46
CENTERS DESCRIPTIONS ........................................................................................... 47
NEIGHBORHOOD CENTERS ~GENERAL DESCRIPTION ............................................ 47
Haddon Neighborhood Center .......................................................................................... 48
Manette Neighborhood Center .......................................................................................... 49
Perry Avenue Neighborhood Center ................................................................................ 50
Sylvan Pine Neighborhood Center .................................................................................... 51
Oyster Bay Neighborhood Center ..................................................................................... 51
Kitsap Lake Neighborhood Reserve Center ..................................................................... 52
DISTRICT CENTERS - GENERAL DESCRIPTION ........................................................... 54
Wheaton/Riddell District Center ....................................................................................... 55
Charleston District Center ................................................................................................... 57
Wheaton/Sheridan District Center .................................................................................... 58
DOWNTOWN REGIONAL CENTER .................................................................................. 59
EMPLOYMENT CENTERS - GENERAL DESCRIPTION ................................................ 60
Harrison Employment Center ............................................................................................ 60
Northwest Corporate Campus Employment Center ......................................................61
Port Blakely Employment Center ...................................................................................... 61
SPECIFIC AREA PLANS ............................................................................................... 62
THE URBAN GROWTH AREA .................................................................................... 62
JOINT PLANNING AREAS .......................................................................................... 63
OPEN SPACE .................................................................................................................. 63
OPEN SPACE MAP ........................................................................................................ 64
LAND USE GOALS AND POLICIES .......................................................................... 65
Discussion: Land Use Values and Definitions ......................................................... 65
Goals and Policies Related to Efficient Provision of Services ................................ 73
Downtown Goals and Policies ................................................................................... 74
Land Use Goals and Policies Related to State Protections ..................................... 78
Goals and Policies for Unincorporated Urban Growth Areas .............................. 80
City of Bremerton Comprehensive Plan ii
LAND USE MAP ............................................................................................................. 84
LAND USE DESIGNATIONS ....................................................................................... 85
LDR (Low Density Residential) ............................................................................................. 85
NC (Neighborhood Center) ................................................................................................... 86
DC (District Center) ................................................................................................................. 87
EC (Employment Center) ....................................................................................................... 87
DRC (Downtown Regional Center) ...................................................................................... 88
RC (Reserve Center) ................................................................................................................ 89
CCSR Core Centers Supporting Residential ........................................................................ 90
CC (Commercial Corridor) ..................................................................................................... 90
WWRC (Wheaton Way Redevelopment Corridor) ............................................................ 91
PSRS (Public Sector Redevelopment Sites) .......................................................................... 93
NB (Neighborhood Business) ................................................................................................ 93
LC (Limited Commercial) ....................................................................................................... 94
FC (Freeway Corridor) ............................................................................................................ 94
I (Industrial) .............................................................................................................................. 95
IP (Industrial Park) .................................................................................................................. 95
MI (Marine Industrial) ............................................................................................................ 95
OS (Open Space) ...................................................................................................................... 96
CUL (City Utility Lands) ........................................................................................................ 97
WS (Watershed Lands) ........................................................................................................... 97
HE ( Higher Education) .......................................................................................................... 98
TUPF (Transportation, Utilities, and Public Facilities) ...................................................... 98
HOUSING ELEMENT i~ 99
HOUSING VISION ......................................................................................................... 99
INTRODUCTION ......................................................................................................... 101
Format of the Housing Element .......................................................................................... 102
CURRENT CONDITIONS ........................................................................................... 103
Existing Housing Stock ......................................................................................................... 104
Housing Resources ................................................................................................................ 106
FUTURE HOUSING PROJECTIONS ......................................................................... 107
Calculation of Future Housing Needs ................................................................................ 108
HOUSING GOALS AND POLICIES .......................................................................... 109
Housing Quality .................................................................................................................... 109
New Housing Development ................................................................................................ 111
Affordable Housing ............................................................................................................... 113
Cohesive Neighborhoods ..................................................................................................... 114
Housing Planning and Coordination ........................................................................... 116
CONSISTENCY OF THE HOUSING ELEMENT ..................................................... 117
GLOSSARY FOR TERMS USED IN ELEMENT AND APPENDIX ....................... 120
City of Bremerton Comprehensive Plan iii
TRANSPORTATION ELEMENT ~r121
TRANSPORTATION VISION ..................................................................................... 121
INTRODUCTION ......................................................................................................... 123
Scope and Content ........................................................................................................ 124
EXISTING CONDITIONS ............................................................................................ 124
Traffic Volumes ...................................................................................................................... 124
Level of Service ...................................................................................................................... 125
Transit and Ferry Service ...................................................................................................... 125
Pedestrian and Bicycle Facilities .......................................................................................... 125
EXISTING DEFICIENCIES ...................................................................................................... 126
Roadway Capacity Deficiencies .......................................................................................... 126
Operational, Safety, and Other Deficiencies ................................................................. 126
FUTURE CONDITIONS AND DEFICIENCIES ....................................................... 127
Level of Service Standards ................................................................................................... 127
Future Traffic Volumes and Level of Service ............................................................... 128
TRANSPORTATION GOALS AND POLICIES ....................................................... 130
Multi-Modal ........................................................................................................................... 131
Community Character .......................................................................................................... 132
Environment ........................................................................................................................... 133
Neighborhoods ...................................................................................................................... 133
Parking .................................................................................................................................... 134
Levels of Services/Operations ............................................................................................. 135
Travel Demand Management .............................................................................................. 135
Safety ....................................................................................................................................... 136
Ferry ......................................................................................................................................... 136
Through Traffic/State Highways ........................................................................................ 137
Transit ...................................................................................................................................... 137
Non Motorized ....................................................................................................................... 138
Economic ................................................................................................................................. 138
Downtown .................................................................................................................... 138
PROPOSED TRANSPORTATION IMPROVEMENTS AND COSTS ................... 139
Roadway Capacity Improvements ...................................................................................... 139
Operational, Safety, and Other Improvements ................................................................. 139
Pedestrian and Bicycle Improvements ............................................................................... 139
Transit Service and Facility Improvements ....................................................................... 140
Cost Estimates ............................................................................................................... 140
FINANCING AND IMPLEMENTATION PLAN .................................................... 141
Existing and Projected Revenue .......................................................................................... 141
Improvement Costs/Revenue Comparison ....................................................................... 141
Cit~/ of Bremerton Comprehensive Plan iv
ENVIRONMENT ELEMENT ........................................................... .~43
ENVIRONMENT VISION ........................................................................................... 143
INTRODUCTION ......................................................................................................... 145
The Growth Management Act ............................................................................................. 146
EXISTING CONDITIONS ............................................................................................ 146
Wetlands ................................................................................................................................. 146
Critical Aquifer Recharge Areas .......................................................................................... 147
Frequently Flooded Areas .................................................................................................... 148
Marine Resources .................................................................................................................. 149
Geologically Hazardous Areas ............................................................................................ 150
Habitat Conservation ............................................................................................................ 151
Air Quality .............................................................................................................................. 151
Creeks/Streams and Riparian Zones .................................................................................. 152
Brownfields ............................................................................................................................ 153
ENVIRONMENT GOALS AND POLICIES .............................................................. 154
Sustainability .......................................................................................................................... 154
Waste Reduction/Recycling ................................................................................................ 155
Pollution Reduction/Prevention ......................................................................................... 155
Conservation .......................................................................................................................... 156
Education/Communication/Public Participation ............................................................ 157
Habitat ..................................................................................................................................... 157
Open Space ............................................................................................................................. 158
Water ....................................................................................................................................... 158
Energy ..................................................................................................................................... 159
Development/Redevelopment ............................................................................................ 159
Quality of Life/Public Health .............................................................................................. 160
Environment and Development Regulations .................................................................... 160
ECONOMIC DEVELOPMENT ..................................................... .~.. 162
ECONOMIC DEVELOPMENT VISION .................................................................... 162
INTRODUCTION ......................................................................................................... 164
ECONOMIC DEVELOPMENT GOALS AND POLICIES ...................................... 166
Cittl qf Bremerton Comprehensive Plan v
CITY SERVICES ELEMENT ............................................................ /t~171
CITY SERVICES VISION ............................................................................................. 171
INTRODUCTION ......................................................................................................... 173
CITY SERVICES GOALS AND POLICIES ................................................................ 174
General City Services and Facilities .................................................................................... 174
Customer Service Orientation .............................................................................................. 176
Safety and Health .................................................................................................................. 177
City 13eautification ................................................................................................................. 178
Neighborhood Revitalization .............................................................................................. 180
Economic Development ........................................................................................................ 181
Coordination of City Services with Comprehensive Plan ............................................... 181
UTILITIES ...................................................................................................................... 184
Current Conditions and Capacity versus Planned Capacity ....................................... 184
Current and Projected Conditions - Utilities .............................................................. 184
Table CS.i Utilities Providers and Capacities ................................................................. 185
Federal and State Laws/Regulations .............................................................................. 186
FUTURE CONDITIONS ....................................................................................................... 188
CAPITAL FACILITIES ............................................................................................................. 189
The Heart of the Capital Facilities Section - Concurrency .............................................. 190
LOS Standards ........................................................................................................................ 191
Table CF-i Capital Facility Level of Service Standards - Long Term ......................... 191
Use of varied LOS Standards to support community goals ......................................... 191
City qf Bremerton Comprehensive Plan vi
Introduction
INTRODUCTION TO THE PLAN: "The Planning Framework"
This Comprehensive Plan is the
umbrella policy document that guides
virtually all decisions made by City
government and, in many cases, by
local organizations and individual
citizens. 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 ~ew vigor and activity to this 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
community - 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
future, 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 ensures efficiencies, reduces steps in the wrong direction, and aligns
decision-makers with the community's desired outcomes.
City of Bremerton Comprehensive Plan Intro-1
Introduction
INTRODUCTION
CONTENTS
MAKING VISION INTO REALITY: COMPREHENSIVE PLANNING ............................................................. 3
Plannin$'s Inverted Pyramid .............................................................................................................. 3
The Format of the Comprehensive Plan ............................................................................................... 4
The Growth Management Act ............................................................................................................. 4
The Thirteen Basic Goals of GMA ....................................................................................................... 5
Citizen Participation ............................................................................................................................ 6
Coordinated Policies ............................................................................................................................. 6
Concurrency and Levels of Service ...................................................................................................... 7
Agency Compliance ............................................................................................................................. 7
Relationship to Regulations ................................................................................................................. 7
Periodic Review and Update of the Comprehensive Plan .................................................................... 7
MEETING THE CHALLENGE OF GROWTH ................................................................................................ 8
The Parameters of Change: Population and Employment Growth Projections .................................. 8
Growth Projection Summary ............................................................................................................... 9
Eventual Growth Intent ..................................................................................................................... 11
EVENTUAL GROWTH MAP ........................................................................................................... 14
City o. f Bremerton Comprehensive Plan Intro-2
Introduction
Making Vision Into Reality: pedestrian linkages between housing and
Comprehensive Planning shopping areas, specific types of pedestrian
The construction of this plan is hierarchical - each features, or architectural compatibility to blend
layer linked to and directly related to the previous commercial buildings with surrounding uses.
layer. One way to understand a Comprehensive
Plan is to see it in the form of an inverted pyramid. At the very bottom of the inverted pyramid are
the regulations, budget decisions, and
p · , · programs that the City adopts and employs in
lannlng s Inverted Pyramld daily operations. Continuing the example, this
Community Vision level might include the adopted zoning
provisions for commercial uses within each
GENERAL VISION neighborhood, City budget items for pathway
~ Community Goals improvements within the new mixed use
neighborhood, or design review standards that
Community Policies / ensure compatibility of commercial uses in a
/
residential area.
~ Community-basedJ
~ Regulations, / The pyramidal organization communicates the
~ Budgets & / essential, democratic nature of planning. The
~ProgramsJ pyramid describes a public process in which
, , community members define their vision in
~ ~ ~ increasing detail to the point that policy
SPE IFIC AC ION guidelines are provided to public officials.
Each policy is based on community goals, and
each commtmity goal is based on community
At the top of the pyramid is the statement of vision. The Inverted Pyramid Model
community values contained in a vision demonstrates two very important things: 1)
how the community's vision is translated to
statement. The vision statement expresses
citizens' wishes for the future in a general action, and 2) the basis for the regulations,
sense. It is the basis for all that follows, budget decisions, and programs that the City
should implement.
Moving down the pyramid, one finds a set of
related long-term community goals. These The Comprehensive Plan completes the first
goals give additional focus to the vision. For three levels of the Inverted Planning Pyramid.
It is based on community vision statements that
example, if the vision is for convenient
grew out of intense participation by a wide-
neighborhoods, a goal might be to encourage range of community members. A working
shopping and services within easy walking
distance of residences, committee of citizens developed planning
goals. Finally, committee leaders provided
Farther down in the inverted pyramid model, detailed policies to aid Plan implementation.
there are more specific statements called The Plan sets the stage for the final, most
policies. Policies detail the kind of actions that
it will take to accomplish the goal, essentially detailed, level of community work depicted in
providing the "means" for the "ends" the pyramid. This final stage is the adoption of
suggested in goal statements. For example, the regulatory, budgetary, and programmatic tools
goal to encourage services near neighborhoods that fully implement the Plan. This final stage
might be implemented by policies to require is on-going, to follow adoption of the Plan.
City of Bremerton Comprehensive Plan Intro-3
Introduction
The Format of the Comprehensive Plan ~
In addition to the primary task of
implementing the community's vision for the
future, the Comprehensive Plan must respond
to the real challenges facing a community. In
other words, the goals and policies must
address the conditions (current and projected) The Growth Management Act
that the community faces as it attempts to move In 1990, the Washington State Legislature
toward its desired future. How many people passed the Growth Management Act, largely as
will live in the community? What will traffic a response to the realization that "business as
be like? What types and amounts of housing usual" was leading to significant, costly
will be required? What services will be problems. The GMA provides a framework for
needed? How will the costs of development be communities to address the challenges of
covered? The goals and policies contained in growth in a more coordinated and sustainable
this plan respond to these challenges, way. It recognizes that central issues exist for
all communities and that these issues have
This Plan is organized into seven chapters implications for the State as a whole. At the
called "elements". This organization responds heart of the GMA is a requirement that each
to the requirements of the State of community deal with the trend of sprawling
Washington's Growth Management Act development patterns. It recognizes that urban
("GMA" or "the Act") to distinctly address the sprawl is central to the problems facing
subjects of Land Use, Transportation, Housing, Washington's communities, including rising
Utilities, Economic Development and Capital traffic congestion, environmental degradation,
Facilities. The "Shaping Bremerton" public loss of natural resource lands, and costly
update process generally produced regulatory/property rights conflicts.
corresponding elements but combined the
subjects of Utilities and Capital Facilities in an The Act further encourages local plans to
element entitled "City Services." Additionally, address key goals of the people of the State as a
the Plan includes an "Environment" element whole (see next page), with coordination from
with a focus on Bremerton's natural resources, one jurisdiction to the next. Much of this
Finally, to summarize the direction set by the coordination is accomplished through the
Plan and to set urban design goals, Shaping Kitsap Regional Coordinating Council and the
Bremerton participants crafted a seventh work towards County-wide Planning Policies.
element called "Community Character" Finally, most critically, the Act empowers each
element, which contains the overarching vision community to respond to such issues in a way
statement for the Plan, just after the that is consistent with its unique needs,
Introduction section, community vision, values, and goals.
A community vision statement, drawing on both An important measure to assure this planning
the wide public participation and input from approach is the requirement that all plans
multiple jurisdictions and organizations, precedes constructed under GMA address the following
each element chapter. Each element also includes 13 basic planning goals.
discussion of current conditions, anticipated
changes, needs, and projections. This information
helps frame the challenges ahead in growing
towards the community vision through the each
element's goals and policies.
City of Bremerton Comprehensive Plan Intro-4
Introduction
The Thirteen Basic Goals Of GMA Permits. Applications for both state and local
Hereby endorsed by the Plan permits should be processed in a timely and fair
Urban Growth. Encourage development in urban manner to ensure predictability.
areas where adequate public facilities and services Natural Resource Industries. Maintain and
exist or can be provided in an efficient manner, enhance natural resource based industries,
Reduce Sprawl. Reduce the inappropriate including timber, agricultural, and fisheries
conversion of undeveloped land into sprawling, industries. Encourage the conservation of
low density development, productive forest lands and productive agricultural
lands; discourage incompatible uses.
Spr'a~ Open Space and Recreation. Encourage the
~'~7~ ~} 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.
/1~ Environment. Protect the environment and enhance
~ ~K~~ 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
~'~.~.. ~1P jurisdictions to reconcile conflicts.
'Trlldl~ion~llown Public Facilities and Services. Ensure that those
public facilities and services necessary to support
Transportation. Encourage efficient development shall be adequate to serve the
multimodal transportation systems that are development at the time the development is
based on regional priorities and coordinated available for occupancy and use, without
with county and city comprehensive plans, decreasing current service levels below locally
Housing. Encourage the availability of established minimum standards.
affordable housing to all economic segments of Historic Preservation. Identify and encourage the
the population of this state, promote a variety preservation of lands, sites, and structures that have
of residential densities and housing types, and historical/archaeological significance.
encourage preservation of the housing stock.
Economic Development. Encourage economic Additional Core Issues to Address:
development throughout the state that is In addition to responding to these thirteen goals,
consistent with adopted comprehensive plans, the GMA asks that each community address certain
promote economic development opportunity additional core issues. These issues are addressed
for all citizens of the state, especially for throughout the Plan, referenced or discussed below.
unemployed and for disadvantaged persons, Citizen Participation
and encourage growth in areas experiencing Protection of Natural Resources and Critical Areas
insufficient economic growth - all within the (addressed in the Environment Element)
capacities of the state's natural resources, Urban Growth Areas (addressed in the Land Use
public services, and public facilities. Element and at end of this Introduction chapter)
Property Rights. Private property shall not be Coordinated Policies
taken for public use without just compensation Concurrency and Levels of Service
having been made. The property rights of Agency Compliance
landowners shall be protected from arbitrary Relationship to Regulations
and discriminatory actions. Periodic Review and Update of the Plan
City ~f Bremerton Comprehensive Plan Intro-5
Introduction
Citizen Participation
The Act requires "early and continuous" citizen
participation throughout the planning process.
The first Comprehensive Plan developed in
response to the Act in April, 1995, was adopted
through an intensive citizen committee process.
The preparation of this 2003 Plan Update was
again guided by community participation,
following a City Council-approved Public
Participation Program for the process, found in
Appendices. The vision statements, goals, and
policies of each element were developed by
open-membership citizen committees,
following general workshops held around the
city. Moreover, numerous public events, Coordinated Policies
including open houses and a design charette to Cities and counties are required to work
gather mapping ideas, were held throughout together to establish County-wide Planning
the update process to allow the broader Policies, which provide a regional policy
community to comment on the work of the framework. By working to ensure that their
plans address a common framework,
citizen committees. Over a dozen public
hearings were held by the City of Bremerton neighboring jurisdictions create consistency
Planning Commission before it was adopted by between their plans. This inter-jurisdictional
the City Council in their own public hearing consistency meets the requirement of the
Growth Management Act and also provides
process, benefits to each community. These benefits
include less conflict between jurisdictions, more
predictable regulatory environments across
political boundaries, and a more coherent and
understandable growth strategy.
The County-wide Planning Policies for Kitsap
County are developed with both staff and
elected official participation from the City of
Bremerton. They are regularly reviewed and
endorsed by the City of Bremerton before
adoption or amendment by the Kitsap County
Board of Commissioners.
City of Bremerton Comprehensive Plan Intro-6
Introduction
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
In order to deal with traffic and congestion Not only are local plans required to be
which results from new development, consistent with each other, but State agencies
are also required to comply with local plans
transportation planning requirements now and development regulations.
include the measuring of Levels of Service
(LOS). The Level of Service measurement
requires an account of the current, expected, Relationship to Regulations
and acceptable levels of congestion and service Land use regulations, such as Zoning
qualities for the local community. There must provisions, are the primary tools that
be discussion within the community that leads implement the Comprehensive Plan. Therefore
to adoption of future standards, and a plan that they must be consistent with the Plan. If the
assures that - as development occurs -the Plan shows high-density residential
adopted standard will not be violated. This is development in a particular location, the
called the concurrency requirement. Plans may Zoning Map should also reflect such. If the
also require that other urban services, such as Plan calls for street development standards
police protection, water and sewer service, within low-density neighborhoods, these
library services, etc., be maintained at a LOS set standards must be crafted, adopted, and
by the community, "concurrent" with growth, applied as new development occurs.
Periodic Review and Update of the
Comprehensive Plan
Following adoption of the updated
Comprehensive 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
amendments to Plan will only be considered
during biannual reviews.
City ~f Bremerton Comprehensive Plan Intro-7
Introduction
Meeting the Challenge of Growth The Parameters of Change: Population and
Employment Growth Projections
The following sections discuss In projecting the City of Bremerton's growth,
the expected population there must be consideration of past trends
which show negligible population growth over
increases that this Plan several decades. However, historical growth
proposes to accommodateas patterns are not consistent with local, regional,
well as the methodology or State goals that include increasing the
proportion of growth in existing urban areas.
employed to calculate the size Under the Growth Management Act, as well as
of that increase, the regional strategy agreed to within the
Kitsap County County-wide Planning Policies,
By state law, the Washington State Office of stagnant population levels within Bremerton
Financial Management (OFM) is tasked with will be broken. This plan proposes changes in
providing a population allocation for each county the community design ethic, as well as
in the State. It is left to the County, and the emphasis on regulatory incentives. Thus,
jurisdictions within it, to cooperatively decide Bremerton will attract a larger percentage of the
where and how the population growth will be projected population growth than in the past.
accommodated. This leads to questions about the
portion of growth to be directed to cities and the The Plan's key urban design concept is "The
capacity of urban services to accept growth. It Centers Concept", detailed in the Land Use
should be understood from the outset, however, Element. Population growth for the City is
that the OFM allocation - while mandated by State largely calculated on the ability of the
law - is really a broad range of potential growth strategically-placed, mixed-use activity centers
numbers, allowing for flexibility in establishing to attract new residential, commercial, and
local growth projections, industrial uses, (partially demonstrated in the
)
Kitsap County and its jurisdictions, including
the City of Bremerton, agreed to each conduct a
community dialogue about the desired future -
how it wants to grow and accommodate a
portion of the State's population allocation to
the County. Bremerton has conducted just such
a process through this Plan's update, resulting
in a citizen-driven vision for growth. (See "The
Vision for Bremerton's Future" in the
Community Character Element.) Citizens
spoke clearly to the type of future community
they envision. The City employs that vision to
determine locations for new growth and to 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.
City of Bremerton Comprehensive Plan Intro-8
Introduction
Growth Projection Summary reduced to correspond to the expected
population growth within the 20-year planning
time frame. This step was accomplished
The Land Use (LU) Appendix through a Geographic Information System-
includes five tables that detail based analysis of the proportion of land within
specifically the population the center that was unde,,elol ed or
significantly underdeveloped. The analysis
and employment projections then looked at the relative availability of key
behind this plan. The services such as water, sanitary sewer, storm
sewer, and transportation at each proposed
following is a summary, only. center location. The proposed Centers were
"rated" (See Appendix) by the proportion of
the full build-out expected within the next 20
years. These calculations are reflected in Tables
Background 1, 2, and 3 of LU Appendix.
Population and employment projections were
analyzed for 125 different zones in the City. Population projections for the Employment
For convenience and consistency, Centers were based on discussions with the
Transportation Analysis Zones (TAZs) used by owners of the sites. A modest twenty-year
Kitsap County were also employed for the buildout of 750 persons is expected for each of
City's projections. Existing 2000 statistics for the 3 Employment Centers. That number was
each TAZ were projected forward to the year then assigned to the appropriate TAZ.
2023 - the end of the 20 year plarming horizon However, these calculations assumed no
of this plan. That projection was made by population growth in the Employment Centers
assuming that the rate of residential within the first six years of the planning period.
development in most TAZs would continue at As a result, 6-year capital facility finance
approximately the same rate as reflected by the planning, especially transportation and growth
1995-99 growth. The viability of this growth impacts, do not include any portion of the 2,250
was checked by referring to the 2002 Kitsap population expected for Employment Centers.
County Buildable Lands Analysis. That
analysis confirmed more than sufficient Twenty-year center population was
developable property exists to accommodate disaggregated to the appropriate TAZs and
this level of "background" growth throughout added to the non-Center population
the City of Bremerton and its Urban Growth projections. This resulted in the final year 2023
Area. In addition to this "background" growth, population projections for each TAZ, as listed
new employment and residential uses expected within Table 4 of the Land Use Appendix.
in "centers", were appropriated to the TAZs. Total projected City population in 2023 was
projected at just over 50,000 (Table 4, column
Population Projection 10). This is an increase of approximately 13,000
Population projections for Neighborhood and over the 2000 census figure of 37,165 for the
District Centers were based on commonly City. Of this increase 7,574 people, or
accepted models for the size and proportion of approximately 58% of the growth, occurs in the
residential uses in centers. Multiplying each new Neighborhood or District Centers (See
center's residential acres by assumed Table 4, column 8). Population in the City's
residential densities and household sizes current UGA is projected to be 58,500,
yielded a potential population within the center compared to an estimated 2000 UGA
at full build-out. The full build-out was then population of 44,815.
city of Bremerton Comprehensive Plan Intro-9
Introduction
Employment Projections
Total employment was calculated in essentially
the same manner. Year 2000 Kitsap County
TAZ employment data was used to make
projections of year 2023 employment by
applying the growth rate data from the
Washington State Department of Employment
Security. Employment forecasts for each center
were added to the corresponding TAZ.
The LU Appendix provides the resultant
projection for each TAZ.
In sum, employment forecasts indicate 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 (45%) will be in the Centers. Significant
developable land area within the City is
provided for new employment-generating
activities.
One of the basic assumptions here is that such
predictions will need constant monitoring,
reassessment, and recalculation. The
projections employed by this Plan are based on
key measures of the scale and scope of future
growth. They are the result of employing the
best available base data sources, which often
does not address the City's specific interests.
The model ultimately encompasses multiple
steps that, in turn, rely on the estimates and
projections available. Finally, they are an
attempt to make predictions in a world that
will be affected political and societal changes of
the future.
City qf Bremerton Comprehensive Plan Intro-10
Introduction
Eventual Growth Intent regional growth policies suggest a much
...... -:~ 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
urbanizing neighborhoods at the edges of the
City, and these areas will put increasing
demands on City services. This pattern is most
evident along the Highway 303 corridor from
East Bremerton to Silverdale where the capacity
and inertia for growth are greatest. Most of this
large area was designated for urban growth in
There is a broadly accepted notion - although a the County's 1998 Comprehensive Plan - some
greatly misplaced one - that the growth of cities of it in the East Bremerton Urban Growth Area
is fueled by their "greed" for land and tax (UGA) south of Riddell Road that was
revenues. Geography and money do figure "assigned" to Bremerton, some of it in the
into the growth equation, but not in the way Silverdale UGA, and much of it in a "non-
that many observers may appreciate, associated" UGA. The question that the "non-
associated" UGA designation did not answer in
There are two prime reasons why cities may that plan is, "What urban jurisdiction should be
need to expand their city limits: 1) more land is both responsible and accountable for the
needed for new people or businesses moving to delivery of required urban services to this
the city and there is little available land for urbanizing area?"
development, and 2) the tax base of adjacent
urbanizing areas that generate increasing For many years, Bremerton will be affected
demand on City services may be needed to pay more by urban growth levels outside its City
for those services. This second reason - the limits than within them. With the continuing
need for financial ability to deliver urban urbanization outside the City, there is increased
services to expanding urban areas - is perhaps demand for urban services. This demand will
the more significant of the two. A city's be met somewhere, sometime, by someone. If
financial capacity is driven by efficiency, not met locally, the demand for services such as
Efficiency determines the cost of services to neighborhood parks, schools and libraries will
users and taxpayers, determines the level and be satisfied by driving (or busing) to other
quality of services delivered, and influences communities. Bremerton can influence
growth patterns and quality of life interests of whether growth has positive or negative
the entire region. Bremerton's decision about effects. The degree of influence that can be
growing into unincorporated areas is primarily exercised is largely linked to who ultimately
one of cost-efficiency, assumes responsibility to plan for and provide
the urban services.
Bremerton did not grow in population for The Plan goals, policies, and land use
several decades, and the loss of significant
retail activity was a part of this stagnation. The model for future growth are intended
i ' ' ' to guide the future both within
C ty s physical expansion could not be justified
by past growth trends. However, changing current City limits and into a larger
demographics, downtown revitalization, and area-of-interest surrounding the City.
City of Bremerton Comprehensive Plan Intro-ll
Introduction
unincorporated suburbs, beginning in the early
1980's. It is the higher tax base - both in property
and sales tax - of these commercial 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
Traditional Com, m~tm~al Eventual Growth Intent Map on page 13 depicts
If land use patterns and intensity of development the City's area of long-term interest. The City
are not planned to promote efficient delivery of recognizes the need for more detailed planning in
urban services, either of two things happens: 1) such areas, and for more coordination with Kitsap
levels of service decline, or 2) taxes increase. How County. In addition, detailed analysis regarding
does Bremerton ensure efficiency if the City is not the provision of urban services in the City's UGA
in control of the land use patterns in the areas it is will be accomplished in the near future. In the
assigned to serve? interim, this Eventual Growth discussion section
recognizes that the already urban or urbanizing
Service efficiency is determined by revenues and areas in the County should, under growth
service costs. Service costs are a reflection of what management precepts, be associated with a city.
types of service and how much of those services The existing Bremerton-associated Gorst UGA sets
are provided (commonly referred to as "level of the example with its inclusion in the City of
service" or LOS). Setting level of service is one Bremerton's proposed Urban Growth Boundaries.
side of a policy decision: "What LOS does the
community expect for its desired quality of life?"
This is answered by the public stating expectations
in the policies of the Comprehensive Plan. The
other side is, "How does the City afford to provide
that desired LOS?" This is answered by the City
promoting economic growth and development -
setting land use patterns, intensities and densities
in the Comprehensive Plan that allow service
efficiencies and produce adequate City revenues
to maintain services at the desired LOS. The Barker Creek drainage area (pictured above),
just west of the County Fairgrounds in East
This discussion of the City's eventual growth Bremerton, is designated as a non-urban
intent recognizes that the entire urban area in environment that could separate Bremerton and
central Kitsap County has a shared future. Routes Silverdale's long-term growth areas. This
of travel, responsiveness of emergency services, drainage feature is a valuable ecological resource,
disposal of waste, opportunity for recreation, as it retains a vestige of the natural systems that
access to goods and services and all other urban prevailed across East Bremerton until
functions are common to the entire East Bremerton suburbanization took hold in the 1970s. It also
area. Eventual addition of these areas to provides open space as a balance to the expanding
Bremerton's UGA and the incremental urban areas, as specified by the GMA.
incorporation into the City will help the City
recoup some of the retail activity that "bled" to the
City of Bremerton Comprehensive Plan Intro-12
Introduction
Bremerton's interface with Port Orchard Over time, unincorporated land between Gorst
reflects the natural separation created by and Bremerton will be added to the City's UGA
Sinclair Inlet and the experience that visitors as that land is needed for additional growth.
have approaching Bremerton by car from the Depending on rates of growth, these
south. At Gorst, where two State highways conversions may or may not happen within the
meet, Port Orchard is behind the traveler and current 20-year GMA planning horizon. The
the focus is ahead to Bremerton. Gorst is the City of Bremerton believes that such urbanizing
real entry to Bremerton. areas around the City should be associated
with the City's growth future, and will work
toward demonstrating the capacity to be the
provider of urban services in these areas.
Eventually, Bremerton's ability to provide
urban services will answer questions left
unsettled in the designation of UGAs
surrounding Bremerton in Kitsap County's
1998 Comprehensive Plan. These questions
include: "To whom is the future development
of this area tied?" and, "Who will provide the
required urban services?"
As Sinclair Inlet ends in the shallows of the
Gorst Creek inlet, (pictured above) the
landscape continues south as a wide valley
with an undulating floor along Highway 3.
The existing Bremerton City Limits follow the
west side of the highway for several miles. The
industrial lands in this area provide some of the
prime venues for the City's economic growth.
They have excellent transportation access, can
be linked by transit to nearby residential
growth areas, and are largely free of critical
area lands.
Between this area and urbanizing lands outside
of Port Orchard, the Sunnyslope rural area
provides a beneficial separator between the two
cities. By agreement among Bremerton, Port
Orchard, and Kitsap County, the Sunnyslope
separator provides long-term certainty about
each community's ultimate growth, without the
need for either city to "push" its respective
UGAs in the short term to protect future
interests.
City of Bremerton Comprehensive Plan Intro-13
h~troduction
City of Bremerton ~4 ~
Eventual Growth Pro
I I I I I [ I I Feet
0 5,000 10,000 20,000 30,000 40,000
C it¥ Ch E1 ' ~ ~
ommun aracter ement ' ~ ~ :
COMMUNITY CHARACTER ELEMENT
"This Element aspires to
summarize and clarify the issues of
growth and to elevate the importance of
planning the city's physical future."
The Vision.for Bremerton' s Future
The cit&ens of Bremerton embrace their city, with pride in its assets and accomplishments, ami
with optimism about the opportunities it affords. Bremerton is a progressive, active city with
diversity in its residents, and with its economic, residential and recreational opportunities.
Founded and shaped by a maritime legacy and a 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 wilderness.
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 setting, provide walking
convenience to employment, recreation, amenities, goods, and services. 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 flexible 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 friendly, personable atmosphere.
City of Bremerton Comprehensive Plan CC-1
Community Character Element
COMMUNITY CHARACTER ELEMENT
CONTENTS
THE VISION FOR BREMERTON'S FUTURE ...................................................CC-1
INTRODUCTION ........................................................................................................ CC-3
SHAPING BREMERTON THEMES .............................................................................. CC-4
1. Distinctive Growth, with Viable Neighborhoods and Centers that Provide
Greater Choice and Convenience ...................................................................... CC-4
2. Enticing New Development,Focus on the Downtown Regh~nal Center .......... CC-5
3. Supportive Transportation, with Seamless, Efficient, and Varied Cho&es ...... CC-6
4. Improved Accessibility, especially for the Pedestrian ....................................... CC-6
5. Quality Housing, with Broader Choices ........................................................... CC-7
6. Business Support, with Increased Opportunity ............................................... CC-8
7. Environmental Management, Integrating Natural Systems ........................... CC-9
8. Community Service, Focusing on Assets ....................................................... CC-lO
9. Design Review: Advancing quality urban development ................................ CC-11
OVERVIEW: SHAPING THE COMMUNITY'S CHARACTER .......................................CC-12
Design Review Process Description ................................................................... CC-12
COMMUNITY CHARACTER GOALS AND POLICIES .............................. CC-14
CONCLUSION .................. , ...................................................................................... CC-24
City of Bremerton Comprehensive Plan CC-2
Community Character Element
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 Kitsap 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
compliance with the mandates of the The Community Character Element
State's Growth Management Act, failed directs attention to the physical result
to attract significant new investment or expected from the implementation of
population to Bremerton. In the this plan. The goals and policies of the
interim, planners and citizens alike have element frame the City's on-going
recognized the many encumbrances to discussion on the urban design issues
the City's growth. These include the asserted by citizens during the creation
lack of adequately-sized sites for of the overall Plan. Providing a general
redevelopment, inflexibility in codes for discussion of the desired look and feel
creative development practices, and a of the "future Bremerton', this Element
persistent, negative perspective of enables readers to understand the
Bremerton as an obsolete commercial common threads that wind through the
hub. With such encumbrances now remainder of the Plan's Elements.
addressed in the Comprehensive Plan,
the Community Character Element is The Community Character Element is
introduced to ensure coordination and organized around the themes of the
quality in the City's development. Shaping Bremerton update process:
The Community Character Element 1. Distinctive Growth
highlights the goals and polices from 2. Enticing New Development
this Comprehensive Plan that focus on 3. Supportive Transportation
the quality of future growth in 4. Improved Accessibility
Bremerton. It is the response to a citizen 5. Quality Housing
6. Business Support
call for new growth that enhances the
7. Environmental Management
extraordinary setting and well
documented quality of life enjoyed in 8. Community Service
Bremerton. In sum, it details for citizens 9. Design Review
and city officials the manner in which
the City should grow. Most specifically,
it provides a foundation for future
design parameters and incentive
programs in the development code.
City of Bremerton Comprehensive Plan CC-3
Community Character Element
Shaping Bremerton Themes integrated throughout the city to offer
and promote higher density lifestyles.
During the development of this Transitional densities and buffering
Comprehensive Plan, citizens groups techniques further protect the qualities
created goals and policies related to of exclusively residential-use
functional subjects such as land use, neighborhoods from the mixed use
transportation, economic development, centers, neighborhood activity areas,
and the environment. The participants and transportation corridors.
of the public process soon realized a
series of distinct themes were emerging The City will demonstrate a leadership
from the work. The themes, described attitude towards achieving cohesive,
below, encapsulate the community's stable neighborhoods that have a
aspirations for the future. The following homeowner majority. The City will do
sections elaborate on those themes, this by delivering responsive public
actions to improve neighborhood
1. Distinctive Growth, with Viable policing, code enforcement, and other
Neighborhoods and Centers that public services. Communities (defined
Provide Greater Choice and in the Land Use Element as a collection
Convenience of neighborhoods and activity areas
within the City) will enjoy new vibrancy
with a wider variety of possible
residential types. 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.
Bremerton's neighborhoods and
communities direct the City's future Designated Centers, as well as existing
growth. Their architectural styles and traditional neighborhood businesses,
scales, established boundaries, and will provide convenient commercial and
central features provide criteria for new employment services, helping to reverse
development. Central features, such as the loss of residents and commercial
a neighborhood's viewshed, park, or activity to areas outside the City. At the
shoreline access - whether existing or same time, the City will be on guard
desired - should guide the design and against negative traffic impacts to
orientation (layout) of new buildings, neighborhoods. The City will establish
facilities, and future plans. Design a traffic control program with standards
elements used in new buildings are to for maximum traffic volumes, as well as
be encouraged through new incentives set responses based on the severity of
in the development code. This will the disturbance to the neighborhood.
ensure compatibility of new
development with surrounding
qualities. This is particularly important
in the blending of newly designated
Centers, which are strategic locations
City of Bremerton Comprehensive Plan CC-4
Community Character Element
For more information and specific friendly, welcoming atmosphere. The
policies, please see: City's unique maritime atmosphere, for
Land Use Element, Goals LU1 & LU2; example, will be highlighted through
Transportation Element, Goal T4 such things as dedicated public artwork.
Housing Element, Goals H5, H6, H7; Special development incentives, such as
Economic Development Element, favorable parking provisions, will help
Goal ECl entice projects which accent the City's
Environment Element Goals E8, El2; proud heritage.
City Services Element Goal CS19
Parking supply for commercial activity
areas is critical, but there must be increased
2. Enticing New Develolament~ with sensitivity to efficient circulation and
a Focus on the Downtown Regional residential needs, using techniques such as
Center shared, off-street parking facilities. This is
particularly important in pursuing a full-
service Downtown Regional Center with
primary attractions to draw people
downtown.
An inventory of developable sites with
phased infrastructure plans will be
established and monitored. In key areas
for economic expansion, developable sites
should be pre-qualified for environmental
permitting as "planned actions". This
The City of Bremerton will position strategy will extend to rehabilitation
itself to attract development, especially programs, such as grant funding to clean
opportunities for new employers. This up the City's challenging brownfield sites.
requires the modification of existing Special accommodations, such as advanced
zoning categories to provide sufficient utility planning and the providing of
industrial, commercial, and mixed use cutting edge technology, will further
lands for business opportunities encourage use of these sites. In capital
throughout the city. For example, improvement plans, the allocation of City
newly designated Centers will ensure resources will strengthen the economic
appropriate locations for business base, mostly by leveraging private
zoning, with the support of a critical investment whenever possible, especially
mass of customers and a quality setting for projects that will diversify industrial
for a mix of uses and high density and employment enterprises in Bremerton.
residential development.
For more information and specific policies,
The proactive Centers approach builds please see:
on the City's initial focus on downtown Land Use Element, Goals LU5 and LU6
Bremerton as the Downtown Regional Transportation Element, T13
Center (detailed in the Land Use Economic Development Element,
Element). The mix of uses in such Goals ECl, EC3
Centers emphasizes the need for design Environment Element, Goal E
guidelines and incentives to produce a City Services Element, Goals CS9 & CS21
City of Bremerton Comprehensive Plan CC-5
Community Character Element
20
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 altemative travel options, enabled by
the existing transit and ferry systems.
Additionally, newly designated Centers
will be strongly characterized by
walkable designs, with linkages to one
another and integration into their
surrounding communities. A non-
motorized plan will emphasize safety on
Bremerton's city size and the City's role trails, especially for bicyclists, with
as a regional hub provide a foundation engineered bike lanes and uniform
for an exemplary transportation system, signage. Along the City's trail system
with diverse and convenient mobility there will be new recreational
options. The City of Bremerton will opportunities, encouraging green-space
work with transportation providers to and open vistas as pleasant connections
enhance services and facilities that build throughout the City. Set-backs,
on that diversity, reducing the landscaping requirements, and
dominance of single-occupant stormwater drainage, developed in
automobiles. The development review conjunction with trails, will further
process itself will incorporate transit, support these purposes. Likewise,
pedestrian, and non-motorized street ends, parks, and open space will
transportation elements, requiring offer special opportunities to improve
measures such as bus pull-outs in the access to the shoreline for everyone's
city's rights-of-way. Minimal walking enjoyment.
distance between buildings, streets, as
well as safe road crossings and transit For more information and specific
stops will be an important development policies, please see:
review consideration. Extensions of Transporafion Element, Goals T2,
existing pedestrian, bicycle, and grid T6, & Tll
street systems will provide alternative, Land Use Element, Goals LU3 & LU4
parallel routes which is critical for
regional corridors. Such corridors will
thus be prioritized for expedient
linkages between the downtown and
other designated Centers throughout
the City.
For more information and specific
policies, please see:
Transportation Element, Goals T1,T6,T10
Land Use Element, Goals LU3
Cit~ of Brernerton Comprehensive Plan CC-6
Community Character Element
5. Quality Housing, with Broader high end of allowed residential densities
Choices in locations close to infrastructure
capacities and employment, will yield
cost efficiency, further benefiting new
developers and residents.
Bremerton's disproportionate share of
the region's publicly subsidized (rental)
housing contributes to a weaker tax
base, which is exacerbated by the
correlated need for community services.
The City will focus its housing New strategies will focus on
programs and investments in quality concentrated low quality housing areas
homes for all residents. For example, as opportunities for revitalization of the
the City will evaluate the credit- City, including the use subsidized rental
worthiness of a structure before housing for transitional housing
assisting in its rehabilitation, towards new homeownership
weatherization, or other home opportunities. Public resources will
ownership programs. A higher quality help break concentrations of poverty as
housing stock will also result from new well as remove blighting influences.
codes enabling a larger variety of new Priority will be given to those remove or
housing types. In these efforts, the City abate structures which contribute to the
will promote quality, affordable housing blight of the city's neighborhoods. For
for all family types, ages, and incomes, example, rehabilitation of substandard
including mid and upper income structures will only occur when the cost
households. New, creative housing of rehabilitation is less than the cost of
projects, such as artists' lofts and replacement housing. An exception to
courtyard homes, will meet the needs of this criteria is preservation work,
special populations such as short term associated with structures of historical
residents and citizens in need of or architectural significance. Additional
transitional housing. City preference will be given to special
needs households with children or
Bremerton will promote private and elderly members, within privately
public efforts to secure adequate capital owned developments that contain a mix
for affordable housing projects at of market-rate and below market rate
competitive and favorable market costs, units. Altematively, housing that is
Priority will go to projects that advance entirely publicly-owned and subsidized
owner-occupied traits. Such projects should be dispersed in small,
will also benefit from the elimination of neighborhood scale buildings.
regulatory impediments whenever
possible, improved certainty in For more information and specific
development regulations, and an policies, please see:
expedited permit process. Housing Element, Goals H1, H3, H5
Infill opportunities on vacant or
underutilized parcels, to be built at the
Cit~t of Bremerton Comprehensive Plan CC-7
Community Character Element
6. Business Support, with Increased the development community. For
example, City staff will expedite the
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 of
development interests to property
owners, especially when there are
commercial opportunities for
homeownership sites or improvements
that can contribute to a marketable
quality of life. Likewise, Bremerton's
The City of Bremerton will grow a more exceptional labor pool will be promoted
diversified economy, with greater by the City, with support for workforce
opportunities for its businesses and training programs and business training
residents. The City will go beyond initiatives.
marketing its trained labor force,
convenient setting, and relatively low For more information and specific
land cost, to address residual barriers to policies, please see:
economic growth. State-of-the-art Economic Development Element,
digital communication lines, for Goals EC2, EC5, EC6
example, already throughout City Services Element, CS9, CS11
Bremerton, will be integrated into the
city's utility and infrastructure
planning.
The City and its partnering jurisdictions
will 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 to secure new
primary businesses and employment
opportunities. This is also one of the
critical factors in pursuing annexations
which yield economic gains for the City
of Bremerton.
The main indication of the City's
support for businesses will be a sense of
welcome, customer service, and
teamwork toward property owners and
City of Bremerton Comprehensive Plan CC-8
Community Character Element
7. Environmental Management, Citizens will benefit from a fully
Natural developed open-space system that
increases the amount of green-space and
compliments habitat protection goals,
public safety concerns, and recreational
needs. For example, the system will
integrate active community gardens, as
well as passive areas that preserve the
integrity of riparian corridors and steep
slopes. Well-maintained City owned
properties will also be strategically
incorporated in this system. With
citizen participation, Bremerton will
To ensure the long-term health of protect, revitalize and expand native
Bremerton, the City will promote vegetation and tree supply through the
sustainable growth and activities, making incorporation of suitable native plants in
the City more livable with reduced waste urban landscapes and through the
and less environmental pollution. In this removal of invasive non-native
effort, the City staff will ensure the vegetation.
monitoring of pollution levels, establish
goals for reduction and protection of The transportation system is central to
resources such as groundwater, and the effort of integrating the natural
introduce new development standards, environment with a quality urban
including outdoor lighting and water experience, especially mitigating the
run-off limitations. This will require impact of motorized vehicles on air and
education efforts and public involvement, water quality. Finally, the City will
especially regarding conservation of encourage a systems philosophy in
nonrenewable resources, critical areas, decision making, realizing the multiple
habitats, and diverse ecosystems, benefits of such things as use of
alternative fuels, pervious surfaces, and
To aid this process, the City will invest increased walkability within the City.
in inventorying and mapping its critical
environmental resources, including For more information and specific
shoreline management areas, protected policies, please see:
near-shore habitats, and the proposed Environment Element, Goals El, E3,
establishment of Marine Protected E4,E6, E7, E8, El0
Areas. A grant-funded approach to Transportation Element, Goal T3
brown-fields will identify and restore City Services Element, Goal CS18
potentially valuable properties that
currently lay fallow and detract from a
healthy natural environment. The City
will also demonstrate and welcome
responsible business practices with code
provisions that encourage
environmentally sensitive development
practices, such as onsite infiltration for
stormwater.
City of Bremerton Comprehensive Plan CC-9
Community Character Element
8. Community Service, Focusing on enforce ordinances, especially in
Assets relation to Code Enforcement,
Emergency Management, and
Community Policing. Public safety is
primary, with enhanced development
standards for pedestrians to improve
sidewalks, lighting, and street crossings
throughout the city. The City will make
special efforts to encourage under-
grounding of future and existing
utilities.
Growth strategies, with cost-
Collaborating with citizens and local effectiveness criteria, will necessarily
agencies, proactive community services assert economic considerations for the
will enhance the quality of life in City, especially in decisions to annex or
Bremerton. The use of technology, extend service areas or infrastructure
especially the capacity of intemet, will capacities. Likewise, Bremerton will
further enhance efforts to make City pursue alternative and creative funding
services and public information more mechanisms for public services and
accessible and convenient for citizens, facilities, such as more reliance on
Public facilities and services will licensing and user fees for specialized
services. The City will also work
likewise be conveniently and equitably
located throughout the community, towards a strategic impact fee program,
chiefly through the prescription and recognizing the responsibility of the
monitoring of service levels that reflect development community in providing
for the costs of new growth. Ultimately,
community values in areas such as law
enforcement, fire protection, and however, the success of these efforts is
sanitary sewers. These "levels of dependent on partnerships with citizens
service" will be regularly monitored, and local associations. The City
assuring that capital facilities are acknowledges this fundamental thrust
provided concurrent (at the same time in effective community development,
as) with new development, particularly and will welcome public involvement,
transportation facilities. A safeguard especially in the monitoring, review,
against potential negative impacts of and planning of all City services and
growth, these standards also empower facilities.
more specific planning processes, such
as comprehensive plans for focused For more information and specific
services such as public utilities, schools, policies, please see:
and recreation. City Service Element
Housing Element, Goals H6
Promoting a leadership attitude in
delivering responsive public actions will
be an ongoing challenge in light of
limited fiscal resources. As far as
revenue allows, the City will proactively
City ~f Bremerton Comprehensive Plan CC-10
Community Character Element
9. Design Review: Advancing quality
urban development
The major themes of the Comprehensive
Plan all relate in some way to urban
design issues as they define the desired
look and feel of the community. 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
14, 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
Community Character" and the Goals
and Policies which follow it.
City of Bremerton Comprehensive Plan CC-11
Community Character Element
Overview: Shaping the "When a community'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
aspirations from your surroundings. It strengthened,'
can be the feel of certain building development project is strengthened.
materials - such as cobble stone Through the design review process, new
underfoot, the smell of saltwater tides, projects are enabled to meet community
or viewsheds of mountains and auturan expectations and compliment the
trees - that together, suggest a sense of desired character for a quality urban
place. Over time, we identify our setting.
immediate surroundings as an extension
of our individual lives. Our homes, Urban design operates on various
neighborhoods and communities are scales. It can help orientate people
clearly places where we invest ourselves through the layout of streets and
and share with visitors, but they also buildings. It can place new value on
offer a sense of familiarity to us in a fast- certain building materials, such as
changing world, picture windows at the street level,
which allow for a visual connection
We each have favorite spots in the City, between the indoor and outdoor
be it a friend's front porch, a cozy cafe, a environment.
street bench overlooking the water, or
playing fields at a City park. Our
children gravitate to well-designed Design Review Process Description
places quickly, putting wide sidewalks,
overhead canopies, or bike paths to fast Design Review is not a series of rules as
use. Adults show similar preferences, much as it is a process to evaluate how a
searching out places that are sheltered, project can be best integrated into the
with a sense of security, intrigue, or community. The community's design
welcome. Like the chair chosen in order ethics can be applied to buildings,
to sit comfortably at a table, the streets, land uses, park development, or
"furniture" of our cities can also be any physical element.
more comfortable to us when there are
considerations for the surroundings and Design, itself, suggests care, association,
the preferences communicated by the and sense of identity. When applied in
community, the development of a new project, the
community benefits with improved
Urban design ideas can bring a fresh neighborhoods and compatible
way of perceiving streets, buildings, and businesses. Compatible and
city spaces. Familiarity with good complimentary design also ensures
urban designs also provides insights public improvements such as burying
into why certain places are or are not power lines, enhancing water/sewer
appealing. When a community's urban lines, passing safety bonds, etc. The
design values are considered, a ultimate result is an established,
City of Bremerton Comprehensive Plan CC-12
Community Character Element
27
desirable character that increases
community pride.
The design review process should be b~lt~°~rs~
flexible, encouraging builders to ~owor ..... ,,, ..... ,,, ~ ~ ,, ,
bas'et~
propose innovative designs. Forthis ,,g,~ts
reason, design provisions should be
mostly qualitative rather than ,.~aa#,o.~ ~' I'l
quantitative statements. Quantitative
approval criteria are avoided to ensure ~.ork ~' ~'
that the design review process does not / kicl~plat~///pedestrian
dictate design or introduce a regulatory pti, th sm
burden. This resulting flexibility,
however, should not be construed as
merely advisory or to otherwise All three tiers are considered part of a
diminish the legal effect of basic design Design Review process; however, only
standards as approval criteria for certain Design Guidelines would require a new
public review process, administered by
projects. City staff, during a project's permitting
There are potentially three tiers of stage. Guidelines are a means for
approval criteria for qualifying projects, developers to demonstrate general
First, every new development project compliance with local design values in
within the City of Bremerton should specific areas. For example, an
address the Community Character goals approved neighborhood plan might
establish localized design guidelines
and policies. Second, Design Standards,
and a review committee to augment the
based on the Community Character
goals and policies, shall be developed City's approval authority. Guidelines
and applied as requirements to projects with a public review process can also
work as a substitute for related
in the Centers which meet certain (not
yet defined) thresholds. Finally, Design compulsory standards when agreed
Guidelines developed through sub-area upon by the City.
planning processes, shall be
administered within areas of the City
such as neighborhoods and newly
designated Centers.
City ~f Bremerton Comprehensive Plan CC-13
Community Character Element
Community Character CC1B Ensure that new development is
of a type, scale, orientation, and design
Goals and Policies that improves upon the neighborhood's
desired and defined character,
aesthetics, and qualities.
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
CCI Demonstrate excellent urban development.
design qualities in new development
The acceptance and successful
CC1A Utilize urban design guidelines, cormnunity integration of centers,
standards, and project review especially within or adjacent to strictly
procedures to promote high-quality residential environments, is greatly
development that enhances the positive dependent on development rules and
effects of new investment in procedures that insure projects will add
neighborhoods, to neighborhood quality. Among the
most critical elements to neighborhood
quality are keeping new buildings to a
Discussion: New and remodeled projects similar scale. This ensures that land
can impact an area either positively or uses serve the surrounding
negatively. The application of design neighborhood(s), maintaining traffic
guidelines and standards through a pattems and speeds that promote
design review process for building and pedestrian activity, insuring privacy of
site development helps ensure that the existing residences, minimizing the
effect of new development is positive, effects of light, noise and glare on
These practices also provide assurance surrounding properties, and creating
that new or remodeled buildings structures and improvements that
develop in a manner that does not enhance the visual quality of the
diminish residents' quality of life. This neighborhood.
would apply to all new commercial,
multifamily (attached) structures,
Planned Unit Developments (PUDs),
and exterior remodels of existing
commercial structures.
City qf Bremerton Comprehensive Plan CC-14
Community Character Element
CC1C Ensure on-premise business business signs entirely, except for code-
signs are of size, number, quality, and complying, unobtrusive signs to identify
style to provide identification of the legal home occupations.
businesses they support while
contributing a positive visual character CC1D Prohibit new construction of
to the community, billboards and 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-
premise advertising including
billboards can be among the biggest
contributors to negative imagery. This
advertising detracts from the
surrounding setting and distracts the
Discussion: On-premise signs provide an attention of motorists. Off-premise
important public function by identifying advertising does not share that public
sources of desired goods and services, identification value of on-premise signs.
Cities where signs provide identification The large size of billboard advertising
of on-premise businesses without dominates the immediate visual
degrading the visual environment are
environment as well as reduces the
noted for their high quality community effectiveness of adjacent on-premise
character. Collectively, the effectiveness business signs. To avoid extreme
of business signs is enhanced when they financial hardship to owners of existing
are not too large, too numerous, or too billboard structures, eventual
distracting in visual character, elimination by amortization is
On-premise signs should be of high encouraged.
quality and managed in all urban CC1E Identify and implement ways to
environments to reduce visual clutter, control forms of off-premise advertising
which contributes to a distracting other than billboards.
experience for motorists and to visual
blight, especially in proximity to living Discussion: Small off-premise signs
environments. Business signs in designed to catch the eye of motorists
residential settings should relate to the add visual clutter to streetscapes and are
lower-intensity activity of these particularly intrusive in residential
environments. Sign area and design settings. Signboards placed
guidelines should reflect the relative
"temporarily" near the street edge often
intensity of commercial arterials as well encroach on the sidewalk, impede the
as any unique district character, such as safe movement of pedestrians, and
a historic neighborhood. Exclusively distract motorists. These signs should
residential areas should be free of
be prohibited along all streets.
City of Bremerton Comprehensive Plan CC-15
Community Character Element
30
However, in the pedestrian-oriented CC1G Ensure that display, flood and direct
setting of centers, A-frame sandwich lighting of properties and structures
boards should be allowed as a helpful enhances safety, circulation, and aesthetics
feature to attract customers on foot into without creating light and glare impacts to
businesses, provided that they are sited adjacent properties or reducing public
to retain the capacity of sidewalks for enjoyment of viewing the night sky.
circulation and ADA (Americans with
Disabilities Act) accessibility. Discussion: Lighting on buildings and sites
can have a dramatic effect on the form,
CC1F Support the expansion of wireless mood, quality, and character of an area.
communication networks without creating
negative visual impacts from Indirect Lighting
telecommunication facilities on Light ~ -. Example 1
surrounding properties, the city skyline,
Fixture Ign
and, in particular,
residential
neighborhoods, uilding Side View
Discussion: F--mamle,_Z
Telecommunication Light~.%. ///
facilities, including
Sign
wireless communication Landscape Sign Side View
support towers, can be
visually obtrusive. For Lighting contributes to the convenience of
this reason, efforts should the user and increases the safety and
be made to place them as security of a site, the street, and
efficiently and as surrounding properties during night hours.
effectively as possible, Although the color, amount, intensity, and
thus minimizing the total type of lighting are major factors
number of such sites. For example, contributing to the form and character of
maximum use should be made of existing the city, poorly managed lighting is a
structures that can support nuisance. Careless use of outdoor lighting
telecommunication facilities before new damages the aesthetics of the nighttime
stand-alone facilities are constructed for this environment and decreases security and
purpose. The City should require safety by creating hazards through reduced
telecommunication sites to utilize visually contrast, increased glare, and distraction.
unobtrusive technology, landscaping, and Lighting on buildings, parking and
screening techniques whenever possible, landscaped areas, and the site in general,
should not brightly illuminate or create
In general, telecommunication antennae glare, either directly or indirectly, beyond
should be mounted on existing public the property's boundaries. The use of
facilities such as above-ground water directional or "cut-off" lighting saves
reservoirs or taller building facades, rather energy and resources, allows enjoyment of
than on new towers, the night sky, and gives the city an
attractive night appearance.
City qf Bremerton Comprehensive Plan CC-16
Community Character Element
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 homeowners. 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
requirements and specific siting and
Discussion: An accessory structure that is design controls that ensure
of a greater bulk, larger scale, or greater neighborhood character will be
maintained or enhanced. (See CH1H)
height than the principal structure or
the typical structures of the immediate
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 matching or
less intense than the principal structure.
An accessory land use without a
structure, such as outdoor storage,
should be located and designed to be
subordinate and complimentary 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.
City qf B remerton Comprehensive Plan CC-17
Community Character Element
Discussion: Infill construction can benefit
the community when done in a manner
that does not detract from the area.
Flexible design standards can permit
higher intensity activities with
conditions to be sensitive to the desired
character.
CC2C Encourage building and site
design that allows a variety of housing
CC2 Assure that new development forms and also is compatible with the
relates to surrounding uses and
provides for urban livability character of the immediate surrounding
area, thereby generating community
CC2A Utilize zoning and design support for new types of housing
standards that have flexibility and development.
incentives to ensure excellence in urban
design, and 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 Discussion: Increasing housing densities
provides greater confidence for can enable efficient use of developable
community stability. Adopted sites, protection of sensitive lands, cost-
standards that are adhered to, even in effective provision of city utilities,
areas where guidelines provide provision of affordable housing, and
flexibility, protect and instill assurance increased ridership on mass transit. A
for both established and prospective variety of housing types, such as
residents and investors. The standards townhouses, courtyard buildings, and
should address traffic, parking, loading cluster-housing, contributes to housing
control, structural mass, open space, diversity and interest, and provides more
green areas, lighting, landscaping and opportunities for prospective residents.
buffering, and safety of persons and Compatible design helps make increased
property, as well as noise, vibration, densities acceptable to the current
dust, and odors impacts, residents. Finally, higher residential
density in commercial areas can provide
CC2B Ensure that infill construction additional stability for businesses, while
and area redevelopment are done in a lessening automobile dependence.
manner that reinforces the
neighborhood's desired and defined
character and that architecturally
compliments the surrounding
commercial and residential areas.
City of Bremerton Comprehensive Plan CC-18
Community Character Element
CC2D Promote consistent massing of CC2F Create and improve urban open
buildings, spaces.
Discussion: Development projects should
contribute "in-lieu (of building) shares" of
the cost for open space amenities to be
developed or improved, such as a plaza, tree
planting program, or an urban park.
Landscaping should be planned to establish
a planting strip at least 5-feet wide, with
Discussion: Divergent building scales indigenous plants, between the road and
can be moderated between adjacent sidewalk in all commercial and multifamily
uses, by employing stepped building projects. Fences and walls in the front
heights and softening architectural setback area should be designed to enhance
features. It is particularly important to the quality of open space for both occupants
maintain well-designed transitions and the person on the street, by maintaining
between designated open spaces and as much visual contact between public and
built-up areas, private zones as possible.
CC2E Buildings should demonstrate CC2G Discourage loading, building
efforts to accommodate a human scale systems, and outdoor storage areas from
and ~ locating on the street side of a building,
and/or provide for screening from the view
of streets and adjacent properties.
o~r~ Discussion: Screening of loading areas and
outdoor storage from any public right-of-
way by use of materials similar to the front
Discussion: Human scale can be achieved facade, can mitigate any conflicts. The
through architectural detailing and by screen may consist of a permanent
variation in the three-dimensional architectural feature and landscape elements
character of the building, as it rises such as walls, berms, trees, and shrubs.
skyward. Monolithic, vertical walls along Utility meters and other utility apparatus,
a maximum building footprint are strongly including transformers, should be located to
discouraged. Lower levels should be the rear of the structure and screened from
differentiated architecturally from the rest the view of public streets and adjoining
of the building. Designs that place active properties. Roof top mechanical
uses along the first floor are encouraged, installations shall be appropriately screened
For buildings that front streets (collector so as to block the view from adjacent public
streets or arterials), apartments should be and private streets and properties.
on the second or higher floors. There Screening shall compliment the overall
should be clear articulation of different theme of the building.
users that occupy the lower building levels.
Ground floor street-oriented building areas
should be occupied by active commercial
uses.
City of Bremerton Comprehensive Plan CC-19
Community Character Element
Discussion: Features of well-designed
Centers include streetscapes that give
special attention for pedestrians and
code requirements for all transportation
modes. Buildings such as canopies,
seating, street trees, and well-
maintained, wide sidewalks also
contribute to the attractiveness of
Centers for walking.
CC3C Encourage attractive pedestrian-
CC3 Provide for a safe, pleasant, and
rich pedestrian experience
CC3A Encourage a sense of neighborliness
and community by orienting one or more
building entrances to commercial buildings
towards the pedestrian sidewalks and
pathways that lead to adjoining
Discussion: Creating attractive
pedestrian-oriented development
requires attention to detail. For
example, the provision of ample
sidewalks, street furniture, landscaping,
Discussion: Orienting the business and street level access (physical and
entrance for pedestrian access in visual) make the pedestrian feel more
addition to discouraging placement of comfortable. Buildings in pedestrian-
parking between the entrance and the oriented environments, particularly
sidewalk, attracts the business from the Centers, should be designed to provide
surrounding neighborhood as well as street-level, active uses on all street
the motoring public, fronts. Direct access into buildings from
the public sidewalk encourages walk-in
CC3B Promote pedestrian-oriented traffic. In addition to these measures,
environments in Centers through the the pedestrian environment is enriched
creation of streetscapes and building by buildings with a higher level of
designs that make walking an attractive architectural detail in the street-level
and convenient transportation mode. facades.
City of Bremerton Comprehensive Plan CC-20
Community Character Element
CC3D Encourage attractive transit- 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 stops, location of shelters, lighting,
and safety, as well as accessibility to
other goods and services contribute to
the friendliness and convenience of
transit use. The city should consider
development incentives, such as
increased building height, greater site
coverage, or reduction in parking, in
exchange for transit and pedestrian-
oriented development.
CC3E Mitigate the effect of parking lots If locating a parking structure on the
in centers and other pedestrian-oriented interior of the site is not feasible, the
environments, structure should be oriented towards
commercial uses, with the shortest
dimension fronting the street wherever
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 conflict points for
Discussion: Non-associated surface
parking lots within Centers should be pedestrians with vehicles, especially at
planned to be no larger than 25 spaces primary entrances in front of buildings.
per lot. Parking lots serving businesses Discussion: It is safer and more inviting for
adjacent to each other should be
connected to one another. Surface pedestrians when choke points for motor
vehicles are located as far away from the
parking lots with more than 100 spaces street as possible. Sites with on site
are prohibited between the building parking can be improved with landscaped
facade and the street. Wherever "throats" for cars, allowing stacking (line of
possible, parking will be sited cars) on the lot, rather than on the street or
internally, above or below grade, so that public sidewalks.
street level frontage areas avoid parking
City qf Bremerton Comprehensive Plan CC-21
Community Character Element
36
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.
Appropriate Rear-Loaded Facade Design
CC4 Promote the development of areas
of special character, encouraging a
diversity of communities within the city
CC4A Ensure efficacious application of ~""~ -
th ig p gh th
e Des n Review rocess throu e
existing time parameters of the permit
process, yet incorporate the expertise of Discussion: Urban design guidelines
design professionals and community include text and graphics that illustrate
interests, the desired character within a Center,
community, or neighborhood.
Discussion: Design guidelines are a Guidelines are used to avoid arbitrary
means to encourage design solutions application of prescriptive design
that meet the intent of the requirements during project review.
Comprehensive Plan, especially the They may discuss such features as
Community Character's goals and desired building scales, facade
policies. They represent a flexible treatments, streetscape designs, lighting
application of the more specific and signage, or other physical
development standards, to achieve a characteristic.
more qualitative than a quantitative
result. To have flexibility, however, By State law, design review processes
requires interpretations of a must occur within statutory time
community's specific interest, as limitations. To the greatest extent
specified ahead of time through a sub practical, design review should be
area public process. Such processes conducted concurrently with other
should include design professionals and project approval activities such as
community members, to provide a mix review of building plans or processing
of design expertise and community of land use applications.
values to set up the guidelines and
possibly review the decision of the
City's Director of Community
Development.
City of Bremerton Comprehensive Plan CC-22
Community Character Element
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 special districts, each may need to
develop a set of area-specific guidelines
that augment 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 specific projects in that
particular area. Area-specific guidelines Discussion: Buildings in designated centers
should be flexible enough to allow for will "enclose" the street, creating an
some creative interpretation, intimate urban character. Building facades
that are parallel to the street create a type
CC4D Include design guidelines in of building "wall" that can contribute to
neighborhood planning processes to such a room-like feeling.
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, and, if utilized,
best equipped to determine what purposely modify such to be compatible
neighborhood design details and with re
elements represent the particular
characteristics of their specific area.
Citywide standards 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.
Discussion: Local character should be
demonstrated in the design, especially
through the use of quality building
materials and styles.
City of Bremerton Comprehensive Plan CC-23
Community Character Element
Conclusion In fact, the City has historically
developed in distinct ways, taking into
Individual citizens ultimately define account viewsheds and topography for
community character; however, the example. Sloped terrain, such as in
physical setting can be critical, as an aid Manette, generally yields lower
or hindrance to how citizens associate intensity projects; whereas level ground
themselves and their city. The built tends to develop with greater intensity,
environment demonstrates pride and as seen in the Charleston area.
opportunity, as it represents local Moderate slopes allow a comfortable
culture, assets, and weaknesses. The street grid, while steep hills often result
citizens of Bremerton realize that the in meandering routes and less
"feel" of their City impacts new traditional city blocks. This chapter
investments, civic engagement, and attempts to raise that consciousness, and
personal security. As evidenced in their to accent the Comprehensive Plan's
goals and policies in this vision of new growth and vibrancy
Comprehensive Plan, citizens seek a which is compatible and complimentary
proactive approach to community to the desired and historic community
development and quality growth. The character.
policies specifically suggest quality over
quantity, especially in encouraging new The maritime and historical legacies of
housing development and higher Bremerton, coupled with its natural
density development around central beauty and its unique geographical
features and public amenities, position in the Northwest region,
present an inspiring foundation for
No longer will residents or visitors design review and community
perceive the City's neighborhoods and character. Citizens express deep
commercial areas as places "where admiration and pride in the City's
things just happen". The relationships history, especially its legacy of service to
between places and people, too often the nation. Structures such as the
minimized, will instead be highlighted, Admiral Theater, the Martin Luther
acknowledging their association, King, Jr. Library, World War I federal
purpose, or inherent organization, kit bungalow housing, and the grand
Neighborhood and District Centers will homes seen upon arrival in Bremerton
best demonstrate this concept, designed by ferry, speak to the City's history and
through a planning process to provide the lasting quality of the kind of
convenient services in a unique, development this element advances.
identifiable setting that compliments the Bremerton's community character
character of surrounding communities, ultimately reflects the City's aspiration
to preserve its attributes while
welcoming quality new growth.
City of Bremerton Comprehensive Plan CC-24
Community Character Element
Land Use Element
39 ~
LAND USE ELEMENT
..."working to integrate
diverse citizen interests
into planning maps and a
set of "mapping
instructions,' depicting
how 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 all 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.
City of Bremerton Comprehensive Plan LU-1
Land Use Element
40
LAND USE ELEMENT
CONTENTS
LAND USE VISION ................................................................................................ LU-1
INTRODUCTION .......................................................................................................... LU-4
Concerns of a Wider Public: State and Regional Issues ...................................... LU-5
Responding to the Technical Challenges .............................................................. LU-5
THE CENTERS CONCEPT: THE FOUNDATION OF THE LAND USE ELEMENT LU-6
Common Center Characteristics ........................................................................... LU-6
Why Centers? ....................................................................................................... LU-7
What Are the Benefits of Centers ? ........................................................................ L U-8
CENTERS DESCRIPTIONS .................................................................................. LU-9
NEIGHBORHOOD CENTERS -GENERAL DESCRIPTION ............................................ LU-9
Haddon Neighborhood Center ............................................................................ LU-IO
Manette Neighborhood Center ............................................................................ L U-11
Perry Avenue Neighborhood Center ................................................................... L U-12
Sylvan Pine Neighborhood Center ..................................................................... L U-13
Oyster Bay Neighborhood Center ....................................................................... LU-13
Kitsap Lake Neighborhood Reserve Center ......................................................... LU-14
DISTRICT CENTERS - GENERAL DESCRIPTION ...................................................... LU-16
Wheaton/Riddell District Center ........................................................................ L U-17
Charleston District Center ................................................................................. LU-19
Wheaton/Sheridan District Center ..................................................................... LU-20
DOWNTOWN REGIONAL CENTER ......................................................................... LU-21
EMPLOYMENT CENTERS - GENERAL DESCRIPTION .............................................. LU-22
Harrison Employment Center ............................................................................ LU-22
Northwest Corporate Campus Employment Center ........................................... L U-23
Port Blakely Employment Center ....................................................................... LU-23
SPECIFIC AREA PLANS ........................................................................................... LU-24
THE URBAN GROWTH AREA ................................................................................. LU-24
JOINT PLANNING AREAS ....................................................................................... LU-25
OPEN SPACE .......................................................................................................... LU-25
OPEN SPACE MAP ............................................................................................... LU-26
City qf Bremerton Comprehensive Plan LU-2
Land Use Element
LAND USE GOALS AND POLICIES ................................................................ LU-27
Discussion: Land Use Values and Definitions ................................................... LU-27
Goals and Policies Related to Efficient Provision of Services ............................. LU-35
Downtown Goals and Policies ............................................................................ L U-36
Land Use Goals and Policies Related to State Protections ................................. LU-40
Goals and Policies for Unincorporated Urban Growth Areas ............................ LU-42
LAND USE MAP .................................................................................................... LU-46
LAND USE DESIGNATIONS ............................................................................ LU-47
LDR (Low Density Residential) ......................................................................... LU-47
NC (Neighborhood Center) ................................................................................. LU-48
DC (District Center) .......................................................................................... LU-49
EC (Employment Center) ................................................................................... LU-49
DRC (Downtown Regional Center) ................................................................... LU-50
RC (Reserve Center) ........................................................................................... L U-51
CCSR Core Centers Supporting Residential ...................................................... LU-52
CC (Commercial Corridor) ................................................................................. LU-52
WWRC (Wheaton Way Redevelopment Corridor) ............................................. LU-53
PSRS (Public Sector Redevelopment Sites) ........................................................ LU-55
NB (Neighborhood Business) .............................................................................. LU-55
LC (Limited Commercial) ................................................................................... LU-56
FC (Freeway Corridor) ....................................................................................... L U-56
I (Industrial) ....................................................................................................... LU-57
IP (Industrial Park) ............................................................................................ LU-57
MI (Marine Indus trial) ....................................................................................... L U-57
OS (Open Space) ................................................................................................ LU-58
CUL (City Utility Lands) ................................................................................... LU-59
WS (Watershed Lands) ....................................................................................... L U-59
HE ( Higher Education) ..................................................................................... LU-60
TUPF (Transportation, Utilities, and Public Facilities) .................................... L U-60
City qf Bremerton Comprehensive Plan LU-3
Land Use Element
42
Introduction
Over the past century, Bremerton firmly
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
growth patterns in suburban The Plan's land use strategy emerged from
development occurring in formerly almost three years of community
rural places like Silverdale. Lookin~ to discussions, producing a bold new
the next century, Bremerton must attract direction for the City of Bremerton. The
new quality development with clear corrrmunity decided that the approaches of
opportunities that take advantage of the the past do not work. Business-as-usual
city's superior setting. Citizens fully would likely result in continuing loss of
recognize the importance of the growth and vitality away from the City.
moment, stepping forward in the The new land use strategy seeks to return
Comprehensive Plan process to advance Bremerton's vitality, economic strength,
their concerns and aspirations. This is and desirability as a place to live and work.
seen in this Land Use Element and Called the Centers Concept, this strategy
especially in its recommended Land Use also capitalizes on new demographic
Map. trends and new opportunities. The Centers
Concept is described in detail later in this
The Land Use Element has the broadest Land Use Element.
scope within the Comprehensive Plan. It
works to bring together diverse citizen The foundation of this Land Use
interests into a single set of "mapping Element is its goals and policies created
instructions," called "Land Use Goals and through intense community
Policies." These goals and policies detail participation. However, the Element
how the city will develop into the future, must also quickly address two other
Citizen priorities emerged in the public areas: 1) the concerns of a wider public,
process, including friendlier walkability, and 2) a technical response to the City's
more diverse housing types, enhanced projected growth.
single family neighborhoods, and greater
daily 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.
City of Bremerton Comprehensive Plan LU-4
Land Use Element
Concerns ora Wider Public: State
and Regional Issues
Two requirements for a comprehensive
plan ensure that the wider public
interest frames the planning process.
First, a plan must respond to general
goals, shared by the citizens of the State
of Washington. The State's Growth
Management Act states those goals
along with related planning
requirements. Second, a plan must be
consistent with a regional planning This discussion details how the land
approach. In Kitsap Cormty, the uses set aside for each type of land on
County-wide Planning Policies set forth the Land Use Map is a response to the
planning principals ratified by all need for such lands, due to the projected
jurisdictions within the County. This growth.
ensures general consistency between
comprehensive plans as well as regional
concerns. A discussion of key
requirements of the Growth
Management Act and all county-wide
planning policies is located in the
technical appendices, supporting this
Plan (see the Land Use Appendix.)
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 accommodate the
projected population growth with
sufficient areas for housing, businesses,
and industry. The Land Use Appendix
provides a detailed discussion of
population projections, resultant land
needs, and other calculations and
discussions that support this Element.
City of Bremerton Comprehensive Plan LU-5
Land Use Element
Foundation of the Land Use
Element
As citizens exa~ned their aspirations for -"/Z,.,~Z~ ,' ~
the fu~re, a new co--unity realization .- fl~,, ~g~.
emerged. An overwhel~ng portion of the
of the co~u~ty's shared ideas, drea~, ~ ~ ., ~ - ,~. '
and vision for the future described very ~ . · ~..
specific type of development. That Centers are wal~ble (~ mile r~ius average) and
development type differed from existing in walking distance of neighborhoods (1/2mile 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 se~ices for
desired walkable communities, where residents, employment opportunities, and
residents could access se~ices without ameni~es such as public spaces and parks,
driving across town. They desire to live in in a well-desired area. Centers will have
a more intimate a~osphere where homes, the "look and feel" of a small downtown,
small businesses, and public gathering wi~ moderate to high density uses at ~eir
spaces were all within easy reach. They core, transi~oning out to surrounding
wanted to find ways to reduce traffic, single fa~ly areas.
create a quieter and more sociable
atmosphere, and encourage a more Common Center Characteristics
pleasing urban experience.
1) A core area ~::: .....
y.'.'..---:, 7 ' '.'~'::.~::-.~
This new approach to urban pla~ing in characterized by well-
Bremerton matches a nation-wide interest in designed ~xed-use
~xed-use "urban villages" - endorsed here structures featuring ' '
as "The Centers Concept". As a result, this residential uses above
Comprehensive Plan largely focuses on the street level commercial
implementation of newly designated or office uses
Centers. ~e following sections describe the 2) a walkable
philosophy, benefits, and applica~on of this environment ~at
widely reco~ized approach in Bremerton. begins with friendly,
active s~eetscapes
"Centers" or "The Centers Concept" refers extending to ~e less
to a general development model. It calls dense areas of the
for creation of new "downtown village" Center ~d into ·
areas. These Centers are each ~ique, surrounding Oi~u~t~
requiring specialized plans and neighborhoods
development standards. Each proposed 3) public gathering
Center in Bremerton is described places such as parks or
separately with particular a~ention to ~e plazas
~es of heights, densi~es, and uses that fit 4) ass~iated plans for
the proposed location, public transit.
Cit~ of Br~erton Comprehensive Plan LU-6
Land Use Element
Why Centers ? People surveyed said they prefer "Town
The Centers Concept addresses the Centers," described as mixed use
vision embodied in the Plan's goals and "villages" with green areas, shops, civic
policies, as well as several key buildings, and mixed use residential
demographic trends. As such, the and commercial streets. They clearly
concept is the best response to both the rejected strip malls and traditional, far-
community's desired future and the flung suburbs. In 1998, The Brookings
demographic patterns of the future. Institution and Fannie Mae Foundation
explored a trend showing resurging
Demographics are in constant change; populations in downtown areas. ~hey
past patterns of development will not discovered increasing numbers of
serve the future. In study after study, people who desire easier access to jobs
demographers predict that new and transportation, urban amenities
population groups will heavily such as restaurants, museums, galleries,
influence the American landscape in the and parks, and a pedestrian-friendly
near future. During this Plan's 20-year environment with walking access to
planning horizon, four principal basic services.
household groups will become a
dominant portion of the population: In short, there is overwhelming
Seniors, Singles, Starters, and Single evidence of interest in new urban living
Parents. In fact, these four groups are environments for a large portion of
already a significant force in society and Americans. Developers now seek
today's development markets, opportunities for intimate, walkable
communities. Planners also embrace
Interestingly, these groups have many this movement away from the post-
similar preferences for living modern separation of land uses,
environments. As early as 1997, minimal density neighborhoods, and
Intercommunications, Inc. asked home the automobile culture sprawling across
buyers what amenities they would most the landscape.
like in a new community.
City of Bremerton Comprehensive Plan LU-7
Land Use Element
ICurrently, developers who depend on transit and pedestrian access run a high
risk of failure, resulting in reliance on automobile traffic and strip development.
~:~ ~'~'1~ Pedestrian-oriented public infrastructure
helps make intersections into focal points
:........ Q .i-~ for transit users and neighborhood
~~.O~"~.!'i'f Noatlmct/o~ businesses. ~
~at Are the Benefits of Centers? Centers are also more sustainable
The previous sec~on speaks to the most environmentally. Improved access to
direct benefit of the Center's concept - new transit and walkable se~ice areas reduces
living areas needed in ~e future. Centers reliance on automobiles for daily tasks and
will also capture a larger share of Kitsap lessens the most co~on source of
County's general growth projections, pollution and use of non-renewable fuels.
especially through pla~ed Employment Finally, Centers address a widely
Centers. Bremerton is ~iquely positioned expressed desire for "friendlier" places to
in the West Sound region to provide the live. While somewhat less easily
urban environment sought by residents demonstrated, it is widely understood that
and employers. New residents will bring active s~eet life, co~on meeting areas,
economic activity, jobs, and a marke~lace and urban densities are keys to creating a
that supports desired urban amenities, more intimate neighborhood. Mixed-use
centers demons~ate all of these factors.
Centers plan for growth in ~e most
efficient ma~er possible from a land use Centers are not for everyone. This Plan
perspective. Concentrated higher densities recognizes a prevailing interest in
at locations where there is high capacity traditional single fa~ly neighborhoods.
infrastructure bears efficient use of roads, In fact, Centers are l~ated to se~e as a
public inves~ents, utilities, and fire and nearby "downtown" for such traditional
police resources. Traffic generation (car neighborhoods while s~elding them
trips and ~les ~aveled per day) is from intrusive l~d uses. Traditional
lessened in the co~u~ty, reducing residential g~owth/through JRfJ]] at
demand for expensive new or expanded moderate density increases in single
road systems. This makes sense to fa~]y neighborhoods, accounts for
taxpayers who often pay for expansion of nearly half the residential projections
these systems. Sprawling land use during t~s ~lan's i~fia] ~enty-year
pa~erns, on ~e o~er hand, create ever period.
intensifying demand for new roads and
new public se~ices at the taxpayers' cost.
City of Bremerton Comprehensive Plan LU-8
Land Use Element
47
Centers Descriptions
While this Plan employs four types of
Centers (Neighborhood Centers, District
Centers, Employment Centers and the
Downtown Regional Center), no two
centers are envisioned to be exactly
alike. While the Centers' types are
based on sound planning principals that
assess proper mixes of uses, critical
quantities of residential and commercial Neighborhood Centers -
uses, and proven design principals, General Description
there is a range of mixes and design
approaches that can be successful.
Neighborhood Centers are the smaller of the
two general types and provide a focus for a
Within that range, each center will vary
somewhat as it responds to local single neighborhood area of approximately
preferences as well as its neighborhood one square mile. Neighborhood Centers
environment and specific function place key services in locations, within a
within the larger fabric of the City. designed setting that encourages walking
Following a general discussion of each and reduces dependence on automobile
travel. This serves neighborhoods while
type of Center, there is a detailed
description of each unique center. More reducing automobile use, traffic congestion,
detailed, future, implementation and pollution in Bremerton. In the early
planning for each center will further stages of implementation of the Centers
recognize local interest and needs, concept in Bremerton, however, the first
Neighborhood Centers may be expected to
-- serve somewhat larger areas until additional
Neighborhood Centers become viable.
~:~il; ~ ,.. ! ~ .~ The physical size, projected population,
, j ~ ~,- . and land uses needed within a
S Neighborhood Center are calculated, with
17'~'~ ~ · ~ ' ~ ~' ' additional consideration to the
~ ~'~' surrounding residential areas, to ensure a
market base for new businesses. Small
~~ grocery stores, shops, professional offices,
. ~ and public services are encouraged.
~'. ~ '-~]~ i I Moderately intense residential use is
I-~r :- ~7~,~?~ a,~. ~- -- incorporated above the commercial spaces,
~,.[ ~,~ ~ !, within mixed use structures and near a
~, -- center's core to create a busy, pedestrian-
'~- · oriented area. Pedestrian designs are given
Centers should have an "inward" focus, the greatest preference possible in planning
oriented towards public spaces, and implementing a Neighborhood Center.
City of Bremerton Comprehensive Plan LU-9
Land Use Element
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, civic space, or public neighborhood residents. Small one and
facility such as a school or post office. In two story apartment structures will
sum, Neighborhood Centers place surround the core with duplex, triplex
convenient and attractive mixed uses and fourplex residential units
within easy walking distance of a majority approaching the center's low density
of Bremerton's citizens, providing a place edge. Haddon Park, along the western
for social contact, and a pleasing urban side of the center, provides a focus
experience, amenity for the Haddon Neighborhood
Center. More intense uses may infill the
area between the Center Core and
Center Haddon Park. Similarly, higher 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 its core area found at the
intersection of Callow Avenue and North
15th Street. Nestled in an established
single-family area, but near the more
intense Charleston District Center, the
Haddon Center provides neighborhood The Haddon Neighborhood Center is 27 acres
commercial and professional services to in size. The population will reach about 1,080;
residents in the Marine Drive, Rocky Point, commercial and professional space will be
and North Lafayette Avenue areas, as well approximately 126,000 square feet with a
as to neighborhoods in closer proximity, potential employment base of 350 people.
Recognizing that some market energy
will be directed to the nearby district
center, this center will be characterized
by a relatively small core area which
will provide mixed use structures of two
or three stories with residential uses
above commercial street-level uses.
City of Bremerton Comprehensive Plan LU-10
Land Use Element
Center preserving their own views. Duplexes,
triplexes, and fourplexes will locate
towards the low density edge of the
Center.
The Manette Neighborhood Center
serves the well-defined Manette
neighborhood east of the 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 The Manette Center will accommodate
will respect both of these characteristics, approximately 1,320 residents within its 33 acres.
Perhaps more than any other center in Employment will rise to up to as many as 430
Bremerton, this center will have the feel persons.
and look of a traditional small-town
downtown. In the Center Core, along
11th Street and vicinity, residential uses
above traditional sidewalk-facing
storefronts will be encouraged. Heights
at the core will not typically exceed
three or four stories. The core area will
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 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 in a way that
protects the views of others while
City of Bremerton Comprehensive Plan LU-11
Land Use Element
50
~od Center. Uses outside of the Center Core will be
less tall, mixed-use structures and
smaller multifamily structures.
Significant amounts of mid-density
residential uses already exist near the
eastern and southern boundaries of this
center - making transition to the single
family areas beyond easier.
Primary uses in the Perry Avenue
Neighborhood Center will be
The Perry Avenue Neighborhood residential, commercial, and offices that
Center will be established near the support the center population and serve
intersection of N.E. Sheridan Road and the neighborhood population in the vast
Perry Avenue. A significant portion of surrounding areas.
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 without negatively
impacting existing views in the area.
This is an opportunity for "highrise'
residential structures that are attractive
view homes in their own right.
Surrounding the civic space at the
Center Core, mixed use structures of
four to five stories will be encouraged. The Perry Avenue Neighborhood Center is
Residential uses above street level approximately 27 acres in size, with a projected
storefronts and offices will bring fairly population of about 1,080 and employment of
high levels of pedestrian activity to the approximately 350 persons.
Perry Avenue Center. Both Perry
Avenue and Sheridan Road 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
this center.
City of Bremerton Comprehensive Plan LU-12
Land Use Element
S Ivan Pine Center.
The Sylvan/Pine Neighborhood Center
is in the vicinity of its namesake
intersection, in the area west of The Sylvan/Pine Neighborhood Center is
Wheaton Way. The center serves large approximately 30 acres in size. It
areas of residential development in that accormnodates roughly 1,200 persons. Total
employment is about 390 persons.
region. Its location is currently
characterized by two or three story
apartment complexes. Redevelopment
Oyster Bm Center
under the Center designation will focus
on introducing mixed-use structures
that add commercial and professional
services to the area. Amenities are
already provided by an attractive
wetland complex and by the Armin Jahr
School and Blueberry Park - all located
within the Center designation.
Redevelopment at the boundary of the
park offers an opportunity for a center
that incorporates a green space as its
focus. The Oyster Bay Neighborhood Center is
located on both sides of Kitsap Way, tying
the existing commercial and tourist areas
The Sylvan/Pine Neighborhood Center
will be characterized by relatively small- together with a future open space system.
The area will redevelop alongside of a
scale mixed use structures of perhaps critical mass of residential units on site and
two or three stories. Arrangement of
these adjacent to the potential green in the adjacent Westpark project. There is
enough depth on certain lots to
space creates an opportunity for a small
center that, perhaps, reminds visitors of accommodate a secondary road system
a small town in the mid-west that faces which will help implement a more urban
and pedestrian-friendly design ethic here.
a town park. Existing or new
multifamily structures will augment the Adjacent opportunities, such as play fields at
new Center Core. The limited scale and Westpark and other public investment sites,
intensity of commercial and professional should be integrated into a trail and open
uses will still allow the center to serve space system that highlights the remarkable
the neighborhood population, views and provides access to the shoreline.
City of Bremerton Comprehensive Plan LU-13
Land Use Element
In recognition of a shared market with the expectation over the twenty year planning
Westpark Public Sector Redevelopment Site, period is substantial, (approx. 1,332; see Table 2
the Oyster Bay Neighborhood Center will LU Appendix), buildout at the Westpark site
develop at somewhat lower intensities than will run substantially ahead of development at
other Neighborhood Centers. In the portion the Oyster Bay Center. This Plan anticipates
of the center south of the arterial, mixed use that only a small portion of that population will
structures of somewhat greater height will locate at this center over the next twenty years.
make up the Center Core, allowing Lake N~ ~[ Reserve Center
commercial activity at street level with
professional office and residential uses
above.
Special design standards and considerations
must be employed to ensure both marine
views throughout and compatibility of this
center with residential properties such as
the community to the north along the
Oyster Bay shoreline. For example,
structures on the north side of Kitsap Way
should not obscure view potentials for The Kitsap Lake Neighborhood Reserve
structures on the south side of Kitsap Way. Center is not expected to develop within
Slopes at the southernmost edge of the the current 20-year planning horizon.
Center present an opportunity for Today, this location supports a medium
residential structures of sufficient height to sized grocery, a restaurant, and other small
take advantage of views to the north, 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, but not fitting the model of
being the core of an urban neighborhood
that yet to develop. Residential density in
the area does not currently warrant or
promise to support a Neighborhood Center
for the current Plan's horizon.
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
future redevelopment of this specific area
The Oyster Bay Neighborhood Center is as a Neighborhood Center. It is also
approximately 37 acres. Sharing the same understood that future trends for
growth market, population estimates for this development in this general area could
center are combined with estimates for the result in an alternative location becoming
Westpark Public Sector Redevelopment more appropriate for a future
Opportunity site (see Tables 1 and 2 in Land Use
Appendix). Although the combined population Neighborhood or District Center.
Cit~_ of Bremerton Comprehensive Plan LU-14
Land Use Element
This 48 acre Reserve Center lies along Kitsap
Way near its intersection with EIarlow Drive.
This image shows the interface between a center (on left) and an existing lozo density neighborhood (on
the righ..) Sub-area planning and design regulations will further ensure compatibility with existing
development. Here, urban densities on smaller lots do not detract from existing single family residential
aualities.
City of Bremerton Comprehensive Plan LU-15
Land Use Element
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
focus as well as services for several District Centers, focus amenities may be
neighborhoods. Commercial and needed on either side of major arterials to
professional uses are more plentiful and of minimize 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
a center by automobile. Distinguishing
characteristics of the Center type are:
alternative circulation to and from nearby
arterials, parking immediately outside the
pedestrian core, and, opportunities for
medium in tensi e mty__~.]~e r s.
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, as seen for this cinema.
City ~f Bremerton Comprehensive Plan LU-16
Land Use Element
Wheaton/Riddell District Center
The Wheaton/Riddell District Center is retained here than in other centers.
located in the area surrounding the Parking is generally placed behind street-
intersection of Riddell Road and Wheaton fronting buildings or moved to areas near
Way. It is one of the largest centers in the perimeter of the center. Careful
Bremerton, encompassing approximately attention is necessary in the planning and
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-dependent uses.
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 be
major (State) arterial. This has several characterized by a high density mixed-
significant implications for the form of this use node that provides an open space or
Center. Foremost among these effects is public plaza as a community focus.
that this center will incorporate aspects of a Existing frontage parking lots may be
"Center-within-a Center" concept, redeveloped to provide both on-street
mixed-use structures and the needed
On the east side of Wheaton Way, this pedestrian, bicycle, and transit spaces.
center will include many of the The mixed-use structures may be up to
characteristics of a Neighborhood Center. five stories with commercial uses on the
Along Wheaton Way proper, and within street level and a mix of professional or
the entire area the west side of Wheaton residential uses above. Some small
Way, the Center will display characteristics parking areas along Wheaton Way may
that are reserved elsewhere for the larger remain. These will be to primarily
District Centers. In addition, this center provide customer parking for the
will recognize that it serves a regional smaller shops, restaurants, and
population, some of whom must access the commercial uses that will come to
center by car. Higher levels of parking are dominate the street-frontage.
City of Bremerton Comprehensive Plan LU-17
Land Use Element
West Portion. On the west side of
Wheaton Way, this center provides for
somewhat more intense commercial
uses and employment sites. Small street
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 street-side buildings here.
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 this center, a
secondary circulation loop should be
introduced behind existing structures or
their replacements. In this area, an
existing topographic break provides
separation between the center boundary
and neighborhoods to the west (towards
Pine Road.)
These parking areas must be arranged
behind or besides street-front structures
in a manner that does not diminish
internal public spaces. Strategic parking
areas can be provided away from
Wheaton Way and accessed from
alternative circulation routes as the
Center develops. Outside the secondary
circulations loop around core area, mid-
density residential structures of up to
four stories will contribute to the
supporting residential base..On the
east side of this loop route, mid level
apartment structures can back onto the
Taken together, the two portions of the
existing wooded slope - which provides Wheaton/Riddell District Center accommodate
an open space buffer for the approximately 3800 persons, as much as 660,000
neighborhoods farther to the west square feet of commercial/professional floor
(along Almira Drive.) space, and provides employment for
approximately 1850 persons.
City of Bremerton Comprehensive Plan LU-18
Land Use Element
Charleston District Center Montgomery Avenue (along the Center
boundary with existing low density
residential uses) should not exceed two
stories.
Emphasis in the Charleston District Center
should be on historic preservation, better
utilization of existing second floor spaces,
and the addition of new residential uses in
areas immediately adjacent to the Center
Core along Callow Avenue. Amenities such
as pocket parks, or plazas should also be
The Charleston District Center is a unique encouraged. The adopted Charleston
District Center located along Callow Way
between North 13th Street and North 1st Community Plan will be resource and
beginning point for area-specific planning
Street. This Center designation seeks to of the Charleston District Center.
encourage redevelopment of a historic
business district that has long been
considered as 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 provide
a variety of services for adjacent residential
areas and are part of a pedestrian-oriented
streetscape with potential for floors above
active street-level uses.
The Center designation seeks to build on
this existing nucleus. Areas on the
surrounding blocks will be designated for
mixed-use or fairly dense residential
structures. This will serve to bring more
residents to the immediate area, improving
the viability of existing and new business
ventures.
The Charleston District Center is approximately
New buildings that in:fill along Callow 39 acres in size. It will accommodate
Avenue should be mixed-use to include approximately 1400 persons, with employment
high density residential uses. Areas west of for as many as 680 people. Finally, the center is
Callow should infill with small artists separated from the Haddon Neighborhood
workshops, light service industries, or office Center to the north by only one or two blocks.
Land use designations in this intervening area
uses with residential uses beginning at the should support both centers by allowing fairly
third floor level. Heights above this level high density residential uses. Building heights
could threaten views from hillsides to the in this area should approach six stories with
west. Buildings to the east, along densities in the area of 40 un, ts per acre.
Cit~l ~f Bremerton Comprehensive Plan LU-19
Land Use Element
Wheaton/Sheridan District Center
The Wheaton/Sheridan District Center is Office uses, mostly expected along an interior
located on the east side of Wheaton Way, network of streets, can accommodate parking
north of its intersection with Sheridan Road. areas that do not disrupt to the pedestrian
This center provides intense commercial design of the Center Core or result in parking
and professional uses serving lots fronting Wheaton Way. Additionally,
neighborhoods on the southern half of the this area (between the core and Wheaton
East Bremerton peninsula. Recognizing the Way) can accommodate mixed use structures
neighborhood significance of the relatively or residential structures of no more than four
new grocery store at the corner of Wheaton stories. Towards the residential perimeters of
and Sheridan, this center will first focus on the center, residential uses should be further
redevelopment of the Bremerton School reduced in mass and height, responding to
sites into a mixed use area in a pedestrian- the
based urban village 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 will be encouraged. These structures
should enclose an interior Center Core area
and its focus amenity or civic space.
Residential units will benefit from an
This 81 acre Center will accommodate
orientation towards the interior and green approximately 2900 persons within the 20-year
spaces. Nearby medical offices and the planning horizon with further expansions possible
Harrison Hospital will also support in the future. Employment base in the first 20-years
convenience such as recreation and retail, could grow to 500,000 sq. feet and 1400 employees.
City qf Bremerton Comprehensive Plan LU-20
Land Use Element
59
Downtown Regional Center
The Downtown Regional Center (DRC)is The downtown provides a living
the core area of the City of Bremerton. It environment to a growing segment of
offers a mix of opportunities to live and society that no longer desires the suburban
work in a vibrant, well-designed lifestyle. It provides housing for a wide
environment. The DRC zone provides variety of income levels in an environment
residential or office uses on upper floors, that allows less reliance on the automobile.
with retail uses at the street level to energize The potential juxtaposition of employment,
the urban experience. Parking should be living, cultural, and recreation
underground or within structures - not in opportunities, allows the greatest efficiency
surface lots. Street trees, well-designed of public expenditures and infrastructure of
public gathering areas, and lighting should envisioned in this Plan.
be employed to create a safe, inviting
experience at the street level day and night.
Residents will 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, attractive downtown, a critical
need for the entire West Sound region.
Existing plans for the Downtown Core and
Downtown Waterfront (See goal LU14) and
the Campus/Evergreen District Plan will be
a beginning point for sub-area planning and
design review for this center.
City qf Bremerton Comprehensive Plan LU-21
Land Use Element
60
~.enters - 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 will
and industrial activities that create large enable future zoning and development
numbers of jobs, well integrated with standards that support addition of
areas that provide a mix of housing residential uses to the area. As a result,
types nearby. Small to medium scale residents will be added to increase support
commercial uses will also be provided, for commercial services. Nearby living
allowing residents and workers easy opportunities for employees will reduce
access to services. Through mixed-use commuting as well as employee parking
design, the Employment Center demands. The adopted Harrison District
integrates employment activities with Community Plan is a resource and
housing and commercial activities beginning point for sub-area specific
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 will likely commute, the
Employment Center concept can reduce
the amount of traffic normally
generated by large-scale employment
land use.
City qf Bremerton Comprehensive Plan LU-22
Land Use Element
Northwest Corporate Campus Port Blakely Employment Center
Employment Center The Port Blakely Employment Center is
The Northwest Corporate Campus is a large a large undeveloped area in the west
area along Highway 16, southeast of Gorst. hills portion of the City. The site is
The area will be developed as a well envisioned as an integrated, mixed-use
integrated mixed-use Employment Center. employment Center. A detailed Center
A detailed center development plan should development plan should be prepared
be prepared to ensure that the area is for this area before development
developed as an integrated mixed-use precedes.
Kitsap
Lake
Employment Centers feature amenities enjoyed by employees and residents
alike. The planned environment ensures compatibility of development,
including the large employer needs such as private facilities and strategic,
dedicated parking areas.
City off Bremerton Comprehensive Plan LU-23
Land Use Element
The Urban Growth Area
Under the Growth Management Act,
each city must submit a proposed Urban
Growth Area (UGA) for formal
designation by its County which has
jurisdiction on the issue. The UGA is an
area outside of current city limits where
a 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
Specific Area Plans establishing the future land use pattern,
This Land Use Element provides goals transportation system, and all related
and policies - as well as supporting development standards.
technical analysis - to guide land use
Historically, unincorporated areas were
decisions for the broad community over
the coming twenty years. It anticipates planned and regulated by county
more area-specific planning efforts, government until the time that these
especially for the creation of areas became cities or were annexed to
cities. It was also common for owners of
Neighborhood Plans and more detailed
implementation plans. Specific Area developed property, primarily
Plans add additional planning detail to residents, to oppose annexation to cities,
this Plan's general framework, perceiving that taxes and service fees
would increase. In some cases, county
The following areas of the City and land residents were already able to access
city services such as parks and libraries,
use designations (See Land Use Map), at often without paying for them. This
a minimum, require or already include
specific-area planning processes: diminishes the quality of life in another
significant way - the environmental and
District Centers safety issues generated by the high
Neighborhood Centers volume of vehicles passing through city
Employment Centers neighborhoods on route to suburban
communities.
The Downtown Regional Center
Public Sector Redevelopment Sites Only by laying out the development
future within its UGAs can the City of
The Wheaton Way Redevelopment Corridor Bremerton hope to afford servicing the
Anderson Cove growth in these areas. The City's Urban
The City also recognizes advantages that may Growth Areas, established by the
come from a future planning area south of County in 1998 and shown on the Land
Olympic College to better meet needs of Use Map are included in the
college students - generally between Pacific Comprehensive Plan.
Avenue (east) and High Streets (west) and
south of the school campus(es) to llth Street.
City of Bremerton Comprehensive Plan LU-24
Land Use Element
Development within the City UGAs
should be regulated by the City's
development standards, and
infrastructure should be built to City
standards. These expectations are
reflected in the Countywide Planning
Policies, which specify a framework for
agreements between the County and
Bremerton for the planning and
implementation of he City's assigned
growth areas.
Open Space
In general, the goals and policies found Land Use Goal LU2 and its attendant
in this and other elements of this policies represent a community call to
Comprehensive Plan will also guide establish a system of open space in
future land use patterns in the UGA. Bremerton. That open space system will
Full implementation of those principals consist of parks, school yards, and
will occur after additional public natural spaces. In addition, the cited
participation and technical planning goal and its policies call for linking these
work is accomplished. It is intended spaces with a system of trails and
that this Comprehensive Plan will be pedestrian pathways. The Open Spaces
amended as soon as practicable to Map depicts the open space system on
include future land use considerations the following page of this element.
for the UGAs, including additional
designated Centers. Many of the lands and corridors
appearing on the Open Space Map are
not independent land use designations.
Joint Planning Areas Instead, they indicate desired locations
In addition to the proposed UGA, the for the open spaces. "Open Space" as a
City and County should investigate the listed "permitted use" in the all zoning
potential for additional planning designations will support the creation of
coordination in specific areas designated this desired open space system. Public
by the County as "Joint Planning Areas" acquisition of open space, including
(JPAs). Study and analysis may lead to acquisition and development of open
inclusion of these areas in future space during City utility or street project
recommended additions to Bremerton's for example, will also assist in the
UGA. JPAs should be designated in the creation of trails, parks, or other open
County Comprehensive Plan for the spaces.
Erland's Point and Rocky Point areas.
City of Bremerton Comprehensive Plan LU-25
Land Use Element
Land Use Goals and Policies Centers represent concentrated and planned
mixed-use development areas. They are
The following goals and policies located throughout the City, serving various
represent the community's response to roles, as a response to the needs of
the challenges implied by future growth, communities within the City. Centers
They were developed through an intense should have a complimentary relationship
series of public meetings, workshops, to the character of the surrounding area,
and committee meetings. They represent and also to the other Centers, well-
the vision, values and desires for the connected to each other by various
future of a wide cross-section of the transportation modes.
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
ac u ,ly
community first. These goals and
policies are the basic foundations of the
Land Use Element. Only after the
community developed these expressions
of its dreams and aspirations for the
The smallest designated Center is the
future, was the planning model known Neighborhood Center which allows for
as the "Centers Concept" realized, intimate gathering places and daily
Discussion: Land Use Values and conveniences for local residents within a
Definitions residential setting, such as a coffee shop or a
neighborhood park. District Centers, on the
other hand, are at focal points of
Neighborhoods are primarily residential communities, offering unique amenities and
areas, each with an identifiable focal services scaled to serve that area of the City.
point and established boundaries. A Meeting regional needs as the designated
neighborhood is limited in size by its Metropolitan Center of Kitsap County, the
walkability, a characteristic that City also provides for a unique Downtown
combines with social gathering Regional Center and several Employment
opportunities, to provide a sense of place Centers for the region, all linked by a
and neighborhood identity, comprehensive transportation system.
Communities are a collection of neighbor- For more information on the Center's Concept,
hoods, combined with the commercial and see page LU6. Specific Centers, as depicted in
transportation services, scaled in size and the Land Use Map on page LU-46, are described,
function to compliment the community, beginning on page LU-9. Finally, the Land Use
Typically, a community includes 3 or 4 Designations for Centers, can be found after the
neighborhoods, while its services are ideally Goals and Policies starting on page LU- 47.
grouped into one or two areas (Centers).
City of Bremerton Comprehensive Plan LU-27
Land Use Element
LU1F Identify and promote the
architectural and scale characteristics of
surrounding neighborhoods for the
development of Centers serving a
neighborhood or a community.
LU1G Use front yard averaging to
encourage residential infill that is consistent
with the existing neighborhood.
LU1H Encourage adaptive reuse and
preservation of historic elements.
LU1 Identify and nhance distinctive
neighborhoods, communities, and Centers LUII Integrate Centers and
throughout the city transportation corridors with surrounding
LU1A Designate neighborhoods, neighborhoods.
communities, and Centers throughout the LU1J Buffer surrounding communities
city. from regional transportation corridors,
allowing for transitional and sensitive
· Recognize boundaries and barriers to development patterns.
development, both natural and built
(steep slopes, wetlands, state
· Ensure flexibility and options for buffering
highways) in defining sub-areas for techniques
planning and allocating growth
LU1K Promote neighborhoods which
LU1B Integrate edge areas in the foster interaction among residents,
planning of neighborhoods, communities, contribute to well-being of citizenry, and
and Centers. create and sustain a sense of community
and safety.
LU1C Focus on central organizing
features in planning communities, Centers
and neighborhoods.
LU1D Reinforce city-wide features,
activities, culture, and historic character in
the plarming of communities, Centers, and
neighborhood areas. LUlL Strategically locate amenities such as
parks, sidewalks, community Centers, and
LU1E Encourage the implementation of gathering places to support residential areas.
design elements for new development and
redevelopment that compliment the · Provide for social interaction through
designated purpose and scale of its street design elements
neighborhood, community or Center. · Encourage residential designs with an
orientation towards social interaction, as
opposed to the automobile
Cit~/ of Bremerton Comprehensive Plan LU-28
Land Use Element
LU2 Integrate an open space system
into the land use pattern that increases
the amount of open space, protects
gremerton's natural resources, and
provides a source of beauty and
enjoyment for all residents
LU2A Incorporate open space within
designated 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.
Discussion: Please see the Open Space
Map on Page LU25. It provides the
implementation guidance for the
citywide trail and open space system.
City of Bremerton Comprehensive Plan LU-29
Land Use Element
· Establish value criteria and a
corresponding system to allow tradeoffs
and exceptions between development
standards and design standards
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
designated Centers
LU3B Pre-qualify key areas and sites
for environmental permitting through LU4 Provide for walkability
such devises as sub-area plans and throughout Centers and neighborhoods
related programmatic EIS's.
LU4A Improve pedestrian access to
LU3C Encourage increased density commercial and community services
with development incentives and zoning within Centers and neighborhoods.
flexibility
LU4B Develop pedestrian connections
LU3D Provide for advanced utility between residential areas and
planning to offer upgraded, ready-to- neighborhood services.
serve, services for development designed
to achieve maximum density. LU4C Ensure land use designations
and designs that support walkability
LU3E Provide development incentives within neighborhoods and the mobility
and flexibility within the Zoning Code to needs of the community.
encourage desirable design elements with
flexibilities within the Zoning Code LU4D Ensure street design and
provisions for all new development and orientation that encourage pedestrian
redevelopment, and bicycle use.
· Establish a creative and cooperative · Examine set-backs, landscaping
process for design solutions requirements, and stormwater
drainage and flow patterns
City of Bremerton Comprehensive Plan LU-30
Land Use Element
20-year Vision for Center Development:
ma? i~ma~e below marks a 5-year intervals
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 '~W'~~~ ~, ~ .- ' ~:~:,4..
be located so that most residences in the
city are within one mile of a
Neighborhood Center.
LU5B District Centers should be ~'
placed in locations the allow each District
Center to serve as a focus for a group of
Neighborhood Centers. '~ .',"~ .
LUSC Employment Centers should be
located in areas with unique
opportunities for the development of a
mixed use environment that includes
large employment activities and
supporting residential and commercial !.~ ~...~..~
activities. Such locations will typically be
separated and/or well-buffered from
primary residential areas'
City qf Bremerton Comprehensive Plan LU-31
Land Use Element
Neighborhood Centers on the Land
Use Map
Discussion: This Plan recognizes
Centers as the appropriate location for
neighborhood serving commercial
and higher density residential use. In a,~ ~~,~ ~
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 ~"a' ~ ~
designation, subject to future analysis
through both neighborhood planning LU8 Develop minimum development
processes and future re-examination guidelines and standards for development
of growth trends and needs. The exact in Centers
location, boundaries, size, and mix of
land uses in a neighborhood potential Discussion: Design standards and guidelines
Center will be determined through for each neighborhood and district Centers
those future processes, should, ultimately, be developed through a
neighborhood or district planning process.
LU7 In order to encourage new However, to facilitate development in
development to occur in locations and Centers before such specific area planning
patterns consistent with the Vision(s), processes can be completed, minimal
Goals and Policies of this Plan - guidelines and standards that apply to each
specifically in Centers - remove or type of Center, on a city-wide basis should
revise existing land use designations be adopted as a short-term measure. At a
that would site multi-family uses in minimum, these standards and guidelines
locations that do not support the should address issues such as:
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.
City of Bremerton Comprehensive Plan LU-32
Land Use Element
Center Implementation: 20-year Plans
? ? t t
Years I I I I +5 [ I I [ I+lo[ I I I I+!sI I I I l+2o
LU9 Create a framework for the LU9A Design standards and/or
initial implementation of Centers guidelines should be developed that
assure pedestrian oriented mixed-use
Discussion: Recognize that full design in Centers. Design standards
development of neighborhood and and/or guidelines should address such
district Centers will ultimately be guided issues as:
by area specific planning exercises, or · Locating buildings in the core of the
"Centers Plans" as capsulated in the Center at sidewalk edge
graphic above. These future planning · Providing windows and other
efforts will require intensive community architectural features that foster
participatory programs that go beyond pedestrian interest along street fronts
this citywide plan. Until such unique · Adopting sign standards that reflect
Centers plans are completed for any pedestrian scale
given Center, development in the · Encouraging and/or requiring
designated Centers must proceed under architectural features that are of a scale
broader guidelines developed by the and type appropriate for viewing by
City. The following policies should be pedestrians at the building front and
the basis for development of such broad immediately nearby.
citywide guidelines, and, in addition,
should be used in the future to assure LU9B Zoning in Centers should reflect
consistency between the various future a wide variety of permitted uses,
Center plans, including commercial, office residential,
public, etc. Design guidelines should
require or encourage mixed-use
structures.
City of Bremerton Comprehensive Plan LU-33
Land Use Element
LU9C Development projects should be
encouraged to provide amenities such as
street furniture, street trees, small public
spaces and plazas, etc.
LU9D Adaptive re-use of historic
buildings should be encouraged through
incentives.
LU9E In general, the intensity of land
uses should be varied, with more intense
uses nearer the core of the Center and LU10 Provide incentives and
less intense at the edge. flexibility that encourage and enable
development in Centers
LU9F Alternative circulation for
automobiles should be provided as much LU10A Support Centers development
as possible. The goals of alternative by adjusting Level of Service Standards
circulation designs should include: in ways that reduce costs of development
· Reducing traffic in pedestrian oriented in Centers as compared to surrounding
core of the Center, areas.
· Placing parking and busier streets
away from the core. LU10B Work toward enabling
development in Centers to proceed as a
LU9G With the exception of major Planned Action under SEPA.
pass-through arterials, streets within
Centers should be relatively narrow and LU10C Develop permitting processes
designed for slower speeds, that give priority to applications for
projects that implement Centers as
LU9H Non-motorized transportation envisioned in this Plan.
links with surrounding neighborhoods
should be encouraged, and existing LU10D To the maximum extend
pathways preserved, practical, focus public investment on
projects that support Centers
LU9I Centers should include at least development.
one core amenity. These include; a public
meeting space, park, or plaza; a
community Center or school; a public
building such as a post office, police
substation, library, etc.
City of Bremerton Comprehensive Plan LU-34
Land Use Element
Goals and Policies Related to LUllE Encourage private investment in
Provision ~ mixed use and higher density
developments.
· Offer design and development
standard choices for mixed use projects
LUllF Designate areas within
neighborhood Centers, the downtown
business district, and existing
commercial Centers for mixed use
activity.
LUllG Ensure comprehensive and
convenient services for each community
LUll Provide for the viability of within the city.
communities, neighborhoods, and Centers
through strategic land use designations · Provide strategic parking locations and
and infrastructure provisions policies, especially in designated Centers
· Encourage convenient, small-scale retail
LUllA Provide for growth through services at the neighborhood level,
increased densities in Neighborhood especially within Neighborhood Centers
Centers and designated activity Centers.
LU12 Support community-wide
· Allow accessory units associated with, access to amenities and services
and subordinate to, existing or new (See Transportation Element for
single family dwellings in all additional policies)
residential zones when appropriate
(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 communities and Centers.
City of Bremerton Comprehensive Plan LU-35
Land Use Element
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
which incorporate distinctive
· Encourage high density residential and architectural elements that highlight the
mixed use development near designated role of the town Center, such
transportation Centers and hubs 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
within 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.
City qf Bremerton Comprehensive Plan LU-36
Land Use Element
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
income levels.
7. Downtown Bremerton will have many
forms of publicly accessible open space,
such as parks, plazas, waterfront
esplanades, and tree-lined streets.
8.Downtown Bremerton will build upon
This conceptual downtown plan, developed in its intimate scale, street grid, and
2001 and adopted into the Plan at that time, historic buildings to create an
remains valid, and is included in the Appendices. environment having a distinctive
character and quality.
LU14 Adopt standards and measures to 9.Downtown Bremerton will
assure that downtown Bremerton becomes
an attractive, vibrant, urban core with a accommodate parking for commuters,
visitors, and shoppers, but in locations
mix of commercial, office and residential
uses (Use adopted goals and policies, and configurations that allow for in-fill
development.
included 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
adopted by the Bremerton City Council downtown organizations.
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.
City of Bremerton Comprehensive Plan LU-37
Land Use Element
3..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.
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 as
l~_1 ' public spaces, housing, and underground
,.~,~F ,0 parking.
L 7. The city should employ a variety of
l techniques, including upgraded and
expanded infrastructure (including
streets and sidewalks), public/private
· partnerships, the development and
management of parking, and property
_ _~ disposition to encourage desired
~ development.
8.Downtown should be linked to
General Policies, Downtown: surrounding neighborhoods by landscaped
1.New development shall reinforce streets, open spaces, pedestrian and bicycle
pedestrian activity at the street level, routes, and transit.
present an attractive profile on the 9.Development along the northern edge of
skyline, and provide opportunities for downtown should step down in height
artistic expression, and include substantial landscaping in
2.On-going programs and funding priorities recognition of the adjacent, low-scale
should ensure that downtown streets and residential neighborhood.
sidewalks are clean, safe, well lighted and 10. Interim and temporary retail uses
attractive should be encouraged in order to
stimulate small business activity and to
attract new investment and customers·
City qf Bremerton Comprehensive Plan LU-38
Land Use Element
77
6.While the commercial 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
~'x, 4th Street, new development should
/) include internal corridors or terraced
walkways that can make the slope
Policies, Downtown Core (DC) easier to traverse on foot.
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
of employment, retail, and residential, waterfront.
2. This district should be served by both 10. Design standards should ensure the
bus and ferry transportation, with continuity of storefronts and a
sidewalk and walkway connections pedestrian-oriented scale and features
that are lighted and landscaped to all streets within the Core.
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.
Streetscape enhancements, uses and Policies, Downtown Waterfront (DW)
architectural features should make 1.The Downtown Waterfront District
walking safe, comfortable and should consist of a mixture of
appealing, transportation facilities, marina and
5.Fast-moving, through traffic should be support services, specialty shops and
separated from local traffic and restaurants, and low-rise, high density
pedestrian movement that are oriented residenfial.
to the downtown core. 2.There should be clear, attractive
pedestrian routes, public places, and
City of Bremerton Comprehensive Plan LU-39
Land Use Element
connections between the Downtown Land Use Goals and Policies Related
Waterfront and the Downtown Core. to State Protections
3.New development 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.
LU15 Assure that future land uses and
4.Structures should be terraced down land use patterns conserve and protect
toward the water in order to maximize groundwater resources (Cross reference
views and reinforce the stepped form with Environmental Element Goal E8)
of downtown. View corridors in
alignment with east/west upland LU15A Provide for well-head protection
streets should be preserved, where appropriate (GMA requirement).
5.The marina should be expanded and
converted to both short stay and long LU15B Protect aquifer recharge areas,
term moorage, with public access especially those used to provide public
provided to any breakwater structures, water supplies (CMA 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 (CMA requirement)
City of Bremerton Comprehensive Plan LU-40
Land Use Element
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
LU17 Adopt and implement appropriate designation of critical areas or the
standards and regulations for stormwater measures to protect designated areas,
management. The City of Bremerton employ the best available science per
should adopt and implement regional RCW 36.70A.172 (1).
plans, strategies, and standards as
appropriate, including but not limited to LU18F Adopt measures to protect
the Seattle/King County Storm Water anadromous fisheries per RCW
Manual, FEMA maps, and the Puget 36.70A.172(1)
Sound Action Team's 2000 Water Quality
Plan
LU19 Coordinate and work
Discussion: The Seattle/King County cooperatively with the State of
Stormwater Manual is recommended for Washington, Kitsap County, and
its ability to provide storm water related appropriate agencies for the siting of
development standards in a clear essential public facilities
manner. Its use has the additional Discussion: Essential Public Facilities are
advantage of providing consistency for defined - in part - in the Revised Code of
many development professionals who Washington. In addition, county-wide
are familiar with it as a result of their planning policies, local cooperative
work in most of the more populated efforts, or individual jurisdiction's
portions of the State - where it is the deliberations may further refine this
more common document, definition. After considering these State,
regional and local efforts, the City must
LU18 Protect Natural Resource Lands develop a list of potential EPF's - or at
as defined and required under the least a clear set of definitional criteria
Growth Management Act that will allow it to establish which
facilities it will consider under EPF siting
LU18A Discourage incompatible uses in criteria that are locally established. The
or near Natural Resource Lands.
City will engage in just this sort of effort.
LU18B Develop criteria for designation LU19A Adopt definitions and siting
of Natural Resource Lands consistent
criteria for Essential Public Facilities.
with RCW 36.70A.050 and 365-190 WAC.
City qf Bremerton Comprehensive Plan LU-41
Land Use Element
80
LU19B Develop criteria for the siting of Goals and Policies for
essential public facilities in such a way as Unincot ~orated Urban Growth Areas
to minimize negative impacts to
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, 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 LU20 Plan within an urban growth
area that is large enough to
· Essential public facilities that may accommodate the expected population
introduce hazards to public safety growth for the next 20 years, in a way
should be carefully located to minimize that meets the requirements of the
such threats
· The effect of the location chosen for County-wide Planning Policies
EPF's on property values shall be LU20A Ensure Capacity to Grow
considered Maintain urban growth areas that
· The location chosen for EPF's shall be provide the 20-year capacity for desired
consistent with the goals and policies, growth, within the limitations of the
maps, and general principals in this City's ability to provide all required
Comprehensive Plan. 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.
City of Bremerton Comprehensive Plan LU-42
Land Use Element
LU20D Extents of Growth high quality cost-efficient urban services,
In cooperation with adjoining local and an orderly transition from county to
governments, determine the ultimate City jurisdiction.
extents of the City's physical growth and
promote the designation of non-urban LU20I Growth Boundary Review
"separators" to define these limits. Participate with other KRCC jurisdictions
in the five-year review of urban growth
LU20E Phasing of Service Extensions area boundaries relative to the Office of
Promote the efficient delivery of urban Financial Management's 20-year
facilities and services within urban population forecast and make
growth areas by phasing their extension 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 is
By "Urban Growth Area Management 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 City's the city and Kitsap County to make
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
LU20H Attracting Harmonious Growth logical boundaries and reasonable
Attract the majority of the county's service areas within the City's urban
population and employment in urban growth areas, where the City has the
growth areas in ways that ensure a fiscal capacity to provide services.
balance among livability, preservation of
environmental quality, open space
retention, varied and affordable housing,
City of Bremerton Comprehensive Plan LU-43
Land Use Element
LU21A City Bonded Indebtedness
Require property owners within an #
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
are logical extensions of the City.
LU21D City Utilities only with Annexation
Discussion: As much as possible, the city Require property owners requesting City
should promote annexations that create utilities to annex concurrent with utility
even City edges and avoid "peninsulas" extensions or sign a "no-protest"
of unincorporated land that penetrate agreement to annex as a part of a later,
deeply among the City limits. Efficient larger annexation.
service delivery should be a criterion in
the formation of boundaries. LU21E Readily-Identifiable Boundaries
Annexations should attempt to maximize Use readily identifiable boundaries, such
efficiencies of urban services, as shorelines, streams, railroads, and
highways, to define annexation areas
LU21C Peninsula Annexation wherever possible.
Encourage and assist property owners in
existing unincorporated "peninsulas" in Discussion: Permanent physical features
the City's urban growth area to annex to provide city limit boundaries that are
the City. easy to identify and understand. Streets
or roads may be used where appropriate.
Discussion: Unincorporated "peninsulas" However, streets and roads are generally
are land areas of any size that are located less suitable boundaries because of utility
outside of the city limits that have at least access issues.
eighty percent of their 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.
City of Bremerton Comprehensive Plan LU-44
Land Use Element
LU21F Community Impacts new development, in a manner that is
Evaluate all annexations on the basis of consistent with applicable City of
their short and long-term community Bremerton policies and regulations. If an
impacts and benefits, area annexing to Bremerton requires
public facility improvements to correct
Discussion: If the annexation includes health and safety related problems, the
proposed development, consideration of property owners within the annexed area
the proposal should include an analysis should fund those improvements. If an
of the short and long-term impacts on the area annexing to Bremerton has public
neighborhood and City, in terms of all facilities that do not meet City of
services required, including water, Bremerton standards and the property
sewer, urban runoff, roads, schools, open owners or residents want to improve the
space, police and fire protection, garbage facilities to meet city standards, the
collection, and other services, property owners should fund those
improvements, or the proportion of those
LU21G Funding Capital Facilities in improvements, that do not have a
Annexed Areas citywide benefit. Public facility
improvements within annexed areas that
· Ensure that annexations do not result have a citywide benefit should be
in a negative fiscal impact on the city. considered for funding through City
revenues, as part of the Bremerton
Discussion: In general, property owners capital facilities and improvements
in annexing areas should fund the public planning processes.
facility improvements necessary to serve
City ~f Bremerton Comprehensive Plan LU-45
Land Use Element
Land Use Designations
The following land use designations appear on the Plan's Land Use Map. Each designation is
described bdow. The descriptions include a set of general development parameters. Along with
the expression of policy direction and discussion also provided, they 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 low-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 Bremert~n
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 platting 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 qualities as "urban development", cost
efticiencies 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.
City of Bremerton Comprehensive Plan LU-47
Land Use Element
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 community 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.
City of Bremerton Comprehensive Plan LU-48
Land Use Element
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 amenities 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 the commercial uses will bring
traffic and parking issues. District Centers have a central focus area around an 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
that meets 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
City of Bremerton Comprehensive Plan LU-49
Land Use Element
(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 near 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 shop 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 (Requires future review)
Height: (Consistent with current zoning heights for downtown, 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 area
Policy direction:
Create and revitalize the downtown as the premier urban center of the West Sound region,
providing jobs, residential opportunities, and cultural and economic activities.
Discussion: The Downtown Regional Center is the core area of the City of Bremerton. 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.
City of Bremerton Comprehensive Plan LU-50
Land Use Element
(DRC continued)
Residents should find not only access to employment, transportation, and basic
amenities, but a 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 West Sound 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: 20 units per acre, maximum
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 20-year horizon addressed by this Plan, while recognizing that there is also 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
future 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, initial zoning provisions should treat this entire area in a like manner. Uses
during the "interim period" (pre-dating re-designation as a Center) include a variety of
commercial uses.
City of Bremerton Comprehensive Plan LU-51
Land Use Element
90
CCSR Core Centers Supporting Residential
General development parameters
Density: Varies, urban in nature
Height: Three stories
Structure Type: Medium density residential
Character: Well integrated, planned residential development
Policy Direction and Discussion:
The Core 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 Downtown 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" via the two bridges, connecting these three key, closely-related nodes
of future growth.
CC (Commercial Corridor)
General development parameters
Density: 20 units per acre, maximum
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 or 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 uses 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
City of Bremerton Comprehensive Plan LU-52
Land Use Element
(CC continued)
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.
WWRC (Wheaton Way Redevelopment Corridor)
General development parameters
Density: 20 units per acre maximum, 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 or beside primary structures
Location: on WheatonWay/Hwy303
Policy direction:
Promote infill and redevelopment of large parcels between designated centers along Wheaton
Way, that allow commercial uses along the arterial frontage and higher density residential use
behind. The commercial uses must be 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 low-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.
City of Bremerton Comprehensive Plan LU-53
Land Use Element
(WWRC continued)
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.
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 street-wall 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,
and 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, infill 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.
City pf Bremerton Comprehensive Plan LU-54
Land Use Element
PSRS (Public Sector Redevelopment Sites)
General development parameters
Density: Varies, urban in nature
Height: 3 stories
Structure Type: varies
Character: Well integrated, planned development
Location: As mapped. Large parcels of groups of parcels in public or quasi-public
ownership
Policy direction:
Provide areas for large-scale, planned development, by public or quasi-public entities with a clear
community benefit.
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 structures, 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 less.
Policy direction:
Support viable neighborhoods without walkable access to services by 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,
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
Cit~ of Bremerton Comprehensive Plan LU-55
Land Use Element
(NC continued)
Neighborhood, District, or Employment Center; a Commercial Corridor; or in the
Downtown Regional Center. 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.
LC (Limited Commercial)
General development parameters
Density: Zero
Height: 60 feet
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 Limited Commercial 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 those existing uses and identify their physical extent in 2004. Expansion of
those 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 for 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 freeway 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.
City of Bremerton Comprehensive Plan LU-56
Land Use Element
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 a 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 (if any)
Location: As mapped
Policy direction:
Provide for appropriate locations for light industrial 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.
Location: As mapped
City of Bremerton Comprehensive Plan LU-57
Land Use Element
(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 lifts, marine railways, boat storage, boat maintenance and
repair, marine parts fabrication and other commercial or light industrial uses dependent
on on-site access to navigable 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.
City of Bremerton Comprehensive Plan LU-58
Land Use Element
CUL (City Utility Lands)
General development parameters
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: This 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
City of Bremerton Comprehensive Plan LU-59
Land Use Element
(WS continued)
Discussion. The Watershed Lands 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 ( 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
Policy Direction and Discussion: The Higher Education 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 feet
Structure Type: Transportation, utility, and public facilities not within a center
Character
Location: Locations as mapped on the Comprehensive Plan Land Use Map
Policy Direction and 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.
Cit~/ of Bremerton Comprehensive Plan LU-60
Land Use Element
Housin
HOUSING ELEMENT
This Element suggests creative and
incremental strategies to serve the
existing population, combined with
necessary redevelopment
opportunities to help bring new
growth and a healthier residential
mix to the City of Bremerton.
Housing Vision
Bremerton ensures quality homes and cohesive neighborhoods that
empower its cit&ens. Coordinated city services and programs emphasize
quality homes, home ownership, residential safety, and appropriate
property maintenance. The City fosters the creation and enhancement of
cohesive neighborhoods through infill and rehabilitation projects designed
with a community orientation. 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.
City qf Brernerton Comprehensive Plan HS-1
Housing Element
HOUSING ELEMENT
CONTENTS
HOUSING VISION ................................................................................................. HS-1
INTRODUCTION .......................................................................................................... HS-3
Format of the Housing Element ............................................................................ HS-4
CURRENT CONDITIONS ............................................................................................ HS-5
Existing Housing Stock ........................................................................................ HS-6
Housing Resources ............................................................................................... HS-8
FUTURE HOUSING PROJECTIONS .............................................................................. H~-9
Calculation of Future Housing Needs ................................................................ HS-IO
HOUSING GOALS AND POLICIES ................................................................. HS-11
Housing Quality ................................................................................................. HS-11
New Housing Development ................................................................................ HS-13
Affordable Housing ............................................................................................. HS-15
Cohesive Neighborhoods ..................................................................................... HS-16
Housing Planning and Coordination ................................................................. HS-18
CONSISTENCY OF THE HOUSING ELEMENT ............................................................ HS-19
GLOSSARY FOR TERMS USED IN ELEMENT AND APPENDIX ............... HS-22
City of Bremerton Comprehensive Plan HS-2
Housing Element
101~l~[
[ntroductiott The Housing Element focuses on the
most basic function of community living
-shelter-for the local population. It is
~ pragmatic by acknowledging
~'~ deterioration of housing conditions. It
is responsive by advocating for better-
protected, cohesive neighborhoods with
identifiable features that encourage
higher homeownership rates. The
element also recognizes the need for
housing assistance in the community,
with a majority of current residents in
Bremerton has developed over the past the City considered low income and
century as a durable and convenient unable to qualify for mortgages or fully
community, providing a cherished maintain homeownership costs. The
setting for residents. Originally Element suggests creative and
founded in conjunction with its major incremental strategies to serve the
employer, the Puget Sound Naval existing population, combined with
Shipyard, the quality of life in necessary redevelopment opportunities
Bremerton is admired throughout the to help bring new growth and a
wider region, especially by commuters healthier residential mix to the City of
to downtown Seattle. Bremerton.
Bremerton's distinctive neighborhoods Housing conditions and aspirations are
have survived various growth cycles, a basic starting point for citizens to be
They showcase the city's unique engaged in improving the community.
scenery, with extensive waterfront and Beyond the need for sound shelter, a
mountain vistas, walkability, 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,
qualifies 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 residential areas. Responding to identity. This Element asserts this focus
the urgency of the challenges, citizens 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 Challenged further by the overarching
Bremerton as a great place to live. goal of a healthier community with a
wide range of housing options, the
Housing Element corresponds well with
the Comprehensive Plan. Coordination
with the Land Use Element is
City of Bremerton Comprehensive Plan HS-3
Housing Element
particularly important as it prescribes Format of the Housing Element
types of uses, densities, and Following this introduction, the Housing
development provisions. In fact, a basic Element is organized into four main
goal of the Land Use Element is to sections. They are:
protect quality single-family areas while 1) an examination of current housing
encouraging new growth in strategic conditions,
locations for new, more intense and 2) a projection of expected future housing
vibrant urban settings, needs,
3) the community's goal and policy
direction for responding to the
those conditions and needs, and
4) an overview of implementation
strategies set forth by the goals and
policies.
Much of the first two sections is data-
intensive, such as an inventory of the
existing housing stock, and has been fully
captured in the Housing Appendix at the
The Housing Element also responds to the end of the document.
numerous mandates articulated in federal
funding protocols, Washington's Growth The heart of the Housing Element is its
Management Act, County-wide Planning goals and policies. They provide for
Policies, and the Consolidated Plan of strategic implementation of funds,
Kitsap County (a County-wide housing facilities, services and policies to support
report required for federal funding), homeownership, diverse housing choices,
Housing policies, especially those cohesive neighborhoods, low income
providing for an equitable distribution of services, special needs in the City's
below-market subsidized housing, require population, a broad range of affordable
inter-jurisdictional coordination and homes, and economic development.
cooperation in meeting needs and in Addressing housing needs requires a broad
attracting new housing development, set of considerations, especially in realizing
Therefore, housing strategies are also that the overall quality of life is largely
recognized from other plans and other shaped by regional opportunities and
legislation for integration with this trends. A key component for success, then,
Element. is inter-jurisdictional coordination
regarding the regional economy,
Ultimately, the Housing Element will demographic changes, and legislative
succeed by empowering individuals, challenges.
associations, and communities to improve
their living environment, especially with its To that end, this Element incorporates
framework for future more specific much of the data in the Consolidated Plan,
planning processes, goals, and policies, especially its assessment of county-wide
housing needs. It also incorporates the
Consolidated Plan's already adopted goals
and policies for common challenges in
emergency, transitional, and public
City of Bremerton Comprehensive Plan HS-4
Housing Element
housing. Kitsap County and the City of Current Conditions
Bremerton both participated fully in the
development and approval of the Recent trends, local demographics, and
Consolidated Plan, chiefly as recipients of characteristics of the housing stock threaten
Federal HOME funding, but also as Bremerton's legacy as a great place to
partnere in addressing the housing needs reside. Current conditions in the local
of the region. While assessing the existing housing market are detailed below and in
housing conditions peculiar to Bremerton, the Housing Appendix. Unfortunately,
especially in the Housing Appendix, the they result largely from a deteriorating
Housing Element brings a focus to the local economy and a gradual weakening
aspirations of Bremerton citizens, clearly quality of the quality of the city's ageing
represented in the Housing Goals and neighborhoods. However, the data also
Policies for Bremert0n through 2023. portrays the current opportunity to
capitalize on Bremerton's well-established
The existing housing stock of Bremerton is neighborhoods, its unique position in the
summarized below (detailed in the greater Puget Sound economy, and, lastly,
Housing Appendix), relying heavily on regional and national housing trends.
data provided through the United States
Census Bureau, illustrating conditions over The City of Bremerton's population has
the past 20-year period. Housing essentially stagnated for the past 30 years.
throughout Kitsap County provides The decennial census reports from 1970 to
comparison and, more importantly, context 2000 show a negligible increase of less than
for housing dynamics in the City of 2,000 people. Over the time span, this is an
Bremerton. National and regional trends, insignificant increase (less than 1/5 of 1%
including shifts in the Puget Sound annual growth), and easily dismissed amid
housing market (i.e., Freemont artist lofts Bremerton's regular fluctuations in the
below), are prominent in the subsequent military population of two to three
section on projecting housing needs for the thousand people. In fact, population
horizon, 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 by 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,
continuing a downswing from an all-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
City of Bremerton Comprehensive Plan HS-5
Housing Element
104~)~
15,000 people. That housing crisis still Housin · Stock
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 Characteristics of the existing housing
region have witnessed unprecedented stock include type, occupancy, age,
growth. 2he whole of Kitsap County, for condition, and affordability, as fully
example, went from a population of 147,152 detailed in the Housing Appendix of the
in 1980 to a population of 231,969 in 2000, Plan. Comparing the housing stock of
an increase of nearly 60%. Given this the City and the wider Kitsap
dynamic, Bremerton's proportion of the community, the characteristics of
county's total population and regional Bremerton's existing housing stock, and
growth decreased dramatically, beginning its current position in the development
in 1970. (See Table G-1 in the Appendix of and housing market emerges. This
this Plan.) position can then be advanced and
improved upon.
Evidently, the housing and development
market in Bremerton has proven Census 2000 reports a total of 16,631
uncompetitive with surrounding areas, housing units in the City of Bremerton.
There are numerous causes for this, both on This is actually a 6% increase (938 new
the supply and demand side of the housing units) since the 15,693 dwelling units
market. Supply-side factors include the reported in 1990. This increase in
higher cost to redevelop existing city lots, reported dwelling units, however, did
verses the undeveloped parcels and new not yield a corresponding population
development opportunities in the county, increase. As shown in Table G-1 of the
including Urban Growth Areas. Appendix, Bremerton's population
Bremerton's somewhat outdated housing actually decreased by 883 people
stock, dating back to the previous growth between 1990 and 2000. The
periods of 1940's and 1960's, often fails to discrepancy between an increasing
address contemporary market demands or housing stock and a lower population
today's diverse market demand for count can be partially explained by an
housing. Current market demands increased vacancy rate in the 2000
partially reflect demographic changes, census, to just over a 9% (1546 units),
discussed throughout the document, in verses a 6% vacancy rate in 1990 (897
areas such as household type, size, income units.)
level, and special needs populations.
Overarching demographic dynamics, such Vacancy rates in the Bremerton area 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 at
single-parent households, indicate a need the Puget Sound Naval Shipyard (PSNS).
for greater diversity in housing types.
Cit? of Bremerton Comprehensive Plan HS-6
Housing Element
Variance in the vacancy rate is more Despite Bremerton's lower number of
acute due to Bremerton's relatively persons-per-household and a lower
small housing stock and its proximity to percentage of family households
PSNS. For example, vacancy rates in (defined as homes where children are
1994 went from 13.9% in the Spring to present) verses the wider county, there
3.0% in the Fall, due to the return of are more "overcrowded" housing
Navy personnel. A market equilibrium incidents counted in Bremerton than
vacancy rate is commonly estimated to Kitsap County or its other cities. In the
be 5%, which is closer to the 2000 2000 Census, 5.5% of Bremerton's
Census vacancy rate reported for the housing was reported to have more than
county at 6.7%. 1 person per room, compared with 3.5%
in Kitsap County as a whole. This is a
Bremerton's unique housing demands sign that cost and choice of housing are
require built-in flexibility in its housing problematic for much of the existing
stock, as well as higher quantities of population. This data suggests that a
units than communities with more significant number or residents are
stable population numbers. Another currently sharing units or having to live
unique characteristic of the local in units that are smaller than enjoyed by
housing stock is the accompanying high the average American or Kitsap County
turn-over rates associated with a more family.
transient population, producing further
stresses on the housing stock, as shown The smaller size of existing units,
in the housing condition analysis, detailed in the first subsection of the
summarized below. Housing Appendix titled, "Type", is an
obvious factor underlying Bremerton's
Though largely attributed to military smaller household size and its
deployments in Bremerton, a generally overcrowding rates. The City's
lower number of people-per-household relatively lower income levels and
is another consideration of housing higher poverty status, detailed under
needs for current residents. This is all "Affordability", are also related,
the more relevant as the percentage of complicating the challenge of meeting
smaller households is growing in long- housing needs and providing healthy
term national trend analyses, residential settings.
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
is further addressed in Future Housing
Needs of the Housing Appendix, which
also looks at Bremerton's demographics
to better understand local needs for
housing types.
City of Bremerton Comprehensive Plan HS-7
Housing Element
1061~
More recent quantifiable changes in the continual coordination and education.
Bremerton's housing stock are While endorsing the Countywide
identifiable in local building permit Consolidated Plan and its obiectives
records and Washington State Office of regarding shared public housing
Financial Management estimates which strategies, this Element works to elevate
track demolitions and group quarters the local 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
improvements pursued by the City in a As detailed in the Housing Appendix,
"gateway project" to advance the Bremerton is particularly burdened with
quality of life in Bremerton and to more than its "fair share" of subsidized
potentially entice new residential units (an amount agreed upon in the
investments. The majority of the new county-wide Consolidated Plan.)
residential units reported since April, Bremerton Housing Authority and the
2000, however, are manufactured Kitsap Consolidated Housing Authority,
homes, not the more expensive frame who administer and provide subsidized
construction units that can indicate an housing, must continue the work to break
increase in land values. Despite the up concentrations of public housing and to
even smaller horizon of time, the time diversify housing options in Bremerton.
period of April, 2002, to April, 2003, The nearly 3,800 households currently on
shows an increase in number of waiting lists for housing assistance speaks
residential units that favor new frame to this need. Innovative options such as
construction units, perhaps showing workforce-housing and co-housing
new investment interest in Bremerton's developments can meet such needs.
housing market. Market conditions,
especially historic low mortgage rates Another need clearly demonstrated by the
making real estate investments more examination of existing housing resources
affordable in 2003, also partially explain (see Housing Appendix), is for transitional
this promising upgrade in the supply of housing in Bremerton. The high
new, more durable housing in percentage of renters in the City, at 63% in
Bremerton. the 2000 Census, would benefit from
transitional housing options, with related
Housing Resources services, that ultimately lead to self-
Meeting the needs and vision for sufficiency and home ownership.
housing in the City of Bremerton is
predicated by a shared understanding Additionally, for those facing an acute
and commitment between all interested housing crisis, there are only 12 existing
parties, including residents, public family units for homeless families in
officials, non-profit organizations, and Bremerton, only 17 beds for women and
private developers. Housing resources, children fleeing domestic violence, and,
from tax credits for new, affordable high currently, no homeless shelters for men.
density projects to federal housing
vouchers administered locally, require
City of Bremerton Comprehensive Plan HS-8
Housing Element
107
Futur~ setting the city-wide projections found
in the Plan's "Introduction, Setting 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 20-year period. Income and age
information, described in occupancy
and affordability section above, help
identify the types of housing and
Evaluating local housing needs requires physical improvements which will be in
multiple levels of analysis from demand.
numerous perspectives. It is meant to
be an on-going charge to the City and to
housing organizations; it 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- The focus of this Comprehensive Plan is on
married without children), seniors (65 enticing new growth which capitalizes on
years and older households) and single- Bremerton's tmique location and access in
parent-headed households. The the region, as well as its metropolitan
particular housing needs and characteristic, unique in Kitsap County.
characteristics of these demographics, Existing demographics, household sizes, and
including a smaller household size, incomes are instructive for gauging the
challenge the predominance of existing market, but, as detailed above,
suburban-style single-family detached current data highlight imminent changes in
housing units in the current housing the market. This Plan endeavors not only to
market. While household size address long-standing issues regarding
nationwide continues to decrease, a housing, but to attract new kinds of housing
significant subset of the nation's and opportunities. The Centers Concept,
minority population shows consistently central to this Comprehensive Plan, forms
higher household sizes with different the basis for this approach. It is fully
housing expectations, described in the Land Use Element but
partially repeated below, as it provides for
Demographic data taken from the U.S. the growth described in the Housing
Census, described in Current
Conditions above and referenced in Element's goals and policies.
City qf Bremerton Comprehensive Plan HS-9
Housing Element
Calculation of Future Housing Needs As reported in the Housing Appendix,
(Summary from Housing Appendix) 700 units will be lost to obsolescence
over the same 20 year period. For
Future housing needs are arrived at planning purposes, it will be assumed
primarily by projecting expected that these units will be replaced in a
population increases and expected similar distribution of types as expected
future household sizes, and calculatin~ above. The followin$ table summarizes
the resultant number of units needed, the resultant housing need calculation:
The 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 Replacement 700 11-13
previous total.
TOTAL 5303-6416
The Housing Appendix section provides
the first calculation. A total of 4603-5716
new residential units will be required to
accommodate the expected population
increase of 13,000 people over the next
20 years (2003-2023). The land use
model upon which this plan is based
assumes that between 2674-3359 of the
new housing units will 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
500-750 units will remain in multi-
family areas outside of Centers.
City of Bremerton Comprehensive Plan HS-10
Housing Element
Housing Goals and
Policies
The goals and policies presented in this
section were developed by community
members as well as public officials as a
response to the challenges identified in
the Housing Element and the Housing
Appendix to this comprehensive plan.
The Bremerton Goals for Housing are HI Preserve and enhance Bremerton's
organized into 5 main areas:
quality housing stock
· HOUSING QUALITY H1A Promote private and public
· NEW HOUSING DEVELOPMENT
· AFFORDABLE HOUSING efforts to preserve the existing quality
· COHESIVE NEIGHBORHOODS housing stock by maintaining sound
· HOUSING PLANNING AND units, rehabilitating substandard units,
and replacing severely deteriorated
COORDINATION
units.
Housing Quality · Promote maintenance of housing that
is now in standard condition to
Discussion: Part of Bremerton's charm is prevent its deterioration to
substandard condition
its older housing stock, half of which
· Promote the rehabilitation of
was built before 1950. Many of these substandard structures when the cost
units are well maintained and in good of rehabilitation is less than the cost of
condition, and give character and a replacement housing. This cost factor
sense of stability to the city. However,
does not apply to housing designated
large numbers of these units have and
will reach the end of their useful lives if as having historical/architectural
significance
not rehabilitated soon. While the City's · Promote replacement of substandard
Housing Rehabilitation Program has structures which have excessive
made good strides in helping lower rehabilitation costs with new
income people upgrade their houses, it structures
is not likely to have the financial
capability to assist all homeowners who
need help. Deteriorating commercial
structures compound the problem,
blighting surrounding areas,
discouraging redevelopment, and
holding down the City's tax base. New
strategies will be needed to turn the tide
of housing deterioration into
opportunities for revitalization of
Bremerton.
City of Bremerton Comprehensive Plan HS-11
Housing Element
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-
worthiness of the dwelling rather than H2 All housing will be safe, sanitary,
the credit-worthiness of the and in good repair
homeowner
H2A Work towards residential conditions
H1C Promote rehabilitation and which comply with building codes, 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
H1D Promote efforts to identify, · Require removal of unsafe housing and
rehabilitate and preserve homes having restoration or redevelopment of the site to
historical/architectural significance, a safe condition for quality housing
· Give priority to such homes in City H2B Promote private commitments to
rehabilitation programs, improvement of the housing stock by using
public resources to remove or abate
blighting 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
facilities
· Promote financial assistance for essential
repairs to substandard structures that
provide housing for low and moderate
Large homes can provide for multiple, income persons. Support private sector
attractive, and affordable units,for rent or as low-interest loan programs for such
innovative condominiums.
repairs, combined with public resources
when available
City gf Bremerton Comprehensive Plan HS-12
Housing Element
1111~
New Housing Development short-term residents, particularly for
those in the lower income categories.
Discussion: Most of Bremerton's housing
stock was developed to meet the needs H3E Promote housing opportunities
of households in days gone by. Today's that respond to the special needs of
housing needs are often very different, students, the military, households
Encouraging the development of new headed by females, the elderly, and the
housing within already developed areas handicapped.
presents a special challenge that
requires strategic policies.
Workforce or temporary housing should be
designed to blend with a neighborhood's
established character and provide attractive
opportunity to live and work locally.
H3 Provide a variety of housing
types and densities to meet changing H3F Encourage the development of a
needs of Bremerton residents full range of housing options for seniors
in proximity to services and amenities.
H3A Promote private and public
efforts to provide adequate capital for · Consider allowing retirement housing
private and public new housing projects complexes in all residential zones
at competitive or favorable costs, subject to development standards
ensuring compatibility with
· Support a Letter of Credit program to surrounding neighborhoods
expedite housing project start-ups · 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 incomes, ages, and against discrimination in the area of housing, the
family types. City will not enact any ordinance, law, or regulation
that treats housing for handicapped residents, or
group care facilities for children, differently than a
H3D Encourage the provision of similar structure occupied by a family or other
adequate housing to meet the needs of unrelated individuals.
City qf Bremerton Comprehensive Plan HS-13
Housing Element
H3G Provide for integration of special
needs housing within the con'ununity.
· 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
options, such as artist's lofts, especially in
mixed use areas and rehabilitated H4 Provide housing in mixed-use
structures, centers for a variety of incomes, age
groups, and household types
Discussion: Mixed use centers provide a tu~ique
opporttmity to reach many of the housing goals
and policies of the commtmity in an efficient,
well designed, and integrated manner. By
locating significant amounts of future housing
in centers, the City is: providing a variety of
housing types to meet changing needs,
addressing housing needs of seniors, singles,
students, and the handicapped, creating
walkable housing areas, placing "gathering
places' in neighborhoods, placing housing and
Co-housing projects allow for individual employment in proximity, and increasing
ownership of with shared common facilities housing density to encourage more efficient use
and services, such as child care and of public facilities and transit.
common meals.
H4A Target the use of affordable
H3I Support efforts to provide housing tax credits to Centers.
emergency and group housing.
City of Bremerton Comprehensive Plan HS-14
Housing Element
1131~
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 services with a weaker tax base. At
the same time, the City recognizes that low income
families need housing with access to City services
and facilities. Further, the City recognizes
subsidized housing and other creative housing
programs can empower residents with housing · Promote residential infill development of
choices and assist in the role of community
maintenance and enhancement, vacant or underdeveloped parcels at
somewhat higher densities than
surrounding properties, with assurances
that neighborhood compatibility 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 households with
children, elderly, or special needs present
within privately owned developments
H5 Promote access to quality, containing a mix of market-rate and
affordable homes for all Bremerton below market rate units; or, if entirely
residents, regardless of their economic public-subsidized housing, priority will
capabilities or special needs go to projects with single family scale
buildings
H5A Provide opportunities within · Stimulate the production of new housing
existing neighborhoods for below market for all incomes, ages, and family types,
rate and affordable housing without including mid and upper incomes
negatively impacting the existing
neighborhood character. H5B Provide the City's fair share~ of the
county-wide need for below-market,
· Allow accessory units (as seen below) public-assisted, rental housing.
associated with, and subordinate to,
existing or new single family dwellings in · Promote the conversion or transitional
all residential zones 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 for further detail on this
process.
City of Bremerton Comprehensive Plan HS-15
Housing Element
1141~
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
H5D Locate publicly assisted housing merely shelter for City residents. Bremerton's
in areas that will provide eligible low proportion of owner-occupants (only
households with wider geographical 39%) tends to result in a minority of residents
choices, having a stake in maintaining the housing
stock and upgrading the neighborhoods. A
high proportion of renters also results in a
H5E Maintain quality public housing higher turnover of residents, which can
stock in good condition, undermine neighborhood stability and
discourage homeownership interest. On the
H5F Increase the cost efficiency of other hand, social interaction and
providing utilities and services to neighborhood identity, partially a result of a
residential areas through increased neighborhood's design and planning process
densities, encourages desired stability for increased
homeownership levels.
· Reduce costs for housing
developments and enable easier
maintenance of prescribed levels of
service through appropriate densities
· Promote increased housing densities
to provide a broader customer base for
public 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 investigate City policies,
including taxation and incentives for
multifamily units, to ensure that the
City is not encouraging rental units
City of Bremerton Comprehensive Plan HS-16
Housing Element
H6B Encourage affordable residential H7D Improve the visual quality of
developments in places where residential areas where needed.
development has been overlooked.
· 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, livable
neighborhoods that will attract
homeowners
HTA Upgrade and maintain levels of
public services.
H8 Promote social interaction as
H7B Implement the Parks and
well as neighborhood identity and
Recreation Comprehensive Plan, initiatives
realizing neighborhood recreation
needs. H8A Authorize a city-wide and
neighborhood process to propose design
H7C Maintain a leadership attitude review mechanisms, such as a design
which delivers responsive public actions review board, architectural guidelines,
in ensuring personal security, code or design standards for uses within
enforcement, and other public services residential sub-areas.
· Maintain a strong code enforcement H8B Advance the concept of "the
program third place" within neighborhoods,
· Establish programs to protect personal providing for gathering places and
security convenient services where neighbors
· Maintain effective crisis response can interact.
· Improve neighborhood/police
relations H8C Encourage walk-ability within
· Develop effective neighborhood crime neighborhoods.
defense mechanisms
· Design and implement improved
police response systems for "less than
crisis" situations
Cit~_ of Bremerton Comprehensive Plan HS-17
Housing Element
116~
HSD Use neighborhood plans to · Seek to enter into an inter-
outline public and private proiects for governmental agreement with Kitsap
each neighborhood. County to foster implementation of
affordable housing goals
HSE Incorporate neighborhood plan · Seek cooperative relationships with
implementation proiects in the City's other agencies to encourage the
Capital Facilities Plan. development of affordable housing
within the communities
Housing Planning and Coordination H9E Maintain funding streams for
housing programs and strategies.
Discussion: It is critical to maximize the
effectiveness of scarce public resources in H9F Reduce the cost per resident in
improving housing opportunities in housing developments by meeting
Bremerton and throughout the county, prescribed levels of public services
· Promote increased housing density to
provide a broader customer base for
more affordable 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
they are consistent with the public
health, safety, and welfare.
H9C Provide an expedited permit
process.
H9D Promote intergovernmental
cooperation to achieve City Housing
goals.
City of Bremerton Comprehensive Plan HS-18
Housing Element
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. 2~e 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 serves low
and moderate income populations. The City must work towards diversifying its
affordable housing choices for a healthier combination of economic segments of the
population. A variety of housing densities and types, 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 the issue of fair and equitable distribution of affordable units. The
County-wide Planning Policies present the following charges to all 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 the 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, where 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
identify countywide conditions and projected needs.
City of Bremerton Comprehensive Plan HS-19
Housing Element
D. The County and the Cities shall each identif~j specific policies and implementation strategies
in their Comprehensive Plans and shall enact implementing regulations to provide a mix of
housing types and costs to achieve identified goals for both market rate and below market rate
housing.
Recognizing that the marketplace 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, also from the County-wide Planning 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:
· preservation, rehabilitation and redevelopment of existing neighborhoods as appropriate,
including programs to rehabilitate substandard housing;
· provision for a range of housing types such as multi-family, single family, accessory
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 County 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 elderly, physically or mentally challenged, and other segments of
the population that have special needs.
F. Innovative regulatory strategies shall be developed and implemented to provide incentives for
the development of below market rate housing within Designated Centers. Jurisdictions shall
devdop 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; density incentives; smaller lot
sizes; zero lot line designs; inclusionary zoning techniques, such as requiring below-market rate
housing in new residential developments; transfers of development rights and/or a priority permit
City of Bremerton Comprehensive Plan HS-20
Housing Element
119~
approval process.
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 public 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 of below market rate housing. The County 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
support 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 by this Comprehensive Plan.
City of Bremerton Comprehensive Plan HS-21
Housing Element
2otj
GLOSSARY FOR TERMS USED IN ELEMENT AND APPENDIX
The following definitions have been derived from state law and coordinated countywide
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. It is 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 have 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 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 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 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 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.
City of Bremerton Comprehensive Plan HS-22
Housing Element
on Element
12111~
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,
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.
City of Bremerton Comprehensive Plan TR-1
Transportation Element
122~
TRANSPORTATION ELEMENT
CONTENTS
TRANSPORTATION VISION ............................................................................. TR-1
INTRODUCTION ......................................................................................................... TR-3
Scope and Content ................................................................................................ TR-4
EXISTING CONDITIONS ............................................................................................. TR-4
Traffic Volumes ..................................... TR-4
Level of Service ...................................................................................................... TR-5
Transit and Ferry Service ..................................................................................... TR-5
Pedestrian and Bicycle Facilities .......................................................................... TR-5
EXISTING DEFICIENCIES ............................................................................................ TR-6
Roadway Capacity Deficiencies ............................................................................ TR-6
Operational, Safety, and Other Deficiencies ........................................................ TR-6
FUTURE CONDITIONS AND DEFICIENCIES ................................................................ TR-7
Level of Service Standards .................................................................................... TR-7
Future Traffic Volumes and Level of Service ....................................................... TR-8
TRANSPORTATION GOALS AND POLICIES ............................................. TR-10
Multi-Modal ....................................................................................................... TR-11
Community Character ........................................................................................ TR-12
Environment ....................................................................................................... TR-13
Neighborhoods .................................................................................................... TR-13
Parking ................................................................................................................ TR-14
Levels of Services~Operations ............................................................................. TR-15
Travel Demand Management ............................................................................. TR-15
Safety ................................................................................................................... TR-16
Ferry .................................................................................................................... TR-16
Through Traffic/State Highways ........................................................................ TR-17
Transit ................................................................................................................. TR-17
Non Motorized .................................................................................................... TR-18
Economic ............................................................................................................. TR-18
Downtown .......................................................................................................... TR-18
PROPOSED TRANSPORTATION IMPROVEMENTS AND COSTS ................................. TR-19
Roadway Capacity Improvements ...................................................................... TR-19
Operational, Safety, and Other Improvements ................................................... TR-19
Pedestrian and Bicycle Improvements ................................................................ TR-19
Transit Service and Facility Improvements ....................................................... TR-20
Cost Estimates .................................................................................................... TR-20
FINANCING AND IMPLEMENTATION PLAN ............................................................ TR-2!
Existing and Projected Revenue ......................................................................... TR-21
Improvement Costs/Reven ue Comparison .......................................................... TR-21
City of Bremerton Comprehensive Plan TR-2
Transportation Element
1231~
Introduction The Transportation Element primarily
supports the Land Use Element of the
Comprehensive Plan, but also
complements each of the other Plan
Elements. The Transportation Element
responds to the numerous state and
county mandates articulated in the
Growth Management Act (GMA) and
the Cotmty wide Planning Policies. As
an integral part of the regional
transportation fabric, Bremerton is
dedicated to working with the
Bremerton has a rich history of unique Washington State Department of
transportation options and patterns. Transportation (WSDOT), Kitsap
From small "mosquito" ferries to a County, and transit agencies to ensure
strong grid road system, Bremerton has safe, reliable, and effective
always developed and supported transportation in Bremerton and its
transportation systems that strive to surrounding areas.
meet the needs of the entire community.
This Transportation Element is an effort A well-coordinated transportation
to continue this tradition. It serves as an system will enhance the quality of life in
important piece of the overall City Bremerton, while reducing urban
Comprehensive Plan. To ensure that sprawl and other undesirable
Bremerton's transportation system development patterns. A fundamental
responds to the needs of the tool in these efforts, the Level of Service
community, the vision, goals, and (LOS) standards established in this
policies contained in this chapter came Element, provide the means to evaluate
out of extensive citizen comment and and measure the impact of future
participation, development in the community.
This Transportation Element goes beyond
a discussion of moving automobiles
efficiently, to an examination 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 integrate the adjacent
neighborhood character and safety.
City of Bretnerton Comprehensive Plan TR-3
Transportation Element
1241~
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
Section). The following Element Traffic Volumes
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 of the Transportation
including level of service and Appendix to the Plan. These counts
concurrency strategies), 3) the goals were recorded between the years 2000
and policies that form the response to and 2003. Figure 2-4, also in the
the challenges presented, 4) the Transportation Appendix shows the PM
improvements necessary for the peak hour traffic counts recorded in the
transportation system to respond, and 5) year 2001 by the City of Bremerton and
the costs and the needed financing WSDOT.
strategies.
The average daily weekday traffic
Other important aspects of this Element volumes shown in Figure 2-4 range
are: adequate public participation from 1,100 vehicles per day on Park
during the preparation and adoption of Avenue north of 13th Ave to 46,700 on
the Transportation Element, internal the Warren Avenue Bridge. The higher-
consistency with all other Plan volume arterials are Kitsap Way (SR
Elements, and discussion of a 310) between llth Street and SR-3, llth
"Concurrency Management Program". Street between Warren Avenue and
These issues are discussed within the Callow Avenue, 6th Street between
context of the major sections, or Naval Avenue and Callow Avenue, and
presented in greater detail in the Wheaton Way/Warren Avenue between
Transportation Appendix. llth 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.
City qf Bremerton Comprehensive Plan TR-4
Transportation Element
Level of Service Port Orchard is operated by Kitsap
The Transportation Appendix provides Transit. The public ferry services
a detailed discussion of the connect downtown Bremerton with
methodology used to measure roadway Colman Dock in downtown Seattle,
Level of Service (LOS). Level of Service providing an important link between
measures the function of transportation the two downtown areas. The
infrastructure, relating such factors as passenger-only ferry service links
delay at an intersection or speed along downtown Bremerton with Port
an arterial segment. In general, LOS Orchard and Annapolis.
"A" for a street is excellent - meaning
that there is a free flow of traffic along Pedestrian and Bicycle Facilities
the street or no appreciable delay at an
intersection. 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 Standards" that the City ensures
as growth occurs, in keeping with the
transportation vision.
' Service
Expanding Bremerton's non-motorized
transportation network is consistent
with this Element's goals to encourage
an integrated multi-modal
transportation system, and to provide a
transportation system that effectively
encourages pedestrian, bicycle and
other non-motorized travel. Both
Kitsap Transit operates the transit
service in the City of Bremerton. pedestrian and bicycle facilities should
Current transit routes are illustrated on be an integral part of the transportation
network, and the provision for these
Figure 2-6 of the Appendix. Many of facilities should be incorporated in the
the transit routes serve the Puget Sound
Naval Shipyard (PSNS) and downtown transportation improvement program to
Bremerton, especially the Washington encourage non-motorized trips.
State Ferry (WSF) Terminal.
Downtown Bremerton is currently
served by a public auto/walk-on ferry
service, operated by Washington State
Ferries (WSF) and private, passenger
only service to Seattle. Additionally, a
local passenger-only ferry service to
City of Bremerton Comprehensive Plan TR-5
Transportation Element
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. Lack of bicycle lanes on
designated routes is a safety problem
not only for bicycle riders but also for
drivers of automobiles. Exceptions to
this status-quo include the recently
constructed sections of SR 304, which
has dedicated bicycle lanes, and Kitsap
Way, which has wide-shoulders which
could be made suitable for use by
bicyclists. Discussions with City staff and the
Bremerton Citizen's Advisory Committee
Existing Deficiencies identified other existing transportation
system deficiencies. These deficiencies
include: Auto Center Way between Kitsap
Roadway Capacity Deficiencies Way and the SR-3 southbound On-Ramp;
As required by GMA, existing Loxie Eagans Blvd./Arsenal Way and 1st
transportation system capacity Street to SR 304 connections; Lower
deficiencies have been identified based Wheaton Way between Sheridan Road and
on the LOS analysis described in Section Callahan Drive; Warren Avenue at llth
2.4 of the Transportation Appendix. Street; and, the Downtown Core.
The future transportation improvement
The following existing roadway sections plan, discussed in Chapters 4 and 5 of the
exceed or are close to exceeding this Appendix, include improvements to
Level of Service D threshold during the address the operational deficiencies in
PM peak hour: these areas.
· Kitsap Way (SR-310) - llth 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)
· Wheaton Way (SR 303) - Sheridan to
Riddell (LOS D approaching LOS E)
City of Bremerton Comprehensive Plan TR-6
Transportation Element
Future Conditions and the street would exceed the six-year
Deficiencies timeframe, new development that
This section of the Transportation Element would add more traffic to the street
summarizes a more detailed section of the could not be approved.
Appendix that evaluates future conditions
in the year 2030 based on projected land For these reasons, LOS standards need to
use and population. The population, be carefully chosen for each local
employment, and land use patterns jurisdiction and for different arterials
employed for this analysis were consistent within a city or county. LOS D is the
with the other elements of this standard used in most urban areas in the
Comprehensive Plan. Puget Sound region, including the urban
portion of Kitsap County. Kitsap County
The purpose of this section is to identify currently measures LOS using a
future transportation system methodology similar to the City.
deficiencies resulting from projected
As shown in Table 2-3 in the Appendix,
population and employment increases
in the City of Bremerton and Central several roadways in the City of Bremerton
already exceed this LOS D threshold. In
Kitsap County. The year 2030 was
order to encourage growth in targeted
selected for analysis, to maintain
consistency with other regional models, areas of the City - such as the designated
including travel demand models at Centers, a lower LOS standard (i.e., E or F)
Kitsap County and the Puget Sound is recommended along several arterial
Regional Council (PSRC). corridors. This signals less impact costs -
an incentive - for new development in
Level of Service Standards these areas.
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 community'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 (V/C less than
meets (can not fail) the standard. If or equal to 0.9) on all other arterial streets
plans and projected funding to improve in the City.
City of Bremerton Comprehensive Plan TR-7
Transportation Element
128
Future Traffic Volumes and Level of Routes (SR) 304, 310 and 3 in the City of
Service Bremerton. For HSS routes, WSDOT
uses an average daily traffic to capacity
ratio (ACR) standard, and has adopted a
standard of ACR 10 (which
approximates to LOS D) for these
routes. State law exempts HSS routes
from local concurrency regulation.
However, mitigation for individual
development impacts to these routes
Will future traffic volumes meet these can still be required through SEPA.
standards? What transportation On non-HSS routes, including SR 303,
improvement projects might be the Puget Sound Regional Council has
necessary and to what effect?
adopted a LOS E-mitigated standard,
which is consistent with the City's
To answer these questions, the City proposed LOS E standard for this route.
utilizes a transportation forecasting
model. This model allows the testing of The LOS and V/C ratios are
alternatives to evaluate the effect of summarized in Table 3-1 of the
various transportation projects, such as Appendix. The following is a summary
dedicated High Occupancy Vehicle of that table:
lanes in various road segments. The
conclusion of this Element describes the The following arterials would continue
needed and desired transportation to exceed acceptable LOS thresholds in
improvements, beginning on page TR19. the year 2030 with some or all of the
improvement projects, associated with
The year 2030 traffic volume forecasts of transportation alternatives # 1-~4:
arterial streets in the City assume that
future travel characteristics would · Burwell Street (SR 310) from Warren to
continue to be similar to those seen Naval (LOS E - Alternatives 1, 3, and 4)
today. This transportation forecasting · Charleston Blvd. (SR 304) from Farragut
model is limited in its ability to predict to 6th (LOS F - all alternatives)
travel changes in the future, such as · SR 304 between Preble and Farragut
increased transit use and demand (LOS F - Alternative 3, LOS E -
management strategies such as Alternatives 1, 2, and 4)
telecommuting. Several of these factors · Werner Road west of Auto Center Road
are known to be associated with the (LOS F - all alternatives)
Comprehensive Plan's Centers-based · Warren Avenue (SR 303) from Callahan
land use models. These anticipated, to Sheridan (LOS F - all alternatives)
non-traditional, travel demand · Riddell Road from Wheaton to
adjustments could reduce the total peak Petersville (LOS E - all alternatives)
hour volumes by as much as 10 percent. · Sheridan Road from Wheaton to
Halverson (LOS E - all alternatives)
The Washington State Department of · Sylvan Way from Wheaton to
Transportation (WSDOT) sets LOS Petersville (LOS F - alternatives 2, 3,
standards for Highways of Statewide and 4)
Significance (HSS), including State
City off Bremerton Comprehensive Plan TR-8
Transportation Element
While deficiencies are predicted in the 2030
Plan horizon, there are no deficiencies
identified during the Plan's first 6-year
period, lasting through 2009. The analysis
indicates that all arterials in the City will
continue to operate at the applicable LOS
standard through the year 2009. Capacity
improvement or lower LOS thresholds will
clearly be required before the year 2030.
Altemafively, increased Transportation
Demand Management and Transportation
Systems Management strategies, such as
increased bicycle and transit use could
provide an acceptable LOS.
City of Bremerton Comprehensive Plan TR-9
Transportation Element
Transportation Goals and The City has also reviewed the provisions
of the following plans to ensure
Policies 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 Pagans 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 (Six-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.
strengthening Bremerton's role as a (n) Washington State Highway System
"metropolitan center", 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) - 2001
County wide Planning Policies (CWPP)
were adopted in September 2003, to
guide the comprehensive planning
efforts of all jurisdictions within Kitsap
County. This Transportation Element is
also consistent with the Kitsap County's
County wide Planning Policies. A
complete recitation of the MTP and the
CWPPs is provided in the Appendix.
City of Bremerton Comprehensive Plan TR-10
Transportation Element
The following goals and policies form the TR1B Work with Washington State
foundation of Bremerton's transportation Ferries and Kitsap Transit to coordinate
strategy for the future. Citizens developed transit schedules of multiple modes of
the goals and policies to support the overall transportation, and to further
transportation vision placed at the transportation conveniences.
beginning of this element.
TR1C Work with Kitsap Transit to
Multi-Modal establish and designate convenient park
and ride locations. (TllB)
· 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)
TR1D Establish a commuter parking
fee schedule in City-operated parking
TR1 Encourage the development of
an integrated multi-modal trans- structures, with savings for high-
portation system, that provides a occupancy vehicles and short-term
variety of convenient transportation parking.
choices to improve the movement of
people, goods, and freight TR1E Encourage formation of safe,
easily accessible, clearly marked pick
TR1A 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 all persons;
· Minimizing walking distance between
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, and/or green
space in streetscapes.
City of Bremerton Comprehensive Plan TR-11
Transportation Element
1321~
Character TR2C Restore/create unique
neighborhood aesthetics via formation
of distinctive streetscapes and traffic
controlling devices.
TR2 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
TR2A 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 craft
used to commute over water
TR2B 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 qf Bremerton Comprehensive Plan TR-12
Transportation Element
133~
Environment TR3D Where possible, the City shall
~ require the under-grounding of
~ overhead utilities to reduce the need for
removal and maintenance of roadside
vegetation.
TR3 Develop and maintain a
transportation system that respects
the natural environment, including
the quality of Bremerton air, water
and natural habitats
TR4 Protect residential neighborhoods
TR3A Preserve and restore natural from negative transportation impacts
habitat and native vegetation.
TR4A Minimize the impacts of traffic on
TR3B Encourage transit providers and residential neighborhoods by discouraging
the use of local access streets by non-local
organizations with large fleets of traffic.
vehicles to utilize "green" fuel and
reduce emissions/air pollution.
TR4B Maintain connectivity of the
TR3C Minimize impacts of road transportation system.
construction on environmentally
TR4C Reduce speed on neighborhood
sensitive areas; minimize damaging
storm water runoff and pollution from streets through the use of street design
road use and maintenance, devices such as curb bulbs, "median
obstacles," or other measures proven to be
safe and effective at reducing travel speeds.
· Implement programs that encourage
the planting of low-maintenance,
vegetated groundcover and trees TR4D Establish and maintain a traffic
along control program for assessing and
roadways responding to residential neighborhood
· Where traffic control concerns. Establish
possible standards for maximum desirable traffic
the City volumes and percentage of non-local
shall traffic. Establish a process for escalating
require control responses based on the severity of
the use the disturbance to the neighborhood.
and
maintenance of natural vegetated TR4E Minimize neighborhood street
stormwater controls (bioswales, etc.) widths and crossing distances
City of Bremerton Comprehensive Plan TR-13
Transportation Element
TR5D Assure parking availability for
commercial needs without impacting
arterial circulation, residential
neighborhoods, or other businesses by:
· Limiting parking on arterials that have
inadequate capacity,
· Encouraging joint development of off-
street parking facilities for compatible
land uses,
· Working with business owners
toward a goal of limiting employee
TR5 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
TRSA Implement parking ratios that
reflect the least amount of spaces
required for development approval,
where transportation options other than
the automobile are available to serve
travel needs. ~,~
TRSB Require landscaping along the
edge of parking areas to reduce visual
impact and aid in filtration of runoff.
TRSC 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
City of Bremerton Comprehensive Plan TR-14
Transportation Element
Levels ~erations Travel Demand Management
TR7 Develop Travel Demand
Management (TDM) strategies to
minimize the need for additional
transportation infrastructure and
expenditure
TR7A Continue to coordinate with
local
employers
to
implement
commute
trip
reduction
plans and
programs.
TR6 Improve connectivity and TR7B Work with the Washington State
mobility within Bremerton's trans-
Ferry System to coordinate ferry traffic
portation system through the with local traffic demands.
identification and implementation of
improvements that maintain Level of
Service standards
TR6A. 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
permitting process
· Create a concurrency system that does
not issue development permits unless
and/or until maintenance of adopted
LOS standards on links or at
intersections impacted by a
development proposal is assured.
City qf Bremerton Comprehensive Plan TR-15
Transportation Element
S~ Ferry
TR9 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
TR9A Encourage WSF to conduct
public input meetings in Bremerton, and
be responsive to ferry patron needs.
TR8 Ensure transportation system safety TR9B Make ferries accessible to all
through maintenance of infrastructure, and persons.
incorporation of safety enhancements, in
transportation improvement projects TR9C Support and promote ferry
system programs, which maximize the
TR8A Maximize the functionality and convenience of non-motorized
safety of the local circulation system, connections, and high-occupancy
vehicle (HOV) use, by providing
· Control the location and spacing of priority status and discouraging single
commercial driveways and the design of occupancy vehicle use.
parking lots to avoid traffic and pedestrian
accidents, confusing circulation patterns, TR9D Promote the continuation of
and line-of-sight obstructions passenger only ferry service.
· Designate and clearly demarcate
appropriate routes for through truck TR9E Promote coordination of ferry
traffic, hazardous materials transport, and and transit schedules to encourage
oversized traffic multi-modal travel.
· Develop and utilize clear and uniform
signage to guide traffic throughout the TR9F Support research and
City development in new ferry technology.
· Encourage bus pull-out lanes
· Examine, and where appropriate,
incorporate U-Turn lanes
TR8B Incorporate appropriate street
lighting as it relates to the land uses (i.e.,
residential, industrial, commercial use).
TR8C 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.
City of Bretnerton Comprehensive Plan TR-16
Transportation Element
Transit
TRll 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
TRllA Work with transportation providers
to develop a public transportation system
that allows convenient and efficient travel
TRI0 Coordinate with WSDOT to between Centers.
ensure state facility improvements meet
the goals of the Bremerton transportation TRllB Work with Kitsap Transit to
vision and Comprehensive Plan, and designate appropriate park & ride facilities.
minimize the negative impacts to the local (TLC)
transportation system
TRllC Identify possible corridors for
TR10ABremerton should support and development of future mass transit options
participate in the cooperative regional such as light rail, monorail, bus rapid
transportation planning processes, transit, etc.
TR10B Expand opportunities for public TRllDSupport efforts to expand usage
involvement in the identification, and infrastructure for mass transportation.
design, and implementation of
transportation related improvements TRllE Encourage the use of public transit
within Bremerton. by bicyclists and pedestrians by:
TR10C The City should continually · Providing safe, attractive, and
work with Kitsap County, WSDOT, comfortable walkways and waiting
regional transportation agencies, and facilities at public transit loading areas;
transportation providers to plan, fund, · Providing bicycle storage at transit
and implement joint transportation facilities;
projects and programs. · Installing bicycle racks on buses, and
· Developing and distributing information
TR10DSupport improvements on state concerning local and regional non-
highways to reduce congestion, and motorized routes.
improve safety and access for through
traffic, local traffic, and non-motorized
and transit users.
City of Bremerton Comprehensive Plan TR-17
Transportation Element
Non Motorized Economic
TR13 Incorporate the needs of
business and commercial traffic flow
in the development of transportation
improvements that affect commercial
and industrial Centers
TR13A Establish and identify through
clear signage, a truck and oversized
load route.
TR12 Provide a transportation system
that effectively serves the needs of and
encourages pedestrian, bicycle and
other non-motorized travel
TR12A Devise a non-motorized
transportation plan.
· Maximize safety when identifying TR13B Apply appropriate street design
pedestrian and bike path corridors, standards for industrial and commercial
· Establish uniform signage to designate districts, which allow for the easy
bike paths.
movement of goods and services.
TR12B Ensure that designated Centers TR13C Support a freight rail link.
are walkable, and encourage
connectivity. Downtown
In addition to the goals and policies in
TR12C Maintain existing and create new
engineered bike lanes, the preceding section, significant
guidance for transportation planning is
TR12DAdopt street standards which drawn from the Downtown Goals and
require bike lanes on identified bike Policies found in the Land Use Element
routes, of this Comprehensive Plan.
TR12E Identify, and clearly post, public
beach access.
City of Bremerton Comprehensive Plan TR-18
Transportation Element
Proposed Transportation These improvements include:
Improvements and Costs · Downtown Bremerton Transportation
Center (BTC) access/pedestrian
This section of the report describes the improvements,
transportation facility improvements · Auto Center Way between Kitsap
and costs, to accommodate the future Way and the SR-3 On-Ramp,
travel demand resulting from increased · Lower Wheaton Way between
Sheridan Road and Callahan Drive,
growth in the City of Bremerton. In
addition to the roadway facility · Warren Avenue at llth Street,
improvements, this section of the plan · Warren Ave. southbound off-ramp to
identifies transit, ferry, pedestrian, Callahan Drive,
bicycle, and transportation demand · Manette Bridge replacement,
management strategies · Loxie Eagans Blvd./Arsenal Way and
1st Street to SR 304 connections, and
Roadway Capacity Improvements · Other miscellaneous channelization or
The results of the future travel demand traffic control improvements to reduce
forecasts highlight the importance of the accidents as warranted.
SR 303 (Warren Ave./Wheaton Way),
SR 310 (Kitsap Way), and SR 304 Pedestrian
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
Transportation Appendix discusses
improvement options for each of these
major travel corridors.
Operational, Safety, and Other
Improvements
In addition to the major corridor Pedestrian and bicycle facilities are
improvements discussed above, there becoming increasingly important to
are a number of smaller-scale complement other elements of the
improvements to consider for traffic transportation systems. For Bremerton,
operations and safety. Many of these the trips that have the greatest potential
improvements address existing for shifting to a non-motorized travel
operational, safety, and other mode include trips to and from nearby
deficiencies (identified in Section 2.8 of neighborhood and district Centers, to
the Transportation Appendix.) and from 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 and to support the
development of successful Centers.
Cit_~ of Bremerton Comprehensive Plan TR-19
Transportation Element
140~
Bremerton currently has a reasonably to ferry service and facilities are also
complete network of pedestrian and discussed in the Transportation
bicycle facilities in the downtown area Appendix.
where sidewalks exist on all maior
streets. With the planned increase in Cost Estimates
density in the downtown area and in The City of Bremerton's Six-Year
Centers, pedestrians and bicycle Transportation Improvement Program
facilities will be increasingly important. (2004-2009) includes planning-level cost
The existing bicycle routes shown on estimates for many of the major facility
Figure 2-8 of the Transportation improvements described in this
Appendix provide a complete network Element. Costs for funding the transit,
of bicycle routes for traveling between ferry, and TDM elements of the plan are
major destinations within Bremerton. not included, as these improvements are
normally funded by WSDOT, WSF, or
The Appendix also provides a Kitsap Transit.
discussion of planned non-motorized
facilities, including the Mosquito Fleet Table 4-4 in the Appendix summarizes
Trail, TDM strategies, and traffic the planning-level cost estimates for the
calming measures, improvements identified in the City of
Bremerton's Six-Year Transportation
Transit Service and Facility Improvement Program (TIP). In
~rovements 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
City of Bremerton Comprehensive Plan TR-20
Transportation Element
141~
Financing and Implementation million over 20 years, in 2003 dollars.
Plan For other funding sources, the $4.86
million annual amount is assumed to
continue into the future at the same rate.
The GMA requires a financial element to This would generate an additional
be included as part of the transportation $29.16 million over the next six years or
element of a comprehensive plan. The $97.2 million over the next 20 years.
financial plan needs to include a Funding sources in the federal and state
comparison of estimated transportation categories include: Surface
improvement costs against the potential Transportation Program (STP), Arterial
revenue generated from existing and Improvement Program (ALP),
future financial sources. Future
Transportation Partnership Program
revenues may include new local (TPP), and the Nickel Funding Package.
sources, such as development impact These sources are discussed in detail in
fees, revenues from state and federal the Transportation Appendix.
fuel taxes, and grants from federal, state,
or cotmty agencies. Improvement Costs/Revenue
A key requirement of the GMA is that Comparison
the estimated transportation A TIP has been developed for the first
six years of the transportation plan. As
improvement revenues must be
sufficient to fund the improvements required by the GMA, estimated
identified in the plan. If revenues fall revenues must be sufficient to cover
short of anticipated costs, the City must anticipated expenditures.
identify additional funding sources. If Transportation Appendix Table 5-1
additional funding sources cannot be summarizes the estimated
identified, or are not desired, the LOS transportation revenues and
expenditures for the first six years of the
standard or land use assumptions
contained in the plan must be adjusted plan.
to maintain a balance between needs,
costs, and revenues. Table 5-1 indicates that the estimated
$46.9 million in total expenditures
between the years 2004 and 2009 falls
Existing and Projected Revenue short of the projected $55.9 million for
As shown in the Transportation improvement costs shown in Table 4-4.
Appendix Table 4-4, the City of Similarly, the estimated $41.15 million
Bremerton currently relies on a
combination of local, state, and federal in expenditures for GMA-related
capacity improvements to SR 304
sources to fund transportation between the years 2004 and 2009 falls
improvements. These historical funding short of the estimated $50.16 million in
patterns were used to estimate future
project costs. It should be noted,
revenues from both City and other however, that the apparent $9 million
sources over the life of the plan.
For the City of Bremerton, an annual budget shortfall does not actually
revenue amount of $260,000 was represent a deficit, but instead is
associated with SR 304 improvement
assumed to fund transportation funds that have been dispersed from
improvements. This would amount to
federal, state, and local sources prior to
$1.56 million over six years or $5.2 the year 2004. As shown in these two
City of Bremerton Comprehensive Plan TR-21
Transportation Element
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
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 Transportation
Appendix Table 5-1, indicates that
adequate funds have already been
allocated to the proposed roadway
improvement projects in the City of
Bremerton.
City of Bremerton Comprehensive Plan TR-22
Transportation Element
Environment Element
1431~
ENVIRONMENT ELEMENT
... "Conservation and
preservation, coupled 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 incorporates native vegetation
in developed areas, manages storm water, encourages natural bulkheads
along the shorelines, and preserves wildlife habitat. Bremerton is a
walkable city where people have access to open space, water views, and
mountain views, thus increasing the overall health of the community.
City of Bremerton Comprehensive Plan EN-1
Environment Element
ENVIRONMENT ELEMENT
CONTENTS
ENVIRONMENT VISION ..................................................................................... EN-1
INTRODUCTION ........................................................................................................ EN-3
The Growth Management Act ............................................................................. EN-4
EXISTING CONDITIONS ............................................................................................ EN-4
Wetlands .............................................................................................................. EN-4
Critical Aquifer Recharge Areas .......................................................................... EN-5
Frequently Flooded Areas .................................................................................... EN-6
Marine Resources ................................................................................................ EN-7
Geologically Hazardous Areas ............................................................................. EN-8
Habitat Conservation ........................................................................................... EN-9
Air Quality .......................................................................................................... EN-9
Creeks/Streams and Riparian Zones .................................................................. EN-iO
Brownfields ........................................................................................................ EN-11
ENVIRONMENT GOALS AND POLICIES ..................................................... EN-12
Sustainability ..................................................................................................... EN-12
Waste Reduction/Recycling ............................................................................... EN-13
Pollution Reduction/Prevention ........................................................................ EN-13
Conservation ...................................................................................................... EN-14
Education/Communication/Public Participation .............................................. EN-15
Habitat ............................................................................................................... EN-15
Open Space ........................................................................................................ EN-16
Water .................................................................................................................. EN-16
Energy ................................................................................................................ EN-17
Development/Redevelopment ............................................................................. EN-17
Quality of Life~Public Health ............................................................................. EN-18
Environment and Development Regulations .................................................... EN-18
City qf Bremerton Comprehensive Plan EN-2
Environment Element
1451~
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
Bremerton has a vital interest in preservation and conservation of
preserving its natural beauty and environmental resources greatly depends
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
and policies created by the community to
setting is one of the most important aid individuals and groups who are
amenities to Bremerton residents and
making decisions that could impact the
visitors alike. While it is expected that environment. Finally, this Element as a
Bremerton will increase in population whole--from vision to policy--articulates
over the next 20 years, it is imperative the community's overall commitment to
that the environmental resources be
protected, and, where possible, enhanced, preserving the natural environment
Sustainability is a concept that addresses amidst growth.
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, sustainability 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
approach to land use management, from other residents at larger community
workshops -- pertaining to the
The revival and strengthening of environment. The resulting goals and
Bremerton's economy and land use
policies incorporated many of these
patterns can aid in the effort to restore comments and were created in response
and protect its natural environment. It is
to people's experience with the natural
not an "either growth or environmental environment in Bremerton, and an overall
protection" situation. Conservation and desire to preserve the natural beauty of
preservation, coupled with sound
Bremerton for generations to come, as
management policies and the use of "best well as safeguard current residents'
available science," can present an health and safety.
City qf Bremerton Comprehensive Plan EN-3
Environment Element
The Growth Management Act Existing Conditions
In the past decade Washington State has Bremerton's environmental well-being
recognized 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 instructing local governments to:
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 use the areas found in Bremerton. In each
"best available science" and best category there is a brief description
management practices to establish about what is known pertaining to this
development regulations pertaining to the ecosystem or critical area in Bremerton,
environment. Bremerton's Critical Areas and then a short description of how the
Ordinance, Shoreline Master Program and critical area functions.
other relevant development regulations
must be consistent with this Environment Wetlands
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, ~rnd preventing
City of Bremerton Comprehensive Plan EN-4
Environment Element
erosion. Wetlands also contribute to an wetlands scattered throughout
ecosystem's groundwater recharge Bremerton. The bulk of the known
areas, and play a significant role in wetlands have been discovered through
regulating stormwater runoff. Many individual project review. The City
fish species, including some salmon recognizes that this is not an efficient
species, depend on wetlands for one way to protect this natural resource or
cycle of their lives. In addition, coastal help people who would like to develop
wetlands are also imperative to the in Bremerton. While a full wetland
survival of healthy marine fish and inventory has not yet been done, it is a
waterfowl populations, priority outlined in the goals and
policies of this Element. Over the next
Unsound development around a few years the City will strive to develop
wetland can destroy its ecological health a system that will accurately
by overloading the wetland with silt demonstrate where the wetlands are
and nutrients. Overloading diminishes and what appropriate development
wetlands ability to filter and reduces the regulations should be used at these
level of oxygen and sunlight necessary sites. This is vital to preserve the health
for plant and animal life. of Bremerton's water resources.
Environmentally sensitive growth Critical Aquifer Recharge Areas
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
create an aesthetically pleasing place to
live, while reducing the damage created There are four principle aquifer
by flooding and dependence on recharge areas within or immediately
engineered retention/sedimentation adjacent to the boundaries of Bremerton.
ponds. These aquifers include the Manette
North Aquifer, located in East
Some of the most significant wetlands Bremerton; the Gorst Aquifer, located
within Bremerton are located around along Gorst Creek; the Anderson Creek
Kitsap Lake. Many of these wetlands Aquifer, located primarily in the City's
are of the highest quality, and provide watershed and utility lands, and the
significant wildlife habitat and water north Lake Aquifer which rests just
purification. Some are already south of the City boundaries.1 These
designated as parkland. Nevertheless, aquifers supply 35% of Bremerton's
there are also numerous private sites water.
that contain wetlands. The
development of these sites can have
potential impacts on the overall health
of Kitsap Lake. There are other
~ See Aquifer Map in the Technical Appendices
City qf Bremerton Comprehensive Plan EN-5
Environment Element
As in the case with most aquifers and maintenance of native vegetation, and
their associated recharge areas, the local increasing the amount of permeable
aquifer recharge infiltration potential of surfaces; also contribute to overall aquifer
Bremerton is influenced by the type of well-being.
soil, vegetation and topography of the
area. Flooded Areas
Generally, aquifer recharge takes place
when surface water infiltrates the ground
and settles to a certain depth. Aquifer
recharge typically occurs from lakes,
streams, 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
Bremerton lacks a major river system and
recharge depth. The common use of
fertilizers, pesticides, and herbicides on is not prone to the typical flooding that
gardens and lawns are known to infiltrate occurs in other communities in
through the soil. This intrusion of Washington. However, a drainage problem
potentially toxic and hazardous substances does exist and causes some coastal and
riparian flooding. Flood occurrence in
degrades the water used to supply lakes, Bremerton has resulted from disturbance of
wetlands, and streams, results in a
decreased capacity to support these natural hydrological patterns caused by
ecosystems, and increases the chance of development, vegetation removal and
groundwater contamination, filling, and damage to wetlands. Flooding
occurs when eroded soil from cleared land
Bremerton's aquifer recharge areas not or unstable slopes reduces the waterways'
only support water resources in Bremerton, natural capacity to carry runoff water.
they contribute to the health of critical
The Federal Emergency Management
areas within Kitsap County. If disturbed, it Agency (FEMA) has set a 100-year
poses a potential threat to the quality of life
in the whole region. Balance between the floodplain standard which is characterized
permitted use and its natural function is an as an area of land flooded by a storm with
example of how local decisions can have a 1 percent probability of occurring in any
regional benefits, year. The most likely flood areas in
Bremerton include Gorst Creek, Parish
Sound planning practices can efficiently Creek, Sinclair Inlet, Kitsap Lake, Port
create a built environment that does not Washington Narrows, a small area south of
Kitsap Way and llth street, Phinney Bay,
need costly clearing, grading, filing, Mud Bay, Ostrich Bay, and the southwest
excavation, compaction, and construction
of conventional pipe drainage systems, portion of PSNS and Oyster Bay. These
Good practices also protect critical, non- sites are classified 100-year flooding.2
renewable resources. Other sustainable
development and management practices 2 The U.S. Department of Housing and Urban
such as organic lawn and garden care, Development Federal Insurance Administration,
Flood Insurance Study
City of Bremerton Comprehensive Plan EN-6
Environment Element
149t
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 highest tides measured on
record occurred on 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, when a
large storm was off the Washington
coast. Tides of this degree result 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 can cause the water level in the and many others are vital to fish and
Puget Sound to rise as much as 2.5 feet shellfish resources. They provide mixing
above 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, birdlife enjoy the vast array of feeding
privately owned bulkheads along the grounds, and the sheltered waters
shoreline. Innovative protection provide an important wintering habitat
solutions are needed so that Bremerton's for migratory waterfowl. In particular,
natural hydrological cycle can be Sinclair Inlet contains tidally influenced
maintained at the highest level possible, waters that mix slowly with the more
Some innovate solutions could include open waters of Puget Sound. Because of
locating open space, recreation, and its slow mixing rates, shallow depths and
ecotourism uses on or near flood plains proximity to land use activities along the
to reduce the problems associated with 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
(OSS) levels. The systems contributed the
high levels of fecal coliform fotmd in
shellfish in the o the Gorst sewage
problem. Contaminants in this area tend
to settle rapidly, accumulating in
sediments close to their source.
City ~f Bremerton Comprehensive Plan EN-7
Environment Element
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
Cooperation with industries and other during a winter storm where strong waves
jurisdictions needs to continue, wear away at the banks are especially
susceptible and may result in slope
instability and landslides.
Geolc ' Hazardous Areas
Another hazard in the Puget Sound area is
earthquakes. The Puget Sound is an
earthquake-prone area. It 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
minimize 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
Given the location and demand for scenic areas. These areas include places prone to
water and mountain views, a large landslides, and areas with hydric soils and
fill. In an earthquake event, liquification of
majority of Bremerton's housing is located
along shorelines, stream ravines, and steep hydric soils and fill areas would not be able
slopes. This creates the potential for to support structures, and thus create a
landslides and erosion that present a real safety hazard to residents and property.
danger to the health and safety of
homeowners and property. Three types of Balancing the needs of the built
geologically hazardous areas are located in environment along with the function and
Bremerton: landslide, erosion, and seismic, form of the natural landscape is no easy
task. Engineering solutions to
Landslide hazard areas within Bremerton environmental constraints may be
can be intensified by development, extremely costly and are not always
Removing native vegetation, increased effective. Sound management practices can
stormwater runoff, undercutting steep reduce the likelihood of these disasters and
slopes, on-site sewage system discharge, remove the burden of establishing
and increased burden to the soil caused by adequate safety measures from the hands
buildings are typical development of the property owner to the public.
practices that impact slope stability. Limiting development on hydric soils and
fill areas would reduce the probably of
liquification and would balance form and
function with the landscape.
City of Bremerton Comprehensive Plan EN-8
Environment Element
15Et~
Habitat Conservation 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
pound of body weight and are more
Currently Bremerton serves as habitat to susceptible to air pollution. Many air
significant amounts of wildlife. From pollutants, such as those that form
downtown it is not unusual to see urban smog, remain in the environment
several pairs of bald eagles flying for long periods of time and are carried
overhead. Along shorelines there are by the wind hundreds of miles from
significant waterfowl and diverse their origin. The Puget Sound's main
vegetation. Even in neighborhoods, contributor to air pollution is
there are numerous species that have automobile use and dependence.
carved out niches amongst urban
development. While these habitats have In Washington State, the EPA has
been created haphazardly in the past, it established 6 pollutants that affect
is the community's desire to establish Bremerton's air quality. These include
more formal wildlife habitats and carbon monoxide, particulate matter,
corridors within the city as well as
ozone, sulfur dioxide, lead and nitrogen
within the watershed and utility lands, dioxide. Several severe health problems
have been associated with these
Habitat conservation areas and pollutants and are known to cause
corridors, along with biological asthma, heart and lung disease, chronic
diversity, can provide many bronchitis, and premature death.
opportunities for Bremerton and its
surrounding areas to add to recreational Health problems are not the only
and cultural activities, water quality casualties of air pollution. Lakes,
protection, groundwater recharge, flood streams, and wetlands are becoming
and erosion control, and economic more acidic, thus reducing the livability
development. Sustainable development for aquatic plant and animal species.
between the urban landscape and Acid rain alters the nutrient balance in
natural environment can increase the coastal waters, watersheds, and plant
social, physical and economic health of life, thus creating an environment
Bremerton and its residents. Habitat unsuitable for any type of life.
conservation increases opportunities for
recreation, exercise and leisure activities Many of our air quality standards are
are essential amenities in an urban regulated on the state and federal levels,
setting. Access to natural areas can be but with the help of sustainable
achieved by placing open space and planning practices, reduction can start
City of Bremerton Comprehensive Plan EN-9
Environment Element
locally. Land use can aid in the effort to Culverts are pipes typically made of
enhance air quality. Sustainable metal or concrete that allow water to
development, low impact development flow beneath the roads that cross
and the Centers approach-~outlined in streams. In most cases, these culverts
this Comprehensive Plan~ncourage a present a blockade to fish migration
diverse transportation system, with upstream to spawning habitat.
increased emphasis on mass Frequently culverts discourage fish
transportation, walking, and bicycling, migration due to openings that are too
A reduction in dependence on the high above the stream for fish to jump,
single-occupant vehicle will aid in or too steep or clogged with debris for
keeping Bremerton's air clean, fish to pass through.
Creeks/Streams ~es For a stream to be healthy, bank
stabilization and sediment retention is
essential for fish and amphibian life.
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. Not
only do they aid in bank stabilization,
riparian zones also serve as a natural
buffer from nonpoint source pollution,
and encourage natural flows by
absorbing and slowing the velocity of
water during a flood. These areas
Creeks and riparian zones are essential prevent pollution from being exported
elements to Bremerton's hydrologic and contaminating the larger ecosystem,
cycle, and a chief dynamic in controlling and allow a transition zone between the
water temperature and salinity of uplands and the stream.
estuarine environments.
Development around these natural
Bremerton has several creeks or streams buffers and storage areas can be
that flow within its boarders. These damaging to this important habitat.
include Gorst Creek, Anderson Creek,
Kitsap Creek, and several other smaller
unnamed streams. Gorst, Anderson and
Kitsap creeks are all known to be
utilized by various salmon species. All
of the major creeks within Bremerton's
systems have been altered by humans.
The primary alteration is the use of
culverts.
City ~f Bremerton Comprehensive Plan tN-10
Environment Element
153~
Brown fields
Over the years, industrial sites and
military 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
that liability and cost of fhe clean up is
placed on the property owner.
However, Kitsap County, along with the
EPA, has taken a proactive approach in
dealing with these lands. Kitsap County
has created a list of b~ven~y targeted sites
for remediate action. Out of the twenty
sites, nine sites are within the
boundaries of the City 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, economically valuable land
for future uses.
City of Bremerton Comprehensive Plan EN-11
Environment Element
Environment Goals and ENID Encourage local and regional
purchasing of consumer goods by the City
Policies and private sector.
As indicated in the introduction of this ENIE Encourage environmentally
section, the goals and policies found sensitive businesses 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
Environmental Sustainabltity I
Ecosystem integrity
Carrying capacity EN1F Consider the adoption of a local
Biodiversity Social Sustainability tree ordinance that promotes retention of
Cultural ldentity trees and forested areas as growth occurs.
Empowermen
Stabilit
Economic
Sust aJnabilit
Growth
Development
Produclivity Human Well Being
Trickle-down
tN1 To ensure the long-term health
of Bremerton, promote sustainable
growth and activities
EN1A Inventory and map non-
renewable resources, and establish Garden plats, available at places such as
"indicators" or yardsticks the Bremeton's Blueberry Park, offer urban residents
community can use to measure a chance to grow their own food.
progress.
· Evaluate the City's progress at regular
intervals and make necessary
adjustments.
EN1B Consider the environmental
impacts of policy and regulatory
decisions.
EN1C Use, where feasible, new
technologies that demonstrate ways to
reduce environmental impacts.
City ef Bremerton Comprehensive Plan EN-12
Enviro~nent Element
EN2C Encourage the use of reusable,
recycled, and recyclable goods through
educational displays and City
purchasing policies and practices.
EN2D Maintain and support a "Spring
Cleaning" collection day for yard waste.
Pollution Reduction/Prevention
Recycling receptacles built into the sidewalk
is an example of integrated city
infrastructure and waste collection services.
EN2 Promote waste reduction and EN3 Reduce and prevent
recycling measures throughout the environmental pollution of air, water,
community. Ensure that waste disposal light, noise, and soil
occurs in an environmentally safe,
efficient manner EN3A Inventory pollution levels,
establish goals for reduction, and
EN2A Reduce the amount of waste initiate a monitoring program.
disposed in landfills by reducing the
amount of waste generated and EN3B Reduce emissions 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 incorporate and expand use of
different types of waste alternative fuels.
· 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
EN2B Reduce solid waste generation EN3C Encourage developers of new
through salvage and reuse of building projects in Bremerton, including public
materials, including architecturally and projects, to provide improvements that
historically significant materials, reduce the use of single occupancy
vehicles.
City of Bremerton Comprehensive Plan EN-13
Environment Element
156~1~
EN3D 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.
EN3E Educate citizens about sources of
pollution.
· Train code enforcement officers how
to identify and respond to pollution
violations.
· Provide information to the public EN4 Encourage conservation of
regarding the negative impact to critical areas and nonrenewable
water quality from the use of resources
pesticides and herbicides. Encourage a
reduction in the use of pesticides and EN4A Manage 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.
EN3E Assist businesses with pollution
prevention activities. EN4B Preserve the integrity of riparian
corridors and steep slopes through the
· Adopt incentive based development preservation of native plants and the
standards which reward replacement of invasive, non-native
environmentally sensitive plants with native plants.
development practices and projects,
and which lead to the preservation of EN4C Protect, revitalize and expand
urban forests Bremerton's tree supply through public
education, sensitive regulation, and
widespread incorporation of trees in
streetscapes.
City of Bremerton Comprehensive Plan EN-14
Environment Element
Education/Communication/Public Habitat
Participation
EN5 Initiate and promote public
involvement through environmental EN6 Protect, preserve, and restore
education the habitats that support Bremerton's
diverse ecosystems
EN5A Support and sponsor media and
education campaigns relating to EN6A Manage aquatic and riparian
environmental issues such as: habitats to preserve and enhance their
· Pollution prevention natural functions of providing fish and
· Master composters wildlife habitat and protecting water
· Native plants quality.
· Fourth grade Water Festival at
Olympic College EN6B Preserve and enhance trees,
· Bank stabilization methods native vegetation, and integrate suitable
· Organic gardening native plants in urban landscape
· Water resource and conservation development.
EN5B Create an environmental EN6C Direct new development away
education outreach position as part of from important aquatic habitats such as
City staff, areas used by salmon and Steelhead,
Kelp and Eelgrass beds, spawning beds
for Surf Smelt, Pacific Herring, Pacific
Sand Lance, Rock Sole, as well as
Rockfish and Ling Cod settlement and
nursery areas.
EN6D Whenever reviewing development
proposals, identify habitats that may be
adversely impacted.
EN6E Encourage residents and
professional landscaping firms to utilize
native plants in residential and
commercial landscapes.
Citv of Bremerton Comprehensive Plan EN-15
Environment Element
EN6F Use the brownfields approach EN7E Encourage connectivity between
and grants to identify and restore open space areas with a system of paths
potentially environmentally valuable and trails for pedestrians, bicyclists, and
property, other non-motorized users.
EN6G Protect and preserve nearshore Water
habitat.
· Encourage altemative, natural bank
stabilization.
EN6H Identify and establish Marine
Protected Areas.
EN8 Protect and preserveBremerton's
unique marine and fresh water resources
EN8A Preserve and maintain wetlands
in a natural state.
EN8B Provide both physical and visual
access to shorelines.
EN7 Create an open space system that
increases the amount of open space, EN8C Promote alternatives to
protects Bremerton's natural resources, traditional stormwater practices for new
and provides a source of beauty and construction, encourage onsite filtration,
enjoyment for all residents and visitors and require the use of current Best
Management Practices.
EN7A Incorporate open space within
designated land use centers. EN8D Restrict the water runoff rate and
volume for all new development and
EN7B Encourage open space along redevelopment.
water to ensure public access, both
visually and physically. EN8E Conserve and protect groundwater
resources.
EN7C Include pedestrian, bicycle,
passive recreation opportunities, and · Provide for well-head protection where
developmentally appropriate play areas appropriate.
in open spaces. · Protect aquifer recharge areas,
especially those used to provide
EN7D Integrate community and public water supplies.
demonstration gardens within · Coordinate measures to protect
Bremerton's open space system, groundwater resources by using
watershed plans and planning efforts.
City of Bremerton Comprehensive Plan EN-16
Environment Element
lS91~
EN8F Designate Bremerton's aquifer DevelopmentlRedevelo ~ment
protection areas.
EN8G Incorporate "best available
science" when changing land use
designations of undeveloped watershed
or utility land. This includes limiting
impervious surfaces to known
thresholds.
EN8H Preserve and maintain the 100 EN10 Encourage environmentally
year flood plain in its natural state, responsible development
EN10A Use the brownsfields approach
to identify and restore economically
valuable properties.
EN10B Encourage dense development
around designated Centers, which
incorporate open space.
EN10C Ensure code flexibility to enable
and encourage environmentally
sensitive development.
EN10D Support efforts to educate the
local development community about
environmentally sensitive practices.
EN9 Incorporate efficient-energy
conservation strategies into all aspects
of Bremerton's growth and
development
EN9A Encourage energy-efficient
building development standards.
EN9B Encourage landscaping which
reduces energy loss.
EN9C Encourage telecommuting.
EN9D Promote use of alternative
energy.
City of Bremerton Comprehensive Plan EN-17
Environment Element
1601~
c Health Environment and Development
ENll Integrate the natural and built
environments to create an urban setting ENI12 Ensure consistency between the
with comfortable and secure places for goals and policies of this
people to live, work and recreate Comprehensive Plan and those found
in the Bremerton Shoreline Master
ENllA Protect life and property from Program
natural hazards, including earthquake,
landslide, flooding, and fire. EN12A Incorporate the Bremerton
Shoreline Master Program into this
ENllB Coordinate with Bremerton- Comprehensive Plan by reference.
Kitsap County Health District in the
resolution of failing septic systems
within City limits.
ENllC Encourage streetscapes that are
human-scale, enable walking, and
bicycling, and are aesthetically pleasing.
ENllD Create sidewalks and improved
shoulders along right-of-ways to enable
walking.
ENllE Protect public views and vistas EN13 Incorporate "best available
of both shoreline environments and science" into the creation and
mountains, enforcement of the Bremerton Critical
I Areas Ordinance
City of Bremerton Comprehensive Plan EN-18
EnviromTtent Element
161~
EN14 Incorporate findings and
science from joint County/City
watershed planning efforts.
EN14A Where appropriate incorporate
the findings from the Chico Watershed
Alternative Futures Project.
City of Bremerton Comprehensive Plan EN-19
Environment Element
Economic Development Element "
' i ~ <~!' "~:
ECONOMIC DEVELOPMENT ELEMENT
"While supporting
regulatory reforms, 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 o/jobs, housing, transportation options,
convenience services, and strategically dispersed commercial activities.
Communities and established neighborhoods within the city each have a
distinctive/ocus, yet all are walkable and well-connected to each other,
satellites to a vibrant downtown with the most interesting mix o/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 o/the city,
and its cultural heritage.
City qf Bremerton Comprehensive Plan EC-1
Economic Development Element
163
ECONOMIC DEVELOPMENT ELEMENT
CONTENTS
ECONOMIC DEVELOPMENT VISION ............................................................. EC4
INTRODUCTION ................................................................................................... EC-3
ECONOMIC DEVELOPMENT GOALS AND POLICIES ............................... EC-5
City q£ Bremerton Comprehensive Plan EC-2
Economic Development Element
Introduction This Element challenges City
government operations to have excellent
customer service and development-
friendly processes and regulations. It
also requires that economic
considerations be included as the City
prepares for future growth, including
making efficient capital investments and
Bremerton, as the urban center of Kitsap public resources (also discussed in the
County, is a vibrant environment which City Services Element). Higher density
fosters economic vitality through its developments in quality settings, as
broad diversification of jobs and outlined by the Centers strategy and
strategically dispersed commercial advocated here, will contribute to a
activities. The city provides a superior stronger market with increasing land
values that attract investments. This
natural setting, a nationally recognized Element asserts that annexations should
quality of life, and a regionally
significant deep water port, home to a demonstrate economic growth for the
newly rebuilt state ferry terminal and City. Finally, businesses are recognized
for their critical role in the City,
the Puget Sound Naval Shipyard - the
West Sound's largest employer, supported with expansion locations,
Rediscovery of the city's qualities and transportation planning, and
its economic durability entices new community-wide efforts to market the
investments, and inspires residents and Bremerton and a business-friendly
businesses to pursue economic interests, regulatory environment.
The Economic Development Element The State of Washington has recognized
asserts the need for economic vitality for the need to promote economic
a healthier community. While competitiveness in community planning
supporting regulatory reforms, this efforts. New legislation in 2002
Element primarily focuses on providing expanded the mandate of the State's
expanded employment, housing, and Growth Management Act to include an
commerce choices. Advocating for a Economic Development component for
full inventory of marketable sites, Comprehensive Plans. Transportation
especially redevelopment opportunities plans for regional corridors, and land
within newly designated Centers, this use allocations, especially for Centers,
are thereby challenged to support the
Element puts a priority on new
development that increases activity needs of commerce. Such economic
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
Bremerton a wise investment, such as its that does not contain itself to political
prime waterfront, small city boundaries. The County wide Planning
Policies, negotiating such things as tax-
convenience, and rich cultural heritage, revenue sharing in advance of
annexations, are endorsed here as a
City of Bremerton Comprehensive Plan EC-3
Economic Development Element
165~
basis for regional coordination. This
Element asserts ~he interests of local
residents and businesses into the
ongoing larger dialogue, working to
secure strategic growth opportunities
for the City of Bremerton. 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
research.
To provide this foundation, the
Economic Development (ED)Appendix
to this Comprehensive Plan presents a
"City Profile" outlining contributing
demographic, physical, and historical
conditions in Bremerton. The ED
Appendix also contains an "Inventory of
Local and Regional Economy", citing
the key data needed to understand
Bremerton's current economic
conditions and to make reasonable
forecasts about its economic future.
The ED Appendix is found in the
companion appendices to this
Comprehensive Plan.
City of Bremerton Comprehensive Plan EC-4
Economic Development Element
Economic Development EC1B Monitor land availability for
Goals and Policies development sites throughout the city.
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 annexation 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 typically
opportunities, and encourage growth in spent on the interstate system, for fast-ferry
areas experiencing insufficient economic research and other multi-modal investments
growth, all within the capacities of the and improvements.
state's natural resources, public services,
and public facilities. EC1F Provide adequate street lighting as
Discussion: Local priorities, vision, and well as police and fire protection services
aspirations for economic vitality are throughout commercial areas.
reflected by the following community goals EC1G Promote Local Improvement Districts
and policies for economic development, 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 designations
are in appropriate locations (See PC2 & Land
ECl Promote a vibrant environment Use Map).
for economic development
· 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
infrastructure for new employment and residential development in proximity
economic expansion, to business locations
City of Bremerton Comprehensive Plan PC-5
Economic Development Element
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 the
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 combined
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 vibrancy, visual interest
EC2F Work with Kitsap Transit to plan EC3G Encourage the use of design
around activity areas with convenient elements as stated in Community
hours and connections for commerce. Character Element.
City qf Bremerton Comprehensive Plan EC-6
Economic Development Element
EC3H Support on-going entertainment
and community gathering downtown.
· Provide for variety of compatible
attractions for a diverse population
· Locate multi-purpose sites for social
events and community gathering
EC3I Encourage cultural activities and
special events downtown
· Provide support for entertainment EC4 Support the expansion of commerce
venues
EC4A Ensure convenient access to
EC3] Provide convenient and advanced internet and digital
purposeful parking downtown, communications.
EC4B Apply tax strategies that attract and
· Study parking polices for economic
development retain businesses.
· Provide for short term, strategically
located, parking lots downtown · Review all taxing policies to identify
· Allow alternative parking incentives for economic investment,
requirements for evening and late including tax breaks
· Pursue eligibility for all areas of the
night-oriented businesses, such as use
of existing parking lots designed for City that may qualify for State
regular business hours Empowerment Zone designation.
EC4C Support expansion of
transportation systems and facilities,
particularly the Bremerton National
Airport, to move products.
EC4D Ensure good access, including
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.
City of Bremerton Comprehensive Plan EC-7
Economic Development Element
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.
The Norm Dicks Government Center houses multiple
public agencies for customer convenience.
EC4J Encourage supportive
environments for the growth of small ECS Establish Bremerton as a city
businesses, such as opportunities for that welcomes the opportunity to serve
shared overhead and administration business, residents, and visitors
costs.
EC5A Expedite the permit and
EC4K Pursue state legislation and development process.
programs to aid businesses and business
districts. · Advocate on behalf of development
projects that meet code provisions
EC4L Encourage a more diversified · Improve predictability with
economic base to increase elasticity in established timelines for various
the local economy, development permits
· Clarify code regulations and
definitions
· Publish condensed development
guides
ECSB Provide customer service
training programs for City employees
who interface with the public.
EC5C Encourage business and
customer service training programs.
EC5D Promote Bremerton throughout
Puget Sound.
EC5E Produce a sense of welcome and
orientation for visitors throughout the
city, especially downtown and at arrival
points to the City of Bremerton.
· Provide for visual aides such as
directional signs to direct tourists to
local business and destination points
City of Bremerton Comprehensive Plan EC-8
Economic Development Element
170~
EC5F Encourage marketing and EC6D Promote and support the local
tourism efforts, labor force.
· Accent the city's unique character and · Encourage workforce training
assets, such as its waterfront and programs and initiatives
historic downtown · Support educational opportunities
through public, private, and higher
ECSG Support tourist features and education institutions
amenities, especially the regularity and
convenience of state ferries which EC6E Attract new employment
directly service Bremerton. opportunities throughout the city.
EC5H Partner with private and public EC6F Support efforts of the local
agencies and associations to publicize business and economic development
community services and amenities, 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
investment interests, especially public
dollars, through continuous lobbying
and relationship-building, highlighting
Bremerton as a stable appealing
community committed to partnerships
and collaboration.
EC6 Provide greater economic
opportunity for residents
EC6A Ensure convenient access to
advanced internet and digital
communications.
EC6B Educate property owners in
development options and interests.
EC6C Support opportunities for
affordable owner-occupied housing.
City ~f Bremerton Comprehensive Plan EC-9
Economic Development Element
1711~
CITY SERVICES ELEMENT
"This Element guides how
the provision of services
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 beautS'cation of our
city.
City ef Bremerton Comprehensive Plan CS 1
City Services Element
172~
CITY SERVICES ELEMENT
CONTENTS
CITY SERVICES VISION ....................................................................................... CS-1
· INTRODUCTION ................................................................................................... CS-3
CITY SERVICES GOALS AND POLICIES ......................................................... CS-4
General City Services and Facilities ..................................................................... CS-4
Customer Service Orientation ............................................................................... CS-6
Safety and Health .................................................................................................... CS-7
City Beautification .................................................................................................. CS-8
Neighborhood Revitalization .............................................................................. CS-10
Economic Development ....................................................................................... CS-11
Coordination of City Services with Comprehensive Plan .............................. CS-11
UTILITIES ................................................................................................................ CS-14
CURRENT CONDITIONS AND CAPACITY VERSUS
PLANNED CAPACITY ........................................................................................ CS-14
CURRENT AND PROJECTED CONDITIONS - UTILITIES ......................... CS-14
Table CS.i Utilities Providers and Capacities ................................................ CS-15
Federal and State Laws/Regulations .............................................................. CS-16
FUTURE CONDITIONS ...................................................................................... CS-18
CAPITAL FACILITIES .......................................................................................... CS-19
THE HEART OF THE CAPITAL FACILITIES
SECTION - CONCURRENCY ............................................................................ CS-20
LOS STANDARDS ................................................................................................ CS-21
Tabel CF-i Capital Facility Level of Service Standards - Long Term ........ CS-21
Use of varied LOS Standards to support community goals ........................ CS-21
Introduction Bremerton Comprehensive Plan combines
the function of two plan elements required
under the Growth Management Act. The
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
The City Services Element addresses levels of service, as appropriate. In the case
services that are essential to a community of the Capital Facilities, especially the
and its ability to grow. They are crucial to section will also discuss capital projects
the health, safety, and welfare of necessary to maintain urban services at the
community members. This Element guides levels of service acceptable to the
how the provision of services such as water, community, and present a plan for
sewer, parks, and schools supports the financing those needed improvements. This
future growth and development of exercise - commonly called the concurrency
Bremerton. requirement - will be discussed in greater
detail in the introductory portions of the
This Element provides direction that will Capital Facilities section.
assure three primary goals are met: 1)
expected levels of quality for services will The Utilities and Capital Facilities sections
be maintained as growth occurs, 2) the begin on pages CS14 and CS19 respectively.
locations chosen for needed public and However, it is important to understand that
quasi-public facilities will not conflict with those sections are a response to the
other community goals, and 3) careful overarching vision, goals, and policies set
planning of public and quasi-public by the community for the broader topic of
facilities will assure the services are City Services. Logically, then, those goals
provided in the most cost-efficient manner and policies precede the technical sections.
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
City of Bremerton Comprehensive Plan CS 3
City Services Element
1741~
City Services Goals and CS2A Implement technology, especially
within the capacity of the Internet, to
Policies provide information and services more
conveniently.
The community's vision for City services was
offered at the beginning of the element. The CS2B Promote neighborhood accessibility
following section presents the goals and policies to community services.
developed by the community to support and lend
additional detail to the vision. · Locate community services throughout
the City, such as community and
Gener~ , Services and Facilities neighborhood centers, and
information/drop-off kiosk or bulletins
board
CS3 Provide public facilities and
services conveniently and equitably,
throughout the community
CS3A Ensure that the prescribed Level of
Service standards are pursued throughout
the City.
CS1 Proactively provide services that
enhance the quality of life in Bremerton
CS1A Collaborate with citizens, public
organizations, and non-profit agencies
towards a proactive approach to social
needs.
CS1B As far as revenue allows, enforce
City ordinances in a proactive manner as
opposed to a reactive manner.
· Encourage licensing and user fees for
specialized services with a limited clientele
CS2 Improve accessibility to City
services
City pf Bremerton Comprehensive Plan CS 4
City Services Element
CSSB 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
CS4 Allow essential public facilities to
locate within the City, per city, regional
and state requirements
CS4A Public facilities should showcase
community design interests, guidelines, or
standards, especially in their design and
building processes.
CS6 Ensure adequate funding for public
· Encourage flexibility of use and facilities and services for existing
maximum efficiency so that facilities and development and new growth
services will be harmonious with
neighborhood needs, adjacent uses, and CS6A Pursue alternative and creative
the environment funding mechanisms for public services and
facilities.
CS4B. Develop citing criteria and processes
to assure timely and consistent locating of CS6B Apply cost-effectiveness criteria to
essential public facilities, capital investments.
CS5 Maintain the public investment in CS6C Protect City revenue sources.
existing capital facilities
CS6D Recognize responsibility of the
CS5A Maintain, rehabilitate or reuse development community in providing for
existing facilities whenever possible and the impacts of new growth
still meet the capital needs of the
population. · Move towards a strategic impact fee
program
City qf Bremerton Comprehensive Plan CS 5
City Services Element
176
Customer Service Orientation CS8A Enlist residents for their talents.
· Advertise regular volunteer opportunities
to the general public
· Work to identify specific community
assets and invite identified groups and
citizens to participate in governance.
CS9 Achieve a timely permit process
CS9A Process permits and approvals in a
fair and timely manner, and in accord with
development regulations which encourage
CS7 Educate the citizenry about City predictability.
services and citizen responsibilities
Discussion: Additional goals and policies,
CS7A Work towards community "buy-in" found in the Economic Development
and civic partnership towards shared goals. Element, discuss provision of timely
permitting processes and other factors that
· Provide new resident information contribute to better governmental services.
· Provide service directories
CS8 Provide meaningful opportunities
for community involvement
City qf Bremerton Comprehensive Plan CS 6
City Services Element
Sa and Health
CSll Improve citizen safety after dusk
CSllA Enhance lighting for pedestrians,
CS10 Encourage the safety and health of especially around and leading to places of
residents and visitors activity.
CS10A Accent public safety and
accessibility in all public facilities.
· Enhance parking lot development
standards for safety
· Improve crosswalks and street crossings
throughout the City
CS10B Prepare and distribute emergency
preparedness plans including instruction
for public staff and for citizens regarding
services and support locations available
immediately following an incident. CS12 Encourage healthy lifestyles
CS10C Work actively to reduce crime. CS12A Provide a wide range of
recreational opportunities for people of all
· Work through civic partnerships to
ages.
address the plague of substance abuse
and addiction
City ~£ Bremerton Comprehensive Plan CS 7
City Services Element
CS13 Ensure social services that meet the City Beautification
needs of a diverse population
CS13A Support social service organizations
CS13B Advocate for a preventative focus in
the funding and supporting of social
services
CS13C Demonstrate awareness and
consideration for special-needs populations
CS13D Develop appropriate criteria for
locating social service facilities. 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 to put electrical lines underground.
CS14C Develop an under-grounding ordinance.
Cit~/ of Bremerton Comprehensive Plan CS 8
City Services Element
CS15C Create standards and processes for
the locating wireless telecommunications
_/,. ~ ~ ~ ~:._ facilities that assure adequate services while
~ ~.,.~.. i'i"' protecting neighborhoods and other
portions of the City from negative impacts.
· Create incentives for co-location as an
alternative to the building new towers
_~?~. · Provide adequate setbacks, buffers, and
camouflaging requirements to assure
I !/ protection of adjacent land uses and
.~~ ~ residential neighborhoods
CS15 Enhance and enforce standards for
infrastructure and utilities, especially in
residential areas
CS15A Emphasize conformity of design
within sub-areas of the City, especially
neighborhoods.
· Improve sidewalks throughout the City,
especially accessibility features
CS15B Encourage citizen responsibility
regarding proper waste disposal and pet CS16 Promote open spaces and "green
behavior, spaces" for everyone's enjoyment
· Provide trash CS16A Realize recreational needs in open
receptacles space planning.
and waste
conveniences CS16B Coordinate public and private
in public beautification efforts, especially on City
places, properties and public rights-of-way.
especially in
City parks · Ensure adequate maintenance of public
landscaping
· Strengthen landscaping and buffering
requirements
· Use trees and plants that are well-suited for an
urban environment, sensitively to viewsheds
City of Bremerton Comprehensive Plan CS 9
City Services Element
'ization CS18 Encourage a sense of place and
identity within neighborhoods
CS18A Ensure community gathering points
within neighborhoods, supported by public
facilities including pedestrian amenities,
and City services such as crime prevention,
Parks and Recreation programming.
CS17 Enhance the role that infrastructure
and capital facilities play in the
development of and maintenance of
quality neighborhoods
CS17A Encourage neighborhood
revitalization in the provision and location of
City facilities, improvements, and services.
CS17B Work with appropriate City
departments to produce and implement
development standards for neighborhood CS19 Recognize that schools provide a
development, unifying social and physical amenity that is
a key focus for successful neighborhoods
· Stress safety, access, recreation, and
pedestrian friendliness CS19A Locate elementary schools in or
· Address such topics as lighting, near Neighborhood Centers.
sidewalks, and street design in a manner
that assures consistency with this CS19B Locate middle schools, junior high
Comprehensive Plan. schools and senior high schools near
District Centers.
CS17C Locate a focal point(s) within each
neighborhood for the dissemination of public CS19C Allow school uses throughout the
services. City as appropriate that meet conditions
and processes which mitigate their impacts.
· Include such things as information kiosks,
police sub-stations, and pull-up locations for
mobile libraries, medical clinics, etc. CS 20 Develop and implement appropriate
· Centers will typically be the preferred criteria and controls to assure that social
locations for these investments, service uses are appropriately located
City qf Bremerton Comprehensive Plan CS 10
City Services Element
1811~
Economic Develo ~ment Coordination of City Services with
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 service
CS21A Use public funds, services, and 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 quality 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 facilities: potable water, sanitary sewer,
maximum efficiency, storm-water management, law enforcement,
fire protection, emergency medical service,
transportation, solid waste, parks, and
schools.
City qf Bremerton Comprehensive Plan CS 11
City Services Element
CS22D Set priorities for funding based on
citizen values as indicated in the Vision
Statement and specified in the prescribed
Levels of Service standards.
· Report service levels to the public on an
annual basis, demonstrating
accountability to the prescribed levels of
service
· Review of capita] projects and their
Kitsap Regional Library System has its main
funding should be performed at least
branch located in the City, along Slyvan Way.
biannually as part of the City's budget
process, (1) to ensure an ongoing review
of capital needs, and (2) so that capital CS23 Achieve coordinated planning for
and operating budgets can be considered the City's urban growth with Kitsap
together. County, other jurisdictions and service
· The City will maintain a "Capital providers, especially for the provision of
Improvement Priority Needs" list. This capital facilities and services
list will contain unfunded capital
improvement projects identified by the CS23A Build working relationships with all
City Council, City departments, citizens utility providers for planninggrowth
and other governmental agencies.
CS24 Promote Smart Growth principles
(See Table CF-i, "Capital Facility Level of
for development City-wide, and within the
Service Standards - Long Term" on CS-21) City's Urban Growth Area
CS24A Support county-wide planning
policies, particularly the coordination efforts of
the Kitsap Regional Coordinating Council.
CS25 Progressively become the primary
provider of capital facilities and services
within the City's Urban Growth Area
City ~f Bremerton Comprehensive Plan CS 12
City Services Element
CS25A Participate in the planning of the generates lower traffic mitigation costs (a
Urban Growth Area (UGA). "lower" traffic LOS) can be especially key for
improving the climate for development in
· Work towards development standards Centers. Conversely, a higher LOS for transit
within the UGA that are uniform or headway may also be an incentive for Centers
complimentary to the City's development development. The incentive or disincentive
standards effect of a wide variety of LOS standards on
· Safeguard urban levels of service within Centers development should be carefully
the UGA which are comparable to the considered.
levels set within the City
· Identify development concerns within the
UGA and inventory challenges to address CS27 Adopt a Concurrency Management
· Ensure quality residential development in Ordinance (requiring capital facilities meet
the UGA that has both urban and strictly adopted Level of Service standards at the same
residential qualities, including walk- time with development) in order to maintain
ability the community's identified desired level of
service
CS26 Adopt Level of Service(LOS) CS27A Transportation facilities needed to serve
standards for public facilities, reflecting new development must be in place within 6
community preferences for quality of years of completion of the development,
service delivery generating the needed system improvement.
CS26A At a minimum adopt LOS CS27B Assure that development proposals that
standards for transportation facilities, cannot demonstrate compliance with the
concurrency requirement are not permitted until
CS26B Consider adopting LOS standards measures to maintain the adopted LOS are
for additional facilities and services provided.
including, water and sewer services, police
and fire protection, parks, solid waste,
transportation, and schools. CS28 Adopt six year capital facilities programs
(CIPs), including Transportation Improvement
CS26C Adopt LOS standards that support Programs (TIPs) on an annual basis to
and encourage the development of Centers. demonstrate funding capability that supports
the land use patterns and other goals and
Discussion: LOS standards that provide an policies adopted within this Plan
advantage to development in Centers verses
surrounding areas, can be one of the most CS28A If adequate funding capability cannot be
effective strategies for attracting demonstrated through adopted CIPs and TIPs,
development to these priority locations, reconsider the land use assumptions and plans
For example, a LOS for automobile traffic that to maintain consistency.
City of Bremerton Comprehensive Plan CS 13
City Services Element
Utilities
The Utilities portion of the City Services Element addresses the utilities provided to
Bremerton's residents by private providers. It presents information 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 CS.i. (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
market or regulatory issue outside of the realm of this Plan. However, this Plan is the
proper venue in which to ensure 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 commtmity goals leading to design
standards, and development controls affecting 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
Table CS.i, on the following page, summarizes the current and projected system capacities of privat~
utility providers for the City of Bremerton.
City qf Bremerton Comprehensive Plan CS 14
City Services Element
Table CS.i Utilities Providers and Capacities
Utilities Facilities: Bremerton
Natural Gas Cascade 17,000 users in Kitsap Plans to triple distribution
Natural Gas service area in 1994. capacity to area over 3
Corp. (CNG) Peak demand is c. years.
1,950,000 therms/day.
Electrical Puget Sound North Kitsap subarea Is mandated to expand
Energy (includes Bremerton) has capacity as demand
445 Mega Volt Amperes develops. Plans to increase
0VIVAs) capacity. Power capacity to 484 MVAs by
utilization factor is at 81 2020.
% of capacity.
Telecommunications
Telephone QWest 77,000 customers in Maintains routes at 85%
Kit,sap County. capacity; installs additional
facilities when exceed 85%.
Radio Public sector Emergency broadcast Expansion of 911 system in
communica- network has links near future.
tions serve throughout county.
law enforce-
ment agen-
depts, etc.
Cable TV ComCast Has potential to serve Plans for 4% annual growth
15,156 households Serves rate.
10,000 customers within
City.
Ci~ of Bremerton Comprehensive Plan CS 15
City Services Element
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
Utilities 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 of 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 Ener~lv ReRulato _ry Commission
The Federal Energy Regulatory Commission (FERC) is an independent five-
member commission 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
City of Bremerton Comprehensive Plan CS 16
City Services Element
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
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 utility as well. 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 reduce both atmospheric emissions and the nation's
reliance on gasoline for strategic 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.
City of Bremerton Comprehensive Plan CS 17
City Services Element
Future Conditions
The providers listed on Table CS.i. are either driven by market forces, or directed by the
regulations summarized above, to maintain their utilities at adequate levels as growth
occurs. A more detailed discussion of each provider's existing system capacity and
projected system expansions is located in the City Services Appendix. The physical
locations of needed facilities have been provided to the City and are shown on the
following maps. The new facilities projected occur in existing rights-of-way or at pre-
existing locations so there is minimal to no conflict with the future land uses projected
by this Comprehensive Plan.
City of Bremerton Comprehensive Plan CS 18
City Services Element
Capital Facilities
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 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 unfolds. 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: (1) the establishment of the community's desired
Levels of Service standards (and a related concurrency requirement), and (2) 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 the large, technical City
Services Appendix to this Element.
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,) 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
of this Element, the City Services Appendix presents discussions of current conditions,
projected conditions, level of service standards, and implementation strategies for each
service area. This Capital Facilities section of the City Services Element discusses the
overarching topics of concurrency, levels 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 Plan's and use concept.
City of Bremerton Comprehensive Plan CS 19
City Services Element
The scope of the Capital Facilities Plan 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.
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
commtmity 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 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.
Concurrency is demonstration entails several basic steps: 1) The community defines the Level of Service (LOS) Standards to maintain.
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.
city of Bremerton Comprehensive Plan CS 20
City Services Element
191.~J~l~
LOS Standards
The level of service expected by the community for each type of public service
discussed in this section, is identified within the section devoted to that service (see City
Service 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)
Table CF-i. Capital Facili~, Level of Service Standards - Long Term
Capital Facility Type Level of Service Standard (LOS) Date est.
Emergency Medical Services 4.0 minute response time for BLS
8.0 minute response time for ALS 1995
Fire 5.0 minute response time 1995
Law Enforcement 250 sq.ft, per officer 2003
1.8 officers per 1,000 pop. 2003
Parks - Local 1.48 acres per 1,000 persons - 0.0017 acres per capita 1995
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 1995
Sanitary Sewer 100 gallons per capita per day (gpcd) 2003
Storm Water Management Maintain per King County Stormwater standards 2003
Schools - Elementary (K-Sth) n/a *
Schools - Middle (6th-8th) n/a *
Schools - High (9th-12th) n/a *
Streets, transportation - Varied. See Transportation Element 2003
Water 200 gal/day 2003
· NOTE: Bremerton School District is beguming a capital facilities planning exercise in 2003-2004. This Element will
be updated with the date produced 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,
Ciht of Bremerton Comprehensive Plan CS 21
City Services Element
envisioned by the community. By making a conscious decision to accept more
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.
An incentive-based use of Level of Service Standards for streets is discussed in detail in
the Transportation Element. It is important to establish here 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 development incentives will be
made as parks plans, water plans, and other service plans are updated and/or
developed by the City.
city of Bremerton Comprehensive Plan CS 22
City Services Element
Cit of Bremerton Com rehens~ve Plan
V 1 II T hni 1 App di
o ume:ec ca ences
City of Bremerton
Comprehensive Plan
Technical Appendices
Land Use Appendix
Housing Appendix
Transportation Appendix
Environment Element Aquifer Map
Economic Development Appendix
City Services Appendix
Public Participation Program
Land
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.
CitF of Bremerton Comprehensive Plan
Land Use Appendix LU Appendix I
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 46% 35% 41.7 ^c./1,000 pop.
COMMERCIAL 10% 9% 10.6 Ac./1,000 pop.
INDUSTRIAL 10% 9% 10.0 Ac./1,000 pop.
PUBLIC 32% 47% 55.9 Ac./1,000 pop.
Development Constraints
Environmentally Sensitive Areas
Bremerton has adopted a Critical Areas 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 regulations
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 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
City of Bremerton Comprehensive Plan
Land Use Appendix LU Appendix 2
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 mirfimal. We do expect additional h-frill 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 flat 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, 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 irdill 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,
Cit~ o£Bremerton Comprehensive Plan
Land Use Appendix LU Appendix 3
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 Lrffrastructure, 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 road and other standards
are considerably lower than in urban areas. Those areas are also more
likely to have larger vacant parcels 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.
City of Bremerton Comprehensive Plan
Land Use Appendix LU Appendix 4
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. This 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.
City of Bremerton Comprehensive Plan
Land Use Appendix LU Appendix 5
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 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 Total MF: @ 57.6%
MF - MF 8-18 du/ac 213 55.0 (223 units)
MF - MR 8-44 du/ac 5 1.3
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 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 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 52% of new
population) an overall 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.
City of Bremerton Comprehensive Plan
Land Use Appendix LU Appendix 6
Table LU.ii. Net Future Residential Land Need
net % of hshld
Type :)ensity acres tot. population
(dulac) needed DU
iow high iow high iow high need* size Iow 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
Total: 387 645 totalpop 11,000 13,500
centers pop (lines
3&4) 6,000 7,500
* While implementing zoning in the LDR designation may allow up to 10 du/ac, it is estimated
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+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)
City of Bremerton Comprehensive Plan
Land Use Appendix LU Appendix 7
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 commercial, which assumes more
compact commercial 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 Population Acres/1000 Net acres Gross acres
served population~ needed2 needed
Center 7,500 6.5 48.'/5 65
commercial
Non-center 4,000 10 40 52
commercial
Total 11,5003 Total 88.75 127
population
growth
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, page 62-63.
2. Gross land needed equals net +32%. See Kitsap County Buildable Lands Analysis, (page24).
3. Additional population at the employment centers (Pope and Talbot and Port Blakely
properties) was not included in this calculation as that population is associated with commercial
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 survey 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 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
City of Bremerton Comprehensive Plan
Land Use Appendix LU Appendix 8
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 shght
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 Additional Land Needed
(net acres) (gross acres)
Non-centers SF 238-402 314-531
Non-centers MF 28-94 37-124
Centers (SF + MF) 109-130 144-172
DRC 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
City of Bremerton Comprehensive Plan
Land Use Appendix LU Appendix 9
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 Land Use Map found in the Land Use Element.
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 "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 parcel is likely to be
redeveloped for additional residential uses.
If the 446 acres that are more clearly available for locating 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.
The availability of some amount of "redevelopable' residential land (the some 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.
City of Bremerton Comprehensive Plan
Land Use Appendix LU Appendix 10
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 centers will be built-out during the initial
City of Bremerton Comprehensive Plan
Land Use Appendix LU Appendix 11
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
est/mate 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 mount of industrial land committed to that use through
agreement with property owners means that the "market factor" is extremely large.
Cit~ of Bremerton Comprehensive Plan
Land Use Appendix LU Appendix 12
LU Appendix Table 1
Population and Employment Calculations - Bremerton Centers
area avg. res. Household pop com/office fir area (sq ft) 3 employment 4
density size IOW high Iow high
(du/ac) (pers. per du)
District Centers
Wheaton/Riddell
total acres 106
residential ~ 106 20 2 3816
commercial 2 32 198750 496875 549 1371
office 2 11 66250 165625 191 477
center sub totals 739 1848
W~eaton/Sheridan
total acres 81
residential ~ 81 20 2 2916
commercial 2 24 151875 379688 419 1048
office 2 8 50625 126563 146 365
center sub totals 565 1412
Charleston
total acres 39
residential ~ 39 20 2 1404
commercial 2 12 73125 182813 202 505
office 2 4 24375 60938 70 176
center sub totalS 272 680
WestPark (opportunity site)
total acres 37
residential ~ 37 20 2 1480
commemial 2 11 69375 173438 191 479
office 2 4 23125 57813 67 167
center sub totals 258 645
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
center sub totals 173 433
Perry Avenue
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
Sylvan/Pine
total acres 30
residential ~ 30 20 2 1200
commercial 2 6 37500 93750 104 259
office 2 3 18750 46875 54 135
canter 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
canter sub totals 142 354
Kitsap Lake
total acres 48
residential ~ 48 20 2 1920
commercial 2 10 60000 150000 166 414
office 2 5 30000 75000 86 216
canter sub totals 252 630
The Oyster Bay Neighborhood Center projections are considered with the growth allocated for WestPark.
Downtown Regional Center
total acres 37
residential ~ 37 40 2 2664
commemial s 37 231250 578125 638 1596
office e 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
"canters model - see City of Spokane). Office acres are 10% of total in both types. Resultant acres calculated and shown here are consistent
with recommendations found in; Preparing the Heart of Your Comprehensive Plan, "A Land Use Element Guide", Washington State DCD,
3 Floor area based on Table 9, Preparing the Heart 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 applied to the commercial acres here. Ratio is based only on the
neighborhood canter column on Table 9 which serves populations ranging from 4,000-10,000. This range covers both types of canters
addressed in the Bremerton model. Ratio = 6,250 - 15,625 square feet of commercial area per acre of commercial land.
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, Apd11993. Commercial ratio is average of Table 5 ratios for,
"commercial service", "retail", and "restaurant" uses (see factors below). Offica ratio is the "office" use ratio from Table 5 (also see factotrs
below).
below),
factors: Iow end floor area (sq. ft.per acre) 6250
high end floor area (sq. ft. per acre) 15625
commercial employee's per 1,000 sq. ft. floor area 3
office employees per 1,000 sq. ft. floor area 3
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%)
Note: This spreadsheet contains formula 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
a terat ons to th s sheet may corrupt the linked sheets.
LU Appendix Table 2
Estimate of 20-year Likely Buildout of Centers, (population a~nd employment).
full Total Iow high 2003 acrs. 20 yr. 20 yr. ernp
B-O pop. acres emp emp devlobl ~ availblty B~ pop. iow high
~
Downtown Regional Center
2664 37 1304 3261 12 50[~ 1332 652 1630 -
Distdct centers
Wheat./Rid. 3816 106 739 1848 52 good 50~00% 1908 ~ 370 924.
Wheat./Sher. 2916 81 1412 25 30~ 874.8 ~ 169 424_
Charleston 1404 39 680 4 good 2Oi~ 280.8 54 136
Nbrhd. Centers ~
Manette 1320 33 433 3 528 69 173
Perry Avenue 1080 27 354 5 fair ,20~ 216 28 71
1200 ~ [
30 394 14 Iow 10~O0% 120 _ 16 39
Haddon 1080 · 27 142 354 6 fair 10~00%· 108 -. 14 35
~ Lake 48 252 630 24 Iow 0;00% 0 r 0~ 0
258 645 3 90~ 1332 I 232 58~
*includes Oyster Bay Neighborhood Center
SUbTOTAlS ~leS8o
Employrn. Centers I [ _
Harrison ti ] 750 ~
Port Blakely3 ~ 750
NW Corp.Campas 0
TOTALS
NOTES: '
1
2003 vacant orre-developeble properties. Estimate of vacant or
underdeveloped properties accomplished by analysis of aereal photographs
and G..S data ca cu at on, January 2003
20 year center buildout. Estimated by considering proportion of vacant and
undevelopable lands, availability of infrastructure, proximity to adequate
supporting neighborhood density, and market preferences.
3 Population estimates at the Port Blakely Employment Center is based on
discussions with project proponents. Population is unlikely in the first six
ears of the planning period.
.
I - ~ t t-, ~ ~ - ~'
Note: This spreadsheet is linked to several others. Take care not to alter cells containing formula or links to
~other sheets. Alter only cells containin~l raw data.
LU Appendix Table 3
Centers' Full Buildout & 20 Yr. Population and Employment
Disagregation to the Transportation Analysis Zones (TAZs) 2-Jun-03
tot pop TAZ # disag. % tot. pop emp Iow emp high 20yr. disag. ?
pop s 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
100
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
100
Oppo~uni~ Site 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
lO0
340 5 60 8 20 6 2
354 10 120 16 39 12 4
357 50 600 79 197 60 20
348 35 420 55 138 42 14
100
394 70 756 99 248 76 28
396 15 162 21 53 16 6
399 15 162 21 53 16 6
100
(reserved center) 388 100 1920 252 630 0 0
Downtown Regional Center
~33 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
100
totals 18880 18880 7574 40~8
Employment Centem
NW Corp. Campus 0 0
TOTAL 9074
7 see separate spreadsheet for total 20 year centers populations (not per TAZ)
6 see separate spreadsheet for 20 year employment (not per TAZ)
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Lformu a or nks to other sheets. Ater on y ce s conta n ng raw data.
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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 census 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 dismissible in Bremerton where there are regular fluctuations in
the military population 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 all 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
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 glaring,
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 HSA-1 below)
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 1
Table HSA-1
Bremer~on's Historical Population Growth: 1940-2003
Year , I Population Ip°pulati°n change I Pement of County
Population Reports, U,S. Census (as reported on April 1st of every 10~ 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 April 1*t 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
As Table HSA-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), and Single Parent Households.
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 2
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 characteristics of
Bremerton's existing 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 following
sections, 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 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
Cit~/ qf Bremerton Comprehensive Plan
Housh~g Appendix HS Appendix 3
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.
38,142 (+5.5%) 37,259 (-2.5%)
15,693 (+6%) 16,631 (+6%)
14,718 (+5%) 15,085 (+2.5%)
2.34 2.3
189,731 (+29%) 231,969 (+22.5%)
74,038 (+29%) 92,644 (+25%)
69,267 (+31%) 86,416 (+25%)
2.5 2.6
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 conditions, especially historic
low 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.
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 4
Type of Housing Units
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 houseboatsJ 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
Housing Unite by Type: 1980-1990-2000
Type 1980 1990 2000
# % of Total # % of Total # % of Total
I unit, detached 7060 47.2% 7700 49.1% 7,917 47.6%
I 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 1,117 7.5% 1149 7.3% 1,421 8.5%
5+ Units 2,554 17.1% 3,432 22% 4204 25%
Total, Multifamily 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%
Soumes: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 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.
~The Census uses the term "mobile home or trailer" to refer to mobile homes to which no
permanent rooms have been added. While not clearly 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.
City qf Bremerton Comprehensive Plan
Housing Appendix HS Appendix 5
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 often 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. Older "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 will 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 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 Bremerton (.2% of the city's
housing stock) and 3,351 permitted units throughout the County (3.5% of the County's
housing stock.)
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 6
Older units are apparently being retained in Bremerton (i.e., preserved and/or not
redeveloped) and new residential developments are primarily going to other areas in the
County.
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.
Table HSA-4
Age of Housing in Breme~ton and Kit~ap County
City of Bremsrton Kitsap County
~ Units Percent Units Percent
April 2000 - April 2003 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, Sample 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 6.7%. 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
fall 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 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
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 7
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 changes
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.
The majority of housing traits 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
City ofi Bremerton Comprehensive Plan
Housing Appendix HS Appendix 8
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 HSA-5)
Table HSA-5
Occupied Unite: Specified Owner or Renter, 1980-2000
Specified Owner-Oooupled Unite
1980 1990 20~0
Place Total Percent Total Percent Total Percent
Bremerton 6,082 43% 5,755 39% 5,259 37%
Kitsap 35,552 67.5% 44,539 64.5% 46,779 63%
County
~fled Rentar-Oc~up!ed Unlt~,
1980 1~0 ~
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 low 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.
Affordability
At first glance, housing costs in Bremerton 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.
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 9
Table HSA-6
Single Family Home Sales: Average Prices and Day8 on the Market (DOM):
Area 1997 1998 1999 2000 2001 Change
1997-2001
Price DOM Price DOM Price DOM Price DOM Price DOM
West Bremerton $100,494 115 $97,066 83 $97,810 75 $108,358 77 $105,859 63 5.5%
EastBremerton $108,274 119 $117,84685 $115,871 68 $124,236 81 $128,923 52 19%
W. Central Kitsap $155,853 138 $159,393 90 $162,472 82 $168,894 77 $177,702 87 14%
E. CentraIKitsap $108,274 119 $117,84685 $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 housing 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 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, low 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.
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 10
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 Percer~age
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%
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
low 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 low 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 100'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
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 11
Bremerton than in the County, again, does not directly address the issue of rental
affordability, 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 rates on average climbed 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.
Table HSA-8
Gross Rent as a Percentage of Household Income, 1999
% Income for Bremerton IGtsap County
Rent
Households Percent Hou~eholde Percent
Less than 15% 1,325 14.8% 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 3,131 35% 8151 29.2%
more
Soume: 1990 Soume: 2000 Census
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
City ol: Bremerton Comprehensive Plan
Housing Appendix HS Appendix 12
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 low income households. The subsequent,
disproportionate, amount of the county's subsidized and public housing in Bremerton
has resulted in a concentrated number of low 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 low a quality to be used for publicly subsidized housing and is
thus, truly detracting from quality, stable residential settings.
Housing Conditions
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 HAS-9 )
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 13
Table HSA-9
Housing Condition (Buildings)
Type Good Average Fair Poor Very Po°r Total
Single Family 673 6,169 1,222 188 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.
'230 units) rated as "very poor". "Substandard units" are those classified as "poor" or "very poor"
by the Kitsap County Assessor.
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.2 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).
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.
2Small Communities Guide to Comprehensive Planning, Washington State Department of
Community Development, June 1993, pg. 147.
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 14
· 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
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 federal
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; resources 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 those 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 cotmty, 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
3this forecast assumes continuation of the existing proportion (12.2%) of all substandard units
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 15
next five years). As of June 28, 2000, Bremerton Housing Authority has 1000 Applicants
on the Bremerton Housing Authority Section 8 Wait List, and 1069 Applicants on the
Kitsap County Consolidated Housing Authority Section 8 Wait List.
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 low-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 low-income individual or family pays.
Bremerton Housing Authority has the role of administering more than 2,100 Section 8
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.
HSA-10 Public and Assisted Living Units
Housing Administered by Units Totals Unit Size
Bremerton Housing Authority BHA*
Conventional Public Housing: * BHA History & Proqram Information Revised 4/00
Westpark - Multi-Family (Bremerton) 555 231 - 1 bdrm
265 - 2bdrm
55 - 3 bdrm
4 - 4bdrm
Searle Street - Westpark - Multi-family (Bremerton) 27 25 - 1 bdrm
2 -- 2 bdrm
Tara Heights - Family (Pine Road, Bremerton) 21 12 -- 2 bdrm
7 - 3 bdrm
2 - 4 bdrm
Sub-Total 603
Section 8 Vouchers Existing:
Certificates (BHA) 571
Vouchers (BHA) 371
· *Family Self-Sufficiency Vouchers (BHA) 25
Nimitz Certificates (BHA) 46
Nimitz Vouchers (BHA) 20
Certificates (KCCHA) 224
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 16
Vouchers (KCCHA) 59
Nimitz Certificates (KCCHA) 46
Nimitz Vouchers (KCCHA) 20
Sub-Total 1,382
BHA as Administrative Agent:
Rainier View 25
Wedgewood 50
Hostmark II 30
Sub-Total 105
BHA Units TOTAL: 2090
Housing Administered by Kitsap County Units Totals Unit Size
Consolidated Housing Authority(KCCHA)
Pinewood Manor 38 1 -- bdrm
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 low-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 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
City ~f Bremerton Comprehensive Plan
Housing Appendix HS Appendix 17
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 Bremerton.) 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. 2~here 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
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.
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 18
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 and case
management services to low 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.
Families 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 low 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 homeless
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 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.
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 19
limB
Bremerton Single
Women
Bremerton 3-OK Families 5 units
WestPark 9-Good with
children
Bremerton Good CMl 2 beds
Confidential Good Women & 20-30 beds
Children of
Domestic
Violence
*Information provided in the Kitsap County 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 challenge 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 clients. 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 families 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 effort,
especially due to low 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.
Cit~/ of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 20
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 housing 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 highlight 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 opportunities. The Centers Concept, central 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.
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.
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 21
Table HSA-12 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 du/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
MF - MR 8-44 du/ac 5 1.3 Total MF: @ 57.6%
(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
commurdty 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 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 to accommodate the
City of Bremerton's population growth forecast over the twenty year planning period -
approximately 13,000 persons. (see Table HAS-13 below) 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 HSA-12 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 increases over the historic pattern
depicted by the data in Table HAS-12 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.
City qf Bremerton Comprehensive Plan
Housing Appendix HS Appendix 22
Table HSA-13 Net Future Residential Lam Need
net hshld
Type Density acres % of population
(du/ac) needed DU tot.
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
Total. 387 645 4,603 5,716 pop 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 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 HAS-14
Table HSA-14. 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)
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 23
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 parcel is likely to be
redeveloped for additional residential uses.
If the 446 acres that are more clearly available for locating 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.
The availability of some amount of "redevelopable' residential land (some 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.
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 low 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
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 24
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.
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.
Cirri of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 25
Housing 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 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):
i. Extremely low-income shall mean those households that have incomes
that are at or below 30% of the countywide median.
ii. Very low-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
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 family
dwelling built in accordance with the Department of Housing and Urb~m
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.
City of Bremerton Comprehensive Plan
Housing Appendix HS Appendix 26
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.
City ~f Bremerton Comprehensive Plan
Housing Appendix HS Appendix 27
Tr;
I INTRODUCTION ............................................................................................................................... 1-1
1.1 PURPOSE OF THIS ELEMENT ........................................................................................ l-I
1.2 STUDY AREA .................................................................................................................... 1-I
1.3 SCOPE AND CONTENT ............. 1-1
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 Arterial Routes 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 FORECASTING FOR YEAR 2030 ................................................. 3-1
3.2 TRANSPORTATION AND LAND USE ALTERNATIVES TESTED ............................. 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 IMPROVEMENT OPTIONS ........................................................................ 4-1
4.1.t Roadway Capacity Improvements .......................................................................... 4-1
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 BICYCLE IMPROVEMENTS ......................................................... 4-7
4.4.1 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 TRANSPORTATION SYSTEM MANAGEMENT STRATEGIES ................................ 4-11
City of Bremerton Comprehensive ~°lan 554-1896-053 (01/03)
Final Transportation Element i December 2004
4.7 TRAFFIC CALMING ....................................................................................................... 4-12
4.7.1 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 ........................................................................... 4-13
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
5.1 EXISTING AND PROJECTED REVENUE ....................................................................... 5-1
5.2 IMPROVEMENT COSTS/REVENUE COMPARISON .................................................... 5-2
5.3 CONCURRENCY MANAGEMENT AND IMPLEMENTATION ................................... 5-4
LIST OF FIGURES
1-1 Study Area Western Portion ................................................................................................ 1-2
1-1 Study Area Eastern Portion (continued) .............................................................................. 1-3
2-1 Functional Classifications Eastern Portion .......................................................................... 2-2
2-1 Functional Classifications Western Portion (continued) ..................................................... 2-3
2-2 Roadway Characteristics 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
24 Existing Traffic Volumes - PM Peak Hour Eastern Portion (continued) .......................... 2-11
2-5 Existing Level of Service and Volume to Capacity Ratios Westem 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 Seattle-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 ................................................................................................................... 3-8
3-2 Alternative 1 (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 Capacity Ratios Western
Portion ................................................................................................................................ 3-10
Cit~ of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element ii December 2004
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
Portion (continued) ............................................................................................................ 3-13
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 Eastern Portion
(continued) ......................................................................................................................... 3 - 15
LIST OF TABLES
2-2 Level of Service Definitions for Urban and Rural Roadways ........................................... 2-12
2-3 Existing Corhdor Level of Service .................................................................................... 2-13
24 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 Planning Level Cost Estimates for Future Improvements - Year 2003 Dollars ................ 4-14
5-1 City of Bremerton S/x-Year Transportation Improvement Program and Finance
Plan Expenditures (2004-2009) ........................................................................................... 5-2
5-2 Highway Construction Capital Improvement and Preservation Program (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
Cit~ of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element iii December 2004
ADA Americans With Disabilities Act
AIP Arterial Improvement Program
BRT Bus Rapid Transit
BTC Bremerton Transportation Center
CAC Planning 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 Statement
GMA Growth Management Act
GP General Purpose
HCM Highway Capacity Manual
HCT High Capacity Transit
HOV High-Occupancy 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
PSRC Puget Sound Regional Council
RPEC Regional Project Evaluation Comnnttee
RTID Regional Transportation Investment District
SEPA State Environmental Protection Agency
SOV Single-Occupant Vehicle
SR State Route
STP Surface Transportation Program
TAZ Transportation Analysis Zone
TDM Transportation Demand Management
TIA Transportation Improvement 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
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element iv December 2004
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 of what
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 Bremerton and its surrounding areas. A well~coordinated transportation system will
enhance the quality of life in Bremerton and the surrounding region while reducing urban sprawl and
other undesirable development patterns.
The Transportation Element primarily addresses 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. In
addition, they are 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 within 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 Adminislrative 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.
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 1-1 December 2004
/ /
/ I
? I
CITY OF BREMERTON
COMPREHENSIVE TRANSPORTATION PLAN
SCALE IN FEET ~ Figure 1-1
~ I--]~ Study Area
0 ~2so 2500 Western Portion
'~ ': Il' ~ ~'~ ~\~
CITY OF BReMER~O.
COMPREHENSIVE T~NSPORTATION P~N
SCALE IN FEET ~ Figure 1-1 (continued)
~ I ~~ Study Area
0 ~250 2500 Eastern Potion
The guidelines that were set forth in the Growth Management Act require, at a minimum, the following:
(I) 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 craft 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 designates 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 LOS.
(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.
Co) Recommendations for new facilities or routes.
(c) Outline appropriate phasing of those improvements.
(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 intergovernmental 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 City's
Citizen Involvement 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. ~Ill Plan elements were coordinated throughout the process to ensure internal
consistency, as well as consistency with the plans of other affected jurisdictions.
(3) A "Concurrency Management Program".
NOTE: Afler the City has adopted LOS standards, it will not be able to permit new development
that causes the LOS of a particular transportation facility 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.
CiO2 of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element I 4 December 2004
(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 Tmnsportation 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 bc supportive of and consistent with certain state, regiunal 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) Statewide Transportation Goal: Thc 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 (MTP) 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:
· Coord/nate transportation and land use planning to support transit and pedestrian-oriented
land use patterns within the urban area, especially in regional growth 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 service.
· 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 early so options are available.
· Develop transit 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 sh/ft travel demand to less congested times or reduce demand.
Ciiy of Bremerton Comprehensive Plan 554-1896-055 (01/03}
Final Transportation Element 1-5 December 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 Services" 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 development 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
Kitsap County.
(i) Relate to the coordination of intra-county transportation planning efforts.
(j) 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 will
support alternatives to the automobile, such 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 Modal:
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.
Tla Require new development and redevelopment to incorporate transit, pedestrian, and non
motorized transportation measures during the development review process, including
measures such as:
Providing bus/transportation shelters, pullouts;
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element ] 6 December 2004
- Providing adequate sidewalks, pathways and crosswalks that allow for access by all
persons;
- Minimizing walking distance between 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.
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 fides 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 off locations
at transportation centers.
Community Character:
T2 Develop transportation improvements that reflect Bremerton's natural, historie~ 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 Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 1-7 December 2004
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 fi.om road use and maintenance.
- Implement programs that encourage the planting of low-maintenance, vegetated
groundcover and trees along roadways.
- Where possible the City shall reqff~re the use and maintenance of natural vegetated
stormwater controls (bioswales etc.)
T3d Where possible, the City shall reqff~re 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 bulbs, "median obstacles," or other measures proven to be safe and effective at
reducing travel speeds.
T4d Establish and m~mtain a traffic control program for assessing and responcYmg 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.
T4eMinimize 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 fi.om 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.
Cit~ of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 1-8 December 2004
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 and 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 reqinremcnts 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 permitting process.
Create a concurrency system that does not issue development permits 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 Washington 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.
City of Bremerton Comprehensive Plan 554-1896-05.~ (01/03)
Final Transportaiion Element 1-9 December 2004
- Control the location and spacing of commercial 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.
- Examine, 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).
T8c 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.
T9a Encourage WSF to conduct public input meetings in Brcmerton, and bc responsive to
ferry patron needs.
T9b Make ferries accessible to all persons.
T9c Support and promote ferry system programs, which maximize thc convenience of non-
motorized connection, and high-occupancy vehicle (HOV) use by providing priority
stares and discouraging single occupancy vehicle usc.
T9d Promote thc continuation of passenger only ferry service.
T9c Promote coordination of fen3~ and transit schedules to promote multi-modal travel.
T9f Support research and development in new ferry technology.
Through Traffic/State Highways:
T10 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 support and participate in the cooperative regional transportation
planning processes.
T10b Expand opportunities for public involvement in the identification, design, 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.
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportaiion Element 140 December 2004
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 & ride facilities. (TI c)
T1 lc Identify possible corridors for development of futm-e mass transit options such as light
rail, monorail, bus rapid transit, etc.
T1 ld Support efforts to expand usage and infrastructure for mass transportation.
T1 le 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 bike paths.
Coordinate with Kitsap County non-motorized facility improvement plans.
Coordinate with Kitsap County to adopt uniform signage.
T12b Ensure that designated centers are walkable, and encourage connectivity.
T12c Maintain existing and create new, engineered bike lanes.
T12d 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 identify through clear signage 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.
City of Bremerton Comprehensive Plan 554~189~053 (01/03)
Final Transportation Element 1-I i December 2004
T13c Support a freight rail link.
(6) Downtown Development Goals and Policies (Ordinance No. 4783): 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 femes, bus transit, automobiles, walking and bicycles.
· Downtown Bremerton will accommodate parking for commuters, visitors and shoppers but in
locations 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 priorities 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 underground parking.
· The city should employ a variety of techniques, including upgraded and expanded infrastructure
(including streets and sidewalks), pubhc/private partnerships, the development and management
of parking, 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,
furff~shings, 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.
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 1-12 December 2004
· 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 & Polleies: 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 ensure consistency:
(a) Bremerton Ferry TernUnal to Vicinity of Gorst Highway Improvement Project Transportation
Expertise Report- Proposed 1995
(b)Campus/Evergreen Neighborhood Plan (Bmmerton) - Adopted: 1992
(c)Waterfront Access Plan (Port Orchard Project) - Adopted: 1989
(d)West Hills Area Plan (Bremerton-SR 16) - Adopted: 1990
(e)Werner Road/Loxie Eagans Blvd. Traffic Operations Study Final Report- Adopted 1997
(f)City of Bremerton Transportation Improvement Program (Six-Year TI[P) _ Adopted 2003
(g)County Transportation Element (Kitsap Co.) - Adopted: 1998
(h)Washington State Fen/es 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: 2001
(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
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 1-13 December 2004
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. This 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 roadway 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 - Intercornrnunity roadways connecting 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 - Intracommunity roadways connecting community centers with principal
arterials. In general, minor arterials serve trips of moderate length. Access is partially controlled
with infrequent access to abutting properties.
· Collector Arterials - Streets connecting residential neighborhoods with smaller community
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
lower 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 Bremerton are as follows:
2.1.1 State Highways in Bremerton
SR-3 is the sole north-south freeway in Central Kitsap County. Located on the west side of
Bremertun, 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, Kitsap Way (SR 310), Loxie Eagans Boulevard/Wemer Road,
and SR-304.
Cit~ of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 2-1 December 2004
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Cl~ OF BREMERTON
COMPREHENSIVE T~NSPORTATION P~N
LEGEND
SCALE IN FEET ~ Freeway Figure 2-1
I I [--I ~ ..... Minor PrincipalAdedalsA.erials Functional Classifications
0 1250 2500 ......... Colle~om Western Potion
/
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Cl~ OF BREMERTON
COMPREHENSIVE T~NSPORTATION PLAN
LEGEND Figure 2-~ (confinuod)
SCALE IN FEET Freeway
I I [~l Principal Arterials Functional Classifications
..... Minor Adedals Eastern Potion
0 12~ 2500 ......... Collectors
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 BurweI1 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/6a Street to SR 304 (Burwell Street). Much of the Kitsap Way
portion of SR 310 includes a center two-way left mm lane.
SR 303 is a north-south principal arterial, that originates at Burwell Street, and extends north to
Silverdale. SR-303 (Warren Avenue/Wheaton Way) is a four to five-lane principal arterial, with the
fifth 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 1 lth 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. Burwell 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 in West Bremerton 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 Manette Bridge
connects Washington Avenue in downtown Bremerton to Wheaton Way (SR 303) in East Bremerton via
the Wheaton Way/Warren Avenue arterial streets. Wheaton Way, Pine Road NE, Perry Avenue, and
Trenton Avenue are the primary north-south medals in East Bremerton. The arterial roadway
characteristics and traffic controllers in the study area are shown in Figure 2-2.
2.2 HIGHWAYS OF STATEWlDE 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 i01/Shelton to SR 104 (entire route)
· SR 304 (Burwell Street, Callow Avenue, Navy Yard Highway)- SR 3 to Bremerton Ferry
Terminal (entire route)
· SR 310 (Kitsap Way, Callow Avenue) - SR 3 to SR 304/Bremerton (entire route)
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 2-4 December 2004
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NOTE:
HAV~ A 25 MPH SPEED LIMIT
EXCEPT WH~RE SHOWN.
CI~ OF BREMERTON
CQMPREHENSIVE T~NSPORTATION P~N
LEGEND
SCALE IN F~T ~ Signalized Inters~tion Figure 2-2
I I Roadway Characteristics
0 1250 2500 ~ Spe~ Limit and Traffic Control
Four ~ne A~erials Western Potion
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Cl~ OF BREMERTON
COMPREHENSIVE T~NSPORTATION P~N
LEGEND
SCALE IN FEET ~ Signalized Intersec~on Figure 2-2 (continued)
Roadway Characteristics
o ~2so ~soo and Tra~i~ Control
Four kane Aderials fia~tern ~odion
Designation as an HSS means:
· Higher priority for improvement funding from state sources
· State has authority for setting level of service (LOS) 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 (RTID)
SR 303, which extends fi:om 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 24 range fi:om 1,100 vehicles per day on
Park Avenue north of 13th Ave and Synder Avenue north of 15th Street, to 46,700 on the Warren Avenue
Bridge. The higher-volume arterials are Kitsap Way (SR 310) between 1 lth Street and SR-3, 1 lth Street
between Warren Avenue and Callow Avenue, 6th Street between Naval Avenue and Callow Avenue, and
Wheaton Way/Warren 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 community. 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 ora particular LOS threshold can vary by
planning subarea, roadway classification, or specific corridor or street. Establishing LOS
standards is also a requirement of the State's Growth Management Act.
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 2-7 December 2004
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COMPREHENSIVE T~NSPORTATION P~N
LEGEND Figure 2-3
SCALE IN FEET ~ TotalAverage Weekday Existing Traffic Volumes
J J [~J NOTE: Traffic Average Weekday
0 1250 2500 Traffic Counts Recorded Western Po~ion
CITY OF BREMERTON'
COMPREHENSIVE TRANSPORTATION PLAN
LEGEND Figure 2-3 (continued)
Existing Traffic Volumes
SCALE IN FEET ~ Total Average Weekday
I I I I NOTE: Traffic Average Weekday
0 1250 2500 Traffic counts recorded in 2000-2003 Eastern Portion
340
/
CI~ OF BR~ME~TON
COMPREHENSIVE T~NSPO~TATION
LEGEND Figure 2~
SCALE IN FEET 58~ Direc~onal PM Peak Hour Existing Traffic Volumes
J I ~ ~ NOTE: PM Peak Hour
0 1250 2500 Traffic coun~ re~rded in 2001 Western Po~ion
Cl~ OF BREMERTON
COMPREHENSIVE T~NSPORTATION P~N
LEGEND Figure 2~ (continued)
Existing Traffic Volumes
II ISCALEIN FEET ~ NOTE:'580 Dir~ional PM Peak Hour PM Peak Hour
0 1250 2500 Tm~c counts recorded in 2001 Eastern Po~ion
(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 t~eedom 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 VolumelCap~c!ty (V/C) Ratio
A less than or equal to 0.3
B __ less than or equal to 0,5
C less than or equal to 0.75
D less than or equal to 0.90
E less than or equal to 1.0
F greater than 1.0
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 potential 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 along adjacent roadway links, since intersection LOS is dependent upon a variety of other
factors, including intersection traffic control, signal tinting/phasing, intersection geometr/cs, and cross-
street traffic volumes.
City of Bremerton Comprehensive Plan 554-1896-053 (01/03}
Final Transportation Element 2-12 December 2004
(3) Existing Level 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) - 11th 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)
· Wheaton 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 Warren to Callow 1,890 3,700 0.51 C
11 th Street Washington to Warren 920 3,440 0.27 A
11 th Street Warren to Kitsap Way 2,180 3,950 0.55 C
15th Street High to Callow 460 1,310 0.35 B
Auto Center Way South of Kitsap Way 820 1,910 0.43 B
Auto Center Way North of Werner 330 1,770 0.19 A
Burwell Street (SR 304)a Washington to Warren 760 3,970 0.19 A
Burwell Street (SR 304)a Warren to Naval 1,250 3,030 0.41 B
Burwell Street (SR 304)a Naval to Caliow 1,340 3,530 0.38 B
Callow Avenue (SR 304)a Farragut to Burwell 2,000 3,630 0.55 C
Callow Avenue 6th to 11th 730 1,850 0.40 B
Charleston Blvd. (SR 304)a Preble to Farragutb 2360 4,230 0.56 C
Hadow Ddve 1st to Price 160 1,340 0.12 A
High Avenue 6th to 15th 280 1,290 0.21 A
Kitsap Way (SR 310)" North of 11th 3,430 3,890 0.88 D
Kitsap Way (SR 310)" East of National 3,400 3,940 0.86 D
Kitsap Way (SR 310)a West of National 2,670 3,690 0.72 C
Kitsap Way J~S~R~-~3._t?__No~_hlake Way 1,220 ~3,5___70_ .........0_..3_4 B
Loxie Eagans Blvd. ] National to SR-3 1,500 3,580 0.42 B
Manette Bridge ] 1,140 2,390 0.48 B
National Avenue [Kitsap to City Limits 1,000 1,340 0.74 C
NavalAvenue [Burwe to 11~ 1,010 3,580 0.28 A
Pacific Avenue I Burwell to 11th 240 1,110 0.22 A
City of B remerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 2-13 December 2004
Table 2-3. Existing Corridor Level of Service (continued)
Two-Way Peak
Street Section HourVolume Capacityc VIC Ratio LOS
West Bremerton (continued)
SR-304 a SR-3 to Prebie 2,460 4,130 0.59 C
Warren Avenue (SR 303) Burwell to 11th 1,300 3,700 0.35 B
Warren Avenue (SR 303) 11th to Bddge 2,670 4,020 0.66 C
Warren Avenue (SR 303) Bddge to Callahan 3,830 4,920 0.78 D
Washington Avenue 6th to Burwetl 730 2,820 0.26 A
Wemer Road East of Auto Center Way _ 1,380 3_,910 0.35 i B
Wemer Road West of Auto Center Way 970 1,250 0.77
~ D
East Bremerton
Perry Avenue E. 11 th to Riddell 580 1,430 0.40 L B
Pine Road i Shendan to Riddell 630 1,390 0.45 ! B
Riddell Road i Pine to Wheaton 860 1,880 0.46 -~ B
Riddell Road Wheaton to Petersville 778 1,350 0.58 l'l C
Sheddan Road Wheaton to Halverso. 700 1,350--"~-'---~-:~-~---I--'-~-
Sylvan Way Wheaton to Petersville 1,180 1 350 0.87 ~' D
Trenton Avenue E. 11th to Stone 330 1,160 0.28 i A
Warren Avenue (SR 303) Callahan to Sheridan 3,310 3,750 0.88 I D
Wheaton Way (SR 303) Sheridan to Riddell 3,090 3,450 0.90 i D
a
Designated as a Highway of Statewrde 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/channelizafion, type of intersection traffic
control, and location within 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 if an
intersection has an unusually high accident rate and should be considered for further exam/nation 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 intersections.
At some of these intersections, there are no consistent accident patterns or no reasonable improvements
that could be identified to decrease accidents. Table 2-4 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.
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 2-14 December 2004
/
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/
OlTY OF BREMERTON
OOMPREHENSIVE T~NSPORTATION P~N
LEOEND Figure
SCALE IN FEET Existing Year 2001
Level of Se~ice and Volume
0 1250 2500 LOS Level of Se~i~
V/C Volume to Capaci~ Ratio to Capaci~ Ratios
Western Potion
J
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Cl~ OF BREMERTON
COMPREHENSIVE T~NSPORTATION P~N
Figure 2-5 (continued)
SCALE IN FEET ~ LEGEND Existing Year 2001
~ ~ ~ ~~ ~ ~os~v~c Level of Se~ice and Volume
0 1250 2500 LOS Level of Se~ to Capaci~ Ratios
VIC Volume to Capaci~ Ratio Eastern Potion
As shown in Table 24, there are six signalized and seven unsignalized intersections that have exceeded
the accident thresholds for the years 1997 through 2001. The majority of the locations are on the major
arterial corridors in the City, including Warren Avenue/Wheaton 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 '01 Total 5-Year Average
Signalized Intersections
Callow Avenue & 6t~ Street 53 10.6
Callow Avenue & 11 th Street 93 18.6
Kitsap Way & 11th Street 70 14.0
Warren Avenue & 11th Street 23.0
Wheaton Way & Sheridan Rd. 13.0
Wheaton Way & Sylvan Way 7 62 12.4 a
Unsignalized Intersections
Hewitt Avenue & 11th Street 6.2
Ohio Avenue & 11th Street 5.6
Kitsap Way & Arsenal
Way/Shorewood Drive b 6.6
Kitsap Way & Corbet Ave./13th
Street/Wilbert Street 7.0
Kitsap Way & Pershing Ave. 35 7.0
Kitsap Way & Morgan Ave c 35 7.0
Veneta Avenue & 11th Street 30 6.0
Accident records revealed a pedestrian fatality at the intersection of Wheaton Way and Sylvan Way in 1998,
The reduction in accident rates at the Kitsap Way & Arsenal Way/Shorewood Drive intersection between 1999 and 2001 is
a result of intersection and signal improvements.
c Accident rates at this intersection may decrease as a result of minor stdping improvements made by WSDOT and the City
of Bremerton. The City of Bremerton 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 Tenmnal
· Wheaton Avenue/Sylvan Way intersection
· Auto Center Way south of the SR-3/Kitsap Way intersection
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 2-17 December 2004
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 interchange 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 connects 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.
There are two auto and walk-on ferry vessels that operate on the Bremerton to Seattle route. During peak
summer months 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 commuters. 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-ferry ridership occurs
during the spring and 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 of improvements 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.
City of Bremerton Comprehensive Plan 554-1896~053 (01/03)
Final Transportation Element 2-19 December 2004
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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 multi-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 Bmmerton, a majority of the east-west routes, including Riddell
Road and Sylvan Way, and north-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 from school.
Schools that are located in areas with no to minimum sidewalks and/or bicycle routes 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 in East Bremerton. The Olympic Community 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.
Bremerton has a complete bicycle route network that extends through East and West Bremerton. 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 Bremerton, 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.
Ci~ of Bremerton Comprehensive Plan 5 54-1896~05 3 (01/03)
Final Transportation Element 2-21 December 2004
An area that currently lacks bicycle routes are the local streets leading to the Evergreen Park, located
north of 15th Street. The park has a mixed use-trail that could provide commuters an alternative route to
access the neighborhoods to the west of the park. There are adequate sidewalks on the streets both east-
west and north-south of the park; however, there are no direct bicycle paths or routes that 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 identified 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 Avenue/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:
(I) Auto Center Way between Kitsap Way and the SR-3 southbound On-Raml,: This section of
Auto Center Way has existing operating deficiencies due to the dual left turn 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 interchange are limited. In
particular, missing links and inefficiencies in the arterial network currently exist between 1 st
Street, Loxie Eagans Blvd/Arsenal Way and SR 304. Streets in portions of the confidor are
narrow and have limited pedestrian facilihes.
(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.
Cit~ofBremertonComprehensive Plan
Final TransportationElement 2-23 554-1896-053(01/03)
December2004
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
employment 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 (i.e., 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 Bremerton. These include the number and geographic
distribution of both households and employment in Bxernerton 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
development in Bremerton will be concentrated either in the downtown or seven "neighborhood" 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 patterns 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 following 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 furore capital needs. All of these effects
City of Bremerton Comprehensive Plan
Final Transportation Element 3-1 554-1896-053 (01/03)
December 2004
are difficult to measure, but are 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 Bremerton 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 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); 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 llth 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 Bremerten 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.
City of Bremerton Comprehensive Plan 554-1896~053 (01/03)
Final Transportation Element $-2 December 2004
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 tbxeshold. 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 in traffic volume.
As shown in this example, additional roadway capacity improvements would need to be planned 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 of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 3-3 December 2004
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/Wheatun)
comdor, 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.
The WSDOT sets LOS standards for Highways of Statewide Significance (ItSS), including SR 304, SR
310, and SR 3 in the City of Bremerton. For HSS routes, WSDOT uses an average daily traffic to
capacity ratio (ACR) standard, and has adopted a standard of ACR 10 (which approximates an LOS D)
for these routes. State law exempts HSS routes from local concurrency regulation. However, mitigation
for individual development impacts to these routes can still be required through SEPA.
On non-HSS routes, including SR 303, the Puget Sound Regional Council has adopted an LOS E
mitigated standard, which is consistent with the City's proposed LOS E standard for this route.
In the 1995 Transportation Element of the Comprehensive Plan, the Planning Commission Citizen
Advisory Comm/ttee (CAC) suggested two locations where additional studies were needed to develop
long-term solutions for improving LOS in the Warren/Wheaton and Kitsap Way corridors. These
suggestions include:
· The City will initiate the preparation of a cooperative city/county/state VFheaton Way/Brownsville
Highway Corridor Study from Burwell 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 Altematives 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/Wheaton) corridor.
· The City will initiate the preparation of a cooperative city/county/state Kitsap Way Corridor
Study, from llth Street to $R-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 Kitsap 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
model used for this analysis is limited in its ability to predict travel characteristic changes in the future as
a result off
· Increased transit use.
· Implementation of additional intra-county passenger femes.
Ci{v of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transporta~t'on Element 3-4 December 2004
· 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 3-1 and graphically in Figures 3-2, 3-3, 3-4, and 3-5 show the LOS and V/C for the
transportation improvement assumptions identified in Section 3.1. (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 - SR 303 SR 303 HOV,
Alternative Alternative HOV and and Kitsap
Existing I - No 2 - SR 3 Kltsap 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 Bremerton
6th Street [Washington to Warren 0.20 A 0.46 B 0.47 B 0.45 B 0,46 B
6th Street 'Warren to Callow 0.51 C 0.61 C 0.62 C 0.64 C 0.65 C
11th Street Washington to Warren 0.27 A 0.25 A 0.26 A 0.34 B 0.34 B
11th Street Warren to Kitsap 0.55 C 0.66 C 0.67 C 0.68 C 0.67 C
15th Street High to Callow 0.35 I B 0.62 C 0.62 C 0.63 C 0.62 C
A~ut__o_C_e_nte~r _Wa___y_____ South of Kitsa p Way _0.43_~ B 0.71 C 0.57 C 0.70 C 0,58 C
Auto CenterWay North of Werner 0.19 [ A 0.26 A 0.21 A 0.23 A 0,20 A
Burwell Street Washington toWarren 0.19 A 0.38 B 0.37 B 0.36 B 0.36 B
(SR 304)a
Burwell Street Warren to Naval I 0.41 B 0.94 E 0.89 D 0.98 E 0,95 E
(SR 304)a ~ I ~ , -
Burwell Street Naval to Callow i 0.38 I B 0.81 D 0.79 D 0.82 D 0.79 D
(SR 304)a ~_
Charleston Blvd.il-arragut to Burwell i 0.55.I C 1.18 F 1.11 F 1.24 F 1.14 F
West Bremerton (continued)
Harlow Drive i 1st to Price ____ . 0.08 A 0.09 A 0.08 A 0.09 i A
High Avenue ~ 0.39 B 0.40 i B 0.38 B 0.39
R ......................... 1.__o_z 0.83 D 0.81 D
KitsapWay(SR310)*~ hal i0.861 D i 1.10 F 0.83 D 0.83 D
.... · , .__"_'"',_ ..........
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 3-5 December 2004
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
Kitsap Way (SR 310)a ' '
West of National ~_~.72 i C. 1.02 F 1.00 I F 0.7_~5 C 0.72
Kitsap Way (S~ 310)a East of SR 3 ' - C
~0.73I C 0.99 E 1.02 F 0.73 C 0.74
Kitsap
Way
t0-N--o-o ~ h~a ke
SR-3
Wa~ 1.00 E 0.90- --D 0.96 E 0.89
Loxie Eagans Blvd. E/O SR-3 ~ ~d__0:42~_~B~ 0.40 B 0.40 B 0.38 B 0.41 '~-
Manette Bridge ,!,_0~ 1.04 F 0.9~- --2-- 0.87 ~D-" 0.84 D
NationaJ Avenue Kitsap to City Limits i 0.74 C 0.81 D 0.76 D 0.85 D 0.81 D-
NavalAvenue Burwellto 11th I 0.28 A 0.26 A 0.25 A 0.28 I A 0,26 A
Pacific Avenue Burwelltollth__ 0.22 A 0.14 A 0.15 A 0.13 A 0,14 A
SR-304 a !SR-3 to Preble (GP) 0.59 C 0.86 D 0.85 D 0.89 D 0.84 D
SR-3 to Preble (HOV) 0.70 C 0.71 C 0.65 C 0.70 ! C
Warren Avenue Burwell to 11th 0.35 B 0.65 C 0.63 C 0,76 D 0.71 C
(SR 303)b 11th to Bridge (GP) 0.66 C 0.91 E 0.89 D 0.85 D 0,84 D
11th to Bridge (HOV) 0.81 D 0.65 C
Bridge to Callahan (GPJ' 0.78 D 1.18 F 1.12 F 1.06 F 1.03 F
Bridge to Callahan 0.80 D 0.54 C
(HOV)
A/ashington Avenue 6th to Burwell 0.26 A 0.48 B 0.44 B 0.48 B 0.43 B
~/emer Road East of Auto Center 0.35 I B 0.50 C 0.49 B 0.47 B 0.48 B
/Vemer Road IWest of Auto Center - __
1Way I0'77 D 1.08 F 1.04 F 1.03 F 1.01 F
East Bremerton ~ -- --
to Riddell _0_.4_~_.i B 0.91 E 0.90 D 0.87 D 0.86 D--
Avenue
E.
1
1th
=ine Road Sheridan to Riddell 0.45 I B 0.78 D 0.71 C ~.~0 C' ~.~- C
10.46tB 0.70 c 0.70 c
{iddell Road Wheaton to Petersville I 0.58 ~ C 0.94 E 0.92 E 0.92 E 01~ E
~heridan Road _. Wheaton to Halverson i 0.52 C 0.90 E 0.93 E --~ ~-~-' -'-~:-" --~-.~ .....
~ylvan Way Wheaton to Petersville 0.87 I D 1.00 E 1.05 F 1.12 F 1.14 F -
r'renton Avenue E. 11th to Stone ~* 2._8i_A__~ 0.56 C 0.48 B 0.39 B 0.36 B
Warren Avenue iCallahantoSheddan i0.88 D !1.23 1.17I F 1.1~. F 1.08 F
tCallahan to Sheddan ~ I ] 0-0~_i_~_ --0.75
?v> ........ ..
D
~SherdantoRdde ~0.901 D 0.97
{GP}
Ci~ of Breme~on Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 3-6 December 2004
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
Warren Avenue Sheridan to Riddell I ! ! 0.73 C 0.55 C
(sR303) (Hov) !jt
a Designated as a Highway of Stafowide Significance (HSS).
b Currently nominated for HSS designation.
c No recent traffic counts have been conducted at this location since traffic volumes have not significantly change in this area
since 1994 the year 1994 traffic volume is shown.
CiD of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 3-7 December 2004
Figure 3-2
SCALE INFEET /~ LEGEND Alternative I (No Action)
[--] ~ ~ LOS/VIC Year 2030 Level of Service
0 4250 2500 and Volume to Capacity Ratios
Western Portion
Figure 3-2 (continued)
SCALE IN FEET ~ LEGEND Alternative 1 (No Action)
I--[ j--j~ ~ LOS/ViC Year2030 Level of Service
o 4250 2500 and Volume to Capacity Ratios
Eastern Portion
b
/
I
/
CITY OF BREMERTON
COMPREHENSIVE TRANSPORTATION PLAN
O LEGEND Figure 3-3
SCALE IN FEET Alternative 2
I I [--1 ~LOS/V/C Year 2030 Level of Service
0 1250 2500 and Volume to Capactiy Ratios
Western Portion
RIDOELI~RD
..,,-. ~.
CITY OF BREMERTON
COMPREHENSIVE TRANSPORTATION PLAN
Figure 3-3 (continued)
SCALE IN FEET~ LEGEND Alternative 2
~ I--1~ (~ LOS/V/C Year 2030 Level of Service
0 1250 2500 and Volume to Capacity Ratios
Eastern Portion
\
', \ I, '~\
L/
Lf
/
Ol~ OF BREMERTON
OOMPREHENSIVE T~NSPORTATION P~N
8GALE IN FEET ~ LEGEND Figure 8~
Alternative 3
~ I ~ ~ LOS/V/C Year 2030 Level of Se~ice
0 ~250 250o and Volume to Capaci~ Ratios
Western Potion
/
/
CITY OF BREMERTON
COMPREHENSIVE TRANSPORTATION PLAN
Figure 3-4 (continued)
SCALE IN FEET ~//'~ LEGEND Alternative 3
I I [--t~ ~ LOS, v/c Year 2030 Level of Service
0 4250 2500 and Volume to Capacity Ratios
Eastern Portion
, \ I.: -\
I '~$ ~; ' ' I 26TH ST
[ ' ~ ] KIT~P WAY
L.
I
CI~ OF BREMERTON
COMPREHENSIVE T~NSPORTATION P~N
Figure 3-5
SCAL~ IN FEET ~ LEGEND Alternative 4
~ [~l~ ~ LOS/V,C Year 2030 Level of Se~ice
0 ~2~ 250o and Volume to Capacity Ratios
Western Potion
RIDDELI~RD
CI~ OF BREMERTON
COMPREHENSIVE T~NSPORTATION P~N
Fioure 3-5 (continued)
SCALE ~ FeeT ~/~ LEGEND Alternative 4
~ I I I~ ~ ~os~wc Year 2030 Level of Se~ice
0 :2~ ~5oo and Volume to Capacity Ratios
Eastern Podion
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 I - No 2 - SR 3 Way Way
Facility Standard Action Action HOV Widening Widening
Burwell Street from LOS D meets LOS E meets LOS E LOS E
Warren to Naval standard standard
Charleston Blvd. (SR 304) LOS D meets LOS F LOS F LOS F LOS F
from Farragut to Burwell standard
Kitsap Way (SR 310) LOS E meets LOS F LOS F meets meets
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 , standard
Manette Bddge LOS E meets LOS F meets meets meets
standard standard standard standard
Warren Bddge (SR 303) LOS E meets LOS F LOS F LOS F LOS F
standard
Wemer 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 Callahan to Sheddan standard
Perry Avenue from 11th to LOS D meets LOS E meets meets meets
Riddell standard standard standard standard
Riddell Road from LOS D meets LOS E LOS E LOS E LOS E
__W__~eat~o_n_ to Pet_.e_rsvi?_ ...................
Sheddan Road from LOS D meets LOS E LOS E LOS E LOS E
Wheaton to Halverson standard I
Sylvan Way from Wheaton LOS E meets meets LOS F LOS F LOS F
to Petersville 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 Manette 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.
City of Bremerton Comprehensive Plan 554-1896-053 (01/05)
Final Transportation Element 3-16 December 2004
Alternative 3, which provides HOV lanes along SR 303 and widens Kitsap Way to 7 lanes between llth
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, Kitsap 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 Kitsap 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 310) 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 Preble and Farragut (LOS F - Alternative 3, LOS E - Alternatives 1, 2, and 4)
· Werner Road west of Auto Center Road (LOS F - all alternatives)
· Warren Avenue (SR 303) from Callahan to Sheridan (LOS F - all alternatives)
· Riddell Road from 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.
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 3-17 December 2004
This section of the report describes the transportation facility improvements and costs needed to
accommodate the future travel demand resulting fi.om increased growth in the City of Bremerton. In
addition to the roadway facility improvements, transit, fen'y, pedestrian, bicycle, and transportation
demand management strategies are also identified in this section of the plan.
4.1 ROADWAY IMPROVEMENT OPTIONS
4.1.1 Roadway Capacity Improvements
The results of the furore 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 comdors are recommended to address existing and future roadway
capacity deficiencies in the City of Bremerton to meet GMA requirements. The improvement options for
each of these major travel corridors are discussed below.
(1) SR 303 (Warren AveJWheaton 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 llth 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 Burwell to Waaga Way. The SR-
303 Corridor Study involved an alternatives analysis of all potential options, including additional
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, primarily
involves improving the capacity of SR 303 by adding HDV lanes to the corridor, beginning south
at 1 lth 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 mm lanes and U-tums at signalized intersections. The added travel lanes would be
designated for HDV 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
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 4-1 December 2004
Statement (ELS) for the SR-303 Corridor Study's Proposed Action Altemative 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 (Nam/Yard l:li~hwa¥/Charleston Blvd/Burwell Corridor) The SR 304 project includes
a series of improvements to SR-304, from SR-3 to the Bremerton Transportation Center in
downtown Brernerton. 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 Burwell 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.
Alternatives 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 concerns, 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 from downtown along Burwell 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:
Cit~ of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 4-2 December 2004
(1) Downtown BTC Access/Pedestrian Improvements: The project seeks to improve traffic
operations and pedestrian mobility in downtown Brcmerton, 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 thc primary ferry terminal exit route from Washington Avenue to 1st Street/Pacific
Avenue/Burwcll Street.
(2) Auto Center Way between Kitsap Way and the SR-3 On-Ramp: Channelizatien
improvements are needed in this section of Auto Center Way to address existing operating
deficiencies due 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 Wheatun 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 Manctte Bridge in its present
location using State of 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 1 st 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
connections west of the Puget Sound Naval Shipyard and near the SR 3/SR 304 interchange. In
particular, the connection between 1st Street, Loxie Eagans Blvd/Arsenal Way and SR 304
should be improved. Streets in portions of this corridor are narrow and have limited pedestrian
facilities and there are no cunfmuous 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 in
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.
Ci~ of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 4-3 December 2004
4.2 TRANSIT SERVICE AND FACILITY IMPROVEMENTS
Future transit service and facility improvements in Bmmerton 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-fide lots, HOV facilities, transfer centers, ferry terminals, multi-modal improvements, and
operations and maintenance.
Transit service is and will continue to be important for the City of Bremerton 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 obv/ous 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 from
$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 pubhc transportation.
· Build partnerships between federal, state, regional, local and private sector pubhc 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
of Bremerton) 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 Bremerton 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 Rideshare services to the Puget Sound Naval Shipyard in 2001, along with
other major employers.
While 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 will affect the
City of Bremerton's transportation system. This spirit of cooperation has akeady 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.
Kitsap 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
comrmttee in detail.
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 4-4 December 2004
Table 4-1. Kitsap Transit 2002-2007 Transit Development Plan
Six Year Capital Plan (2001-2007)
Develop HOV facilities, with queue-cut or bus-bypass intersection in conjunction with si~.nal prioritization.
· Prese~e green-space_ ri[iht-of-way__on express f_e_rr~ corridors for multi-medal alternatives.
Extend vehicle service and life whenever feasible; purchase used and rehabilitated equipment unless
compelling advantages are known for new equipment. Participate in the regional program to develop
h~Y_b.r d/electric bus for the future w th e_x~ecte~jDmcurement one to two y_e_a, rs out.
· Obtain additional capital resources to complete Phases C, D, and E of the Bremerton Transportation Center.
· Develop the central Main Base to include bus-washing capabilities, more bus parking and a fueling island.
...... _E_x~i_0n__.wil~l b_e_~ad~e.~to_th_e_ Nort_ h__B..a_s__e an___d._e_v.e~n~t~_all~, i_.t?viJl__bg__m.a__d~into a pe~r~_._a, ne~n~ I_o__c~tio. n~.
Increase the capacity of park-and-ride lots that are currently at or near capacity. Improvements will be made to
the Bremerton Gateway parking lot to have non-profit daycere service, healthcare, job skills training and
literacy programs.
Capital Priorities (2007-2027)
· Complete expansion of Bremerton Transportation Center (Phases C and D).
· Complete conceptual preliminary design work for the Sixth and Montgomery Transit-Oriented Development
(TOD) and submit a Livable Communities grant in year 2002.
Improve McWilliams park-and-ride lot.
~o__n_g_-Ra n g~e Conc p_t__Plans
· TOD at the following locations: 6t~ and Montgomery, Wheaton Way and McWilliams, and Wheaton Way and
Sheddan, and Westside.
· Bremerton Transportation Center follow-on concepts, including Expansion to Pacific Avenue (Phase C),
Enetai Building (Phase D), and terminal extension to new Naval Museum (Phase E).
· Anapolis Concept Plan: Port Orchard Ferry Terminal
· Albertson's Coop: adaptive use of vacant lot on Sheddan Road
· Small hybrid-electric development process - would involve partnerships with Pacifica and the Concurrent
Technologies Corporation.
· Shelton Commuter Rail: Existing heavy rail service from Shelton to the Bremerton Transpodation Center.
Source: Kitsap Transit Transit Development Plan, 2001-2007.
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 Silvcrdale. Transit options include:
· Bus Rapid Transit (BRT) between Kitsap Mall in Silverdale and Bremerton Transit Center. 2rlae
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.
· 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 offered and/or the cost of parking 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.
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 4-5 December 2004
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 operational 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 immediate 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 first 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 feny
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 link 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 Bremertun 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 Orchard 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 fen'y 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. Phases 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.
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 4-6 December 2004
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 from transit and ferry ternnnals 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 from 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.
Bremerton 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 network 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-motor/zed facility network and furore developments and
redevelopments.
In accordance w/th 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, irrigation, street widening, turn pockets, and channelization or other improvements deemed
necessary. Beyond the property frontage, ramps from the new sidewalk or walkway to the property
frontage, 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
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 4-7 December 2004
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 cost of installing the
required improvements.
4.4.2 Projects and Improvements Planned for Non-Motorized Facilities
Kitsap County published the Kitsap 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 of the 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 throughout 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, connecting
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 Route~
Trenton Avenue Sylvan Way and 11th Street Saved shoulders
11 th Street l'renton Avenue and Manette Bddge 3icycle lanes
Pitt Street l'renton Avenue and Manette Bridge 3icycle lanes
Harkins Street trenton Avenue and Manette Bridge 3icycle lanes
Manette Bridge 0NSDOT Project) Sidewalks and bicycle lanes
Washington Avenue rvlanette Bridge and 6th Street Llse existing ROW - bicyclists would
share sidewalk with pedestrians
Washington Avenue Manette Bridge and 6th Street Paved shoulders
4th Street Washington Avenue and Naval Avenue way WB bicycle lane
5th Street Washington Avenue and Naval way EB bicycle lane
To Ferry Terminal Pacific Avenue and 1st Street way bicycle lane
From Ferry Terminal Washington Avenue way bicycle lane
Naval Street 4th Street/5th Street and Burwell Street Bicycle lanes (will require removing a
travel lane)
Burwe~l Street Naval Street and Charleston Boulevard Bicycle lanes (will require removing a
travel lane)
City of Breraerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 4-8 December 2004
Table 4-2. Mosquito Fleet Trail Master Plan -
Proposed Pedestrian and Bicycle Improvements (continued)
Roadway Section Improvement
Project 6 - Primary Route~ (continued)
Charleston Boulevard tBurwell Street and SR 3 Bicycle lanes (there has been
discussion of removing the proposed
bicycle lanes for parking, this is not
advisable)
Project 6 - Secondary Route2
Alternative 1
SR 3 ,R 304 and Port Orchard Separated path
SR 304 Separated path
Alternative 2 (in the event Alternative I is not
feasible)
Charleston Boulevard =attern Avenue exit and Arsenal Way Paved shoulders
Project 7 - Primary Route~
SR 3 .~R 304 and Port Orchard 3icycle lanes and 5' wide pedestrian
~athway
SR 304 Separate bicycle lanes and sidewalks
[the city has proposed replacing the
~roposed bicycle lanes and sidewalks
Nith parking, this is not advisable),
Project 7 - Secondary Route2
Arsenal Way/Lo)de Eagans Boulevard SR 3 and Wemer Road Paved shoulders on the east part of
Lox~e Eagans Boulevard & bicycle
lanes across the SR 3 bridge and
Wemer Road. The road continues with
pave shoulders along Union Avenue,
3rd Avenue, and Sherman Heights
Road.
Note ~ The primary route provides a direct and continuous path between Kingston and Southworth that is dear and easy to follow. Because of tl~s
it appeals to commuters, tourists and recreational users.
2 The secondary route provides an alternative route that originates and terminates at the primary mute. The seconda~/route follows less traveled,
and less 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 fi'om traffic lanes by a broad,
painted white stripe or raised pavement marker.
Bremerton will take an "opportunistic" approach to enhance the bicycling and walking environment 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
City of Bremerton Comprehensive Plan 554-1896-055 (01/03)
Final Transportation Element 4-9 December 2004
Table 4-3. Proposed Class 2 Bicycle Lanes proposed by the Year 2010.
Street From To
Burwerl Street Montgomery Boulevard ~ Washington Avenue
Kitsap Way 9th Avenue Auto Center Way
Lebo Boulevard/Wheaton Way City Limits Manette Bridge
~l~n~!~o.m~.'~.v. en.u? S?t_h_~venu? ...... 71.??i~° Fle?!?a.!.! ............... .K?ep..Wa_y ....................
Park Avenue/17th Street/~Narren Lebo Boulevard 4t~ 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 on "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 carpools, 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 Toiling - Use of anonymous "smart cards" to charge drivers for road use on all
limited access fi:eeways 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.
City of Brernerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 4-10 December 2004
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.
Al/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) Laud-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 involved 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 management 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.
· Oue-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.
City of Bremerton Comprehensive Plan 5~4-1896-053 (01/03)
Final Transportation Element 4- I I December 2004
· 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 altematives exist.
· Access control - Left turn 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. 13als strategy is pa~icularly useful in areas
with closely spaced signalized intersections such as freeway interchanges.
These and other TSM strategies will be evaluated as part of all planned 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 more
appropriate for higher traffic volumes. Some of the more commonly used traffic calming 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 Hmnps are rounded raised pavement devices placed across roadways to slow and/or
discourage traffic.
· 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 enVure street blocks.
City of Bremerton Comprehersive Plan 554-1896-053 (01/03)
Final Transportaiion Element 4-12 December 2004
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 betwec~n 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 reduce 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 turning 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 d'trection at a time,
operating similarly to one-lane bridges.
4.7.5 Other Speed Control Measures
· Educating residents on safe on-street vehicle travel.
· Police Enforcement involves employing the services of law enforcement agencies to impose the
local safe vehicle laws, including those for posted speeds and traffic signal/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 concem.
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 maint~tning access for local residents.
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 4-13 December 2004
· 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 44 summarizes the planmng-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 - Year 2003 Dollars
Project Costs In Thousands of Dollars
Priority Project Identification Local State Federal Total
Roadway Capacity Improvemer~t,~
1 SR 304 from Ferry Termthal/Porter St. to Burwell St./SR 342 = 6,956 a 4,797 a 12,095 a
3 - HOV improvements, widening, reconstruction,
oveday, signal and lighting
2 SR 304 from Porter Street to Charleston Beach Road - 0 580 ~- 3,720 a 4,300 a
HOV improvements, overlay, widening, reconstruction,
signal and lighting
3 SR 304 from Burwell Street to Bremerton Ferry 250 144 919 1,313
Terminal - Resurfacing, street lighting, signal and sign
t modifications 4,650
4 SR 304 from Charleston Beach Road to SR 3 - HOV 0 0 4,65~'
] improvements, oveday, widening, reconstruction
Operational~ Safety~ and Other Improvements
5 T Downtown BTC Access/Pedestrian Improvements- 0 1,175 a TI 26,625 a 27,800-----~
Improve pedestdan and vehicle mobility in downtown
; Bremerton
6Ii SR 303 from Sheddan Avenue to Callahan Drive - 59 861 [ 0 920
, Construct off-ramp connecting southbound SR 303 with
.~ Callaha____~n~ Driv___~e
7 ~ Citywide - Miscellaneous projects to improve safety and 1,500 .....--0-~ 0 1,500
~ operations; non-motorized transportation roadway
preservation
8 ] Auto ~eni~r~ay fr~om-6~-S~-~-~i-i"~)-~ ~n-~3-~ 190 7~Ti .......... ~ ......... ~9~i-'
] Extend secon~ m~ultipur_~Eg~.~_l~_n~ to improve operation
CiOJ of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 4-14 December 2004
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 SP, 3 on-ramp
9 Wheaten Way from Callahan Drive to Sheridan Road - 270 1,135 0 1,405
Realign Wheaton Way to north south configuration
10 Arsenal Way/Patton Avenue from Loxie Eagans Blvd. 120 650 0 770
To Lafayette - Safety improvements including curb and
gutter, sidewalks, lighting, roadway widening, and
intersection improvements
11 SR 303 from Burwell Street to P, iddell - Implement 100 0 0 100
recommendations of SR 303 Corridor Study
12 Port Blakely Alternative Route Analysis - Conduct 125 0 0 125
analysis of potential transportation routes to serve the
Port Blakely Planning area
TOTALS 2,956 16,912 36,061 55,929
Source: City of Bremerton Six-Year Transportation Improvement Program (From 2004 to 2009). = Some of these funds will have been dispersed pdor to the year 2004.
As shown in Table 4-4, GM_A-related capacity improvements are planned and funded for the SR 304
corridor at an estimated cost of $22.36 million between the years 2004 and 2009. Beyond the six-year
concurrency horizon, improvements are also planned for SR 3, SR 303 (Warren/Wheaton Corridor), and
SR 310 (Kitsap Way). The following preliminary 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 fi-om 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 median)
The SR 303 Corridor study also identified preliminary costs for widening the section of SR 303 between
1 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 pedestrian facilities, transit improvements and the road surface. The estimated cost for these
improvements, not including right-of-way costs, is $46.6 million.
Ci~ of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 4~15 December 2004
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 development impact fees, revenues from
state and federal fuel taxes, and grants from federal, state, or county agencies.
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
sources 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 Bremerton, 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 elimination and railroad 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 carrier 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 (T]]~) 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-
CiD of Bremerton Comprehensive Plan 5 5 4-1896w0 5 3 (01/03)
Final Transportation Element 5-1 December 2004
agency planning and coordination and public/private cooperation to further the goal of achieving
a balanced transportation system in Washington State.
(4) Nickel Fnndi~ 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 fn:st 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 I Year 2 Year 3 (2007-
Priority Project Identification (2004) (2005) (2006) 2009) Total
Roadway Capacity Ini~rovements
I SR 304 from Ferry Terminal/Porter 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 0 0 0 3,270
Road - HOV improvements, overlay, widening,
reconstruction, signal and lighting
3 SR 304 from Burwell Street to Bremerton Ferry 1,313 0 0 0 1,313
Terminal - Resurfacing, street lighting, signal and
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* 15,200 10,800 0 0 26,000
Improve pedestrian and vehicle mobility in
downtown Bremerton
6 SR 303 from Sheridan 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 transportation
roadway preservation
8 I Auto Center Way from 6th Street 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 Ddve to Sheridan 0 0 100 1,305 1,405
~ Road - Realign Wheaton Way to north south
configuration
City of Bremerton Comprehensive Plan 554-1896 053 (01/03)
Final Transportai~'on Element 5-2 December 2004
Table 5-1. City of Bremerton Six-Year Transportation Improvement Program and
Finance Plan Expenditures (2004-2009) (continued)
Project Costs in Thousands of Collars
Years
4-6
Year I Year 2 Year 3 (2007-
Priority Project Identification (2004) (2005) (2006) 2009) Total
10 Arsenal Way/Patton Avenue from Loxie Eagans 0 I 0 50 720 770
Blvd. To Lafayette - Safety improvements including
curb and gutter, sidewalks, lighting, roadway
widening, and intemection improvements
Operational, Safety, and Other Improvements (continued)
11 j SR 303 from Burwell Street to Riddell - Implement 0 0 0 100 100
recommendations ef SR 303 Corridor Study
12 Port Blakely Alternative Route Analysis - Conduct 0 0 125 0 125
| analysis of potential transportation mutes to serve
~ the Port Blakely Planning area
TOTALS 23,070 f 3,950 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 2004 and
2009 falls short of the projected $55.9 million for improvement costs shown in Table 44. Similarly, the
estimated $41.15 million in expenditures for GMA-related capacity improvements to SR 304 between the
years 2004 and 2009 falls 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 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 Table 5-1, indicates that adequate funds have already been
allocated to the proposed roadway improvement projects in the City of 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 (CB?P) 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 (ClPP) -
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 304/SR 3 to Bremerton Fer~y Terminal (MP 0.00 to 3.51) ~6 604 ~ 5,896 ~ 0 i ~
! - I ~ 0 0 12,500
SR 3 Bridges (MP 37.82 to 42.01) L 0 ..L 68~6~. 0 0 686
- i
Manette Bridge (MP 2.98 to 3.27) [ 515 I 63[ 804 [ 22,003 [ 2,164 25,546
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Tranxportation Element 5-3 December 2004
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 medal 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 request 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)
City of B remerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element 5-4 December 2004
APPENDIX A
Traffic Accident Summary
q.
0 0 0
0 0 0
APPENDIX B
Travel Demand Forecasting Assumptions
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 ~'anslation 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 Kitsap 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 ride 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 assignments 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 all arterial streets and the zonal detail was sufficient to
provide logical network loading. Figure B-1 shows the zone system and Figure Bo2 shows the base
network in the greater Brernerton 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 10 percent range. As
most count locations and arterials of interest w/thin the City of Bremerton are lower volume arterials (less
than 1000 vehicles per hour), a regression equation w/th 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.
I 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 Validation and Reasonableness Checking Manual, Barton-Aschman
Associates, Inc., Cambridge Systematics, Inc., February 1997. Prepared for TM1P FHWA.
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element B-1 December 2004
323
Figure B-1
Traffic Analysis Zones
City of Bremerton Comprehensive Plan 554-1896-053
Final Transportation Element B-2 December 2004
Dyes Inlet
Sinclair Inlet
Figure B-2
Base Model Network
City of Bremerton Comprehensive Plan 554-1896-053 (01/03)
Final Transportation Element B-3 December 2004
APPENDIX C
Volume and Capacity Information
Enwronment Element
Aquifer Map
Aquifers (City of Bremerton Comprehensive Planning)
Legend
~ City of Bremerton
Shoreline
~ Aquifers (on County Record)
U 0
Economic Development Appendix
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. 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.
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
Cit~ of Bremerton Comprehensive Plan
Economic Development Appendix ED Appendix 1
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, downtown
Bremerton. 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 land use
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 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.
Cit~ of Bremerton Comprehensive Plan
Economic Development Appendix ED Appendix 2
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 Cormty'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 Cormty 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 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.
CiO? o[ Bremerton Comprehensive Plan
Economic Development Appendix ED Appendix 3
Table EC-1
Bremerton's Historical Population Growth: 1940-2003
Year I Population I Population Change I Percent of County
Population Reports, U.S. Census (as reported on April 1st of every 10~h 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 April 1st 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
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 to be a less transient population, stabilized in part through a
majority homeownership rate, compared to Bremerton's report of only 37%
homeowners (see Housing Element for more detail.) On the positive side of the
equation, however, numbers from the State Employment Security Department show a
low 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.
Cit~ o[ Bremerton Comprehensive Plan
Economic Development Appendix ED Appendix 4
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 Cormty. 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 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.
Cit~ o[ Bremerton Comprehensive Plan
Economic Development Appendix ED Appendix 5
Employment Trends as a Focus on Growth Industries
EC-2 Bremerton-Kitaap County
Primary Metropolitan Service Area
Non-Agricultural Employment Levels
Decamp; 2000
Industry (Sector) FUll Time Equivalent PerCentage of Total
Positions
Government (Federal, 26,300 35%
State, Local, including
education professionals)
Services 19,700 26%
Goods (Wholesale/Retail) 16,800 23%
Construction/Mining 4,800 7%
Finance, Insurance, Real 2,600 3%
Estate
Manufacturing 2,300 3%
Transportation and 1,900 3%
Private 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 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
City of Bremerton Comprehensive Plan
Economic Development Appendix ED Appendix 6
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 stresses 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 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
Cit~ o[ Bremerton Cotnprehensive Plan
Economic Development Appendix ED Appendix 7
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 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
City o[ Bremerton Comprehensive Plan
Economic Development Appendix ED Appendix 8
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 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 percentages
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
Cit~ o[ Bremerton Comprehensive Plan
Economic Development Appendix ED Appendix 9
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.
Cit~ of Bremerton Comprehensive Plan
Economic Development Appendix ED Appendix 10
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.
Transportation 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
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
Cit~/ qf Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 1
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.
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 2
Table CFP-1
Types and Providers of Capital Facilities
Facility Type Provider Description Applicable Plan(s)
Fire and City of Provides facilities that support the
Emergency Bremerton provision of fire and emergency services.
Services Fire Dept.
Law City of Provides facilities that support the
Enforcement Bremerton provisior~ 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 Element
Bremerton controls, and street lighting. · Six-Year Transportation
Dept. of Public Improvement Program
Works & (TIP)
Utilities
Sanitary Sewer Bremerton Provides facilities used in collection, · Utilities Element
Municipal transmission, storage, treatment or · Draft 1992 Wastewater
Wastewater discharge of waterborne waste within most Comprehensive Plan
Utility developed portions of city and some
surrounding ur~incorporated areas.
Schools Bremerton Provides elementary and secondary ° Bremerton School
School District facilities for instruction in the several District Capital Facilities
branches of learning and study required by Plan: In Support of the
the Basic Education Code of the State of School Impact Fee
Washington. Program, July 1992
Storm Water Bremerton Provides facilities that collect and transport · Ord. 4454
Management Municipal stormwater runoff.
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.
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 3
Fire and Emergency 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
include station buildings, emergency medical services (EMS) vehicles, Fire Engines (See Figure
CF-l)
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
EMSVehlcle I Service Area I UnltCapacity
kctive Units
Medic # 1 3/hen in service covers from the water to Callow Avenue I
Medic 92 Callow Avenue to West Bremerton City Limits
Medic #3 Callow Avenue to Downtown to East Bremerton City Limits
Total Active Units =
Reserve Units
Medic #2-A City-wide (replacement for Medic #2)
City wide ( Replacement for Medic #3)
Medic # 3-A 1
Total Reserve Units:
Total Units:
5ource: Bremerton Fire Department
Cittl ofl Bretnerton Comprehensive Plan
City Service Appendix CS Appendix - 4
Forecast of Future Needs -- EMS
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.
Level of Service (LOS)
The level of service for EMS facilities is a function of response time (location) 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. 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
Future Demand
Bremerton's population is expected to grow by 3,740 by year 2010, and by an additional 9,260 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)
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 5
Table EM-2
Twenty Year Need: EMS
Time Period Demand (Population) EMS units required @ LOS 4.0/8.0 minute respons~
times
~ix-Year Need
!004' 37,38t
.~004-2010 (new) 3,741
Total as of 2010 = 41.122I
twenty-Year Need
!010-202 4 (new) 9,264
/
Total as of 2014 = 50,389
1
~ !004-2024 (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
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.
Six-Year Financing Plan -- EMS
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.)
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 6
Six-year Funding 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 EM-3)
Table EM-3
Six-year Fundir i and Pro, iects -- EMS
Funding Sources 2004 2005 2006 2007 2008 2009 Total
3eneral Fund/EMS Levy/ALS 125( 1300 0 13513 390G
lillin~gs
TOTAL SOURCES 0.12 125£ 0.£ 1300 0.0 13513 39013
~rojects
~MS Unit Replacement 125 0.£ 130 135 39(/
TOTAL COSTS 0.( 125 0.£ 130 0.0 135 39(1
lalance
Surplus or Deficit I o.o[ 0.(1
qote: All amounts are times $1,000
iources: Bremerton Fire Department
Operating Costs
The following chart reflects the six-year operating costs for the projects listed in the Six-year
Funding and projects chart above. (Table EM-4)
This chart may be completed at a future time to determine the full costs of parks facilities:
Table EM-4
;ix-year Operating Costs: Emergency 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
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 7
Fire Protection Services
Inventory of Existing Facilities -- Fire Protection
The City has three fire stations, one each located in west, central and east Bremerton. In 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 I Address I Unit Capacity
Buildings Size (square feet)
Fire Station No. 1 111 Park Avenue - under construction 15,34(
Max Meigs Fire Station No. 2 i005 Kitsap Way 9,38r.
Fed Tiller Fire Station No. 3 ~027 Olympus Drive 7,64(
Drill Tower - Jointly owned 201 Union Avenue 1.50(
Total Buildings = 33,875
Fire Apparatus ~ervlce Area
Fire Trucks
Ladder :gl IAII of City Limits
Total Fire Trucks
Fire Engines
2ngine :gl lDowntown Bremerton to Callow Avenue
Cit? of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 8
Engine gl-A (Reserve) ~ame as Engine gl 1
~ngine #2 2allow Avenue to West Bremerton City Limits 1
Engine #2-A (Reserve) ~ame as Engine #2 1
Engine #3 ~ast Bre~nerton to City Limits 1
Engine #3-A (Reserve ~ame as Engine #3
Total Fire Engines =
~,upport Vehicles
I 0
Total Support Vehicles =
Total Fire Apparatus =
Jpecialty Vehicles
Vlarine-20 Fireboat ginclair and Dyes Inlets
~.escue One 2ity-wide
Total
~ In addition to the above, the Department has six support vehicles that will cost under $15,000 to replace, but no support
cehicles costing more than $35,000 are planned.
gource: Bremerton Fire Department, 10/94
Forecast of Future Needs -- Fire Protection
Existing 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
current response time is about 5.18 minutes. The City has an ISO Class 3 insurance rating based
on manpower, water supply, etc.
Level of Service (LOS)
The need for fire protection facilities is a function of response time (location) 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.
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)
City qf Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 9
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 (Population) Fire Protection Units Required @ LOS 5.0 minute response
time
Fix-Year Need
,004* 37,384I
!004-2010 (new) 3,74(~
Total as of 2010 = 41,122I
I'wenty. Year Need
/
>.010-202 4 (new) 9,26(~
!
Total as of 2024 = 50,382I
1
2004-2024 (new) 13,000I
.~ 2004 population State of Washington OFM forecast. Source: Bremerton Fire Department, 01/0 4
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.
Proposed Facilities · Buildings
· 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.
City qf Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 10
Six-Year Financing Plan -- Fire Protection
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)
Six-year Funding 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)
Table FP-3
Six-, ear Fundin: ,~ and Prqiects -- Fire Protection
Funding Sources 2004 2005 2006 2007 2008 2010 Total
General Fund 0.0
Bond Issue (2002) 6,000 6,000
Bond Issue (New) 0.0
TOTAL SOURCES 3,800 0.C 0.C 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 0.0 6,00 0
Balance
Surplus or Deficit I 0.~ 0.4 0.4 0.~ 0.4 0.0Il 0.0
Note: All amounts are times $1,000
Operating 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 ma,[/be completed at a,future time to determine the,full costs of fire facilities:
Table FP-4
Six-year Ope :ating 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
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 11
Law Enforcement
Inventory of Existing 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.)
. ver three facilities in three different location~,
lice De artment is currently ?re. ad, .out~?,w, !-IM1 onvenient to the Mumclpal Court.
The Po . P '--~ are ncentrateU m ~tLy ..... , c
Administrative functlu~ ...... co the Special Operations Group is located in
Patrol Division is housed in the West Precinct and Kitsap County for jail
another City facility. (See Figure CF-l) (The City currently contractS with
services.) (Table LE-1)
Table LE-1 ~ _
Invento~ Facifities -- La ~ Enforcement
Location ~) -
Facilit Name ' 7,085
>39 4th Street
~/est Precinct/Patrol Headquarter~ss-- ~
Capital ltills Fire Station/Special lnvestigative~Unit (SIU) Total: 16'19~'
Forecast of Future Needs -- Law Enforcement
Existing Demand ....
The City has 62 law enforcement omcers operating out of over 16,100 square feet of buildings --
261 square feet per officer (including support staff).
Level of Service (LOS) . ' 'n the number of officers
The need for law enforcement facilities can be estimated by projech g
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
o . . .... anti related to crime rates. However, there are
n lice employees to p pul.atlon s)ze is ~?[luCch }tYandards have limited meaning because the
Pm°~ny variables that enter into crime rate.. ~ a city, geographic region, and type of
actual number required will vary depending on the size of
city. Even cities of the same population size and type may differ widely in staffing needs
~terton.Comprehensive Plan CS Appendix - 12
City Service Appendix
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.
Ci_ty Population Officers/1000
Seattle (1989) 531,4003.06
Yakima 54,843 1.7
Washington average -~ 1.6
Bremerton 38,142 1.6
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 low, 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 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
Source: Level of Service Standards: Measures for Maintaining the Quality of Community Life, Municipal Research Services
Center of Washington, Report No. 31, September 1994.
Cit~l qf Bremerton Comprehensive Platt
City Service Appendix CS Appendix - 13
Table LE-2
Level of Service -- Law Enforcement Officers
LOS Officers Officers per 1~000 Population
1990 58 1.5
1995 * 62 1.6
2000 62 1.6
Preferred * 70 1.8
Both 1995 and Preferred calculations assume an average population of 38,142, consistent with the adopted Kitsap Regional
Council (KRPC) population forecast.
Source: Bremerton Police Department, 12/94; City Treasurer, 2/95. Community Development Department 6/01.2003
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
~opulation * 37,16.~ 50,165 13,00(
2urrent LOS (1.6 per 1,000) 6,~ 8~ 21
'referred LOS (1.8 per 7( 95 2~
1,000)
~ 2000 population per US Census. 2023 forecast per 2003 Bremerton Comprehensive Plan.
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)
City qf Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 14
Table LE-4
Future Need: Law Enforcement Building Area (S~ uare Feet)
~,cenario * 1995 Actual ~995 Need ~.000 2023 ~995-2023 lncrease
1995 Officer LOS 16,63_' 15,500 17,00~ 20,75( 4,115
?referred Officer LOS 16,63_~ 17,500 19,00~ 23,75( 7,115
~ Staff levels per Table LE-3 @ 250 sq. ft./officer.
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.ff, 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-$)
Table LE-5
Future Need: Law Enforcement Building Area
Time Period I Demand (Population)I Square Feet Required @ 250 sq.ft, per Officer
Fix-Year Need
~003 (2000 census) 37,16_' 15,50(
~.003-2009 (increase) 3,90( 1,56(
Total as of 2009 = 41,06: 17,00(
Fwenty-Year Need
~.009-2023 (increase) 9,10( 4,09.~
Total as of 2023 = 50,165 21,09_'
Total 2003-2023 (increase) = 13,1)0( 5,59.~
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
>fficers per 1,000 pop.
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:
· Consolidation of Departments to improve communication; coordination; and streamline
department management goals and objectives; and
· 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
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 15
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
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.
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 16
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 draws upon several planning efforts. The program:
Updates and replaces the City's Capital Improvement Plan: Parks and Recreation Facilities adopted
in 1995.
Reflects recommendations of the Park & Recreation Interim Comprehensive Plan.
Inventory 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.
Local Parks
To assist in analyzing service levels, local parks are divided into two categories: neighborhood
and community parks.
Neighborhood 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 range in size
from less than one acre to more than 21 acres.
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 encouraged. 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-1)
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 17
Table PK-1
Inventory of Local Parks
Map # Park Name Address Developed Undeveloped Total Acres
(Acres) (Acres)
Neighborhood Parks (includes pocket parks)
2 ~.rvon Park 1512 Arvon St 0.24 0.24
3 $achmann Park ¢outh end of Trenton Ave 0.25 0.25
4 ~ataan Park ~ylvan/Olympus Drive 0.83 0.8!
12 =orest Ridge Park 110 Summit Ave 21.39 21.3~
15 taddon Park 5th & Lafayette 3.69 3.6{
18 (iwanis Playfield 701 5th Street 3.51 3.51
19 ~ent Landing ~ebo & Reid 1.26 1.2~
29 .ower Roto Vista Park qorth end of Elizabeth St. 0.6 6 0.6{
22 elatan Park & Community \nderson & Bloomington 0.37 0.3~
3ardens
23 McKenzie Basketball Crt Morrison Court 0.0~ 0.05
I Ninth Street Mini-Park E. 9th St. & Shore Drive 0.0! 0.02
26 Pat Carey Vista Tracyton Beach Rd. 0.2-~ 0.22
28 Roto Vista Park 1800 Warren Ave. 0.7( 0.7(
32 Smith Playfield 198 Elizabeth St. 1.1z 1.14
33 SR-3 Park 601 Bruen 2.5( 2.5(
36 Wycoff Memorial Park Pacific Ave/lst St 0.0; 0.02
Total Neighborhood Park Acres = 36.8~ 0.0~ 36.84
2ommunity Parks (Local)
5 Blueberry Park 721 Sylvan Way 1.0( 5.9~ 6.9?
8 City Hall Park 4th Sff~Vashington Ave. 0.0~ 0.02
21 Manette Playfield 1125 Vandalia Ave. 2.56 2.58
30 Sheridan Park 681 Lebo Blvd. 6.4( 6.413
35 Warren Ave Playfield I l th & Warren 2.05 2.07
Total Conununity Park Acres = 12.0~ 5.97 18.0,1
Total Local Park Acres = 48.91 5.97 54.88
City qf Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 18
Regional 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 located 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 Plan 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 ~remerton Boardwalk East end of 2nd St. 2.0( 2.0(
11 zvergreen Park 1400 Park Avenue 14.22 14.2',
14 3old Mountain Golf Complex 7261 W. Belfhir Way 360.0C 360.0(
17 (itsap Lake Park 1978 Price Road 2.0~ 2.0(
20 ~ions Park 408 Lebo Blvd. 17.57 17.55
27 ~endergast Regional Park 1199 Union 40.00 10.0( 50.0(i
Total -- 435.79 10.0~l 445.79
Local Parks of Regional Significance
9 East Park Magnuson Way & Homer Jones 17.60 17.6E
24 N.A.D. Marine Park West end of Shorewood Dr. 27.513 27.5(3
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 Park Acres = 506.5t 37.50 544.06
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 19
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
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 ~astPark Nature Area ~Vheaton Way & Ash 15.52
17 (itsap Lake Wetlands 1978 Price Road 40. I ~
34 ;tephenson Canyon Cetween Lewis & Willow 26.4~
Total Open Space Acres = 82.18
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 Center 1140 Nipsic Ave.
13 Glenn Jarstad Aquatic Center 50 Magnuson Way
16 Ivy Green Cemetery 1401 Naval Ave. 10.0( 4.90 14.90
31 Sheridan Community 580 Lebo Blvd.
Recreation Center
Total = 10.0{ 4.90 14.91
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)
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 20
Table PK-4
Summary Inventory: All Park Lands (Acres)
Type In Place 7/1/03 Undeveloped Total Acres % Developed
~ocal 48.91 5.97 54.88 89.1 ~
~.egional 5065fi 37.5 544.06 93. I ~
)pen Space 82.18 82.18 100.0rk
Sub total 637.65 43,47 681 .E 93.6~
Other Facilities 10.0C 4.9 14.9t 67. I q
Total 647.65 48.37 696.0~ 93.1 ~
Note: Open Space parks are listed as developed, since there are no plans for further development.
Forecast of Future Park Needs
Existing 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.
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.
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 21
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 - I 0 acres
Regional 544.06 14.64acres 5 - 10 acres
Open Space 82.11 2.21 acres 3.6 acres
Total = 681.12 18.33acres 15 - 24 acres
Existing LOS = (Acres / 2000 population) x ! 000 (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 = 153.15 4.12acres 6 - l0 acre~
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.
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.
Cittl t?fl Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 22
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
· 1 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.
Six-Year Funding and Projects
Table PK-7 contains the funding sources, capacity projects and non-capacity projects for the next
six years.
Table PK- 7
Analysis of Local/Reg|onal Park LOS
004 005 007 008 009
Funding Sources
General Fund 7``
Park Facilities 112 258 155 13.' 23: 120 131
Convention Center 301 1.40~3
Equipment Rental 510 313
PFD 75C 1,200
Voter Approved Bonds 7,00(
Grant - CDBG 52~3 73 26 6~' 80 2(
Grant - lAC 901 30( 134 86(
Grant - DOE 75(~
Grant - UPARR 262 1 ~ 40
Grant - Tony Hawk 25
Unidentified 625 1,73~1 I iX 70( 66 1.89(
grate Capital Funding 1.175 85£
Donations 4G 25
Fund 407 185 235 215 18( 16( 17(
Bataan 10
Blueberry Development 1,00(
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 23
Boardwalk 25
Community Center - New 7,000
Dog Park 2£
Eastpark 30( 3£
Evergreen Park 1,50(
Gold Mountain Golf Complex 185 23.' 215 18G 16( 17C
Haddon Park 20(
Ivy Green 15
Jarstad Aquatic Center 20( 100 1513 20(
Kitsap Lake
Kiwanis 22~'
Lions 13( 1 ( 11] 20( 1C
Maritime Park incl. Naval Museum 65( 2,20{
N.A.D. Park 100
N.A.D. Marine park 2,50t3
Park Maintenance Facility/Lower Shred 60(
Park Plaza at Conference Center 2,40(
Pendergast Regional Park 77_' 1,20C
Purchase Turf Sweeper 15
RecurS ng 14( 14( 140 141] 14~ 14C
;heridan Park Community Center 2.~ 17:
dans - Purchase two 15 passenger 5(
?OTAL 4,232 5,76( 7,570 1,481] 1,90C 3,071]
Citq pf Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 24
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 December 2003 Wastewater Comprehensive Plan. The 2003 Plan addresses the 10-
year planning horizon extending between 2004 and 2014. 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 2003-2009.
Service Area
The Wastewater Comprehensive Plan identifies existing and future service areas served by the
Wastewater Utility. The Wastewater Plan estimates the population of the service area at 45,210,
of which 38,140 are within the city limits and 7,070 outside the city. The plan estimates that
approximately 37,000 persons are connected to the sewer system, leaving an unsewered
population of 8,210.
The service area covers 13 drainage basins, of which four extend beyond the city limits into
unincorporated county areas: Tracyton Beach, Trenton Avenue, Sinclair Park, and Oyster Bay.
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')
Inventory of Existing 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 16
combined sewer overflow (CSO) sites located within the sewer collection system.
Approximately 60 percent of the system is composed of combined sanitary system. (Table SS- 1)
Table SS-1
Inventory: Wastevmter Trealment Facilities
Treatment Plant Address Average Daily
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 25
Bremerton Wastewater Treatment Plant (1) 1600 Oyster Bay Ave W (3) 10.1 mgd
Forest Enhancement Sites One & Two (2) Near Gold Mtn. Golf Course 300 acres
(1) City of Bremerton Final Draft Wastewater Comprehensive P/an, April 1992.
(2) City of Bremerion 1993 Biosolids Report to BremertomKitsap County Health District.
(3)Average flow for maximum month per NPDES permit.
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 8 mgd. Current annual average and maximum monthly flows to the
wastewater treatment plant are about 60 percent of the average annual and maximum monthly
flows for which it was designed. Stormwater will be reduced from the system over the next
several years trader the City's CSO Reduction Plan. Rain induced flow has reduced the amount
of wastewater treated by 50 percent.
Once stormwater inflow is reduced, the treatment plant will have the capacity to serve
approximately 58,000 people. With 9,242 existing connections serving approximately 22,500
people, the plant has the capacity to serve about 35,500 additional people (14,626 connections).
(Table SS-2)
Table 8S-2
Bremerton Wastewater Treatment System ,Se{vice Area Capacity
Measure Capacity 2003 Demand 1994 8uq:dus/Deficit
Population §8,000 22,500 35,500
Connections *23,868 9,242 14,626
Sources: Final Draft Bremerton H/aetewater Comprehens/ve P/an, Apd11992; Bremerton Dept. of Public Works
(11/94).
* Connections = Population capacity / 2.43 average persons per household size. (A change in average
household size would change the number of possible connections.)
Forest Enhancement Program -- 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.
Cit~/ of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 26
Future Needs
Existing Demand
There are 9,242 existing connections, including several connections at the Puget Sound Naval
Shipyard (PSNS), serving approximately 22,500 people in the service area. The annual average
daily flow is 6.0 mgd.
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
· Proposed LOS = 100
Future Demand
City and County estimates of future demand differ. (Tables SS-3 & SS-4)
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)
City Estimate: The City's Wastewater Comprehensive Plan estimates the 2003 service
area population at 22,500, of which 16% 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 13,000 persons.
The City estimates that the actual 2014 service area population will be 35,500 (rather than 81,408
as forecasted by the County).
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 27
Table 8S-3
Comparison of City/County Estimates of 8anitmy Sewer Service Area Population
Source of Estimate 1994 Population 2014 Population 1994-2014 Increase
County 57,475 81,408 23,933
City 22,500 35,500 13,000
Difference = 34,975 45,908 10,933
Soumes: City of Bremerton Final Draft Wastewater Comprehensive P/an, April 1992.
Kitsap County Draft Comprehensive P/an Capita/Fac#it/es E/ement, October 1994, pg. 176.
* 2014 population = 58,142 / 84% -- Bremedon Planning.
The City projects a year 2014 deficit capacity of 11,217 (compared with the County projection of
a deficit capacity of 5,072). Table SS-4)
Table S8-4
Comparison of City/County Estimates of Waatewater Treatment Plant Demand (Populatlen)
Source of Estimate 1994 Capacity 1994 Demand 2000 Demand 2014 Demand Tntal Deficit ~ Surplus
County (1) 55,581 37,000 68,245 81,408 -5,072
City (2) 58,000 37,000 58,022 69,217 -11,217
Difference = -2,419 0 10,237 12,191 6,145
Sources: City of Bremedon Final Draft Wastewater Comprehensive P/an, April 1992.
Kitsap County Draft Comprehensive P/an Capita/Fac#it/es E/ement, October 1994, pg. 176.
(1) 1994 Capacity = 20,974 possible connections x 2.65 pph.
Deficit Capacity = -1914 connections x 2.65 pph.
(2) Year 2000 Demand = 85% of County estimate -- Bremerton Planning.
Year 2014 Demand (85% of County estimate) --Table SS-3.
Difference Between City and County Estimates
These estimates of sewer system capacity differ for several reasons:
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
Cit~ of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 28
match 1990 Census data. In contrast, the Cormty estimate is based on the population of
"transportation analysis zones" (TAZ's), which only roughly correspond with actual
service area boundaries.
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.
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. The City estimate
assumes 2.43 pph, the 1990 service area household size as calculated in the City's
Wastewater Plan.
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.
Sewer Facility Connections -- The County estimates the number of existing sewer
connections at 13,858, while City records show that there are 9,242 existing connections.
Unsewered Population -- The Cormty 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.
2014 Demand
Both the City and County estimates identify a probable deficit sewer system capacity by year
2014. Depending on the methodology, the deficit will be approximately 5,000-11,000 persons
within 20 years. (Table SS-4)
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)
City ~f Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 29
Table SS-5
Future Need: Sanitaq~ ,Sewer
Time Period Demand (Population in City- Capacity Average Dally
County Service .adea) (Population) Demand ~} 100
GPCD
Six-Year Need
1994 Sewered Population 37,000 21,000 3.70 MGD
Hookups for 30% of 2,463 18,537 0.25 MGD
Unsewered Population (1)
1995-2000 New Population (2) 12,812 5,725 1.28 MGD
Total 2000 Sewered 52,275 5,725 5.23 MGD
Population =
Twenty-Year Need
Hookups for 70% of 5,747 -22 0.57 MGD
Unsewered Population (3)
2000-2014 New Population (4) 11,195 -11,217 1.12 MGD
Total 2014 Sewered 69,217 -11,217 6.92 MGD
Popuration =
Total 1994-2014 Increase = 32,217 n/a n/a
Notes: (1) 8,210 x 30%. (2) 58,022 - 45,210. (3) 8,210 x 70%. (4) 69,217 - 58,0:22.
Need for Capital Facility Improvements
The Wastewater Plan was developed for an ultimate service area population of 35,500.
Therefore, planned improvements will be adequate to serve the projected 35,500 sewered
population.
Plans of Other Providers
The Kitsap County Public Works Department Wastewater Division is in the process of
preparing a County-Wide Wastewater Facility Plan. The draft plan integrates the individual
wastewater plans within the county, and includes recommendations for expanding county
facilities to serve projected needs.
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 30
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 and to solve
some current and anticipated operational problems:
· Infrastructure improvements -- repairs or replacements of existing sewer system facilities
to restore structural integrity;
· 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.
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. (This assumes removal of stormwater from the system over the next several years under
the City's CSO Reduction Plan.)
Six-Year Data
(pending information)
Capacity Balance
The following chart demonstrates how the projects to be developed over the next six years
provide the required amount of capacity at the adopted level of service standard to meet the
needs of the existing population and projected growth. (Table SS-7)
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 31
Table SS-7
Capacity Balance 8heet: Sanita~ Sewer
Year / Projects Maximum Month Demand Facility Currently NM Resewe or
Required ~l LOS Available Deficiency
1994 7.8 MGD 10.1 MGD 2.3 MGD
1995-2000 1.8 MGD
Total as of 2000 9.6 MGD 10.1 MGD 0.5 MGD*
Projects 1995 to 2000 to Inorease capacit~
Warren Avenue Stormwater Separation (1995) **
Callow Avenue Stormwater Separation (2000) **
Total as of 2000 ....
* Contracted Flows to PSNS are 3.1 MGD, which are not anticipated during six year term of finance plan.
** These two projecls will eliminate some stormwater inflow to the wastewater system.
*** Year 2000 total capacity is not quantifiable at this time.
Source: Bremerton Department of Public Works and Utilities, 4/95.
Operating 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.
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 32
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,O00 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). As 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 facilities work becomes available.
Bremerton Public School District # 100C provides public education in most parts 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 #401.
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.
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 SC-l)
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
City ofl Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 33
the number of teacher stations, which is in turn determined by school design, the educational
program, and State funding criteria.
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 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-l)
Table SC-1
Inventory of Existing Facilities - Bremerton School District
School Existing Student Existing Surplus Student
Capacity Enrollment Capacity
Elementary (Grades K-5)
Armin Jahr - 800 Dibb 337 367 -30
Crownhill - 1537 Bertha Ave. 0 472 -472
Kitsap Lake - 1111 Carr Blvd. 550 518 32
Naval Avenue - 900 Olympic 412 487 75
Olympic View - 2442 Perry 486 513 -27
View Ridge - 3220 Wheaton Way 374 463 -89
West Hills - 520 National Ave So. 561 453 108
Total Elementary School Facilities = 2,720 3,273 -553
Secondary Sc. hoots (Grades 6-12)
Mountain View Middle School - 2400 Perry Ave. 900 924 -24
Bremerton Jr. High - 1300 E. 30th 1,236 751 485
City o. f Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 34
Bremerton High School- 1500 13th 1,500 1,237 263
Total Secondary Facilities = 3,636 2,912 724
Total School Facilities = 6,356 6,185 171
Note: Capacity figures do not include portable classrooms.
Source: Bremerton School District No. 100C, 10/94.
Existing Capacity
Five of the seven elementary schools are 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)
Table SC-2
Bremerton School Distrk~ Capacity (Summa~)
School Type 1994 Suq~lus Capacity Additional Funded Capacity 1995 Surplus Capec~ty
Elementary (K-5) -553 * 158 -395
Middle (6-7) -24 0 -24
Jr. High (8-9) 485 0 485
Senior High (10-12) 263 0 263
Total = 171 158 329
Cit? of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 35
* Crown Hill School is funded for replacement due to fire damage.
** Includes Bremedon 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.
Forecast of Future Needs -- Bremerton School District
Existing Demand -- Enrollment
There are 6,185 students in Bremerton's elementary, middle, and high schools.
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)
Table 8C-3
Level of Sewice - Bremerton School District
Measure Elemental/ Mlddle/Jr. High Senior High
School Size (Students) 550 1,000 1,250
Classroom Size 23 30 30
Source: Bremerton School District No. 100C, 10/94.
Future Demand -- Enrollment Projections
The need for new schools is based on projected school enrollment. The Washington State
Superintendent of Public Instruction (SPI) provides enrollment projections based on the "Cohort
Survival Method". The school district considers the SPI system useful, but inadequate to
represent the unique growth conditions of the Bremerton district. For example, 1992 enrollment
forecasts based on SPI projections predicted a school population of 8,370 in 1994 -- 2,185 higher
7 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.
City qf Bremerton Comprehensive Plan
City Service Appendix CS Appendix ~ 36
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 SC-4)
Table SC-4
Bremerton School District Population and School Enrollment
Total Population Total Enrollment Pementage
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)
Table 8C-5
Enrollment Projeclions
School Level Existing Projected Surplus Projected Surplus
Capacity Enrollment 2000 Capacity 2(X)O Enrollment 2014 Capacity 2014
Elementary 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
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 37
Sources: (1) Table SC-13, Kitsap County Dra~? Comprehensive Plan, Part III, September 1994, pg. SC-24.
(2) Bremerton School District (10/94)
Need for Capital Facility Improvements
Based on County population projections alone, the Bremerton 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 the District feels that population projections alone do not accurately reflect the need
for a new middle school by year 2000. ~he 1992 Bremerton School District Capital Facilities Plan
recommends that new elementary and middle schools be 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 District 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)
Table SC-6
Projected Facility Needs and Costs
School Type Year 2000 Co~t Year 2014 Co~t
Elementary (K-5) * 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 21 .OM N/A 37.7M
· Projected needs do not include replacement of Crownhill Elementary School.
Source: Bremerton School District, 10/94.
Plans of Other Providers
The Kitsap County Comprehensive Plan Capital Facilities Element projects facility needs for all
school districts in the County, including the Bremerton School District. This element is a
valuable resource for comparing class size, school size, construction costs, etc. between districts.
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 38
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).
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.
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.
Six-year Funding 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 SC-7)
The following table is inchtded as background information. It should be completed if the city decides to collect school
impact fees,
Table SC-7
Six-year Funding and Projects: ~
Funding 8ource~ 1995 1996 1997 1998 1999 2000 Total
State Match ?
Future Levy ?
Insurance ?
Impact Fees ?
TOTAL SOURCES ? ? ? ? ? ? ?
Crown Hill School * 5,240 5,240
Elementary #8 7,328 7,328
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 39
Table SC-.7
Six-year Funding and ProJecls: School~
Funding Sources 1995 1996 1997 1998 1999 2000 Total
Middle School #2 13,688 13,688
TOTAL COSTS 5,240 0 0 0 7,328 13,688 26,256
Surplus or De6cit I ~5,2401 0I 0 0-7,328-13,688 -26,256
Note: All amounts are times $1,000. Figures are in 1994 constant dollars.
* Crownhill school replacement cost does not include any site acquisition/development costs.
Capacity Balance
The following charts demonstrate how the projects to be developed over the next six years
provide the required amount of capacity at the adopted level of service standard to meet the
needs of the existing population and projected growth.
Elementary Schools: The construction of one elementary school by year 2000 will meet
enrollment needs by year 2000. (Table SC-8)
Table 8C-8
Capacity Balance Sheet: Elementary Schools
Year / Projects Schools Required* 8choola Available Net Resewe or
Deficiency
1994 7,6 7.0 -0.6
1995-2000 (new) 0.7 0.0 -0,7
Total as of 2000 8.3 7.0 -1.3
Projects
Elementary #8 1.0 -0.3
Total as of 2000 8.0 0.3
* The capacity of new elementary schools is assumed to be 550 students.
· Year 1994 Schools Required = 3273 (existing enrollment) - 2967 (existing capacity) / 550 (students per
school) + 7 (existing schools).
· Year 2000 New Schools Required = 3674 (2000 enrollment) - 3273 (1994 enrollment) / 550 students per
school)
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 40
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)
Table SC-9
Capacity Balance 8heat: Middle Schools
Year I Projects Schools Required* Schools Available Net Reaewe or Deficiency
1994 1.o I 0.0
1995-2000 (new) 0.1 0 -0.1
Total as of 2000 1.1 1 -0.1
Projects
Middle School #2 1 1.0
Total as of 2000 2 0,9
* The capacity of new middle schools is assumed to be 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)
Operating 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)
Wis chart may be completed at a future time to determine the)Cull costs of school facilities.
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 41
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.
Inventory of Existing 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 route drainage away from homes and businesses. All 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 limit 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 g. shores of W. Brem. - Port Wn. Narrows 400
2. Callow Avenue Zentral W. Brem. - Sinclair Inlet 650
3. Cherry Avenue E. Brem. NE of Warren Ave. Brid[ge - Port Wn. Narrows 250
~.. East Park E. Brem. S of Sylvan Way - Port Wn. Narrows 330
5. Kitsap Lake ~V. Brem surrounding Kitsap Lake - Chico Bay 1,550
5. Oyster Bay ~W part of W. Brem - Oyster Bay & Ostrich Bay 1.575
7. Pacific Avenue ?,E part of W. Brem incl. Ferry Terminal - Sinclair Inlet 150
3. Phinney Bay '4 central part of W. Brem ~ Phinney Bay 225
:L Pine Road N part orE. Brem. - Port Wn. Narrows 680
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 42
10. Sinclair Park SW portion ofW. Brem - 1,40(
1. Stevens Canyon E. Brem. in vicinity of Wheaton/Sylvan - Port Wn. Narrows 35(
12. Tracyton Beach Along W. edge of city limits in E. Brem - Port Wn. Narrows 6(
13. Trenton Avenue E part of E. Brem - Port Wn. Narrows & Port Orchard Bay 67(
14. Warren Avenue Downtown Bremerton - Port Wn. Narrows 27:
Total 8,56L
Forecast of Future Needs
Existing 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.
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
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 43
contain written standards along with standard drawings to regulate the construction of storm
drain related facilities.
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.
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 Pacific
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
CIP #1 MI Basins dpgrade piping and catch basins throughout the storm drainage 255,00C
:ollection system. (annual cost)
CIP #2 Stevens Canyon ~ipin~ improvements at EaI~le Avenue and Dibb Streets 245.00C
CIP #3 >acific Avenue 'ipinl~ improvements along Park Avenue, 5th St to Burwell 250,0(lli
Total = ~50,000
Source: Capital improvement Pro,ram 2004-2009
In addition to these storm drain capital projects, CSO project are planned to the sewer collection
system to acconunodate the storm water that is collected by the sanitary sewer collection
system. The following is a list of planned projects.
Cit~/ qf Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 44
CSO Capital Improvement Projects and Costs
Basin Project Costs
Anderson Cove \nderson Cove Basin CSO pro, iect, Upgrade of pump station CW-4 1,800,000
Pacific Avenue ~acific Avenue Project. Miscellaneous upgrades of sanitary sewer and storm 1,000,000
lrain 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.
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 45
Transportation
See Appendix TR and main Transportation Element
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 46
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.
Inventory of Existing Facilities
Service Area
The Water Utility serves a population of approximately 56,000 in Bremerton (80% of the water
use) and portions of Kitsap County (20% of the water use). This use includes the City's West
517 Zone system (considered a separate system by the Washington State Department of Health
(DOH)) and 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 Tracyton and Rocky Point Water Districts. The current service area
includes approximately 13,800 acres.
The Kitsap County Coordinated Water System Plan also documents water service areas and system
responsibilities within those service areas.
Capacity and Water Rights
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 groundwater to the system. 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
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)
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 47
instantaneous rights from the Union River. Historically-used surface water claims of 5,000 ac-
ft/yr from Gorst Creek and 3,000 ac-ft/yr from Anderson Creek are maintained for emergency
use and potential future use pending required treatment.
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 approved 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 report is provided to all customers and is available on the City's web
site.
Facilities
A summary of the Bremerton water system is provided in Table 1.
Table 1
Bremerton Water S~'stem Summary,
Sources currently, in use Union River and 12 production wells
5-Year averal~e day demand 7.8 Million Gallons per Day
Equivalent Residential Unit 200 l/allons per day per single family residence
Number of Connections 16,052
Population served 56,000
Miles of Pipe 289 miles
Number of Reservoirs 3 raw water, 17 treated water
Number of Pump Stations
Number of Pressure Booster Stations
Number of Pressure Reducin~g Stations 12
Number of Pressure Relief Valves 9 (includes 2 sur~ge anticipators)
Service Area 13,800 Acres (not includin~ the watershed)
Pressure Zones W256, W440, W517, W650, E240, E398, E490
Disinfection Chlorine
Treatment
?Had, iustment 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.
Fire Flows
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 48
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.
Forecast of Future Needs
Existing 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 low temperatures in December 1990 when pipes
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
City ofi Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 49
use that summer. Customers responded with an 18% reduction in use which averted a need for
water restrictions.
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 Bremerton 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 low 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.
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.
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
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 50
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
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 tine-tunes its 6-year CIP which is presented at the end of this section.
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 sources 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 stafting 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.
Water Quality
Meeting strict water quality standards is a primary objective of the City. Drinking water is
regularly tested at the sources 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
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.
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 51
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.
Storage
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.
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 CIP.
Plans of Other Providers
There are no other providers of potable water within the City. However, there are several
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 (WUCC) 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.
Six-Year Financial Plan
The following chart contains the funding sources, capacity projects, and non-capacity projects
for the next six years.
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 52
CITY OF BREMERTON
WATER DEPARTMENT
CAPITAL FUNDING ANALYSIS SUMMARY
2004 2005 2006 2007 2008 2009 2010 2011 Total
Beginning
Balance $0 $728,751 $1,951,751 $1,703,751 $646,751 $661,751 $0 $1,680,900
Total Capital
Projects
Water Main
Replacement
Program 100,000 275,000 275,000 300,000 300,000 300,000 300,000 300,000 $2,150,000
Miscellaneous
Supply
Improvements 75,000 75,000 100,000 100,000 100,000 100,000 100,000 100,000 750,000
Andemon Creek
Wellfield - Eastside
Flow & Pressure 600,000 , 400,000 0 0 0 0 0 0 1,000,000
Water System
Security
Improvements 50,000 50,000 0 0 0 0 0 0 100,000
Annual Acquisition
of Replacment
Meters 25,000 50,000 50,000 50,000 50,000 50,000 50,000 50,000 375,000
Road Maintenance
and Abandonment
Plan (RMAP) 25,000 20,000 20,000 20,000 20,000 20,000 20,000 20,000 165,000
Pump Station
Reconstruction -
2004 PS#4
Westhills 31,500 1,028,000 0 0 0 0 0 0 1,059,500
Stabilization
Projects 50,000 460,000 0 0 0 0 0 0 510,000
Misc Equipment
Dept 33 10,000 10,000 10,000 10,000 10,000 10,000 10,000 10,000 80,000
Seismic Up,~rades 585,000 720,000 200,000 0 0 0 0 0 1,505,000
Source and Pump
Station Flow
Meters 0 30,000 0 0 0 0 0 0 30,000
Tracyton Water
District
Improvements
Phase II 725,000 0 0 0 0 0 0 0 725,000
West 580 PS#2A,
12" Trans. Main 1,350,000 0 0 0 ~ 0 0 0 0 1,350,000
Anderson Creek
PS#2 and Well 7&8 85,000 0 0 0 ~ 0 0 0 0 85,000
Oyster Bay Facility,
yard, roof, tile
replacement 0 54,000 0 0 0 0 0 0 54,000
West 650 12" DM,
Reservoir #23, 12"
DM 200,000 0 0 0 0 0 0 0 200,000
HB Valve 100,000 0 0 0 0 0 0 0 100,000
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 53
Ultraviolet
Treatment 0 300,000 1,000,000 1,000,000 0 0 0 0 2,300,000
12" Dist Water
Main - Shorewood
Ddve to Res 21 0 330,000 0 0 0 0 0 0 330,000
12" Dist Water
Main - Pine to
Flagstone 0 0 180,000 0 0 0 0 0 180,000
3000 Road Culvert
Replacement 0 20,000 0 0 0 0 0 0 20,000
24" Pipe on C
Street from Oyster
Bay to National
Ave. 0 0 0 0 250,000 1,250,000 0 0 1,500,000
Twin Lakes
Diversion
Improvement 0 75,000 0 0 0 0 0 0 75,000
Cover for
Dewatering Facility 0 0 0 0 0 307,000 0 0 307,000
Loop Main on West
Kitsap Lake Road 0 0 380,000 0 0 0 0 0 380,000
Loop Main on
Lakehurst Drive &
PSE 0 0 0 81,000 0 0 0 0 81,000
Replace Well 18
Pump and Motor 0 0 63,000 0 0 0 0 0 63,000
Bypass Tunnel
Below McKenna
Falls Weir 0 0 0 50,000 200,000 0 0 0 250,000
Booster Station 3
(Lafayette) & PRV
Upgrade 0 0 70,000 0 0 0 0 0 70,000
490 Zone
Extension on
Sylvan 0 0 0 486,000 0 0 0 0 486,000
12" Main -
McWilliams Rd.
From Mo Williams
Ct, to Pine Rd. 0 0 0 171,000 0 0 0 0 171,000
E. 18th St. Loop 0 0 0 113,000 0 0 0 0 113,000
86" Main Davis
Street Connector 0 0 0 126,000 0 0 0 0 126,000
Gold Mountain
Gold Course
Irrigation 0 0 0 650,000 0 0 0 0 650,000
Storage
Improvements
W440 & 398 Zones 0 0 0 0 416,000 0 0 0 416,000
Reservoir No. 14
Demolition 0 0 0 0 341,000 0 0 0 341,000
Re-Drill Well #9 0 0 0 0 332,000 0 0 0 332,000
Well #9
Chlorination &
Telemet~ 0 0 0 0 166,000 0 0 0 166,000
Manette Bridge
Water Main 2004
Isolation Valve 136,000 0 0 0 0 0 0 0 136,000
12" Dist Water
Main - 13th St &
High & Ohio 0 0 0 0 0 640,000 0 0" 640,000
Pine Road - Mc
Williams to Well 21
12" Water Main 0 0 0 0 0 137,000 0 0 137,000
398-490 Zone
Conversion & PRV 0 0 0 0 0 281,000 0 0 281,000
Marine Drive from 0 0 0 0 0 290,000 0 0 290,000
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 54
Cedar Dr. North 8"
Water Main
Other Unscheduled
Projects 0 0 0 0 0 0 0 0 0
Total Project
Costs $4,147,500 $3,897,000 $2,348,000 $3,157,000 $2,185,000 $3,385,000 $480,000 $480,000 $20,079,500
Less: Funding
Sources
Annual Rate
Funded Capital $500,000 $600,000 $700,000 $800,000 $1,000,000 $1,030,000 $1,060,900 $1,092,727 $6,783,627
System
Development
Charges 100,000 100,000 t 00,000 100,000 100,000 100,000 100,000 100,000 800,000
Timber Sales 1,500,000 1,400,000 1,300,000 1,200,000 1,100,000 1,000,000 1,000,000 1,000,000 9,500,000
Sale of Assets 0 1,000,000 0 0 0 0 0 0 1,000,000
Grants 800,000 0 0 0 0 0 0 0 800,000
State Loan -
DWSRF 1,960,000 2,020,000 0 0 0 0 0 0 3,980,000
Interfund Loan
Payment -
Pendergast 16,251 0 0 0 0 0 0 0 16,251
Revenue Bonds 0 0 0 0 0 593,249 0 0 593,249
Total Funding
Sources $4,876,251 $5,120,000 $2,100,000 $2,100,000 $2,200,000 $2,723,249 $2,160,900 $2,192,727 $23,473,127
Additional Capital
Funding $0 $0 $0 $0 $0 $0 $0 $0
Ending Capital
Reserves $728,751 $1,951,751 $1,703,751 $646,751 $661,751 $0 $1,680,900 $3,393,627
Target Funding;
Annual Avera~le $225,000 $420,000 $445,000 $470,000 $470,000 $470,000 $470,000 $470,000
Capital or 1% of
Original Plant
Value $522,977
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 55
Utilities Section
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.
Existing 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.
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.
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 56
CNG has an active policy of expanding its supply system to serve additional 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.
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.
Existing 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 Silverdale) 115 Kv switching stations. Power then flows from these
switching stations through transmission lines to serve subarea distribution substations.
The existing electrical system within the city consists of the following:
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 57
· Transmission Substation: South Bremerton
· Distribution Substations: Bremerton; Sheridan; Rocky Point.
· Transmission Lines (230kV)BPA Shelton - South Bremerton
· Transmission Lines (ll5kV): 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.
Existing Capacity
The power utilization factor of all distribution substations is at 81 percent in the North Kitsap
subarea, with South Kitsap at nearly 75 percent 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:
TaMe UT-2
Existing Capacity: Electrical Utilities
Distribution Substations Capacity (MVA) Winter Load (MVA)
(Dec. 21, 1998)
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. Likewise, if the
load develops faster than anticipated, the timing of the construction of the projects can be
accelerated.
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 58
Projected Needed Capacity
Puget Sound Energy's 2020 Electrical Facilities Plan for Kitsap County predicts a projected load
level in Mega Volt Amperes (MVA'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 populafion 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.)
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 will provide a
transmission route from South-to-North Kitsap for a future 230 kV transmission system
link between the South Bremerton and Foss Comer Switching Stations.The first leg of
this long range project will start by constructing a 115/230 kV line between Bangor
substation and Foss Comer. 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.
City qf Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 59
(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 --
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
Werner -- 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.
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.
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.
City q/Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 60
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. 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.
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.
Cellular
Cellular calls use signals to and from mobile phones. Cellular calls are routed by a series of
low-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.
Cit~/ of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 61
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 Bremerton area.
Cable Television
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.
City of Bremerton Comprehensive Plan
City Service Appendix CS Appendix - 62
Public Participation Pro~ram ,~%
Comprehensive Planning
PUBLIC PARTICIPATION PROGRAM
1. PURPOSE AND MISSION:
Public participation is an essential part of the City of Bremerton's planning
process. This public participation program provides the framework for public
input on the review, amendment, and ultimate update of the city's comprehensive
plan.
In designing this public participation program, the City of Bremerton attempts to
involve the broadest cross-section of the community, particularly encouraging
both groups and individuals not previously involved in planning. Early,
continuous, effective public participation will result in a comprehensive plan that
assures the community's desired future, while meeting the mandates of the
Washington State's Growth Management Act.
2. REQUIREMENTS OF THE ACT
The Growth Management Act requires that the City of Bremerton establish
procedures providing for early and continuous public participation in the
development and amendment of comprehensive land use plans and development
regulations. The procedures descr/bed below for the City of Bremerton Update
Process will achieve the' following:
1. Early and continuous participation
From the onset of the process, including the creation of the participation program,
the Planning Commission and city staff will ensure expansive and effective public
involvement by using methods that include surveys, information bulletins, and
distribution lists for all interested parties to receive regular notices, meeting
advertisements, and updates. The public will be well advised of the opportunities
for involvement and particularly encouraged to participate in the drafting and
review of the proposed updates to the Comprehensive Plan.
2. Communication and information pro,rams
City staffwill use all available means to encourage participation at all levels,
through outreach and educational efforts, including television appearances,
presence at public events, and an interactive website.
A bulletin-type publication will be posted, and updated regularly, at various
locations throughout the City. This bulletin is designed to describe the
Comprehensive Plan and the update process, outline opportunities for public
involvement, and provide contact information, including the web site, email, and
facsimile address for public inquiry and comment. Detailed information and
progress reports will be available for local organizations and media outlets, such
as local newsletters, news articles, and radio announcements.
3. Public meetings with adequate notice
All public meetings concerning the Comprehensive Plan will be advertised
throughout the community. Formal public notices will be posted and published in
consistent locations including the Planning and Building Permit Office,
Bremerton School District office, 'Whe Sun" (local daily newspaper) and "The
Patriot" (local weekly newspaper). Interested parties will be further notified
through a notice distribution list, providing process updates and meeting details.
4. Provisions for open discussion
Open discussion will result t~om a fair and open process, with various
opportunities for public input. Public workshops will be advertised and made
accessible to the broadest audience possible, building on established venues
whenever possible. Discussion will be ensured and encouraged by designated
time for facilitated discussion, public hearings prior to adoption of amendments,
and well-noticed public comment periods.
5. Opportunity for written comments
Written comments will be accepted and encouraged at all venues anal in various
forms, including email messages and facsimiles. Notice of public comments
periods will encourage written comments and provide contact information,
especially on draft comprehensive plan updates. Comments should be addressed
to the City of Bremerton Plannin~ Commission at: (Mail Address) Department of
Community Development, 286 4 Street, Bremerton, Washington 98337;
(Fax) (360) 478-5278; or (E-mail Address) compplan~ci.bremerton.wa.us
Planning staff will provide public comment cards at Commission meetings and at
strategic locations throughout the city. The comments cards will be regularly
collected but also designed for easy postcard mailing. Written comments will be
presented to the Planning Commission during official public meetings.
6. Consideration and "fair response" to public comments
All comments on draft proposals and alternatives will be accepted and brought to
the attention of the Planning Commission for their consideration. Written
comments will also be kept on file for public review. City Planning Staff will
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acknowledge the receipt of written comments by sending a letter with notification
of opportunities for further involvement.
7. Broad dissemination of proposals and alternatives
Draft proposals and alternatives will be broadly disseminated throughout the
community. A bulletin-type publication, posted at various locations to provide
general information about the process, will direct the public to the city-wide
locations for reviewing the draft materials. Locations for the review of draft
proposals and alternatives include:
1. Planning and Building Permit Office. 286 4th Street, Central Bremerton
2. Downtown Library, 612 5th Street, Central Bremerton
3. Bremerton Area Chamber of Commerce, 301 Pacific, Central Bremerton
4. Central Kitsap Regional Library. 1301 Sylvan Way, East Bremenon
5. Sheridan Community Center, 680 Lebo Blvd., East Bremerton
6. Olympic College Library, 1600 Chester Avenue, West Bremerton
7. School District Office, 134 Marion Avenue, West Bremerton
3. PROGRAM POLICIES AND PROCEDURES:
Throughout the Comprehensive Plan update process, the City of Bremerton will
maximize citizen involvement opportunities and maintain compliance with
policies outlined in the existing "Citizen Involvement Program," Element D of
the Comprehensive Plan (1995). However, this participation program
specifically details the comprehensive update process, striving for city-wide
· participation as opposed to the previous annual comprehensive amendment
process which tends to focus on isolated issues or properties. Efforts will
continue to make the process open and accessible to all concerned parties and to
make related materials and presentations easily understood by the citizens of
Bremerton.
STAGES of the COMPREHENSIVE UPDATE PROCESS:
1. Visioning Stage: Review of the Comprehensive Vision and Goals
Public participation efforts begin with a visioning process in which the public is
invited to participate to broadly define the desired community future. Workshops
will be held throughout the city. Existing venues will be utilized as much as
possible to build upon the established Comprehensive Plan geographic units:
East, West, and Central Bremerton. Likewise, the existing Comprehensive Plan's
vision, goals, policies, and implementation strategies are the starting point for the
update. Within the discussion on the community's vision and implementation
strategies, Kitsap County-wide pla~ing policies and Washin~on State mandates
will be raised for discussion. As the foundation for the update, the visioning
results wilt be presented to both the Planning Conuuission and the City Council.
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2. Drafting Stage: Update Drafted to Support Revised Goals and Visions
The Comprehensive Plan Update will ultimately be proposed to the City Council,
recommended by thc Planning Commission to be necessary to implement thc
community's vision. Public participation will bc invited in the actual drafting of
the update through open-membership, community-based committees that focus on
subject areas, chaired by a planning commissioner with ex-officio representation
from the City Council. Draft updates will then go through a formal comment
review period which includes distribution throughout the community and to
various interested parties and jurisdictions. Finally, the Planning Commission and
the City Council will co-host a public workshop on the draft update before staff
finalizes the update for formal public hearings.
3. Adopting Stage: Proposed Updates for a Comprehensive Revision
The Comprehensive Plan Update will be conducted through public, noticed
hearings at which community members and interested parties will be encouraged
to participate. Public Hearings will be held at both the Planning Commission and
City Council levels, complete with notices and written comment periods. At
hearings, all persons desiring to speak should be allowed to do so, consistent with
time constraints.
ROLES in the COMPREHENSIVE UPDATE PROCESS:
As outlined above, the Planning Commission chairs the update process for the
Comprehensive Plan. Following the City Council's final adoption of
comprehensive plan updates and supplemental development regulations, the
Commission will monitor implementation and compliance. The Commission will
hold public meetings to provide information on how implementation is
progressing and to receive public input on .changes that may be needed. When
amendments are proposed for adoption, the same public hearing procedure should
be followed as attended in the Update adoption process. Public participation and
comprehensive planning are iterative and continuous.
Planning staff will provide fi'equent progress reports on the update to the Planning
Commission and the City Council, including verbal reports during regularly
televised Council meetings. Committee work, each officially chaired by a
Planning Commissioner, will be coordinated through staff, and presented as a
whole to the public, the Planning Commission, and the City Council.
Members of the Planning, Engineering, Parks and Recreation, Utilities, and other
City Departments will provide technical assistance throughout the process,
including requests for neighborhood meetings, sub-committee work, and other
opportunities.
The City will support and participate in public education/involvement offered by
Puget Sound Regional Council, Kitsap County, Kitsap Regional Coordinating
Council, surrounding jurisdictions, special districts, and other area organizations.
[Statutory Authority: RCW 36.70A. -020(11), -.140,-.035,-.070,-.130(2),-.390]
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