HomeMy WebLinkAbout12/06/2023 CITY COUNCIL AGENDA PACKET______________________________________________________________
CITY COUNCIL 345 6th Street, Suite 100, Bremerton, WA 98337 - Phone (360) 473-5280
DECEMBER 6, 2023
CITY COUNCIL HYBRID MEETING AGENDA
Most Council Members and staff will be participating in the meeting in-person, and the public is invited to
attend. Or beginning at 5:30 PM, the public may participate remotely through one of the following options:
To stream online only (via BKAT Feed, with no interaction possible):
https://bremerton.vod.castus.tv/vod/?live=ch1&nav=live
Members of the public are invited to join the Zoom Meeting by clicking on the link below:
https://us02web.zoom.us/j/89694813320?pwd=Z0JvSXNhSFp1c0xhL1NxUjRhN20xUT09
Or One tap mobile:
US: +12532050468,,89694813320#,,,,*173061# or +12532158782,,89694813320#,,,,*173061#
Or Telephone: Dial (for higher quality, dial a number based on your current location):
US: +1 253 205 0468 or +1 253 215 8782 or +1 669 444 9171 or +1 669 900 6833
Webinar ID: 896 9481 3320
Passcode: 173061
Public questions or comments may be submitted ahead of time to City.Council@ci.bremerton.wa.us
1. BRIEFING: 5:00 – 5:30 P.M. in COUNCIL CONFERENCE ROOM 603
A. Review of Agenda
B. General Council Business
2. CALL TO ORDER: 5:30 P.M. in FIRST FLOOR CHAMBERS
3. MAYOR'S REPORT
4. CONSENT AGENDA
A. Claims and Check Register
B. Minutes of Meeting – November 15, 2023
C. Contract Change Order No. 5 with Parametrix, Inc. for Engineering Services for the Kitsap Lake
Park Renovation Project; and related Budget Adjustment
D. Agreement with Kitsap County for Provision of Juvenile Detention Facilities
E. Approval of Prosecuting Attorney and Assistant Prosecuting Attorney Retention Pay Incentive
Agreements
5. PUBLIC RECOGNITION
6. PUBLIC HEARING
A. Presentation on the Joint Compatibility Transportation Plan (To receive public comment only; No
action to be taken by the Council...)
7. GENERAL BUSINESS – There are no General Business items tonight…
8. COUNCIL MEMBER REPORTS
9. WCIA TRAINING
A. “Council Do’s and Don’ts” will be presented by Rob Roscoe, Deputy Director for WA Cities
Insurance Authority
10. ADJOURNMENT OF CITY COUNCIL BUSINESS MEETING
Americans with Disabilities Act (ADA) accommodations provided upon request. Those requiring special
accommodations please contact the City Clerk at (360) 473-5323 at least 24 hours prior to the meeting.
AGENDA BILL
CITY OF BREMERTON
CITY COUNC IL
SUBJECT: Study Session Date: N/A
Claims & Check Register COUNCIL MEETING Date: December 6, 2023
Department: Legal Services
Presenter: Angela Hoover
Phone: (360) 473-5323
SUMMARY:
Approval of the following checks and electronic fund transfers:
1. Check Numbers 405022-405125 and EFT Numbers V39753-V39834 in the grand total
amount of $3,858,138.76
2. Regular Payroll for pay period ending November 15, 2023 in the amount of $1,126.755.69
3. Regular Payroll for payouts for the pay period ending November 15, 2023 in the amount of
$10,253.85
4. Retiree Payroll for pay period ending November 30, 2023 in the amount of $35,647.23
ATTACHMENTS:
FISCAL IMPACTS (Include Budgeted Amount):
STUDY SESSION AGENDA: ☒ Limited Presentation ☐ Full Presentation
STUDY SESSION ACTION: ☒ Consent Agenda ☐ General Business ☐ Public Hearing
RECOMMENDED MOTION:
Move to approve the consent agenda as presented.
COUNCIL ACTION: Approve Deny Table Continue No Action
Form Updated 01/02/2018
4A
AGENDA BILL
CITY OF BREMERTON
CITY COUNCIL
SUBJECT: Minutes of Meeting – November
15, 2023
Study Session Date: N/A
COUNCIL MEETING Date: December 6, 2023
Department: City Council
Presenter: Council President
Phone: (360) 473-5280
SUMMARY: The Minutes of Meeting held on November 15, 2023 are attached.
ATTACHMENTS: Meeting Minutes
FISCAL IMPACTS (Include Budgeted Amount): None
STUDY SESSION AGENDA: ☒ N/A
STUDY SESSION ACTION: ☒ Consent Agenda ☐ General Business ☐ Public Hearing
RECOMMENDED MOTION:
Move to approve the November 15, 2023 Meeting Minutes as presented.
COUNCIL ACTION: Approve Deny Table Continue No Action
Form Updated 11/3/17
4B
2
DIGITAL RECORDING
CITY COUNCIL HYBRID MEETING MINUTES
Wednesday, November 15, 2023
The weekly meeting of the City Council of the City of Bremerton was called to order Wednesday,
November 15, 2023, at 5:00 PM in Council Conference Room 603 of the NORM DICKS GOVERNMENT
CENTER, 345 6th Street, Bremerton, Washington, with Council President Jeff Coughlin
presiding. Council Members present were Jennifer Chamberlin (remotely at 5:30 PM), Denise Frey,
Quinn Dennehy, Michael Goodnow, and Anna Mockler. Council Member Eric Younger was absent.
Also present were City Attorney Kylie Finnell; City Clerk Angela Hoover; Financial Services Director
Mike Riley; Legislative Assistant Christine Grenier; and IT Manager Dave Sorensen. At 5:30 PM,
the meeting moved to the First Floor Meeting Chambers.
President Coughlin announced the City Council is conducting the Council Meeting in-person with
an option for the public to join in person, participate via Zoom, or view on BKAT, because
Community involvement is encouraged; and welcomed Boy Scout Troop 1506 and Cub Scout
Pack 4506 from Tracyton to perform the Opening Flag Ceremony, followed by the Pledge of
Allegiance.
MAYOR’S REPORT – Mayor Wheeler highlighted…
Salvation Army Shelter Opening and Encampment Removal
Letter in Support of Federal Funding for Local Government to Combat Fentanyl Crisis
Rev. Dr. Martin Luther King Library Project
Chris Tibbs from Arc of the Peninsula announced a $100,000 donation to the City of
Bremerton to combat homelessness and support emergency housing
CONSENT AGENDA
4A – Check Numbers 404870 through 405021 and Electronic Fund Transfers V39632 through
V39752 in the grand total amount $3,953,565.32; Regular Payroll for pay period ending
October 31, 2023 in the amount of $1,168,058.33; and Regular Payroll for Payouts ending
October 31, 2023 in the amount of $23,303.64
4B – Amendment to Minutes of Meeting – September 20, 2023
4C – Minutes of Meeting – November 1, 2023
4D – Minutes of Special Meeting – November 2, 2023
4E – Minutes of Study Session – November 8, 2023
4F – Confirm Reappointment of Nick Wofford to the Bremerton Planning Commission
4G – Confirm Reappointment of Ed Coviello to the Bremerton Planning Commission
4H – Confirm Appointment of Angelica Nery to the Lodging Tax Advisory Committee
4I – Acceptance of FY-2022 State and Local Cybersecurity Grant
4J – Supplemental Agreement No.1 with SCJ Alliance for Design of View Ridge Elementary –
Almira Drive Safe Routes to Schools Project
4K – Superceding Interlocal Agreement for Emergency Management Services
Comments and questions were provided by Roy Runyon (Item 4C)…
5:48 PM M/S/C/U (Dennehy/Frey) Move to approve the CONSENT AGENDA as presented.
Motion carried unanimously…
City Council Reg. Mtg. Minutes
Wednesday, November 15, 2023
Page 2 of 3
PUBLIC RECOGNITION – Comments from the public were submitted by Mary Lou Long; Joey
Hayes; Molly Brooks; Zach Mann; Unidentified; Roy Runyon; Aldon Bradford; Unidentified;
David Emmons; Eric Morley; Erinn Hale; Jim Cline; Joslyn; Robin Mercer; Justin Hurley; With
responses provided by Public Works Director Tom Knuckey…
PUBLIC HEARING
6A – FINAL PUBLIC HEARING ON ORDINANCE NO. 5487 TO APPROVE AND ADOPT THE
FY-2024 CITY OF BREMERTON BUDGET: Budget Analyst Karen Wikle stated that the purpose
of tonight’s public hearing is to take comments on the 2024 Proposed Budget. Budget workshops
were held on October 23, October 26, and November 2 where an overview of the Mayor’s
proposed budget was presented to Council. Public comments will be taken into consideration
before Council adopts a final ordinance.
This is the second of two public hearings on the budget; the first public hearing was held on
November 1, 2023. The attached ordinance represents the final proposed 2024 Fiscal Budget.
If adopted, this ordinance would become effective January 1, 2024.
President Coughlin explained that the purpose of the Public Hearing is to accept public comment;
followed by Council action…
Comments and questions from the public were provided by Zach Mann; Roy Runyon; Craig Patti;
Unidentified; Kiaha Long; Kelsey Stedman; Christi Lyson; and Mary Lou Long.
With no further questions or comments by the public, President Coughlin closed the hearing to
the public, and opened discussion to the Council…
6:55 PM Motion was made by Frey; and seconded by Goodnow…Comments and questions were
provided by Frey, Goodnow, Mockler, Chamberlin, Coughlin… With responses provided by Mr.
Riley; and Mayor Wheeler;
7:19 PM M/S/C (Frey/Goodnow) Move to pass Ordinance No. 5487 to approve and adopt the City
of Bremerton Budget for fiscal year 2024, and appropriating the amounts set forth in each fund in
accordance with RCW 35.33.075.
Voted in Favor of Motion: Frey, Dennehy, Goodnow, Chamberlin, Coughlin
Voted Opposed to Motion: Mockler
Motion carried; 5-Yes; 1-No
GENERAL BUSINESS – There were no General Business items…
COUNCIL MEMBER REPORTS
Anna Mockler was happy to be re-elected; invited everyone to attend the next District 6 Town Hall
Meeting on Monday, December 11 from 4:00 to 6:00 PM at the Public Works Facility; was thrilled
by people’s willingness to help out the community; and encouraged people to attend Krampus
related events in Bremerton; and appreciated comments made tonight about the budget.
Michael Goodnow congratulated Denise Frey, Anna Mockler, and Jane Rebelowski on being
elected; was privileged to serve with Quinn Dennehy; and looked forward to all of the Winterfest
events happening in downtown Bremerton.
Quinn Dennehy expressed his gratitude and deep respect for fellow Council Members;
acknowledged former Council Members for taking him under their wings when he was appointed;
City Council Reg. Mtg. Minutes
Wednesday, November 15, 2023
Page 3 of 3
thanked fellow Council Members, Mayor Wheeler, Department Directors, City Attorney and
Assistant City Attorney, Legislative Staff; and husband, Ryan for his unwavering support; sent out
a “call to action” to vote, volunteer, or get involved in the community; and congratulated Jane
Rebelowski on her election and thanked Marwan Cameron for running for office.
Denise Frey expressed her gratitude to Quinn for his service; described her journey from being
appointed to now elected; and wished everyone a Happy Thanksgiving.
Jennifer Chamberlin also thanked Quinn for this time on Council; looked forward to the team
she’ll be working with next year; thanked Alex Rempfer, a Scout (on the path to Eagle) who
interviewed her recently about homelessness; will discuss walkability at a future meeting;
appreciate all of her fellow Council Members; and wished everyone a Happy Thanksgiving.
Jeff Coughlin thanked the community for letting Council know what’s not going right; thanked
Public Works staff for their work on 6th Street to City Staff for working so hard to accommodate
Council’s priorities and requests; appreciated working with his fellow Council Members and
recognized the work they’ve done as a body; thanked the public for being engaged and for making
a difference; announced the Tree Lighting in Manette and Krampusnacht on Friday, December 1
followed by Winter Fest and the Tree Lighting in Downtown on Saturday, December 2; and
recognized contributions made by Council Member Quinn Dennehy and for being a tremendous
resource while in office.
President Coughlin announced that due to the Council’s regular schedule, no meeting would be
held during the Week of Thanksgiving or on the 5th Wednesday this month; and the next Council
Meeting on Wednesday, December 6 beginning at 5:30 PM will be held in the Meeting Chambers
of the Norm Dicks Government Center, and the public is welcome and encouraged to attend in
person or remotely by Zoom.
With no further business, President Coughlin adjourned the Council Meeting at 7:49 PM.
Prepared and Submitted by:
______________________________
CHRISTINE GRENIER
Legislative Assistant
APPROVED by the City Council on the 6th day of December, 2023.
________________________________________
JEFF COUGHLIN, City Council President
Attest:
________________________________________
ANGELA HOOVER, City Clerk
JC:AH:ls:cg
AGENDA BILL
CITY OF BREMERTON
CITY COUNCIL
SUBJECT: Study Session Date: N/A
Contract Change Order No. 5 with
Parametrix, Inc. for Engineering Services for
the Kitsap Lake Park Renovation Project;
and related Budget Adjustment
COUNCIL MEETING Date: December 6, 2023
Department: Parks & Recreation
Presenter: Jeff Elevado
Phone: (360) 473-5428
SUMMARY: In October of 2020, Council approved the Professional Services Agreement with
Parametrix, Inc. for A&E Services for the Kitsap Lake Park Renovation Project. There have been
four (4) contract modification executed to date totaling $81,460.
The proposed Contract Modification No. 5 is in the amount of $27,882, which brings the total contract
amount to $223,231. The added scope of work includes engineering service for the redesign of the
storm drainage system and associated grading in order to allow approval by the Army Corps of
Engineers and preparation of the final bid documents to get the construction contract out to bid.
ATTACHMENTS: 1) Exhibit A, B & C – Parametrix, Inc. Change Order No. 5 (Scope of Work,
Schedule and Budget); 2) Contract Change Order No. 5
FISCAL IMPACTS (Include Budgeted Amount): Project estimate: $1.6M. Funding is comprised of the
following: $556,200 RCO-Boating Facilities Program Grant; $438,200 RCO-Aquatic Land Enhancement
Account Grant; $252,800 Department of Commerce-Local & Community Projects Grant; $89,400 COB
Stormwater Utility; 48,023 CDBG; $10,000 Bremerton Park Foundation Grant. The remaining balance of
approximately $204,300 will be funded through Parks Capital Construction Fund Balance, Force Account
Labor, REET and donations.
STUDY SESSION ACTION: ☒ Consent Agenda ☐ General Business ☐ Public Hearing
RECOMMENDED MOTION:
Move to approve Contract Change Order No. 5 with Parametrix, Inc, for the Kitsap Lake Park
Renovation Project; and authorize the Mayor to finalize and execute the agreement with substantially
the same terms and conditions as presented.
COUNCIL ACTION: Approve Deny Table Continue No Action
Form Updated 11/09/2021
4C
Scope of Work
60 Washington Avenue, Suite 390 • Bremerton, WA 98337 | 360.377.0014 | Parametrix.com
Exhibit A
City of Bremerton
Kitsap Lake Park Renovation Project
Change Order 5 – Additional Engineering Services
Introduction
This document describes Parametrix’s proposed scope of work (SOW) for Change Order 5 under our
existing contract. The purpose for Change Order 5 is to request budget for completion of engineering
services for the redesign of the storm drainage system and associated grading in order to simplify
the permitting process.
A proposed schedule is included in this scope as Exhibit B and our proposed budget is attached as
Exhibit C.
Scope of Work
Task 1 – Project Management and Meetings
Objective
Continue project management through the final design of the project.
Activities
The following activities will be performed as part of this task:
Manage and direct the project technical team.
Provide routine project management and communications (scope, schedule, budget, and
invoicing).
Prepare monthly progress reports and progress billings and submit to the City for approval
and payment.
Deliverables
The following deliverables are associated with this task:
Routine correspondence and monthly invoices and progress reports
Meeting agendas and notes
Assumptions
The following assumptions apply to this task:
Project duration is expected to take an additional 3 months beyond the previous estimate
because of the additional redesign effort.
ATTACHMENT 1
Scope of Work
City of Bremerton 233-1896-174
Kitsap Lake Park Renovation Project 2 November 2023
Change Order 5 – Additional Engineering Services
Task 2 – Permitting
Objective
Provide additional services to assist the City in complying with state and federal permitting
requirements.
Activities
The following activities will be performed as part of this task:
Submit required information to the U.S. Army Corps of Engineers, to support their issuance of
a Determination of No Jurisdiction.
Submit a request to the Washington Department of Fish and Wildlife (WDFW) for a minor
modification to the Hydraulic Project Approval (HPA) that was issued on February 10, 2022.
Communicate and coordinate with City of Bremerton Department of Community
Development staff concerning the status of the Shoreline Substantial Development Permit
and SEPA Determination of Nonsignificance that were issued on February 18, 2022.
Deliverables
The following deliverables are associated with this task:
Revised design drawings, showing that no fill will be placed within Waters of the U.S.
A draft HPA minor modification request, for review by City of Bremerton Parks Department
staff
A final HPA minor modification request, submitted to WDFW
Documentation of correspondence with the U.S. Army Corps of Engineers, WDFW, and the
City of Bremerton Department of Community Development
Assumptions
The following assumptions apply to this task:
These additional services under Task 2, estimated at 16 labor hours, will use some of the
remaining funds from Change Order 04.
The U.S. Army Corps of Engineers will concur that, by avoiding the placement of fill within
Waters of the U.S. (including associated wetlands), the project does not trigger requirements
for compliance with Section 404 of the Clean Water Act.
WDFW will concur that the proposed design adjustment (i.e., eliminating the placement of fill
material within Waters of the state) constitutes a minor modification.
The proposed design adjustment will not trigger any additional review requirements with the
City of Bremerton Department of Community Development.
Task 4 – 60%, 90%, 100%, and Final Plans, Specifications, and Estimates (PS&E)
Objective
Redesign storm drainage system and grading and update current project PS&E documents for
bidding in 2024.
Scope of Work
City of Bremerton 233-1896-174
Kitsap Lake Park Renovation Project 3 November 2023
Change Order 5 – Additional Engineering Services
Activities
The following activities will be performed as part of this task:
Redesign of the storm drainage system and associated grading.
Update plan sheets and specifications in accordance with the redesign.
Sheet # Dwg # Sheet Modified Republished
1 G1 Cover Sheet No Yes
2 G2 Legend and Abbreviations No Yes
3 G3 General, Erosion/Sediment Control & Construction Notes No Yes
4 G4 Survey and Horizontal Control Yes Yes
5 DM1 Demolition and TESC Plan Yes Yes
6 C1 Site Plan Yes Yes
7 C2 Parking Lot and Boat Launch Access Layout Plan and Profile Yes Yes
8 C3 Restroom and Fishing Pier Access Layout Plan and Profile No Yes
9 C4 Parking Lot and Boat Ramp Grading Plan Yes Yes
10 C5 Restroom and Fishing Pier Access Grading Plan No Yes
11 C6 Upland Path Layout Plan and Profile No Yes
12 C7 Upland Area Layout Details and Points No Yes
13 C8 Picnic Shelter Grading Plan and Details No Yes
14 C9 Play Area Grading, Details, and Drainage Plan No Yes
15 D1 Details No Yes
16 D2 Details Yes Yes
17 D3 Details No Yes
18 D4 Details Yes Yes
19 FL1 Boat Ramp and Boat Ramp Float Plan and Profiles Yes Yes
20 FL2 Fishing Pier Gangway and Float Plan and Profile No Yes
21 UT1 Utility Plan Yes Yes
22 WA1 Wall Plans and Details No Yes
23 LS1 Landscape Plan Yes Yes
Update drainage report.
Update cost estimate using bid tabulations from recent projects and as published by the
Washington State Department of Transportation (WSDOT).
Compare general special provisions (GSPs) with 2025 WSDOT and American Public Works
Association (APWA) GSPs and update as needed.
Scope of Work
City of Bremerton 233-1896-174
Kitsap Lake Park Renovation Project 4 November 2023
Change Order 5 – Additional Engineering Services
Deliverables
The deliverable for this task is final stamped PS&E documents for bidding.
Assumptions
The following assumptions apply to this task:
Draft bid set will be prepared and submitted to the City for review.
City will provide a consolidated set of comments.
This draft bid set will be sent to the Army Corps of Engineers for review with a response of
“Determination of No Jurisdiction”.
City and Army Corps of Engineers comments will be addressed during preparation of the final
bid set submittal.
Exhibit B - Schedule
Work Element Completed By
Notice to Proceed November 8, 2023
Draft Bid submittal (6 weeks) December 15, 2023
City Review (4 weeks) January 10, 2024
Bid Set Submittal (2 weeks) January 24, 2024
Advertisement
Contract Award
Construction Begins
Construction Complete
February 7, 2024
March 1, 2024
May 1, 2024
November 1, 2024
Exhibit C
Client: City of Bremerton
Project:Kitsap Lake Park Improvements
Project No:233-1896-174
Shanon L. HarrisJason CeraldeJoanna JohnsonJosephine CrofootCooper OdegardClara OlsonJeff DyeKyle HaleAmanda LucasJean Johnson3.0 Project Controls SpecialistProject ManagerEngineer IVEngineer IIEngineer IIIEngineer IIIQuality Control (SD)Project AccountantProduction SupervisorSr. Contracts Specialist$138.81 $146.91 $161.31 $125.10 $142.59 $142.62 $306.54 $102.39 $136.05 $174.93
Task Description Labor Dollars Labor Hours
01 Project Management and Meetings $2,784.06 20 6 10 0 0 0 0 0 3 0 1
Virtual Project Meetings (3)$881.46 6 6
Project Management (3 mo.)$1,902.60 14 6 4 3 1
04 Final Design $24,947.73 166 0 54 45 23 2 30 4 0 8 0
Bid Set Review Meeting $616.44 4 2 2
SHEETS
Survey and Horizontal Control (1 sheet @ 30' scale)$286.41 2 1 1
Demolition and TESC (1 sheet @ 30' scale)$705.33 5 2 1 2
Site Plan (1 sheet @ 20' scale)$705.33 5 2 1 2
Parking Lot and Boat Launch Access Layout Plan and Profile
(1 sheet @ 20' scale)$2,053.56 14 4 4 2 4
Parking Lot and Boat Ramp Grading Plan (1 sheet @ 20' scale)$7,015.68 48 20 12 8 8
Site, Utility, and Drainage Details (2 of 4 sheets)$1,552.47 11 1 2 8
Boat Ramp and Boat Ramp Float Plan and Profile (1 sheet)$1,160.46 8 4 2 2
Utility Plan (1 sheet)$1,042.35 7 1 4 2
Landscape Plan (1 sheet)$558.42 4 1 1 2
SHEET TOTAL - 17
Bid Documents and Engineer's Opinion of Probable Cost $2,649.96 18 8 4 2 4
Drainage Report Update $4,135.56 24 2 4 2 8 4 4
QAQC $2,465.76 16 8 8
Labor Totals:186 6 64 45 23 2 30 4 3 8 1
Totals:$27,731.79 $832.86 $9,402.24 $7,258.95 $2,877.30 $285.18 $4,278.60 $1,226.16 $307.17 $1,088.40 $174.93
Other Direct Expenses
Mileage - $0.625/mile $150.00
Other Direct Expenses Total:$150.00
Project Total $27,881.79
Billing Rates:
11/6/2023 Redesign for Outfall Cost Est_11022023.xlsx
CITY OF BREMERTON
CHANGE ORDER
CONTRACT CHANGE ORDER NO: 05
PROJECT NAME: KITSAP LAKE PARK RENOVATION PROJECT
PROJECT NO: 59163 CONTRACTOR: PARAMETRIX, INC.
ORIGINAL CONTRACT AMOUNT: 113,889.00 DAYS: March 2021
PREVIOUSLY APPROVED
CHANGES:
81,460.42 DAYS: 0
THIS CHANGE: 27,881.79 DAYS: October 2025
REVISED CONTRACT AMOUNT: 223,231.21 DAYS: October 2025
This Change Order covers changes to the subject contract as described herein. The Contractor shall
construct, furnish equipment and materials, and perform all work as necessary or required to complete
the Change Order Items. The increase or decrease in contract price shown below includes any
applicable taxes. Rule 170 Rule 171 DESCRIPTION OF CHANGES INCREASE IN
CONTRACT
AMOUNT
($)
(DECREASE) IN
CONTRACT
AMOUNT
($)
CONTRACT
TIME
EXTENSION
(DAYS:)
X Contract Modification No. 5
Added SOW to include:
1.Engineering Services related to the redesign of the
storm drainage system and associated grading.
2.Provide revised drawing.
3.Permitting Services relative to coordination with the U.S.
Army Corps of Engineers, Washington Department of
Fish and Wildlife, and COB Dept. of Community
Development.
27,881.79 0.00 Oct. 2025
NET CHANGE IN CONTRACT AMOUNT
INCREASE OR (DECREASE)
27,881.79 0.00 0
ESTIMATED SALES TAX AT 9.0% 0.00 0.00
TOTAL INCLUDING SALES TAX 27,881.79 0.00 0
ATTACHMENT 2
CONTRACT CHANGE ORDER NO: _05_
PROJECT NAME: KITSAP LAKE PARK RENOVATION PROJECT
Page 2 of 2
Change Order
Rev. 06/2018
Contractor acknowledges and accepts that this Change Order constitutes final settlement of all claims
of any kind or nature arising from or connected with any work either covered or affected by this Change
Order, including, without limitation, claims related to contract time, on-site or home office overhead, or
lost profits. Nothing in this Change Order shall limit the City’s right to bring a claim for past performance.
The undersigned Contractor approves the foregoing Change Order as to the changes, if any, in the
contract price specified for each item, including any and all supervision costs and other miscellaneous
costs relating to the change in work, and as to the extension of time allowed, if any, for completion of
the entire work due to said Change Order.
This document will become a supplement of the contract and all provisions will apply hereto. It is
understood that this Change Order shall be effective when approved by the City of Bremerton.
The parties whose names appear below warrant that they are authorized to enter into a change order
that is binding on the parties of this contract. In addition, Contractor warrants that it has or will inform
the surety of this change, and shall take appropriate action to modify any bonds required under the
contract to address this change.
CONTRACTOR
Approved: DATE:
PROJECT MANAGER
Recommended: DATE:
CITY ENGINEER
Council action is required as project cost will exceed approved budget. Yes No
Council action is required as change exceeds Mayors authority per BMC 2.76.110. Yes No
Recommended: DATE:
DIRECTOR OF PARKS AND RECREATION
Recommended: DATE:
MAYOR
Approved: DATE:
APPROVED AS TO FORM: ATTEST:
___
KYLIE J. FINNELL, Bremerton City Attorney ANGELA HOOVER, City Clerk
AGENDA BILL
CITY OF BREMERTON
CITY COUNCIL
SUBJECT: Study Session Date: N/A
Agreement with Kitsap County for Provision
of Juvenile Detention Facilities
COUNCIL MEETING Date: December 6, 2023
Department: Police
Presenter: Ryan Heffernan
Phone: (360) 473-5777
SUMMARY:
Kitsap County will provide a secure facility for the City of Bremerton’s juvenile offenders.
ATTACHMENTS:
Agreement for Provision of Juvenile Detention Facilities Between Kitsap County and the City of
Bremerton (KC-071-24)
FISCAL IMPACTS (Include Budgeted Amount): Basic fee of One Hundred Fifty Dollars ($150.00)
per bed-day for every Juvenile confined in the Detention Facility.
STUDY SESSION ACTION: ☒ Consent Agenda ☐ General Business ☐ Public Hearing
RECOMMENDED MOTION:
Mo ve to approve Kitsap County Agreement KC-071-24; and authorize the Mayor to finalize and
execute the agreement with substantially the same terms and conditions as presented.
COUNCIL ACTION: Approve Deny Table Continue No Action
Form Updated 11/09/2021
4D
AGENDA BILL
CITY OF BREMERTON
CITY COUNCIL
SUBJECT: Study Session Date: N/A
Approval of Prosecuting Attorney and
Assistant Prosecuting Attorney Retention
Pay Incentive Agreements
COUNCIL MEETING Date: December 6, 2023
Department: City Attorney’s Office
Presenter: Kylie Finnell
Phone: (360) 473-2345
SUMMARY:
I am asking the City Council to authorize $15,000 in retention pay to the Prosecuting Attorney pursuant
to a three-year contract and $15,000 in retention pay to the Assistant Prosecuting Attorney pursuant
to a three-year contract as incentives to retain employees in these critical and difficult to fill positions
that have labor market shortages and for which vacancies will impair the delivery of essential services.
Critical positions
The City Attorney’s Office Prosecution Division has two lawyers - the Prosecuting Attorney, and the
Assistant Prosecuting Attorney. These positions are in the management and professional employee
group and are not represented by a collective bargaining unit. These two positions are responsible for
maintaining around the clock division operations which include prosecuting criminal cases in
Bremerton Municipal Court, weekend probable cause duty, and being on call 24/7 for law enforcement
assistance regarding search warrants. Previously, the City could potentially rely on the County as a
safety net for prosecution through an Interlocal Agreement, however, now the County is facing lawyer
shortages and is not able to assist the City.
Difficult to fill positions / Labor market shortages
Kitsap County currently has 7 open positions for lawyers – 5 in the Kitsap County Prosecuting
Attorney’s Office and 2 in the Office of Public Defense. Both offices are receiving few, if any, qualified
applicants for these positions and the positions are staying vacant. For historical context, the Kitsap
County Prosecuting Attorney advised me that in the past they would rarely have more than one open
attorney position at a time and when they had open positions, they would receive dozens of qualified
applicants. The City’s contract public defender, LaCross & Murphy, has also had difficulty maintaining
attorney staffing levels, and both the City and County have struggled to maintain adequate numbers
of attorneys on their rosters of conflict public defense counsel.
This difficulty is not limited to Kitsap County and jurisdictions across the state and nation are struggling
to fill attorney positions in the criminal justice system. Regionally, the highest recruitment bonus I have
seen is $40,000, being offered by the Clallam County Prosecuting Attorney’s Office.
Vacancies will impair the delivery of essential services
If the City does not have prosecuting attorneys, there will be no prosecution of misdemeanor and gross
misdemeanor crimes committed in Bremerton. However, jurisdictions with larger staffs like Kitsap
County can handle vacancies more easily than the City. Just one vacancy at the City is a 50%
reduction in prosecuting attorney staffing.
Additional considerations
To be clear, the factors detailed above prompted me to make this request of Council. However, the
impact the issues at the Bremerton Municipal Court have on retention for these positions, and would
have on recruitment for these positions, should not be ignored. There has been a lot of staff turnover
in the Bremerton Municipal Court and in the public defense attorneys that appear in the Bremerton
Municipal Court. These issues have been publicized by the media and are known in the legal
community.
4E
Conclusion
Vacancies in our prosecuting attorney positions will be very difficult to fill and because our prosecuting
attorney department is small, the impact of vacancies is greater. Retention incentives will help ensure
continuity of essential services.
ATTACHMENTS: 1) Retention Incentive Agreement for Prosecuting Attorney; 2) Retention Incentive
Agreement for Assistant Prosecuting Attorney
FISCAL IMPACTS (Include Budgeted Amount): The retention incentives (totaling $30,000) can be
paid from existing department budget.
NOTE ON PROCEDURE: In 2023 there is a scheduling anomaly at the end of November that results
in two back-to-back Council meetings without a study session in between. I discussed this agenda
item with Council President Coughlin and Public Safety Committee Chair Frey. We agreed this item
could be discussed at the Public Safety Committee meeting on December 5th and placed on the agenda
for Council action on December 6th. This helps balance the agenda size of the December Council
meetings.
STUDY SESSION ACTION: ☒ Consent Agenda ☐ General Business ☐ Public Hearing
RECOMMENDED MOTION:
Move to approve the Retention Incentive Agreement for Prosecuting Attorney and Retention Incentive
Agreement for Assistant Prosecuting Attorney as presented; and authorize execution of the
agreements.
COUNCIL ACTION: Approve Deny Table Continue No Action
Form Updated 01/02/2018
RETENTION INCENTIVE AGREEMENT
Employee Name: Gary Hersey
Department: City Attorney’s Office
Title: City Prosecutor
A retention incentive in the amount of $15,000.00 will be made in one payment being paid on the
employees first payday after this Agreement has been fully executed. This retention incentive is
not part of the employee’s base pay but is considered taxable income.
The employee understands that the retention incentive is forfeited if the employee fails to report
to work or terminates employment with the agency, either voluntarily or involuntarily, before the
completion of 36 months of consecutive service after this Agreement has been fully executed. The
employee shall repay a prorated amount of the retention incentive based on months of service
completed. The repayment shall be based on the following formula:
1. Amount of Initial Retention Incentive Received/ 36 Months = Prorated Monthly Amount
2. Prorated Monthly Amount x (36 Months – Months Worked) = Amount Due
The amount due shall be deducted in full from the employee’s final paycheck. If the amount
deducted exceeds the final paycheck, the remaining balance shall be paid in full to the agency
within 60 days from the last date of employment. The employee understands that a retention
incentive is not included in salary calculations for retirement. By signing below, the employee
understands and agrees to these terms and conditions:
I certify agreement with the terms outlined above by signing below:
______________________________________________________________________
Employee Signature Date
______________________________________________________________________
Hiring Manager Signature Date
______________________________________________________________________
Department Head Signature Date
______________________________________________________________________
Human Resources Manager Signature Date
RETENTION INCENTIVE AGREEMENT
Employee Name: Amanda Harvey
Department: City Attorney’s Office
Title: Assistant City Prosecutor
A retention incentive in the amount of $15,000.00 will be made in one payment being paid on the
employee’s first payday after this Agreement has been fully executed. This retention incentive is
not part of the employee’s base pay but is considered taxable income.
The employee understands that the retention incentive is forfeited if the employee fails to report
to work or terminates employment with the agency, either voluntarily or involuntarily, before the
completion of 36 months of consecutive service after this Agreement has been fully executed. The
employee shall repay a prorated amount of the retention incentive based on months of service
completed. The repayment shall be based on the following formula:
1. Amount of Initial Retention Incentive Received/ 36 Months = Prorated Monthly Amount
2. Prorated Monthly Amount x (36 Months – Months Worked) = Amount Due
The amount due shall be deducted in full from the employee’s final paycheck. If the amount
deducted exceeds the final paycheck, the remaining balance shall be paid in full to the agency
within 60 days from the last date of employment. The employee understands that a retention
incentive is not included in salary calculations for retirement. By signing below, the employee
understands and agrees to these terms and conditions:
I certify agreement with the terms outlined above by signing below:
______________________________________________________________________
Employee Signature Date
______________________________________________________________________
Hiring Manager Signature Date
______________________________________________________________________
Department Head Signature Date
______________________________________________________________________
Human Resources Manager Signature Date
Form Created 5/4/15
INFORMATION ONLY ITEM
CITY OF BREMERTON
CITY COUNCIL
SUBJECT: Presentation on Joint
Compatibility Transportation Plan
Presentation
Council Meeting Date: December 6, 2023
Presenter: K. Ketterer
Phone: 360-473-5334
SUMMARY: The Joint Compatibility Transportation Plan is scheduled for Council adoption on the
next Council meeting cycle of 12/13/2023 and 12/20/2023. Project staff will give a presentation that
summarizes the study process and outcomes. The plan includes over 30 recommended projects that
the City and other agencies can implement over the next 20 years to address traffic and parking
issues related to NBK-Bremerton.
HANDOUTS: Joint Compatibility Transportation Plan Report available online at:
www.bremertonwa.gov/JCTP
COUNCIL AGENDA: ☐ No Presentation ☒ Full Presentation – Public Hearing
Public Comment with No Action
6A
DECEMBER 2023 Prepared by
Joint Compatibility Transportation Plan
Prepared for
CITY OF BREMERTON
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Acknowledgments
The following agencies and organizations participated in the Joint Compatibility Transportation Plan. The
study team would like to acknowledge and thank everyone involved.
Project Management Team
• Katie Ketterer – City of Bremerton
• Tom Knuckey – City of Bremerton
• Shane Weber – City of Bremerton
Community Sounding Board
• City of Bremerton
• Kitsap County
• Greater Kitsap Chamber of Commerce
• Kitsap Transit
• Naval Base Kitsap – Bremerton
• Puget Sound Naval Shipyard
• Port of Bremerton
• Washington State Department of Transportation
Consultant Team
• Parametrix – Prime Consultant
• Fehr & Peers – Travel Demand Modeling and Active Transportation
• Framework – Parking
• PRR – Public Involvement
• Community Attributes Inc – Economic Analysis
This study was prepared under contract with the City of Bremerton, Washington, with financial support from
the Office of Local Defense Community Cooperation (formerly Office of Economic Adjustment), Department
of Defense. The Joint Compatibility Transportation Plan content reflects the views of the City of Bremerton and
does not necessarily reflect the views of the Office of Local Defense Community Cooperation.
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Table of Contents
Acronyms and Abbreviations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . v
Executive Summary .........................................................................ES-1
What is the Joint Compatibility Transportation Plan? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ES-1
Study Approach . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ES-2
Who shaped the Joint Compatibility Transportation Plan? ES-3
The Plan .....................................................................................ES-4
1. Introduction ...............................................................................1-1
Study Purpose and Background. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1-1
Study Funding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1-1
Schedule .....................................................................................1-1
2. Study Area Profile..........................................................................2-1
Study Area ....................................................................................2-1
Previous Studies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-3
3. Public and Agency Involvement Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3-1
Community Sounding Board . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3-1
Community Engagement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3-2
4. Existing Conditions Analysis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4-1
Methods and Assumptions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-1
Mode Share . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-1
Parking .......................................................................................4-1
Traffic Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-6
Transit .......................................................................................4-13
Active Transportation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-17
Safety .......................................................................................4-22
Economics ...................................................................................4-25
5. Future No Build Conditions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5-1
Future No Build Parking . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5-1
Future No Build Traffic Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5-2
Future No Build Transit . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5-10
Future No Build Active Transportation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5-10
Future No Build Safety . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5-10
6. Alternative Development and Screening Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6-1
Screening Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6-1
Develop Improvements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6-1
First Level Screening . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6-1
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Proposed Alternatives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6-2
Second Level Screening . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6-6
Cost-Benefit Analysis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6-9
Parking Strategy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6-9
7. Preferred Alternative . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7-1
Preliminary Preferred Alternative . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7-1
Final Preferred Alternative . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7-5
8. Implementation Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8-1
Potential Funding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8-5
9. Next Steps..................................................................................9-1
Ongoing Study Roles and Responsibilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9-1
Ongoing Public Involvement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9-1
Future Upcoming Studies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9-2
10. References ..............................................................................10-1
Appendices
Appendix A. Project Inventory
Appendix B. Community Sounding Board Meeting Presentations
Appendix C. Community Engagement Summary
Appendix D. Methods and Assumptions Memo
Appendix E. Existing and Future No Build Traffic Analysis Results
Appendix F. Existing Economic Assessment
Appendix G. Future No Build Forecasting Memo
Appendix H. Screening and Evaluation Methodology Memo
Appendix I. First Level Screening Results
Appendix J. Second Level Screening Build Alternatives
Appendix K. Second Level Screening Results
Appendix L. Cost-Benefit Analysis
Appendix M. Preferred Alternative Analysis Results
Appendix N. Preferred Alternative Phasing Matrix
Appendix O. Project One-Pagers
List of Figures
Legend for Figure ES-1 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ES-4
Figure ES-1. Preferred Alternative Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ES-5
Figure 1-1. Project Schedule . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1-2
Figure 2-1. Study Area . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-2
Figure 2-2. NBK-BR Gate Locations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-5
Figure 4-1. NBK-BR Mode Share . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-2
Figure 4-2. Kitsap County Mode Share . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-2
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Figure 4-3. On-Street Parking Occupancy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-4
Figure 4-4. Off-Street Parking Occupancy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-5
Figure 4-5. Existing Vehicle Volume Distribution . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-8
Figure 4-6. Existing Level of Service – AM Peak Hour. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-9
Figure 4-7. Existing Level of Service – PM Peak Hour . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-10
Figure 4-8. Existing Travel Times – AM Peak Hour . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-11
Figure 4-9. Existing Travel Times – PM Peak Hour . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-12
Figure 4-10. Fixed-Route Bus Network . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-15
Figure 4-11. Worker/Driver Bus Network . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-16
Figure 4-12. Existing Pedestrian Facilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-19
Figure 4-13. Existing Bicycle Facilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-20
Figure 4-14. Existing Pedestrian Volumes at NBK-BR . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-21
Figure 4-15. Collisions (2014–2019) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-23
Figure 4-16. Crash Severity (2014–2019). . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-24
Figure 4-17. Study Area Median Household Income (2015–2019). . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-26
Figure 4-18. City of Bremerton Employment (2006–2019). . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-26
Figure 4-19. Study Area Employment Share by Industry (2006, 2019) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-27
Figure 4-20. Study Area Current Property Classes (2019) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-28
Figure 5-1. Year 2050 No Build Vehicle Volume Distribution . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5-5
Figure 5-2. Year 2050 No Build Level of Service – AM Peak Hour . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5-6
Figure 5-3. Year 2050 No Build Level of Service – PM Peak Hour. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5-7
Figure 5-4. Year 2050 No Build Travel Times – AM Peak Hour. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5-8
Figure 5-5. Year 2050 No Build Travel Times – PM Peak Hour . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5-9
Figure 6-1. Second Level Screening Results Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6-8
Figure 7-1. Preferred Alternative Analysis Results Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7-3
Figure 7-2. Preferred Alternative . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7-6
Figure 7-2. Preferred Alternative (continued). . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7-7
Figure 7-2. Preferred Alternative (continued). . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7-8
List of Tables
Table 3-1. Community Sounding Board Meeting Schedule . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3-2
Table 4-1. Existing Conditions Traffic Operations Results – Exceeding LOS Standards . . . . . . . . . . . . . . . . 4-7
Table 5-1. Study Area Household and Employment Forecasts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5-1
Table 5-2. Year 2050 No Build Traffic Operations Results – Exceeding LOS Standards . . . . . . . . . . . . . . . . 5-3
Table 6-1. Improvements Included in All Alternatives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6-3
Table 8-1. Preferred Alternative Project Phasing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8-3
Table 8-2. Potential Funding Sources for JCTP Projects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8-5
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Acronyms and Abbreviations
ADA Americans with Disabilities Act
AWSC all-way stop-controlled
BAT business access transit
BC Naval Base Kitsap – Bremerton capital project
BMC Bremerton Municipal Code
BP Naval Base Kitsap – Bremerton policy project
CC City of Bremerton capital project
CP City of Bremerton policy project
City City of Bremerton
County Kitsap County
CSB Community Sounding Board
CTR commute trip reduction
DOD Department of Defense
EIS Environmental Impact Statement
GP general purpose
HOV high-occupancy vehicle
IMF Intermediate Maintenance Facility
JCTP Joint Compatibility Transportation Plan
KC Kitsap Transit capital project
KP Kitsap Transit policy project
LOS level of service
NBK-BR Naval Base Kitsap – Bremerton
P&R park and ride
PSNS Puget Sound Naval Shipyard
PSRC Puget Sound Regional Council
RAB roundabout
SIOP Shipyard Infrastructure Optimization Program
SR State Route
TIP Transportation Improvement Program
TMA transportation management association
TSP transit signal priority
TWSC two-way stop-controlled
UGA urban growth area
v/c volume-to-capacity ratio
WC Washington State capital project
WP Washington State policy project
WSDOT Washington State Department of Transportation
CITY OF BREMERTON
Joint Compatibility Transportation Plan
ES-1
Executive Summary
The City of Bremerton (City) and Naval Base Kitsap
Bremerton (NBK-BR) have partnered to conduct a
comprehensive commuter traffic plan. The goal of
the study, formally called the Joint Compatibility
Transportation Plan (JCTP), is to create a responsive
and actionable plan to examine existing and
future needs for all transportation modes serving
NBK-BR and ensure that Bremerton’s growth will
not impede NBK-BR missions, which are critical to
our Nation’s military readiness. The plan defines
solutions to improve multimodal mobility, outline
parking strategies, and enhance Bremerton’s
livability. Livability is a sum of factors that add up
to a community’s quality of life such as comfortable
walking and bicycling, kids playing in the front
yard, or simply sitting on the front porch enjoying
home. Success of this plan will ensure NBK-BR meets
its missions for national defense while supporting
Bremerton’s long-range growth needs.
The goals of the study are as follows:
• Examine and define existing and future needs for
all transportation modes serving NBK-BR.
• Develop solutions to resolve deficits.
• Evaluate options to mitigate transportation and
parking demands.
• Develop a prioritized
implementation plan.
What is the Joint Compatibility
Transportation Plan?
This plan documents the specific purpose and
need for improvements, how alternatives were
developed, how the range of reasonable alternatives
were screened, how tension between NBK-BR base
accessibility and City livability goals was considered,
and how the Preferred Alternative was identified.
It builds on background planning, studies, parking
inventories, and other ongoing efforts, including
those prepared by the City, Kitsap Transit, NBK-
BR, Kitsap County, and other regional agencies, as
well as supplemental data collected by the study
team. Additionally, the region has assets such as
a ferry system, a worker/driver bus program, a
transportation center adjacent to the east end of
NBK-BR, and a strong regional planning council
(Kitsap Regional Coordinating Council) that, with a
comprehensive cross-agency plan, can be leveraged
to produce capital and operational improvements to
the transportation network.
This final JCTP identifies short-, mid-, and long-term
capital and operational improvements prioritized
based on metrics determined during the study that
are clear, useful, and actionable.
The study team used an approach
similar to the Washington
State Department of
Transportation (WSDOT)
Practical Solutions
approach to develop
solutions that meet the
study goals at the right
level while working
toward a Preferred
Alternative.
ACTIVETRANSPORTATION PARKING
TRANSIT
TRAFFIC
Accessibility
Stop Locations
Stop Amenities Park & Rides
Sidewalk
Bike Lanes
Buers
Signage
Crossings
Availability
Signs
Internet AccessLIVABILITY LIVABILITY
L
I
VABI
LI
TY LIVABILITY LIVABILITY LIVABILITY LIVABILITY LIVABILITY BalancedMultimodalSolution
CITY OF BREMERTON
Joint Compatibility Transportation Plan
ES-2
Study Approach
IDENTIFY EXISTING AND FUTURE NEEDS FOR ALL
TRANSPORTATION MODES SERVING NBK-BR
The study team reviewed previous studies to
outline key findings for each transportation mode,
coordinated with City staff on the existing and future
needs, conducted a workshop with a technical
advisory group to refine and finalize existing and
future needs, and hosted an open house to gather
public comments and input on the existing and
future needs. Significant findings included:
• During the peak period, 60% of traffic coming
into Downtown Bremerton is attributed to NBK-
BR and 80% of NBK-BR employees commute by
driving alone or in a shared vehicle, with a total
of 18,500 people traveling to NBK-BR by privately
owned vehicles during the AM peak period.
• Over 6,300 NBK-BR commuter vehicles park
outside of the gates during the peak period,
and over 10,000 employees enter the NBK-BR
pedestrian gates each day.
• NBK-BR has an on-installation parking deficit
on the order of 7,075 vehicles, and there is
insufficient parking in the City of Bremerton to
address the deficit. A parking study conducted
by the City (City of Bremerton 2017) confirmed
that large numbers of commuter vehicles park
illegally in Downtown and in neighborhoods.
• Vehicle queues at NBK-BR entry gates sometimes
cause back-ups on City streets. Additionally,
there are multiple locations where queues
exceed available storage capacity. Long queues
block business driveway access, increase travel
times for both general-purpose (GP) traffic and
transit, and can lead to cut-through traffic in
neighborhoods.
• Buses use the same facilities as GP traffic
and have limited frequency, which does not
encourage transit use.
• Existing park and rides in West Bremerton and
Silverdale do not have adequate capacity and
are not able to meet the transit demand in
these locations.
• Existing active transportation facilities and
connectivity are poor, can contribute to
perceived safety concerns, and do not encourage
walking or bicycling to and within Downtown.
DEVELOP SOLUTIONS TO RESOLVE DEFICITS
The study team reviewed the existing and future
needs and developed a range of improvements to
address the needs in a variety of ways. Over 200
solutions to resolve deficits were developed based
on input from Community Sounding Board (CSB)
meetings, the public, other defense communities
that have similar traffic issues, staff, and subject
matter experts. Solutions that passed an initial
screening were organized into Build Alternatives for
further evaluation.
EVALUATE OPTIONS TO MITIGATE
TRANSPORTATION AND PARKING DEMANDS
The study team conducted a workshop to develop
and refine Build Alternatives to meet identified
needs and developed screening and scoring metrics
to evaluate alternative effectiveness. The team also
developed conceptual layouts and preliminary cost
estimates to determine feasibility and understand
impacts and benefits. The three Build Alternatives
evaluated were:
Support Parking Alternative
This alternative assumes the City continues to
pursue population and employment growth and
supports the current parking system used today.
This alternative would result in higher levels of
traffic coming into Downtown, which would be
accompanied by roadway capacity improvements
needed to accommodate that growth.
Relocate Parking Alternative
This alternative assumes a larger portion of
commuters would use transit to access Downtown
Bremerton and NBK-BR. This alternative includes new
or expanded park and ride facilities, repurposing
City parking areas to be mixed use, establishing
new parking policies, and increasing parking
enforcement. This alternative would result in lower
levels of GP traffic coming into Downtown and
would be accompanied by transit improvements and
livability improvements that take advantage of the
decreased traffic demand.
Add Base Parking Alternative
This alternative assumes that all NBK-BR employees
would have access to current or new parking on
base. This alternative includes expanded parking, a
CITY OF BREMERTON
Joint Compatibility Transportation Plan
ES-3
shuttle to transport employees from on-installation
parking to their work areas, and increased parking
enforcement Downtown to ensure the on-
installation parking is used. This alternative would
result in a change in travel patterns Downtown from
current local parking to on-installation parking near
the Charleston gate and would be accompanied
by roadway capacity improvements in the City.
Downtown surface parking owned by the City could
be re-purposed to mixed-use development.
SELECT A PREFERRED ALTERNATIVE
Figure 6-1 summarizes the screening results of the
three Build Alternatives. The analysis revealed that
none of the Build Alternatives would provide benefit
for all of the evaluation metrics, and that there was
tension between base accessibility and livability.
All three Build Alternatives would provide benefit
for safety. The Add Base Parking Alternative would
provide the most benefit for mobility and base
accessibility but would only provide some benefit
for livability and no benefit to parking. Meanwhile,
the Relocate Parking Alternative would provide the
most benefit to parking and livability but would
only provide some benefit to mobility and base
accessibility.
The study team sought guidance from the CSB and
the City Council to establish a vision for the Preferred
Alternative. Both the CSB and the City Council
strongly favored outcomes that improve the livability
of the City. The alternative with the best livability
outcomes was the Relocate Parking Alternative, and
this alternative served as the basis for the
Preferred Alternative.
DEVELOP A PRIORITIZED IMPLEMENTATION PLAN
Using the Preferred Alternative as a long-range
vision, the study team developed a list of projects
and other actions to meet the program goals. The
recommendations include several early actions that
can be expedited to provide benefit to the public as
soon as possible. More information on the detailed
methods and outcome from these steps can be
found in the body of this report.
Who shaped the Joint Compatibility
Transportation Plan?
The JCTP was led by the City and advised by a
CSB composed of leadership representatives and
subject matter experts from affected agencies
and governments. This group was committed to
a strong ongoing partnership and to fostering a
regional perspective and approach to development
of the JCTP. Community stakeholder engagement
was solicited throughout the plan’s development
and through diverse communication channels.
The study team conducted a public information
survey and hosted several virtual open houses that
offered accessible options to introduce the study to
community members when in-person gatherings
were restricted and discouraged due to COVID-19.
Feedback from Bremerton residents was heavily
considered when developing the vision of livability
for Bremerton, while NBK-BR commuters provided
valuable insight into commuter behavior and
barriers to transit and active transportation use.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
ES-4
The Plan
The plan recommends projects that are divided
into phases based on the type of project (capital or
policy-based) and the agency that has the ownership
or ability to lead the project. Recommended projects
and project phasing include:
• Ongoing and Early Actions includes efforts or
projects that are already underway and should
continue, including commuter education,
NBK-BR gate management, teleworking,
implementation of recommendations from
the City of Bremerton Parking Study (City of
Bremerton 2017), improved lighting, and policies
to encourage density in Downtown.
• Short-Term Projects (0 to 6 years) includes
capital projects that improve the livability of
Bremerton, address immediate capacity and
safety issues, and reduce barriers for residents
and commuters accessing NBK-BR by active
transportation modes. Also included are policy
and operations projects that support and
improve transit accessibility; these projects set
the groundwork for large capital investments in
transit infrastructure recommended in the mid-
term years.
• Mid-Term Projects (6 to 20 years) includes major
capital investments in transit infrastructure that
support a mode shift from single occupancy
vehicles to mass transit. These investments are
consistent with Kitsap Transit’s Long Range Plan
and the region’s plans for growth and land use
(PSRC 2020). The benefit of these investments is
to develop a reliable transit system that connects
people within and between communities.
• Long-Term Projects (20+ years) includes projects
with recognized benefits to Bremerton livability
and to NBK-BR accessibility, but that may take
longer to complete. For example, completing
the implementation of the SR 303 Corridor
Study is included as a long-term project. The SR
303 Corridor Study includes a suite of phased
improvements that should be implemented as
recommended by that study, however the full
implementation of all recommendations will be
completed over the long term.
A summary of the proposed projects and expected
benefits of the Preferred Alternative are shown in
Figure ES-1. More detailed information about the
recommended projects and next steps can be found
in sections 7 and 8 of this document. Additionally,
one-page summaries of each project can be found in
Appendix O.PROJECT LEGENDRoadway improvement, intersection improvement, Intelligent Transportation Systems
(ITS), roundabout
NBK-BR improvement, NBK-BR gate improvement
Bus, ferry, carpool, park and ride, Transportation Management
Active transportation improvement, pedestrian improvement, bicycle improvement
Parking
Legend for Figure ES-1
CITY OF BREMERTON
Joint Compatibility Transportation Plan
ES-5
PREFERRED ALTERNATIVE PROJECT RECOMMENDATIONS
PROJECT BENEFITS
Safety Multimodal Livability Base Accessibility
Short-Term Projects (0 to 6 years)
C40 Naval Ave road re-channelization
C24 6th St road re-channelization
AT15 Shared-use path on 1st St
AT5 Sidewalk improvements near NBK-BR
C20 All-way pedestrian phases along
Burwell St
C35 Adaptive signal timing
C38 Bremerton Strategic Road Safety Plan
projects
AT48 Bicycle facilities on Shorewood Dr
C31 Pedestrian/bicycle improvements
near park and rides
AT27 Sidewalk improvements west of
Charleston Blvd
AT1 Support redevelopment of Gateway
Park and Ride
AT19 Covered bike parking near NBK-BR
B3 Decrease queuing at NBK-BR gates in
the morning
B18 Open Montgomery gate during both
peak hours
C14 Study new off-ramp from southbound
SR 3 to eastbound SR 304
CTR1 NBK-BR telework options
CTR3 Improve reimbursement for Worker/
Driver Bus program
CTR11 Improve technology for Worker/Driver
Bus program
CTR12 Study increased foot-ferry capacity for
Port Orchard
CTR4 Reduced bus fares
O6 Enforcement of HOV lanes
AT14 Support planning efforts for SR 3 in
Gorst
Figure ES-1. Preferred Alternative Summary
Note: PC - New/Expanded Parking, C - Capacity Projects, B: Projects on Base, T - Transit Service/Frequency,
AT - Active Transportation, PM - Parking Management/Policy, CTR - Programs/Technologies/Incentives to
Encourage Mode Shift, O - Other
CITY OF BREMERTON
Joint Compatibility Transportation Plan
ES-6
PREFERRED ALTERNATIVE PROJECT RECOMMENDATIONS
PROJECT BENEFITS
Safety Multimodal Livability Base Accessibility
Mid-Term Projects (6 to 20 years)
AT2 Mobility hub at Park Ave/4th St
AT55 Bike lane on Park Ave
C26 Traffic Management Center
C41 Roundabout at Naval Ave/6th St
PM15 Paid on-street parking downtown
PM2 Permit-only parking in residential areas
PC6 Silverdale and West Bremerton Park and
Rides
PC4 Projects for reliable non-auto travel
modes
PC3 PSIC and South Kitsap Park and Rides
T8 Shuttle service to downtown
T6 More and faster buses to NBK-BR
PM3 Transportation Management Association
C1 Improve SR 3/Kitsap Way interchange
C2 Roundabouts at SR 3/W Loxie Eagans
Blvd interchange
Long-Term Projects (20+ years)
C29 SR 303 Corridor Study projects
B7 New or improved parking on NBK-BR
installation
Figure ES-1. Preferred Alternative Summary (continued)
Note: PC - New/Expanded Parking, C - Capacity Projects, B: Projects on Base, T - Transit Service/Frequency,
AT - Active Transportation, PM - Parking Management/Policy, CTR - Programs/Technologies/Incentives to
Encourage Mode Shift, O - Other
INTRODUCTION1. INTRODUCTION
CITY OF BREMERTON
Joint Compatibility Transportation Plan
1-1
1. Introduction
Study Purpose and Background
The goal of this study is to create a responsive and
actionable plan to examine existing and future needs
for all transportation modes serving NBK-BR and
ensure that Bremerton’s growth will not impede NBK-
BR missions, which are critical to our Nation’s military
readiness. The plan defines solutions to improve
multimodal mobility, outline parking strategies, and
enhance Bremerton’s livability. Livability is a sum of
factors that add up to a community’s quality of life
such as comfortable walking, bicycling, kids playing
in the front yards, or simply sitting on the front porch
enjoying home. Success of this plan will ensure
NBK-BR meets its missions for national defense while
supporting Bremerton’s long-range growth needs.
This plan documents the specific purpose and
need for improvements, how alternatives were
developed, how the range of reasonable alternatives
were screened, how tension between NBK-BR base
accessibility and City livability goals was considered,
and how a Preferred Alternative was identified. It
builds on background planning, studies, parking
inventories, and other ongoing efforts, including
those prepared by the City, Kitsap Transit, NBK-BR,
Kitsap County, and other regional agencies, as well as
supplemental data collected by the
study team.
This final JCTP identifies short-, mid-, and long-term
capital and operational improvements prioritized
based on metrics determined during the study that
are clear, useful, and actionable.
Study Funding
The City of Bremerton was awarded a Department of
Defense (DOD) Office of Economic Adjustment grant
to undertake a comprehensive commuter traffic
plan. The award was the culmination of an effort,
led by Mayor Wheeler, that demonstrates the Navy’s
common interest with the City to resolve traffic and
parking conflicts. $675,000 in Department of Defense
funds and $75,000 of City funds were committed to
conduct this commuter transportation study.
Schedule
The JCTP study was kicked off in November 2020.
The schedule for the study process with the key
milestones is shown in Figure 1-1. Community
members were engaged as part of CSB meetings
that were scheduled to ensure that public input was
received at each of the study decision points.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
1-2
CSB O
Project Management
Milestones
Project Initiation
Draft JCTP
Final JCTP
Technical Tasks
Data Collection and Public Survey
Outline Issues
Preliminary Alternatives
Preliminary Screening
Preferred Alternative Selection
Cost Estimates
Phasing Plans
Documentation
Community Engagement
City Council
Community Sounding Board
Community Open House
Months
1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26
Preliminary Design
Preliminary Cost Estimates
On-Going Documentation Supports Final Report
Project Milestone Community Sounding Board Meeting Open House C City Council W Workshops
CSB 1 CSB 2W
O 1
C 1
W CSB 3
O 2
CSB 4
C 2
CSB 5 CSB 6
O 3
27 28 29 30 31 32 33 34 35 36
C3
End Date 12/2023
Figure 1-1. Project Schedule
2. STUDY AREA PROFILE
CITY OF BREMERTON
Joint Compatibility Transportation Plan
2-1
2. Study Area Profile
Study Area
The study area for this project is the area within
the City of Bremerton limits as well as the City
urban growth area (UGA). The study area is shown
in Figure 2-1. Areas outside the City, such as Port
Orchard, were included in some analyses as well.
The key corridors that provide access to Downtown
Bremerton and NBK-BR are State Route (SR) 303 and
SR 3 to the north, Charleston Boulevard (SR 304) to
the south, and Kitsap Way, 11th Street, 6th Street,
and Burwell Street (SR 304) within Downtown.
City of Bremerton
The City of Bremerton is located along Sinclair Inlet
on the eastern half of central Kitsap County. With a
land area of approximately 28 square miles and a
population of 44,640, Bremerton is the largest city
in Kitsap County. The City has a well-established
urban character and good connections to the rest
of the region, including ferry service to downtown
Seattle. NBK-BR resides in the urban context of
Downtown Bremerton. The Downtown core has
experienced significant revitalization, guided by
the City’s Downtown Regional Center Subarea Plan
and anchored by the ferry terminal and Bremerton
Transportation Center.
The City has a variety of diverse residential and
commercial neighborhoods near NBK-BR. The City
is committed to targeted growth within this area,
including increasing the number of housing units
and improving livability. An example of improved
livability is a location where people can feel
comfortable walking, bicycling, playing with their
kids in the front yard, or simply sitting on their front
porch enjoying their home. This type of livability
is at odds with the current parking situation that
encourages people who commute from out of town
to drive through neighborhoods and park in front of
people’s homes.
Downtown Bremerton is designated as a Regional
Growth Center by the Puget Sound Regional Council
(PSRC) VISION 2050, and the City has experienced
increased development along the perimeter of
NBK-BR. Data recently released by PSRC revealed
that Bremerton’s population grows each day by over
17,000 due to the daily influx of workers. This daily
increase of 44 percent results in traffic congestion
and parking conflicts that negatively impact the City
on a variety of levels, including economic viability,
quality of life, and safety.
NBK-BR and the City grew together over the last
century, with residential neighborhoods directly
abutting NBK-BR’s fence line. Much has been done
over the past several decades to help ease the
encroachment of urban development on NBK-BR,
including a joint land use study, studies of SR 3 and
SR 16, improvements to SR 304, various pedestrian
safety improvements, planning and development
policies that protect NBK-BR’s mission, a security
buffer on the east side of the installment that is
maintained by the City as a park, and commuter trip
reduction measures managed by Kitsap Transit and
NBK-BR. However, traffic congestion and parking
conflicts continue to put pressures on military
operations and quality of life for civilians and
military personnel.
Bremerton’s economy and livelihood are heavily
influenced by NBK-BR and the federal government’s
investment in operations at the facility. In 2018,
nearly 60 percent of the jobs in Bremerton were
categorized as government jobs. A substantial
portion of private sector jobs are also related to,
or dependent upon, NBK-BR. This highlights the
importance of the strong cooperative relationship
that has been developed between the City of
Bremerton and NBK-BR to find ways to improve
operations, connectivity, livability, and economic
vitality for the people who live and work in the area.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
2-2
SE Sedgwick Rd
SE Mile Hill DR
SW Bay
S
t Bay StBurwell St Warren AveWheaton WayJOINT COMPATIBILITY TRANSPORTATION PLAN
Study Area Map
City Boundary
City of Bremerton Urban Growth Area
Gorst
Naval Base Kitsap - Bremerton
Puget Sound Industrial Center (PSIC) - Bremerton
Naval Base Kitsap - Bremerton
Gold Mountain Golf Club
Sinclair I
nl
et
Dyes
Inlet
Port
Orchard
Charleston Blvd0 31½
Miles
Gorst
Bremerton
PSIC - Bremerton
Bremerton National Airport
N
303
310
3
3
16
160
166
3
Figure 2-1. Study Area
CITY OF BREMERTON
Joint Compatibility Transportation Plan
2-3
Naval Base Kitsap - Bremerton
NBK-BR is a Navy installation that can homeport
aircraft carriers and submarines and its major tenant
command is Puget Sound Naval Shipyard and
Intermediate Maintenance Facility (PSNS & IMF).
NBK-BR is located on the north side of the Sinclair
Inlet within the incorporated boundaries of the City
of Bremerton. NBK-BR encompasses approximately
400 acres of land, 400 acres of submerged marine
Right to Use lands, 3.4 miles of shoreline, 382
buildings, and six dry docks for wet or dry berthing
of all sizes and classes of vessels (Joint Land Use
Study, Kitsap County 2015). NBK-BR is one of
Washington State’s largest industrial installations.
The eastern portion of NBK-BR is a fenced, high-
security area known as the Controlled Industrial
Area. PSNS & IMF is the Navy’s primary provider for
the maintenance, repair, modernization, inactivation,
and recycling of ships, submarines, and aircraft
carriers in the Pacific Fleet. PSNS & IMF is the only
Navy shipyard on the west coast with a dry dock that
can accommodate the large size of nuclear-powered
aircraft carriers for repair and maintenance.
When two aircraft carriers are homeported, NBK-BR
can have approximately 23,000 daily employees who
travel to Downtown Bremerton, including civilians,
active duty, sailors, and contractors. NBK-BR is
accessed by seven external gates, as shown in Figure
2-2. The Missouri and Montgomery gates on the west
side are open to both vehicles and pedestrians but
are currently predominantly accessed by vehicles.
The Charleston and Naval gates on the west side and
Main (Bremerton) gate on the east side are accessed
by both vehicles and pedestrians. The State Street
and Burwell gates on the northeast side are accessed
by pedestrians only. The Farragut and Wycoff gates
provide access to the Controlled Industrial Area from
inside NBK-BR.
During the SR 303 Corridor study (City of Bremerton
2021), it was determined that nearly 74 percent of
the people who work in Bremerton live outside of
the City limits. In 2019, over 52 percent of people
working in the City, including many Bremerton
residents, were employed in government jobs.
Implementing livability improvements would benefit
not only Bremerton residents who work at NBK-BR,
but everyone who works in Bremerton.
Previous Studies
The study team collected previous studies to help
identify existing and future conditions for the
study area. The following studies were previously
completed in the study area and were considered by
the study team:
• Bremerton Non-Motorized Transportation Plan
(City of Bremerton 2007)
• Puget Sound Industrial Center – Bremerton
Subarea Plan (City of Bremerton 2012)
• City of Bremerton Comprehensive Plan (City of
Bremerton 2016a)
• City of Bremerton Americans with Disability Act
(ADA) Transition Plan (City of Bremerton 2016b)
• City of Bremerton Parking Study (City of
Bremerton 2017)
• Bremerton Citywide Transportation Concurrency
Review (City of Bremerton 2020a)
• SR 303 Corridor Study (City of Bremerton 2021)
• Bremerton Strategic Road Safety Plan (City of
Bremerton 2020b)
• Bremerton Strategic Road Safety Plan (City of
Bremerton 2022)
• Kitsap County Non-Motorized Facility Plan
(Kitsap County 2018)
• Joint Land Use Study Naval Base Kitsap and Naval
Magazine Indian Island (Kitsap County 2015)
• Kitsap County Comprehensive Plan (Kitsap
County 2016a)
• Kitsap Transit Long Range Transit Plan 2016–2036
(Kitsap Transit 2016b)
• Kitsap Transit Long Range Transit Plan 2022–2044
(Kitsap Transit 2022)
• Vehicle and Pedestrian Safety Study NBK
Bremerton (Naval Facilities Engineering
Command Northwest 2013)
• Bremerton Economic Development Study
(WSDOT 2012)
• SR 16, Tacoma Narrows Bridge to SR 3,
Congestion Study (WSDOT 2018)
• Washington State Ferries 2040 Long Range Plan
(WSDOT 2019)
CITY OF BREMERTON
Joint Compatibility Transportation Plan
2-4
Additional studies or projects in the study area that
were completed during the study timeframe or will
be in the near future:
• City of Bremerton Comprehensive Plan 2024
• HSIP III – Kitsap Way and Warren Avenue Traffic
Signal and Multimodal Safety Project
• East 11th and Perry Avenue Complete Streets
Improvement Project
• Washington Avenue and 11th Roundabout
These studies helped the team organize data
collection, identify existing and future needs, and
develop possible solutions for the study area. These
studies were reviewed for any identified issues and
needs as well as proposed improvements within the
study area. Many studies identified overall existing
conditions and agency goals but did not identify
specific issues or needs relevant to the JCTP planning
effort. The proposed improvements identified in
each study were documented, categorized, and
mapped in a project inventory, which is included in
Appendix A.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
2-5
Naval
Farragut
State Street
Burwell
Wycoff
Montgomery
Charleston
Main
Missouri
Naval
Farragut
State Street
Burwell
Wycoff
Montgomery
Charleston
Main
Missouri
Figure 2-2. NBK-BR Gate Locations
Source: Joint Land Use Study (Kitsap County 2015)
3. PUBLIC AND AGENCY INVOLVEMENT PROCESS
CITY OF BREMERTON
Joint Compatibility Transportation Plan
3-1
3. Public and Agency Involvement Process
Community Sounding Board
The JCTP was led by the City and advised by the
CSB, composed of leadership representatives from
affected agencies and governments. This group was
committed to a strong ongoing partnership and
fostering a regional perspective and approach to
the development of the JCTP. The following study
partners provided ongoing assistance to the study
team and participated in six CSB meetings between
January 2021 and May 2023. Additional agency
representatives participated in one or both of the
workshops in summer 2021 or in CSB meeting #4.
Project Management Team
• Katie Ketterer – City of Bremerton
• Tom Knuckey – City of Bremerton
• Shane Weber – City of Bremerton
Community Sounding Board
• Kevin Gorman – Bremerton City Council
• Michael Goodnow – Bremerton City Council
• David Emmons – Bremerton Chamber
of Commerce
• Denise Frey – Greater Kitsap Chamber
of Commerce
• Garrett Jackson – City of Bremerton
• Mayor Greg Wheeler – City of Bremerton
• Melinda Monroe – City of Bremerton
• Vicki Grover – City of Bremerton
• David Forte – Kitsap County
• Melissa Mohr – Kitsap County
• Ed Coviello – Kitsap Transit
• Allison Satter – NBK-BR
• Nicole Leaptrot-Figueras – NBK-BR
• Sara Oliveira – NBK-BR
• Fred Salisbury – Port of Bremerton
• George Mazur –WSDOT
• Matthew Pahs – WSDOT
• Pamela Vasudeva – WSDOT
Workshop Attendees
• Sara Felty – City of Bremerton Police
• Steffani Lillie – Kitsap Transit
• Michael Dobling – NBK-BR
• James Cook – PSNS
• Para Kan – PSNS
CSB Meeting #4 Special Attendees
• Kate Milward – City of Bremerton
• Ned Lever – City of Bremerton
• Charlotte Garrido – Kitsap County
• John Clauson – Kitsap Transit
• Captain Richard Massie – NBK-BR
• Rick Tift – PSNS
• James Cook – PSNS
• Para Kan – PSNS
The JCTP CSB was kicked off in January 2021. The
schedule for the CSB meetings and the topics
discussed are shown in Table 3-1. These meeting
dates were scheduled to ensure that public input
was received at each of the study decision points.
CSB meetings were used to gather information from
key representatives from various interested agencies,
organizations, and jurisdictions. Input was used to
guide decisions at key milestones. The presentations
from each CSB meeting are included in Appendix B.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
3-2
Table 3-1. Community Sounding Board Meeting Schedule
MEETING DATE MEETING TOPICS
CSB Meeting #1 January 28, 2021 Project overview and goals, community engagement, discuss early
project ideas
Workshop #1 June 16, 2021 Public information survey results, baseline conditions analysis and
identified needs, modal breakout rooms to brainstorm improvements
CSB Meeting #2 July 7, 2021 Public information survey results, baseline conditions analysis and
identified needs, preliminary Build Alternatives, screening approach
Workshop #2 August 13, 2021 First Level Screening results and draft Build Alternatives
CSB Meeting #3 October 26, 2021 Build Alternatives and Second Level Screening results
CSB Meeting #4 June 1, 2022
Discussion of two future visions: Livability Centered Vision or Capacity
Centered Vision
Note: This meeting included an expanded invitation list. The special
attendees are listed above.
CSB Meeting #5 September 21, 2022 Preferred Alternative projects and screening results
CSB Meeting #6 May 17, 2023 Updated Preferred Alternative projects and project phasing
Community Engagement
JCTP involved community stakeholder engagement
through several communications channels. Prior
to the beginning of the study, a community
engagement plan was developed to outline how
public input through equitable outreach would
support the study findings. The community
engagement plan included a preliminary list of
CSB members, a review of local demographics, a
list of outreach strategies, and key communication
milestones. More detailed information on the
outcomes of the community engagement for this
study is available in the Community Engagement
Summary in Appendix C.
Community engagement was conducted through
these open houses and events:
• Public Information Survey: February 3 to
February 28, 2021
• Online Open House: February 9, 2021
• Online Open House: December 6, 2021
• Online Open House: October 11, 2022
• 6th Street Road Re-channelization Public
Meeting: November 3, 2022
Demographics and Accessibility
Demographic information, including data related
to housing, vehicle access, veteran status, race and
ethnicity, age, income, disabilities, language, and
internet access was collected to determine how
to appropriately engage the community. The total
population of the study area is 51,100. Here are the
key findings from the demographic evaluation:
• 57 percent of households in Bremerton rent, and
43 percent live in housing they own.
• 14 percent of Bremerton households do not
have a vehicle and are likely transit-dependent—
much higher than the 5 percent of households
across the County without a vehicle.
• 6 percent identify as African American or Black,
twice the percentage compared with all of Kitsap
County. 11 percent identify as Hispanic or Latino.
• 37 percent of the population is at or below 200
percent of the poverty level, compared with 21
percent of the total Kitsap County population.
• 90 percent of the population of Bremerton
speaks only English, 4 percent speak Spanish,
and 3 percent speak Tagalog (including Filipino).
CITY OF BREMERTON
Joint Compatibility Transportation Plan
3-3
Public Information Survey
The City is committed to serving the needs of
everyone in the City and ensuring all community
members have a meaningful opportunity to
participate in City processes and decisions. The
City has a Title VI plan that outlines when project
materials should be translated. For this project,
translation services for all materials and meetings
were available upon request. In an effort to reach as
many people as possible, the following strategies
were used:
• Include a language block on project materials
and a project website for all language groups
that exceed 3 percent within the City, including
Spanish and Tagalog. This language block will
include a sentence to describe the project
and the materials so that people who use the
language understand what they are looking for.
• Upon request, provide interpretation for Spanish
and Tagalog and offer interpretation services on
request for other languages, including American
Sign Language, for all public meetings, including
virtual meetings.
• Upon request, provide real-time closed
captioning for all virtual public meetings.
• Encourage broad participation in public
meetings and outreach opportunities by
advertising on social media pages and
through collaboration with community-based
organizations.
• Distribute flyers and electronic notices to public
libraries, community centers, neighborhood
service centers, and other community
gathering places.
The public information survey was conducted from
February 3 to February 28, 2021. Survey topics
included trip origins and destinations, trip frequency,
trip purposes, mode choice, impact of COVID-19 on
travel behavior, barriers that would influence travel
mode after COVID-19, ideas on ways to improve
travel in Bremerton, and standard respondent
demographics. Survey respondents represented a
range of genders, ages, incomes, races, ethnicities,
and locations in the Bremerton area.
A total of 557 people completed the survey.
Key findings for travel pre-COVID, transit use,
and recommended improvements included
the following:
• Most respondents (85 percent) traveled for work,
but many also traveled for non-commute trips,
such as food or drink, errands, and social or
recreational activities.
• Most respondents (88 percent) traveled to or
within Bremerton, typically during peak hours.
• A majority (64 percent) drove alone. Few used
transit, such as bus (8 percent) or ferry (7 percent
to 8 percent), or other alternatives to single-
occupancy vehicles, such as walking (5 percent
from home to workplace, 11 percent as part of
commute), carpooling (10 percent), Worker/
Driver Bus program (10 percent), or bicycling
(7 percent).
• According to respondents, the top barriers to
using transit were “riding the bus is inconvenient
or takes too long” (52 percent), “I like the
convenience of having my car” (47 percent), and
“I have to make stops on my way to/from work”
(36 percent).
• According to respondents, the most important
projects to improve travel in Bremerton were
roadway capacity (adding lanes – 53 percent),
NBK-BR access (get through the gates more
quickly – 43 percent), active travel (bicycle
and pedestrian improvements – 34 percent),
and roadway efficiency (signal timing, signal
coordination – 29 percent).
The study team used this information to start
outlining various improvements that would address
the barriers for improved travel. The study team
needed to consider the public input while balancing
the City goals to improve livability and NBK-BR’s
need to maintain mission ready accessibility to
the Base.
Virtual Open Houses
The study team held three virtual open houses that
offered an accessible way for the City to introduce
the JCTP study to community members when in-
person gatherings were restricted and discouraged
due to COVID-19. The study team also held a public
CITY OF BREMERTON
Joint Compatibility Transportation Plan
3-4
meeting specifically for the 6th Street Road Re-
channelization on November 3, 2022. The meetings
were interactive, allowing attendees to view a
presentation and leave comments through either the
comment box or verbally during the question-and-
answer portion of the meeting.
• Open House #1: The objectives were to introduce
the study and gather input about the existing
and future conditions and opportunities for
improvements. Key themes from the participant
questions and comments were concerns about
pedestrian safety and traffic issues in the Gorst
area, traffic congestion along SR 304 and SR
3, the impact of the pandemic on the study
approach, and adding more affordable
parking Downtown.
• Open House #2: The objectives were to share
the project goals and scheduled updates, report
findings from the public information survey, and
share early findings of the project alternative
analysis. Key themes from the participant
questions were about bicycle facilities and
storage near NBK-BR, private developers for
parking garages Downtown, and shuttles in
Downtown to transport people to NBK-BR.
• Open House #3: The objectives were to share the
evaluation process that led to the preliminary
Preferred Alternative and the projects included in
the preliminary Preferred Alternative. Key themes
from the participant questions were about the
parking management zone, intersection capacity
projects, project phasing, and support and input
on bicycle facilities.
• 6th Street Road Re-channelization Public
Meeting: The objectives were to share the
proposed east-west bike corridor and roadway
re-channelization project. The participants were
in support of the project.
4. EXISTING CONDITIONS ANALYSIS
CITY OF BREMERTON
Joint Compatibility Transportation Plan
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4. Existing Conditions Analysis
Methods and Assumptions
A Methods and Assumptions Memo was drafted in
March 2021 and periodically updated as the study
progressed. The memo summarized data collection
efforts, travel demand forecasting, methodology
for baseline conditions analysis (traffic operations,
safety, active transportation, and parking) and
methodology for screening metrics (travel time,
travel time reliability, and person mobility). The
Methods and Assumptions Memo is included in
Appendix D.
Mode Share
Mode share is the share of people using a particular
mode of transportation. Mode share was collected
for NBK-BR and Kitsap County to understand existing
travel habits in the study area and how they compare
to the region.
The State Commute Trip Reduction (CTR) Law affects
worksites with 100 or more full-time employees.
Worksites conduct CTR surveys every other year
to measure vehicle miles traveled and the mode
choices of their employees. The Naval Supply
Systems Command Fleet Logistics Center Puget
Sound and the U.S. Navy completed CTR surveys in
2012, 2014, 2016, and 2018, and the data were used
to estimate mode share for NBK-BR, as shown in
Figure 4-1.
The Kitsap County (County) mode share from PSRC
is shown in Figure 4-2. Compared to the rest of the
County, there is a higher percentage people traveling
to NBK-BR that use shared ride and transit and a
lower percentage that walk, bicycle, or drive alone.
Parking
The City of Bremerton Parking
Study (City of Bremerton 2017) was
conducted to better understand
parking conditions in Downtown,
including available parking
facilities, occupancy, duration, turnover, and
movement analysis showing where vehicles moved
throughout the day.
In Downtown, there is both on-street parking and
off-street parking. The “85 percent rule” is a common
metric used to assess and manage demand for on-
street parking. Parking occupancy of 85 percent or
below ensures there is at least one stall available on
each block. Occupancies above 85 percent indicate
opportunities to further manage parking demand by
decreasing time limits, increasing pricing, or using
other strategies.
On average throughout the collection area, on-street
parking occupancy was between about 50 percent
and 70 percent, with two 68 percent peaks shown
at midday and the end of the work day, as shown in
Figure 4-3. Occupancy for on-street parking on many
streets near NBK-BR exceeded 85 percent.
Occupancy for off-street facilities peaked at 65
percent, which indicates overall system capacity,
even if certain locations are experiencing higher
demand, as shown in Figure 4-4. The data collection
indicated that high demand for off-street parking
was scattered throughout the downtown core, near
the ferry terminal, and near NBK-BR. Some additional
off-street facilities showed high use, some of which
were smaller lots serving local businesses. Parking for
employees and commuters tended to have higher
occupancy with less variation throughout the day.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
4-2
Figure 4-1. NBK-BR Mode Share
18%
62%
14%
6%
15%
69%
6%
10%
Drive Alone Shared Ride Transit Walk / Bike
NBK-BR
KitsapCounty
Figure 4-2. Kitsap County Mode Share
CITY OF BREMERTON
Joint Compatibility Transportation Plan
4-3
Within NBK-BR, there are about 8,200 parking stalls,
half of which are available to civilians and half
are available to active duty. This number includes
the parking garage in Downtown located at 4th
Street and Park Avenue that has approximately
960 parking stalls dedicated to NBK-BR civilians.
Some of these spaces are restricted for carpool/
vanpool and are ADA-accessible stalls. According
to NBK-BR, the available parking on NBK-BR and at
the off-installation parking garage in Downtown is
fully utilized. On a typical day, over 6,300 NBK-BR
commuter vehicles park outside of the gates during
the peak period.
Key Findings
The following summarizes the key findings of the
parking evaluation.
• On-street blocks near NBK-BR that have an
occupancy of 85 percent and above signal that
parking demand exceeds parking supply. Much
of the available off-street parking also has high
occupancies in commuter parking areas.
• Parking duration is over 6 hours on many
residential streets, despite time limits of 1
to 2 hours for non-permit holders. There is a
significant vehicle movement during the day
known as the “Bremerton Shuffle,” which is likely
a result of long-term users seeking to avoid time
limits. This means neighborhood residents are
not able to park at or near their homes during
the day.
• The City has increased parking enforcement in
recent years, so commuters are now parking in
neighborhoods further out and are willing to
walk farther to access NBK-BR.
• The current parking in Downtown Bremerton
is contrary to a user-friendly, convenient, and
enforceable parking system. The presence and
high occupancy of private Downtown surface
parking lots prevents redevelopment of these
surface lots for more active Downtown uses.
• There is limited parking on NBK-BR and the off-
installation parking garage in Downtown that is
fully utilized, according to NBK-BR. There are no
plans to significantly increase parking on NBK-
BR. Over 6,300 NBK-BR commuter vehicles park
outside of the gates during the peak period and
then the occupants walk into NBK-BR.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
4-4
Figure 4-3. On-Street Parking Occupancy
Source: Kimley Horn, 2016
CITY OF BREMERTON
Joint Compatibility Transportation Plan
4-5
Figure 4-4. Off-Street Parking Occupancy
Source: Kimley Horn, 2016
CITY OF BREMERTON
Joint Compatibility Transportation Plan
4-6
Traffic Operations
Traffic Volumes
As discussed in the Methods and Assumptions Memo
(Appendix D), AM and PM peak hour traffic volumes
were collected for each of the study intersections
from historic City counts, the SR 303 Corridor Study
(City of Bremerton 2021), and new counts collected
on January 26, 2021. In the morning, most of the
intersections in Downtown have a peak hour of 6:15
to 7:15 a.m. due to shifts starting at NBK-BR, with the
AM peak hour period occurring from 5 to 9 a.m. In
the evening, the system peak hour is 4 to 5 p.m., with
the PM peak period occurring from 2 to 6 p.m. The
peak hour intersection traffic volumes were used to
determine the distribution of traffic coming in and
out of Downtown Bremerton. These distributions for
the Existing Conditions AM and PM peak hours are
shown in Figure 4-5.
As can be seen in Figure 4-5, the highest single
percentage (30 percent) of people coming into
the City of Bremerton come from the south using
Charleston Boulevard. People coming from SR 3
and Kitsap Way add up to 22 percent, and another
23 percent come from SR 303 north of the Warren
Avenue Bridge. These three primary access locations
account for 75 percent of the people destined to
various locations within the City. This data helped
the study team understand where to focus attention
to improve the transportation network.
During the AM peak period, 60 percent of traffic
coming into Bremerton is attributed to NBK-BR.
According to NBK-BR employee numbers and mode
share, 80 percent of NBK-BR employees commute
by driving alone or in a shared ride, with a total
of 18,500 people traveling to NBK-BR by privately
owned vehicle during the AM peak period.
It should be noted that outside of Downtown
Bremerton, there is traffic congestion through Gorst
and through the SR 3/SR 304 interchange. If the
Gorst bottleneck is removed, more traffic would
reach Downtown Bremerton faster during the AM
peak, resulting in higher levels of congestion in
Downtown Bremerton. In the PM Peak hour, traffic
traveling through Gorst would exit the City more
quickly bringing congestion relief and air
quality benefits.
Operations Analysis
The study team evaluated 58 intersections to
understand traffic patterns and operations and
consider solutions. The intersections were analyzed
for level of service (LOS), volume-to-capacity
(v/c) ratio, queueing, and travel times. The v/c ratio
is primarily used as a measure of the effectiveness
of roundabouts, which are absent in Existing
Conditions. Additional information on the software
and measures of effectiveness used in the traffic
operations analysis is discussed in the Methods and
Assumptions Memo (Appendix D).
More detailed information on the traffic operations
results is included in Appendix E, and the key
findings are summarized in Section 4.
Level of Service
LOS is a common method for measuring traffic
operations, defined in terms of average intersection
delay on a scale ranging from A to F. The Existing
Conditions AM and PM peak hour LOS for the study
intersections are shown in Figure 4-6 and Figure
4-7. According to the Transportation Appendix
of the City of Bremerton 2016 Comprehensive
Plan (City of Bremerton 2016), the City has a LOS
standard of LOS E or better, except along routes that
are a WSDOT Highway of Statewide Significance.
Three routes within the City are Highways of
Statewide Significance: SR 3, SR 304, and SR 310. For
intersections along the mainline of these routes,
the LOS standard is LOS D. SR 303 is classified as a
Highway of Regional Significance, with a level of
service standard of LOS E.
Table 4-1 shows the intersections that are exceeding
LOS standards during the Existing Conditions peak
hours. Additional LOS information is included
in Appendix E. These intersections are mostly
exceeding LOS standards due to large volumes
traveling towards Downtown during the AM peak
hour and away from Downtown during the PM
peak hour and insufficient roadway capacity to
accommodate these volumes. At the two-way stop-
controlled intersections, vehicles on minor streets
are delayed by the large volumes on major streets.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
4-7
Table 4-1. Existing Conditions Traffic Operations Results – Exceeding LOS Standards
ID INTERSECTION
CONTROL
TYPE
LOS
STANDARD
EXISTING CONDITIONS 2020
AM PEAK PM PEAK HOUR
LOS Delay (s)LOS Delay (s)
2 Auto Center Way/SR 3 SB Off-Ramp at
Kitsap Way (SR 310)Signal D D 46 E 69
8 Marine Dr at Kitsap Way (SR 310)Signal D F 80 E 75
22 Warren Ave (SR 303) at 11th St Signal E E 50 F 88
34 Washington Ave at Manette Bridge Signal E F 214 E 64
48 National Ave at Loxie Eagans Blvd Signal E B 20 F 83
104 SR 3 SB Ramps at Loxie Eagans Blvd TWSC D F 82 F 508
135 Chester Ave at Burwell St (SR 304)TWSC D D 29 E 43
LOS = level of service; SB = southbound; TWSC = two-way stop-controlled
Note: Orange shading indicates LOS E and red shading indicates LOS F
Queueing
Another measure of effectiveness is intersection queue
lengths. Queues that are exceeded only 5 percent of
the time are 95th percentile queue lengths. Multiple
intersections have queue lengths that exceed the
available storage capacity during the AM and PM peak
hour. These queues lengths spill back into adjacent
intersections and contribute to congestion. Vehicle
queues at NBK-BR entry gates sometimes cause back-
ups on City streets. Additionally, there are multiple
locations where queues exceed available storage
capacity, including intersections that operate within City
standards. Long queues block business driveway access,
increase travel times for both GP traffic and transit, and
can lead to cut-through traffic in neighborhoods.
Queue lengths are included in Appendix E.
Travel Time
Another method of measuring traffic operations is
travel time. GP traffic travel times for key routes were
calculated using intersection delay and travel speeds
between intersections and calibrated using existing Wi-Fi
travel time data collected by the City in January 2018.
Transit travel times were calculated by adding estimated
dwell time at bus stops and time to access park and rides
as applicable.
The travel times for inbound traffic in the Existing
Conditions AM peak hour are shown in Figure 4-8 and
the travel times for outbound traffic in the Existing
Conditions PM peak hour are shown in Figure 4-9. During
the AM peak hour, GP traffic travel times range from 3 to
7 minutes, and during the PM peak hour, GP traffic travel
times range from 3 to 10 minutes.
Key Findings
The following summarizes the key findings of the
peak hour traffic operations analysis.
• During the peak period, 60 percent of traffic
coming into Bremerton is attributed to NBK-
BR and 80 percent of NBK-BR employees
commute by driving alone or in a shared
ride, with a total of 18,500 people traveling
to NBK-BR by privately owned vehicle during
the AM peak period.
• Several study intersections are exceeding
LOS standards during either the AM peak
hour, the PM peak hour, or both. This is
mostly due to large volumes traveling to and
from Downtown along the major corridors.
• Vehicle queues at NBK-BR entry gates
sometimes cause back-ups on City streets.
Additionally, there are multiple locations
where queues exceed available storage
capacity, including intersections that operate
within City standards. Long queues block
business driveway access, increase travel
times for both GP traffic and transit, and can
lead to cut-through traffic in neighborhoods.
• Outside of Downtown Bremerton, there is
traffic congestion through Gorst and through
the SR 3/SR 304 interchange. If the Gorst
bottleneck is removed, more traffic would
reach Downtown Bremerton faster, resulting
in higher levels of congestion in Downtown
Bremerton.
4-8
CITY OF BREMERTON
Joint Compatibility Transportation Plan
PINE RD11TH ST
BURWELL ST (SR 304)
SHERIDAN RD
LEBOBL
V
D
NE RIDDELL RD
SYLVAN WAY WHEATON WAY (SR 303)ENTRAL6TH ST WHEATONWAYSR
3 MAY STCHARLESTONBLVDCITY OF BREMERTON
0 ½¼MilesN
Existing Conditions
X%
City of Bremerton Urban Growth Boundary
City Limits
Naval Base Kitsap - Bremerton
Inbound Vehicle Percentage (AM Peak Hour)
Outbound Vehicle Percentage (PM Peak Hour)X%
Peak Hour Vehicle Volume Distribution
Percentage of inbound or outbound vehicle volumes calculated
from peak hour intersection turning movements.
12%
7%
15%
5%
23%
24%
30%
24%
9%
10%
3%
4%
3%
7%KITSAP
WAY10%14%
Figure 4-5. Existing Vehicle Volume Distribution
4-9
CITY OF BREMERTON
Joint Compatibility Transportation Plan
KITSAP
WAY(SR310
)PINE RD11TH ST
BURWELL ST (SR 304)
SHERIDAN RD
LEBOBL
V
D
NE RIDDELL RD
SYLVAN WAY
WARREN AVE (SR 303)WHEATON WAY (SR 303)6TH ST WHEATONWAYSR 3MAY STCHARLESTONBLVD2 3 4 5
6 7
8 10
11 12 13 14 17 18 19 20
21
22
23
24
25
26
28
29
30 31 32 33
34
35 36 37 40 41 42 43
44
45
46 47 48
93
94
104 105
307
316
317
318
319
400
401
404
403 402
16
27
38 135
CITY OF BREMERTON
NEAR SR 3 / SR 16
BREMERTON CORESR 3202
216
NEAR SR 3 / SR 16
0 1½Miles
0 ½¼MilesN
Existing ConditionsLevel of Service & Queue Lengths
PM Peak Hour
LOS F
LOS E
LOS D
LOS A - C
Signalized Intersection
Unsignalized Intersection
Intersection numbers#
Naval Base Kitsap - Bremerton
City of Bremerton Urban Growth Boundary
City Limits
Figure 4-6. Existing Level of Service – AM Peak Hour
4-10
CITY OF BREMERTON
Joint Compatibility Transportation Plan
KITSAP
WAY(SR310
)PINE RD11TH ST
BURWELL ST (SR 304)
SHERIDAN RD
LEBOBL
V
D
NE RIDDELL RD
SYLVAN WAY
WARREN AVE (SR 303)WHEATON WAY (SR 303)6TH ST WHEATONWAYSR
3 MAY STCHARLESTON BLVD2 3 4 5
6 7
8 10
11 12 13 14 17 18 19 20
21
22
23
24
25
26
28
29
30 31 32 33
34
35 36 37 40 41 42 43
44
45
46 47 48
93
94
104 105
307
316
317
318
319
400
401
404
403 402
16
27
38 135
CITY OF BREMERTON
NEAR SR 3 / SR 16
BREMERTON CORESR 3202
216
NEAR SR 3 / SR 16
0 1½Miles
0 ½¼MilesN
Existing ConditionsLevel of Service & Queue Lengths
PM Peak Hour
LOS F
LOS E
LOS D
LOS A - C
Signalized Intersection
Unsignalized Intersection
Intersection numbers#
Naval Base Kitsap - Bremerton
City of Bremerton Urban Growth Boundary
City Limits
Figure 4-7. Existing Level of Service – PM Peak Hour
4-11
CITY OF BREMERTON
Joint Compatibility Transportation Plan
KITSAP
WAY(SR310
)PINE RD11TH ST
BURWELL ST (SR 304)
SHERIDAN RD
LEBOBL
V
D
NE RIDDELL RD
SYLVAN WAY
WARREN AVE (SR 303)WHEATON WAY (SR 303)6TH ST WHEATONWAYSR
3 MAY STCHARLESTONBLVDCITY OF BREMERTON
0 ½¼MilesN
Existing Conditions
Travel Time Estimates - AM Peak
Kitsap Way (SR 310)
City of Bremerton Urban Growth Boundary
City Limits
Naval Base Kitsap - Bremerton
11th Street 6th Street
Burwell Street (SR 304)Warren Avenue (SR 303)Charleston Boulevard
Travel Time Along Route
Free Flow
(Minutes and Seconds)
+ Dierence from Free Flow
+ Dierence from Free Flow
Vehicle
Transit
02:20
03:30 + 01:10
06:10 + 03:50
02:10
03:20 + 01:10
+ 02:3004:40
02:20
03:30 + 01:10
+ 05:2007:20
02:20
03:20 + 01:00
+ 04:2006:40
06:10
07:30 + 01:20
+ 06:2012:30
01:50
03:10 + 01:20
+ 02:4004:30
Figure 4-8. Existing Travel Times – AM Peak Hour
4-12
CITY OF BREMERTON
Joint Compatibility Transportation Plan
KITSAP
WAY(SR310
)PINE RD11TH ST
BURWELL ST (SR 304)
SHERIDAN RD
LEBOBL
V
D
NE RIDDELL RD
SYLVAN WAY
WARREN AVE (SR 303)WHEATON WAY (SR 303)6TH ST WHEATONWAYSR 3MAY STCHARLESTONBLVDCITY OF BREMERTON
0 ½¼MilesN
Existing Conditions
Travel Time Estimates - PM Peak
Kitsap Way (SR 310)
City of Bremerton Urban Growth Boundary
City Limits
Naval Base Kitsap - Bremerton
Travel Time Along Route
Free Flow
11th Street 6th Street
Burwell Street (SR 304)Warren Avenue (SR 303)Charleston Boulevard
(Minutes and Seconds)
02:20
04:30 + 02:10
06:00 + 03:40
02:10
03:10 + 01:00
+ 02:3004:40
02:20
03:00 + 00:40
+ 05:3007:50
02:20
03:20 + 01:00
+ 04:0006:20
06:10
9:30 + 03:20
+ 08:4014:50
01:50
03:20 + 01:30
+ 01:3003:20
+ Dierence from Free Flow
+ Dierence from Free Flow
Vehicle
Transit
Figure 4-9. Existing Travel Times – PM Peak Hour
CITY OF BREMERTON
Joint Compatibility Transportation Plan
4-13
Transit
Public transit in Bremerton
consists of fixed-route bus,
worker/driver bus, and ferry service provided by
Kitsap Transit, Mason Transit, and Washington State
Ferries. According to NBK-BR employee numbers
and mode share, 14 percent of NBK-BR employees
commute by fixed-route bus, worker/driver bus, or
ferry, with a total of 3,000 people traveling to NBK-BR
by transit during the AM peak period.
Transit Facilities
The Bremerton Ferry Terminal is a major
transportation hub for Kitsap County, with the
Bremerton to Seattle ferry carrying almost 2.9 million
riders in 2018. The ferry terminal also provides
passenger-only connections to Seattle, Port Orchard,
and Annapolis through the Kitsap Transit fast ferry
and local ferry routes. The Bremerton Transportation
Center is adjacent to the Bremerton Ferry Terminal
and provides connections to key local and regional
destinations through 12 Kitsap Transit bus routes and
2 Mason Transit bus routes.
Kitsap Transit operates several park and ride (P&R)
lots within City limits: Gateway P&R at 6th Street
and N Montgomery Avenue, Bremerton United
Methodist Church at Marine Drive and Dora Avenue,
and Wheaton Way Transit Center at E Broad Street
and Wheaton Way (SR 303). There are also several
P&Rs outside of the City limits that provide service to
commuters. These P&Rs are accessed by both fixed-
route buses and worker/driver buses.
There are no dedicated transit lanes along roadways
in Bremerton. There is a southbound high-occupancy
vehicle (HOV) lane along Charleston Boulevard (SR
304) that can be used by privately-owned vehicles
and transit.
Fixed-Route Buses
Kitsap Transit operates several bus routes, mostly
along the main travel corridors in Downtown
Bremerton: Warren Avenue (SR 303), Burwell Avenue
(SR 304), 6th Street, 11th Street, and Kitsap Way.
During peak periods, headways range from 30 to
75 minutes. According to the National Association
of City Transportation Officials, moderate-volume
transit systems generally have 5- to 10-minute
headways during peak periods, and high-volume
transit systems generally have 2- to 6-minute
headways (NACTO 2016). Even for a low-volume
transit system like Kitsap Transit, headways would
be expected to be closer to 15 minutes during
peak periods.
The fixed-route bus network is shown in Figure 4-10.
This figure also shows the capacity and occupancy
for the three P&Rs located within City limits. The
transit service shown in Figure 4-10 provides good
coverage for travel in and around the City. For
people who live south of the City, there are no fixed
transit routes that provide direct access to the City
or NBK-BR. With 30 percent of the people driving
to Bremerton from the south, this highlights an
opportunity to consider new fixed-route service to
and from the south.
Worker/Driver Buses
Kitsap Transit also operates a Worker/Driver Bus
program for employees traveling to and from NBK-
BR. Buses serve both NBK-BR and NBK-Bangor north
of the City limits and are open to the general public
outside of the military bases. The buses operate like
a large vanpool, with the driver boarding a bus near
their home and picking up coworkers on the way
to work. For each worker/driver route, there is one
trip to work during the morning commute and one
trip from work during the evening commute. Kitsap
Transit has 32 worker/driver routes and about 1,500
NBK-BR employees use it to commute to NBK-BR.
Eligible federal employees can ride any of Kitsap
Transit’s services for free through the Federal
Transportation Incentive Program. Employees must
purchase a pass through the incentive program
and load it onto an ORCA card1 for use on worker/
driver buses and other public transit services, and
then submit for reimbursement. Previously, eligible
federal employees were automatically given free
access to the worker/driver program.
1 An ORCA card is an electronic fare payment system accepted
on Kitsap Transit, Pierce Transit, King County Metro Transit, Community
Transit, Sound Transit, Everett Transit, and the Washington State Ferries.
It allows riders to load fare product, like a monthly pass, onto their card
and tap their card aboard a bus, train, or ferry to pay their fare. Instead
of carrying different passes for different transit systems, riders carry just
one card.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
4-14
The worker/driver bus network is shown in Figure
4-11. This figure also shows the capacity and
occupancy for the three P&Rs located within City
limits. It can be seen in Figure 4-11 that the worker/
driver bus provides service to areas south of
Bremerton using SR 3 through Gorst to get north to
NBK-BR using the Charleston Boulevard (SR 304) exit.
Transit Operations
The travel times for inbound traffic in the Existing
Conditions AM peak hour are shown in Figure 4-8
and the travel times for outbound traffic in the
Existing Conditions PM peak hour are shown in
Figure 4-9. Transit travel times are up to 160 percent
longer than GP traffic travel times due to dwell times
for unloading and loading passengers and time
spent decelerating and accelerating at transit stops.
Travel times between transit stops are the same as
GP traffic due to a lack of dedicated transit facilities
such as a business access transit (BAT) lane or transit
signal priority (TSP).
Key Findings
The following summarizes the key findings of the
transit evaluation.
• 14 percent of NBK-BR employees commute by
fixed-route bus, worker/driver bus, or ferry, with
a total of 3,000 people traveling to NBK-BR by
transit during the AM peak period.
• Buses use the same facilities as GP traffic
and have limited frequency, which does not
encourage transit use.
• Existing P&Rs in West Bremerton and Silverdale
do not have adequate capacity and are not able
to meet the transit demand in these locations.
• The current Federal reimbursement system
for transit passes to NBK-BR employees has a
negative impact on enrollment in the worker/
driver bus program.
4-15
CITY OF BREMERTON
Joint Compatibility Transportation Plan
KITSAP
WAY(SR310
)PINE RD11TH ST
BURWELL ST (SR 304)
SHERIDAN RD
LEBOBL
V
D
NE RIDDELL RD
SYLVAN WAY
WARREN AVE (SR 303)WHEATON WAY (SR 303)6TH ST WHEATONWAYSR 3MAY STCHARLESTONBLVDCITY OF BREMERTON
NEAR SR 3 / SR 16
BREMERTON CORESR 3NEAR SR 3 / SR 16
0 1½Miles
0 ½¼MilesN
Existing Conditions
City of Bremerton Urban Growth Boundary
City Limits
Naval Base Kitsap - Bremerton
Bus Routes (Kitsap Transit)
Kitsap Transit Fast Ferry
Park & Ride
Kitsap Fast Ferry Terminal
Bus Stops
P&R
Route 3 - Direct Service to Bremerton Ferry Terminal
Bus Routes (Mason Transit)
Regional Transit Network
P&R
P&R
P&R
Park and Ride Location Spaces Available
Wheaton Way P&R 162
Bremerton United Methodist
Church 53
Gateway Center 104
N/A
60%
60%
N/A
47%
84%
2016
Average Utilization
2019
Average Utilization
Figure 4-10. Fixed-Route Bus Network
4-16
CITY OF BREMERTON
Joint Compatibility Transportation Plan
KITSAP
WAY(SR310
)PINE RD11TH ST
BURWELL ST (SR 304)
SHERIDAN RD
LEBOBL
V
D
NE RIDDELL RD
SYLVAN WAY
WARREN AVE (SR 303)WHEATON WAY (SR 303)6TH ST WHEATONWAYSR 3MAY STCHARLESTONBLVDCITY OF BREMERTON
NEAR SR 3 / SR 16
BREMERTON CORESR 3NEAR SR 3 / SR 16
0 1½Miles
0 ½¼MilesN
Existing Conditions
Kitsap Transit Worker / Driver Network
City of Bremerton Urban Growth Boundary
City Limits
Naval Base Kitsap - Bremerton
Worker / Driver Routes
Stops
P&R
P&R
P&R
Park and Ride Location Spaces Available
Wheaton Way P&R 162
Bremerton United Methodist
Church 53
Gateway Center 104
N/A
60%
60%
N/A
47%
84%
2016
Average Utilization
2019
Average Utilization
Figure 4-11. Worker/Driver Bus Network
CITY OF BREMERTON
Joint Compatibility Transportation Plan
4-17
Active Transportation
Active transportation is defined as
using a human-scale and often human-
powered means of travel to get from one
place to another and includes walking;
bicycling; using a mobility assistive or adaptive
device, such as a wheelchair or walker; using
micromobility devices, such as skateboards or foot
scooters; and using electric-assist devices, such as
e-bikes and e-foot scooters.
Active Transportation Facilities
The existing pedestrian facilities are shown in Figure
4-12, and the existing bicycle facilities are shown in
Figure 4-13.
The existing bicycle facilities, sidewalks, and
crossings in the study area were evaluated to
determine the existing active transportation
network. Data for the existing sidewalk gaps and
obstructions were documented using a geographic
information system provided by the City. Sidewalks
are classified as one of three levels: poor or very
poor; fair or marginal; and good, very good, or
excellent. Many of the sidewalks near NBK-BR are
classified as marginal or worse. Additionally, many
sidewalks are narrow and have obstructions such as
utility poles and fire hydrants. There is also a lack of
buffers between sidewalks and travel lanes.
Within Downtown Bremerton, there are very few
bicycle facilities, with bike lanes along Kitsap Way,
Charleston Boulevard (SR 304), and Washington
Avenue. The existing bicycle facilities are located on
high-speed and high-volume roadways that lack a
buffer between cyclists and vehicles. There is a lack
of wayfinding to help cyclists find marked routes and
a lack of commuter cyclist amenities, like bike racks
and storage. There are no regional bicycle facilities
that provide opportunities for people to cycle into
Downtown Bremerton or NBK-BR. Additionally, the
existing bicycle corridors shown in Figure 4-13 are
fragments that do not provide direct access to key
destinations or origins.
Generally, there are gaps in the sidewalk and
bicycle network, limited street connectivity in West
Bremerton and Manette, difficult roadway crossings,
and barriers, such as surrounding water, fences
around NBK-BR, and busy arterials, like SR 303 and
Kitsap Way. The poor existing facilities and poor
network connectivity can contribute to perceived
safety issues for active transportation users and do
not encourage walking or bicycling to and within
Downtown Bremerton.
Many large employers provide easy access for people
to drive onto the site and either park or get dropped
off by another person. NBK-BR is a controlled facility
that does not facilitate easy drop-offs or pick-ups,
and there are no designated drop-off or pick-up
locations adjacent to the NBKBR gates. Dropoff or
pick-up must occur on City streets or using one of
the surface parking lots.
Active Transportation Volumes
Data for the number of bicyclists and pedestrians
during the Existing Conditions AM and PM peak
hours was collected at the same time as the
intersection turning-movement counts. It should be
noted that low active transportation use does not
equate to low demand when active transportation
networks are incomplete or are high stress. In
other words, many more people might want to use
active transportation modes like walking, bicycling,
boarding, or other rolling methods to reach their
destinations, but because adequate facilities are not
available, they choose to drive or ride transit instead.
Based on counts at the NBK-BR entry gates, there
are 10,000 incoming daily pedestrians that travel
through the NBK-BR gates to access NBKBR. 8,500
of these pedestrians are assumed to be NBK-BR
employees that park Downtown and walk into NBK-
BR, while the remaining 1,500 are NBK-BR employees
that travel by active transportation, bus, or ferry to
NBK-BR. This is a mix of NBK-BR commuters who
travel to Bremerton by transit, walking, or bicycling
as well as commuters who park in Downtown
Bremerton and walk into NBK-BR. Bicycling is not
allowed within the Controlled Industrial Area, so
bicycling commuters must dismount and walk their
bicycles through the gates. The number of daily
inbound pedestrians that travel through each NBK-
BR gate is shown in Figure 4-14.
According to NBK-BR employee numbers and mode
share, 14 percent of NBK-BR employees commute
by walking or bicycling, with a total of 1,400 people
traveling to NBK-BR via active transportation during
the AM peak period of 5 to 9 a.m.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
4-18
Key Findings
The following summarizes the key findings of the
active transportation evaluation.
• 14 percent of NBK-BR employees commute by
walking or bicycling, with a total of 1,400 people
traveling to NBK-BR via active transportation
during the AM peak period.
• Many sidewalks are in poor condition, are
narrow, and have obstructions such as utility
poles and fire hydrants. There is a lack of buffers
between sidewalks and travel lanes.
• The existing bicycle facilities are located on
high-speed and high-volume roadways that lack
a buffer between cyclists and vehicles. There is
a lack of wayfinding to help cyclists find marked
routes and a lack of commuter cyclist amenities
like bike racks and storage.
• There are gaps in the sidewalk and bicycle
network, limited street connectivity in West
Bremerton and Manette, difficult roadway
crossings, and barriers, such as surrounding
water, fences around NBK-BR, and busy arterials,
like SR 303 and Kitsap Way.
• The poor existing facilities and poor network
connectivity can contribute to perceived safety
issues for active transportation users and do not
encourage walking or bicycling to and within
Downtown Bremerton.
4-19
CITY OF BREMERTON
Joint Compatibility Transportation Plan
KITSAP
WAY(SR310
)PINE RD11TH ST
BURWELL ST (SR 304)
SHERIDAN RD
LEBOBL
V
D
NE RIDDELL RD
SYLVAN WAY
WARREN AVE (SR 303)WHEATON WAY (SR 303)6TH ST WHEATONWAYSR 3MAY STCHARLESTONBLVDCITY OF BREMERTON
NEAR SR 3 / SR 16
BREMERTON CORESR 3NEAR SR 3 / SR 16
0 1½Miles
0 ½¼MilesN
Existing Conditions
Pedestrian Facilities
City of Bremerton Urban Growth Boundary
City Limits
Naval Base Kitsap - Bremerton
Naval Base Entrance
P&R
Kitsap Fast Ferry Terminal
P&R
P&R
P&R
Park & Ride
No data
Poor or Very Poor
Fair or Marginal
Good, Very Good, or Excellent
Data shown represents sidewalk conditions. This does not show ADA
facilities or pedestrian crossings.
Figure 4-12. Existing Pedestrian Facilities
4-20
CITY OF BREMERTON
Joint Compatibility Transportation Plan
KITSAP
WAY(SR310
)PINE RD11TH ST
BURWELL ST (SR 304)
SHERIDAN RD
LEBOBL
V
D
NE RIDDELL RD
SYLVAN WAY
WARREN AVE (SR 303)WHEATON WAY (SR 303)6TH ST WHEATONWAYSR 3MAY STCHARLESTONBLVDCITY OF BREMERTON
0 ½¼MilesN
Existing Conditions
Bicycle Facilities
City of Bremerton Urban Growth Boundary
City Limits
Naval Base Kitsap - Bremerton
Bike Lane
Sharrow
Shared Use Path
Naval Base Entrance
P&R
Kitsap Fast Ferry Terminal
Park & Ride
P&R
P&R
P&R
Figure 4-13. Existing Bicycle Facilities
CITY OF BREMERTON
Joint Compatibility Transportation Plan
4-21
6TH ST6TH ST
BURWELL ST (SR 304)
FARRAGUT ST STATE AVE4TH ST
2ND
S
TWASHINGTON AVECHARLEST
O
N BLV
D NAVE5TH ST
N MONTGOMERY AVEBRYAN AVES CALLOW AVENAVAL AVE0 990495 FeetN
Existing Conditions
CITY OF BREMERTON
Daily Pedestrian Volumes to NBK-BR
City of Bremerton Urban Growth Boundary
City Limits
Naval Base Kitsap - Bremerton
Charleston Gate:
400 Pedestrian Trips
Missouri Gate:
0 Pedestrian Trips
Montgomery Gate:
0 Pedestrian Trips
Naval Gate:
500 Pedestrian Trips State Street:
4,000 Pedestrian Trips
Burwell Gate:
2,800 Pedestrian Trips
Main (Bremerton) Gate:
2,400 Pedestrian Trips
10,100 Daily Pedestrian
Trips to the Base
Figure 4-14. Existing Pedestrian Volumes at NBK-BR
CITY OF BREMERTON
Joint Compatibility Transportation Plan
4-22
Key Findings
The following summarizes the key findings of the
crash analysis.
• The most common collision type in fatal and
serious injury crashes was a hit pedestrian.
• Several collision attributes of fatal and serious
injury crashes in Bremerton occur at a higher rate
in Bremerton than in other western Washington
crashes, such as pedestrian walking along
or crossing a road, angle collisions, dark/no
streetlights, and utility poles.
• Rear-end crashes made up for 30 percent of all
crashes. Rear-end crashes are often related to
higher levels of congestion.
Safety
Under 23 United States Code §148 and 23 United
States Code §409, safety data, reports, surveys,
schedules, list compiled or collected for the purpose
of identifying, evaluating, or planning the safety
enhancement of potential crash sites, hazardous
roadway conditions, or railway-highway crossings
are not subject to discovery or admitted into
evidence in a Federal or State court proceeding
or considered for other purposes in any action for
damages arising from any occurrence at a location
mentioned or addressed in such reports, surveys,
schedules, lists,
or data.
Citywide crash data collected and used in the
2020 Bremerton Strategic Road Safety Plan (City
of Bremerton 2020b) was used to highlight crash
locations and identify locations that require
additional attention. The Bremerton Strategic Road
Safety Plan (City of Bremerton 2020b) included
analysis of crash data for the years 2014 to 2018. The
study team also evaluated 2019 crash data provided
by WSDOT. The 2014–2019 reported crash data for
the study area are shown in Figure 4-15 and
Figure 4-16.
The Bremerton Strategic Road Safety Plan was
updated in 2022 (City of Bremerton 2022) and
was referenced during project development
and screening.
4-23
CITY OF BREMERTON
Joint Compatibility Transportation Plan
KITSAP
WAY(SR310
)PINE RD
11TH
S
T
BURWELL
S
T
(
S
R
3
0
4
)
SHERIDAN
R
D
LEBOBL
V
D
NE
R
I
D
D
E
L
L
R
D
SYLVAN
W
A
Y
WARREN AVE (SR 303)WHEATON WAY (SR 303)
6TH
S
T WHEATONWAYSR 3MAY STCHARLESTONBLVDCITY OF BREMERTON
NEAR SR 3 / SR 16
BREMERTON CORESR 3
NEAR SR 3 / SR 16
01½Miles
0½¼MilesN
Existing Conditions
Collisions (2014 - 2019)
City of Bremerton Urban Growth Boundary
City Limits
Naval Base Kitsap - Bremerton
Collisions
Under 23 United States Code §148 and 23 United
States Code §409, safety data, reports, surveys,
schedules, lists compiled or collected for the purpose
of identifying, evaluating, or planning the safety
enhancement of potential crash sites, hazardous
roadway conditions, or railway-highway crossings are
not subject to discovery or admitted into evidence in
a Federal or State court proceeding or considered for
other purposes in any action for damages arising from
any occurrence at a location mentioned or addressed
in such reports, surveys, schedules, lists, or data.
Figure 4-15. Collisions (2014–2019)Figure 4-15. Collisions (2014–2019)
4-24
CITY OF BREMERTON
Joint Compatibility Transportation Plan
KITSAP
WAY(SR310
)PINE RD
11TH
S
T
BURWELL
S
T
(
S
R
3
0
4
)
SHERIDAN
R
D
LEBOBL
V
D
NE
R
I
D
D
E
L
L
R
D
SYLVAN
W
A
Y
WARREN AVE (SR 303)WHEATON WAY (SR 303)
6TH
S
T WHEATONWAYSR
3 MAY STCHARLESTONBLVDCITY OF BREMERTON
NEAR SR 3 / SR 16
BREMERTON CORESR 3
NEAR SR 3 / SR 16
01½Miles
0½¼MilesN
Existing Conditions
Crash Severity (2014 - 2019)
Under 23 United States Code §148 and 23 United
States Code §409, safety data, reports, surveys,
schedules, lists compiled or collected for the purpose
of identifying, evaluating, or planning the safety
enhancement of potential crash sites, hazardous
roadway conditions, or railway-highway crossings are
not subject to discovery or admitted into evidence in
a Federal or State court proceeding or considered for
other purposes in any action for damages arising from
any occurrence at a location mentioned or addressed
in such reports, surveys, schedules, lists, or data.
City of Bremerton Urban Growth Boundary
City Limits
Naval Base Kitsap - Bremerton
Crash Severity
Fatality
Serious Injury
Minor Injury
Property Damage Only
Unknown
Crashes Involving Pedestrains / Pedal Cyclists
Fatality
Serious Injury
Figure 4-16. Crash Severity (2014–2019)Figure 4-16. Crash Severity (2014–2019)
CITY OF BREMERTON
Joint Compatibility Transportation Plan
4-25
Industry and Employment
Limited employment data availability for the
study area restricts the industry and employment
analysis to the City of Bremerton (not including the
Unincorporated UGA). Total employment in the
City of Bremerton was 32,400 in 2019, an increase
from 28,000 in 2006. Employment was relatively
steady between 2006 and 2013 but grew by 4,000
jobs between 2013 and 2019, as shown in Figure
4-18. Over this period, the share of Kitsap County
employment in Bremerton remained stable—
between 35 percent and 36 percent of total
County jobs.
In 2019, over 52 percent of total employment in the
study area was concentrated in the government
sector. The share of government jobs as a percentage
of total employment in the study area has increased
since 2006, as shown in Figure 4-19. Most of the
jobs in this sector are associated with NBK-BR.
Other public agencies that contribute to this
employment include the Bremerton Transportation
Center and state and County government services
facilities. Although Bremerton’s growth patterns
remain heavily dependent on military and other
government expenditures, this provides a buffer in
the local and regional economy during periods of
economic volatility.
Economics
The study team conducted an economic assessment
that documented current economic conditions,
historic growth trends, and economic drivers in
the study area. Data used in this report are drawn
from several sources: existing studies and analysis
completed by Community Attributes for the SR 303
Corridor Study (City of Bremerton 2021) and the Joint
Land Use Study (Kitsap County 2015) and public
data sources, including City of Bremerton, PSRC,
Washington State Office of Financial Management,
Kitsap Economic Development Alliance, Kitsap
County Assessor’s office, and CoStar.
The Economic and Market Profile is included in
Appendix F.
Demographics
The total population in the study area, which
includes the City and the Unincorporated UGA,
was 51,100 people in 2020, with 82 percent of
the population within the City of Bremerton. This
represents almost 19 percent of the total population
in Kitsap County. Between 2000 and 2020,
population in the study area grew at an average
annual rate of 0.5 percent, which is an insignificant
increase given the regular fluctuations in the military
population of 2,000 to 3,000 people, due to arrival
and departure of NBK-BR personnel. Bremerton’s
growth has not kept pace with surrounding County
and regional areas where unprecedented growth
has occurred in the past decade. One possible
reason for the area’s stagnant population is revealed
in the Housing Element of the City of Bremerton’s
Comprehensive Plan, which mentions that current
conditions in the housing market are in large part
responsible for the City’s lack of growth.
In 2019, median household income in the study
area was mostly below the Countywide median
household income of roughly $75,400, except for
a block group on the north side of Belfair Valley
Road, as shown in Figure 4-17. The City of Bremerton
household income in the same period was $52,700,
which is almost $23,000 below the Kitsap County
median. Around 16.5 percent of the population for
whom poverty status is determined in the City of
Bremerton live below the poverty line, compared to
7.5 percent for Kitsap County.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
4-26SR 3SR 3SR
3
SR 16
SR
1
6
Burwell St Warren AveWheaton WayNaval Base Kitsap
Gold Mountain Golf Club
Sinclair I
nl
et
Dyes
Inlet
Charleston BLVD0 31½
City Boundary
City of Bremerton UGA
N Miles
Median Household Income, ACS 2019
In past 12 months of survey, (inflation-adjusted
dollars to last year of 5-year survey 2015-2019)
No Value
0 - $35,382
$35,383 - $52,778
$52,779 - $75,411 (Kitsap County Median)
$75,412 - $93,438
$93,439 - $130,250
$130,251 - $250,001
JOINT COMPATIBILITY TRANSPORTATION PLAN
Median Household Income
Figure 4-17. Study Area Median Household Income (2015–2019)
Sources: United States Census Bureau, 2021; Community Attributes, 2021
5
10
15
20
25
30
35
Jobs ‘000
28.0 27.5 27.7 27.9 28.4 28.8 28.2 28.4 28.6 30.1 30.5 30.9 31.4 32.4
20192018201720162015201420132012201120102009200820072006
Figure 4-18. City of Bremerton Employment (2006–2019)
Sources: Puget Sound Regional Council, 2021; Community Attributes, 2021
CITY OF BREMERTON
Joint Compatibility Transportation Plan
4-27
0%
2006
43%
35%
7%
7%
8%
52%
28%
6%
5%
3%
6%
2019
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%OTHER
MANUFACTURING
EDUCATION
RETAIL
SERVICES
GOVERNMENT
Figure 4-19. Study Area Employment Share by Industry (2006, 2019)
Source: Community Attributes, 2021ncludes Construction/Resources, Finance, Insurance and Real Estate, Wholesale, Transportation and Utilities.
Land Use and Real Estate
The City of Bremerton’s 2016 Comprehensive Plan
outlines the future land use policy direction to
accommodate the City’s projected population and
employment growth for a 20-year planning time
horizon with sufficient areas for housing, businesses,
and industry. The Land Use Element maps the entire
City into a series of land use districts intended to
guide the character and intensity of development
based on these and other goals and policies.
To ascertain how successfully the City of Bremerton
has implemented its land use vision, the study team
mapped the most current snapshot available of
the current land uses found on parcels in the City
and UGA, based on the Kitsap County Assessor’s
parcel-specific land use coding system, shown in
Figure 4-20. These codes are updated on a rolling
basis, as much as possible, and do not always reflect
an accurate representation of actual land uses. In
comparing planned land use and zoning with actual
land uses, the following themes emerge:
• Bremerton has not achieved the level of
industrial development that it has thus far
planned for outside of NBK-BR, especially within
the Puget Sound Industrial Center-Bremerton
Subarea, but also in the industrially zoned
Werner Road area of the City.
• Much of the City’s high-density residential
development has occurred in planned for zones
along SR 303 north of the Warren Ave Bridge.
These areas lie along the primary northern
commuter route to and from NBK-BR and
Downtown Bremerton.
• To date, the mix of land uses along the SR 303
corridor include significant tracts of vacant land
located in areas currently designated District
Center. District Center zones are intended as
“small downtowns” with moderate- to high-
density mixed uses at their core, transitioning
out to singlefamily areas.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
4-28SR 3SR 3SR
3
SR 16
SR
1
6
SE Sedgwick Rd
SE Mile Hill DR
SW Bay
S
t Bay StBurwell St Warren AveWheaton WayNaval Base Kitsap
Gold Mountain Golf Club
Sinclair I
nl
e
t
Dyes
Inlet
Port
Orchard
Charleston BLVD0 31½
Miles
City Boundary
City of Bremerton UGA
N
Parks, Recreation & Open Space
Property Classes (Kitsap Assessor, 2021)
Services & Repair
Retail & Food
Transportation & Parking
Utilities
Undeveloped Land
Single Family Residential
Multifamily Residential
Other
Cemetery
Institutional, Education, Medical
Government
Lodging
Industrial
JOINT COMPATIBILITY TRANSPORTATION PLAN
Current Land Use Map
Figure 4-20. Study Area Current Property Classes (2019)
Sources: Kitsap County, 2021; City of Bremerton, 2021; Community Attributes, 2021
5. FUTURE NO BUILD CONDITIONS
CITY OF BREMERTON
Joint Compatibility Transportation Plan
5-1
Table 5-1. Study Area Household and Employment Forecasts
AREA
HOUSEHOLD FORECASTS EMPLOYMENT FORECASTS
Year 2019 Year 2050 Annual Growth Rate Year 2019 Year 2050 Annual Growth Rate
City of Bremerton 17,300 27,500 1.9 percent 41,000 55,500 1.1 percent
Unincorporated UGA 6,200 9,400 1.7 percent 3,600 6,200 2.3 percent
Total 23,500 36,900 1.8 percent 44,600 61,700 1.2 percent
In developing VISION 2050, PSRC developed future year growth patterns consistent with the policies of the final Regional Growth Strategy. This initial
representation will be refined as jurisdictions begin the next round of growth target and comprehensive plan updates as required under the Growth
Management Act, a process that will continue through mid-2024. PSRC is choosing not to publish an updated version of its land use forecast product,
the Land Use Vision, until after the first major round of implementation work, the GMA growth target updates, are complete. This forecast is an initial,
and one possible, version of a growth pattern that meet’s VISION 2050’s policy objectives. It was used for analysis of the Regional Growth Strategy. It is
not reflective of adopted GMA growth targets as these are currently under development. (PSRC, February 2021)
Future No Build Parking
NBK-BR continually seeks
opportunities to improve on-
base parking including recent
conversions of a carwash and
parade grounds to new surface
parking lots (~160 additional parking spaces), but
underutilized space on-base is very low. In addition,
NBK-BR has plans for multibillion-dollar shipyard
modernizations, and through the review process,
on-base parking needs are being considered. Review
is still pending, but initial analysis indicates that
there is no planned increase to employment
growth forecasted for NBK-BR for the shipyard
modernizations. Other than small area conversions
to surface parking lots, and shipyard modernization
considering if additional parking is triggered,
NBK-BR has no further capital plans to increase
on-base parking.
No increases in parking capacity are anticipated
by the City. As the City pursues their growth plan,
conflicts between residential parking and commuter
parking will increase.
5. Future No Build Conditions
The Year 2050 Future No Build Condition was
evaluated to understand how conditions will change
over the next 30 years for parking, traffic operations,
transit, active transportation, and safety.
The City travel demand forecasting model was used
to understand future year 2050 travel patterns and
develop peak hour volumes for the traffic analysis.
There are 125 traffic analysis zones within the travel
demand model area and eight external gateways.
Each of the transportation analysis zones includes
an estimated level of population (housing) and
employment (jobs) that the model then uses to
estimate how people will travel from their homes
to their jobs or other non-work related trips. PSRC
provided draft year 2050 growth targets for the City
of Bremerton and Kitsap County, as shown in
Table 5-1.
Employment in the City is shown to grow by 1.1
percent annually, with a total of 55,500 jobs by
year 2050 and many of those jobs being located
Downtown. City leadership is planning for key
housing development locations just west of SR 3 and
in Downtown. Even with these new developments,
it is anticipated that most employees will be
traveling to and from Downtown using the various
transportation modes available. At this time, there is
no growth forecasted for NBK-BR in the foreseeable
future. Additional details on the travel demand
forecasting are available in the Future No Build
Forecasting Memo in Appendix G.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
5-2
2050 No Build Conditions compared to Existing
Conditions, and less volume is coming to/from the
south along Charleston Boulevard (SR 304).
Operations Analysis
Level of Service and Volume-to-Capacity Ratio
The Year 2050 No Build AM and PM peak hour LOS
for the study intersections are shown in Figure 5-2
and Figure 5-3. Table 5-2 shows the intersections
that are exceeding LOS standards. Additional LOS
information is included in Appendix E.
Similar to Existing Conditions, these intersections
are mostly exceeding LOS standards due to large
volumes traveling towards Downtown during the
AM peak hour and away from Downtown during the
PM peak hour and insufficient roadway capacity to
accommodate these volumes. At the two-way stop-
controlled intersections, vehicles on minor streets
are delayed by the large volumes on major streets.
Some intersections, such as Warren Avenue (SR
303) and 11th Street (Intersection #22), slightly
improve compared to Existing Conditions due to
the optimization of signal timing. Signal timing was
optimized along Burwell Street, 11th Street, and SR
303 to account for the No Build roadway projects.
Future No Build Traffic Operations
For the Year 2050 No Build analysis, the traffic models
were updated to include any relevant planned
roadway improvement projects that impacted
roadway channelization or signal timing. Planning
projects were pulled from the City of Bremerton
2021–2026 Transportation Improvement Program
(TIP) (City of Bremerton 2020c) and the Kitsap
County 2021–2026 TIP (Kitsap County 2020). These
projects included:
• Washington Avenue
• Burwell Street Adaptive Signals
• 11th Street/Callow Avenue Intersection
Improvements
• HSIP III Kitsap Way Bike Lanes and Warren
Avenue Traffic Signal Safety
Signal timing was optimized for the intersections
along Burwell Street, 11th Street, and SR 303 to
account for the projects along these corridors. Other
assumptions for the Year 2050 No Build analysis,
including additional background projects that
were included in the travel demand modeling, are
discussed in the Methods and Assumptions Memo
(Appendix D).
Traffic Volumes
Based on the travel demand modeling, the estimated
growth rates for the individual study intersections
range from −4 percent to +85 percent between
2019 and 2050. The growth rates for individual study
intersections were averaged to determine an overall
average growth rate for several different corridors
and subareas. It should be noted that while the study
intersections in Downtown were forecasted to grow
by 20 percent by 2050, the growth for the traffic
analysis zone where NBK-BR is located was 0 percent.
These growth rates were used to develop
intersection traffic volumes for the Year 2050 AM
and PM peak hours. The forecasted 2050 traffic
volumes were used to determine the distribution of
traffic coming in and out of Downtown Bremerton,
as shown in Figure 5-1. Generally, more volume is
coming to/from the north along SR 303 during Year
CITY OF BREMERTON
Joint Compatibility Transportation Plan
5-3
Table 5-2. Year 2050 No Build Traffic Operations Results – Exceeding LOS Standards
ID INTERSECTION
CONTROL
TYPE
LOS
STANDARD
EXISTING 2020 NO BUILD 2050
AM PEAK PM PEAK AM PEAK PM PEAK
LOS Delay
(s)LOS Delay
(s)LOS Delay
(s)LOS Delay
(s)
2 Auto Center Way/SR 3 SB Off-Ramp
at Kitsap Way (SR 310)Signal D D 46 E 69 D 51 E 70
7 National Ave at Kitsap Way (SR 310)Signal D ----F 80 D 53
8 Marine Dr at Kitsap Way (SR 310)Signal D F 80 E 75 F 110 E 88
10 11th St at Kitsap Way (SR 310)Signal D ----A 8 E 61
17 Warren Ave (SR 303) at 6th St Signal E ----D 51 E 73
19 Pacific Ave at 6th St AWSC E ----C 20 F 58
22 Warren Ave (SR 303) at 11th St Signal E E 50 F 88 D 44 F 78
25 Wheaton Way (SR 303) at
Sheridan Rd Signal E ----D 41 F 93
34 Washington Ave at Manette Bridge RAB1 -F 214 E 64 ----
37 Naval Ave at Burwell St (SR 304)Signal D ----D 41 E 55
48 National Ave at Loxie Eagans Blvd Signal E B 20 F 83 C 22 F 105
94 Austin Dr at SR 3 SB Ramps TWSC D ----C 19 F 178
104 SR 3 SB Ramps at W Loxie Eagans
Blvd TWSC D F 82 F 508 F 179 F 1537
135 Chester Ave at Burwell St (SR 304)TWSC D D 29 E 43 E 44 F 110
202 SR 16 Spur/Sam Christopherson Dr
at SR 3 Signal D ----F 142 F 173
216 SR 3 at Imperial Way Signal D ----F 365 F 246
AWSC = all-way stop-controlled; LOS = level of service; RAB = roundabout; SB = southbound; TWSC = two-way stop-controlled
Note: Orange shading indicates LOS E and red shading indicates LOS F
1 A roundabout is planned to be constructed at Washington Avenue and Manette Bridge (intersection #34). Unlike other intersection control types, the
primary measure of effectiveness for roundabouts is volume-to-capacity (v/c) ratio. The v/c ratio measures the amount of traffic on a given roadway
relative to the amount of traffic the roadway was designed to accommodate. The goal for roundabouts is for the v/c ratio to be between 0.85 and 0.90.
During the Year 2050 No Build PM peak hour, intersection #34 is expected to have a v/c ratio of 1.34.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
5-4
Key Findings
The following summarizes the additional key
findings of the Year 2050 No Build peak hour traffic
operations analysis.
• Traffic in the City is estimated to grow by 20
percent by year 2050. Without opportunities
for alternative modes of travel to driving alone,
congestion will increase proportionately with the
increase in traffic volumes, resulting in significant
congestion throughout Bremerton.
• There are multiple locations where queues
exceed available storage capacity, including
intersections that operate at LOS D or better.
Peak hour queues along Kitsap Way are
particularly long, with some over 1,000 feet long.
• The new roundabout at Washington Avenue/
Manette Bridge is forecasted to have northbound
queues longer than 3,000 feet during the Year
2050 No Build PM peak hour.
• Long queues block business driveway access,
increase travel times for both GP traffic and
transit, and can lead to cut-through traffic
in neighborhoods.
• GP traffic travel times are expected to increase
by up to 40 percent in the Year 2050 No Build
Condition compared to Existing Conditions.
Queueing
Another measure of effectiveness is intersection
queue lengths. 95th percentile queue lengths are
defined as queues that are only exceeded 5 percent
of the time. Multiple intersections have queue
lengths that exceed the available storage capacity
during the AM and PM peak hour. These queues
lengths spill back into adjacent intersections and
contribute to congestion.
Multiple locations experience queues that exceed
available storage capacity, including intersections
that operate at LOS D or better. Peak hour queues
along Kitsap Way are particularly long, with some
over 1,000 feet long. The new roundabout at
Washington Avenue/Manette Bridge is forecast to
have northbound queues longer than 3,000 feet
during the Year 2050 No Build PM peak hour. Similar
to Existing Conditions, long queues block business
driveway access, increase travel times for both GP
traffic and transit, and can lead to cut-through traffic
in neighborhoods.
Queue lengths are included in Appendix E.
Travel Time
Future year travel times were calculated using a
combination of existing travel times and changes
to intersection delay and speeds in the traffic
operations models. The Year 2050 No Build travel
times for inbound traffic in the AM peak hour
are shown in Figure 5-4, and the travel times for
outbound traffic in the PM peak hour are shown
in Figure 5-5 Figure 4-9. During the AM peak hour,
GP traffic travel times range from 4 to 10 minutes,
and during the PM peak hour, GP traffic travel times
range from 3 to 12 minutes.
5-5
CITY OF BREMERTON
Joint Compatibility Transportation Plan
PINE RD
11TH
S
T
BURWELL
S
T
(
S
R
3
0
4
)
SHERIDAN
R
D
LEBOBL
V
D
NE
R
I
D
D
E
L
L
R
D
SYLVAN
W
A
Y WHEATON WAY (SR 303)E6TH
S
T WHEATONWAYSR
3 MAY STCHARLESTONBLVDCITY OF BREMERTON
0½¼MilesN
No Build Conditions
X%
City of Bremerton Urban Growth Boundary
City Limits
Naval Base Kitsap - Bremerton
Inbound Vehicle Percentage (AM Peak Hour)
Outbound Vehicle Percentage (PM Peak Hour)X%
Peak Hour Vehicle Volume Distribution
Percentage of inbound or outbound vehicle volumes calculated
from peak hour intersection turning movements.WHE11%
6%
14%
5%
26%
25%
26%
21%
13%
13%
3%
5%
%11%
%6%
%
%
14%
%%26%%
25%HARLESTONBLVLVDCHA26%
%
%
13%%4%
3%
6%KITSAP
WAY9%14%
5%5%5%%%%%%%
333%3%3%3%%%%
6%
Figure 5-1. Year 2050 No Build Vehicle Volume DistributionFigure 5-1. Year 2050 No Build Vehicle Volume Distribution
5-6
CITY OF BREMERTON
Joint Compatibility Transportation Plan
KITSAP
WAY(SR310
)PINE RD11TH ST
BURWELL ST (SR 304)
SHERIDAN RD
LEBOBL
V
D
NE RIDDELL RD
SYLVAN WAY
WARREN AVE (SR 303)WHEATON WAY (SR 303)6TH ST WHEATONWAYSR
3 MAY STCHARLESTON BLVD2 3 4 5
6 7
8 10
11 12 13 14 17 18 19 20
21
22
23
24
25
26
28
29
30 31 32 33
34
35 36 37 40 41 42 43
44
45
46 47 48
93
94
104 105
307
316
317
318
319
400
401
404
403 402
16
27
38 135
CITY OF BREMERTON
NEAR SR 3 / SR 16
BREMERTON CORESR 3202
216
NEAR SR 3 / SR 16
0 1½Miles
0 ½¼MilesN
No Build ConditionsLevel of Service & Queue Lengths
AM Peak Hour
LOS F
LOS E
LOS D
LOS A - C
Signalized Intersection
Unsignalized Intersection
Intersection numbers#
Naval Base Kitsap - Bremerton
City of Bremerton Urban Growth Boundary
City Limits
Figure 5-2. Year 2050 No Build Level of Service – AM Peak Hour
5-7
CITY OF BREMERTON
Joint Compatibility Transportation Plan
KITSAP
WAY(SR310
)PINE RD11TH ST
BURWELL ST (SR 304)
SHERIDAN RD
LEBOBL
V
D
NE RIDDELL RD
SYLVAN WAY
WARREN AVE (SR 303)WHEATON WAY (SR 303)6TH ST WHEATONWAYSR
3 MAY STCHARLESTON BLVD2 3 4 5
6 7
8 10
11 12 13 14 17 18 19 20
21
22
23
24
25
26
28
29
30 31 32 33
34
35 36 37 40 41 42 43
44
45
46 47 48
93
94
104 105
307
316
317
318
319
400
401
402
403 404
16
27
38 135
CITY OF BREMERTON
NEAR SR 3 / SR 16
BREMERTON CORESR 3202
216
NEAR SR 3 / SR 16
0 1½Miles
0 ½¼MilesN
No Build Conditions
34
Level of Service & Queue Lengths
PM Peak Hour
LOS F
LOS E
LOS D
LOS A - C
Signalized Intersection
Unsignalized Intersection
Intersection numbers#
Naval Base Kitsap - Bremerton
City of Bremerton Urban Growth Boundary
City Limits
Figure 5-3. Year 2050 No Build Level of Service – PM Peak Hour
5-8
CITY OF BREMERTON
Joint Compatibility Transportation Plan
KITSAP
WAY(SR310
)PINE RD11TH ST
BURWELL ST (SR 304)
SHERIDAN RD
LEBOBL
V
D
NE RIDDELL RD
SYLVAN WAY
WARREN AVE (SR 303)WHEATON WAY (SR 303)6TH ST WHEATONWAYSR 3MAY STCHARLESTONBLVDCITY OF BREMERTON
0 ½¼MilesN
No Build Conditions
Travel Time Estimates - AM Peak
Kitsap Way (SR 310)
City of Bremerton Urban Growth Boundary
City Limits
Naval Base Kitsap - Bremerton
11th Street 6th Street
Burwell Street (SR 304)Warren Avenue (SR 303)Charleston Boulevard
Travel Time Along Route
Free Flow
(Minutes and Seconds)
+ Dierence from Free Flow
+ Dierence from Free Flow
Vehicle
Transit
02:20
07:10 + 04:50
09:30 + 07:10
02:10
04:20 + 02:10
+ 03:3005:40
02:20
03:40 + 01:20
+ 05:3007:50
02:20
03:50 + 01:30
+ 04:5007:10
06:10
10:00 + 03:50
+ 08:4014:50
01:50
03:40 + 01:50
+ 03:1005:00
Figure 5-4. Year 2050 No Build Travel Times – AM Peak Hour
5-9
CITY OF BREMERTON
Joint Compatibility Transportation Plan
KITSAP
WAY(SR310
)PINE RD11TH ST
BURWELL ST (SR 304)
SHERIDAN RD
LEBOBL
V
D
NE RIDDELL RD
SYLVAN WAY
WARREN AVE (SR 303)WHEATON WAY (SR 303)6TH ST WHEATONWAYSR 3MAY STCHARLESTONBLVDCITY OF BREMERTON
0 ½¼MilesN
No Build Conditions
Travel Time Estimates - PM Peak
Kitsap Way (SR 310)
City of Bremerton Urban Growth Boundary
City Limits
Naval Base Kitsap - Bremerton
Travel Time Along Route
Free Flow
11th Street 6th Street
Burwell Street (SR 304)Warren Avenue (SR 303)Charleston Boulevard
(Minutes and Seconds)
02:20
06:10 + 03:50
07:40 + 05:20
02:10
05:10 + 03:00
+ 04:2006:30
02:20
03:20 + 01:00
+ 05:5008:10
02:20
04:10 + 01:50
+ 04:4007:00
06:10
12:20 + 06:10
+ 11:1017:20
01:50
03:10 + 01:20
+ 01:4003:30
+ Dierence from Free Flow
+ Dierence from Free Flow
Vehicle
Transit
Figure 5-5. Year 2050 No Build Travel Times – PM Peak Hour
CITY OF BREMERTON
Joint Compatibility Transportation Plan
5-10
Future No Build Active
Transportation
The City has published plans that
outline the City’s vision for their active
transportation facilities in the future.
The City released the Non-Motorized Transportation
Plan in December 2007, which presented a vision of
a fully developed bicycle/pedestrian system over the
next 20 years that would serve residents, commuters,
shoppers, and visitors alike. A complete bikeway and
walkway network would increase connections within
the community, increase the number of children
walking and bicycling to school, and promote the
health of Bremerton residents by making walking
and bicycling safe, comfortable, and attractive
travel modes.
The City released the ADA Transition Plan in March
2016, which was intended to guide the City’s efforts
to provide an accessible transportation system. The
purpose of the ADA Transition Plan was to identify
deficiencies in City policies, procedures, and physical
assets and to provide a path to correction of those
deficiencies. This plan also provides guidance for
removal of accessibility barriers. The minimum
requirement for the scope of the ADA Transition Plan
is accessibility of all curb ramps and ancillary facilities
(pedestrian push buttons and pedestrian signals)
within the right-of-way.
Future No Build Safety
Under the Year 2050 No Build Condition, safety
conditions are likely to remain similar to or worse
than Existing Conditions. Overall, background
volume growth and increased congestion are likely
to contribute to an increase in crashes by Year 2050.
Some background projects, as included in the
Methods and Assumptions Memo (Appendix D), are
likely to improve safety conditions for all users.
Future No Build Transit
The Kitsap Transit Long Range
Plan (Kitsap Transit 2016b) was
reviewed during the Year 2050 No Build Condition
analysis. The Long Range Plan was updated in 2022
(Kitsap Transit 2022) and was referenced during
project development and screening.
The study team discussed potential changes to
routes, route frequency, and ridership between now
and the year 2050 with Kitsap Transit. Though it is
too early to anticipate specific changes in routes or
types of services, Kitsap Transit was able to provide
these estimates for transit service in the year 2050:
• 14 hours per day of service
• 10- to 15-minute headways
• 20 percent growth in ridership from
Existing Conditions
Overall traffic volumes are also expected to grow
by 20 percent by year 2050, suggesting that the
percentage of people who are using transit to
commute to Downtown is expected to be the same
in year 2050 as it is today.
The Year 2050 No Build travel times for inbound
traffic in the AM peak hour are shown in Figure 5-4,
and the travel times for outbound traffic in the PM
peak hour are shown in Figure 5-5. Similar to Existing
Conditions, transit travel times are longer than GP
traffic travel times due to dwell times for unloading
and loading passengers and time spent decelerating
and accelerating at transit stops. Travel times
between transit stops are the same as GP traffic due
a lack of dedicated transit facilities, such as a BAT
lane or TSP. There is no additional time for transit
stops in the Year 2050 No Build Condition compared
to Existing Conditions.
6. ALTERNATIVE DEVELOPMENT AND SCREENING PROCESS
CITY OF BREMERTON
Joint Compatibility Transportation Plan
6-1
6. Alternative Development and Screening Process
The study team used a stepwise approach to
develop alternatives for analysis and screening. After
developing the list of existing and future needs,
the study team outlined various improvements
to specifically address the study area needs. This
approach allowed the team to address agency,
public, and jurisdiction needs at certain locations
within the City. After the First Level Screening was
complete, the team combined various improvements
that had similar themes to create Build Alternatives
for analysis. Those Build Alternatives were then
evaluated using a quantitative approach that would
allow a databased comparison of Build Alternatives
as to their effectiveness at meeting the project
metrics. More information about the approach is
described in the following sections.
Screening Process
A multistep screening process was used to identify,
screen, evaluate, and rank potential improvements.
This process included these steps, which are
discussed in the sections below:
1. Develop improvements
2. Evaluate improvements through First
Level Screening
3. Combine passing improvements into three
Build Alternatives
4. Evaluate Build Alternatives through Second
Level Screening
5. Develop a preliminary Preferred Alternative and
evaluate using Second Level Screening metrics
6. Establish a Preferred Alternative
The methodology for the screening process is
documented in the Screening and Evaluation
Methodology Memo in Appendix H.
Develop Improvements
The first step in the screening process was to
generate improvements with the potential to
address the key findings and needs identified
through the Existing Conditions and Future No Build
Conditions analysis. Improvements were generated
based on input from previous studies, the CSB, the
study team, and the public. A workshop to develop
these improvements was held in June 2021 with
the project management team and key partners.
The CSB was then asked to provide comments on
the proposed improvements as well as additional
suggestions. The proposed improvements were then
divided into the following categories:
• PC: New/Expanded Parking
• C: Capacity Projects (e.g., changes in lanes,
signals, intersection control)
• B: Projects on Base
• T: Transit Service/Frequency
• AT: Active Transportation
• E: Education
• PM: Parking Management/Policy
• CTR: Programs/Technologies/Incentives to
Encourage Mode Shift
• O: Other
A full list of the proposed improvements is included
in the First Level Screening Results in Appendix I.
First Level Screening
First Level Screening Metrics
The First Level Screening was a mostly qualitative
evaluation that measured each improvement’s ability
to meet the study goals. Each improvement was
measured according to the following three metrics.
• Is the improvement consistent with the goals of
the study? The study goal is to define solutions
to improve multimodal mobility, outline parking
strategies, and enhance Bremerton’s livability. If
the improvement would not meet the study goal
or was not within the scope of the study, it was
screened out.
• Is the improvement feasible? Feasibility
was measured by determining whether the
improvement would be reasonable based on
City management support, neighborhood
support, support of NBKBR operations, and
cost effectiveness. If the improvement was
determined to be infeasible, it was screened out.
• Has the improvement been found to be
ineffective by a previous study or plan? If the
CITY OF BREMERTON
Joint Compatibility Transportation Plan
6-2
Proposed Alternatives
No Build Alternative
The No Build Alternative represents the Future
No Build Conditions for the year 2050 and serves
as a baseline for the comparison of potential
improvements.
Build Alternatives
The 141 improvements that passed First Level
Screening were divided into three different Build
Alternatives: the Support Parking Alternative, the
Relocate Parking Alternative, and the Add Base
Parking Alternative. Each alternative was driven by
a unique vision for parking for NBK-BR commuters.
The alternatives were organized around parking
strategies so that the study team could understand
how traffic volumes and parking patterns impacted
the potential solutions.
Fifty-five improvements were aligned with all
three visions and were assigned to all three Build
Alternatives. Thirty-one of these improvements were
specifically active transportation improvements,
which are discussed separately below. The 24 non-
active transportation improvements that were
included in all three Build Alternatives are shown in
Table 6-1.
improvement had been studied as part of a
previous planning effort and was determined to
not provide a benefit, then the improvement was
screened out.
First Level Screening Results
Each improvement was evaluated according to the
three metrics described above. If the improvement
passed all three metrics, then it passed the First
Level Screening. Most improvements were able to
be evaluated qualitatively, but a few improvements
required planning-level traffic modeling to
determine whether the improvement was feasible.
Below is a summary of the results of the First
Level Screening:
• 212 improvements were evaluated.
• 71 improvements did not meet criteria and were
screened out. 38 of the 71 improvements were
repeats of other improvements.
• 141 improvements met criteria and passed First
Level Screening. 37 of the 141 improvements
were not analyzed as part of the Second Level
Screening. These improvements were identified
as already being incorporated into other efforts,
such as Kitsap Transit’s Long Range Plan, or were
similar to other improvements and therefore
evaluated together. After further discussions
with the CSB, it was determined the remaining
improvements, such as adding additional entry
points to NBK-BR, were infeasible.
Descriptions of the individual improvements as well
as detailed First Level Screening results are included
in Appendix I.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
6-3
Table 6-1. Improvements Included in All Alternatives
PROJECT
CODE PROJECT DESCRIPTION EXPECTED BENEFITS
C1
Improve SR 3/Kitsap Way interchange:
update signals or replace with roundabouts
at ramp terminals
Intersection improvements would improve vehicle mobility and safety.
C26
Traffic Management Center This improvement would improve vehicle mobility and safety by providing
the City with additional flexibility to modify notification signs about
closures, dynamic speed signs if used, and provide travel time information.
C27 Variable message signs This information would improve parking by installing signs to indicate
parking availability in Downtown or at new remote parking.
C29
Build projects proposed in SR 303 Corridor
Study
Projects along SR 303 would improve GP and transit mobility, safety, and
active transportation, which would encourage mode shift from driving
alone and improve congestion in Downtown.
C35 Adaptive signal timing at all signalized
intersections
Intersection improvements would improve vehicle mobility and safety.
C38
Build projects proposed in Bremerton
Strategic Road Safety Plan (City of
Bremerton 2022)
Improvements would improve vehicle and pedestrian and bicycle safety.
T6 More bus routes to NBK-BR Increased transit frequency would improve transit mobility and encourage
mode shift from driving alone and improve congestion in Downtown.
E1
Education/marketing campaign for
Bremerton residents and NBK-BR employees
about transportation options, including
bicycle storage and routes, vanpools,
Worker/Driver Bus program (guaranteed
ride home, easy to change routes, real-time
tracking app, can be used by non-NBK-BR
employees), and parking options.
Improvements would encourage mode shift from driving alone and
improve congestion in Downtown.
E5
Education/marketing campaign to increase
number of NBK-BR employees commuting
from Seattle (reverse commute)
Improvements would encourage NBK-BR employees to travel from Seattle,
improving congestion in Downtown
E7
Transportation Liaison at NBK-BR to help
new hires and staff find best commuter
option for them
Improvements would encourage mode shift from driving alone and
improve congestion in Downtown.
PM2
Revisit on-street parking management
strategies, including permit programs and
paid parking in Downtown
Permit-only zones would improve parking by limiting parking to only those
that have a permit and would make enforcement easier.
PM3
Establish a transportation management
association
A transportation management association is typically a nonprofit
established as a public/private partnership with funding primarily from
major employers. Funding is used to support expansion of commuter
transportation options as alternatives to single-occupancy vehicles
through education, programs, and incentives.
CTR1
Maintain telework options currently
available to NBK-BR
Telework allows people to work from home and use the internet or phone
for their meetings, which would reduce the number of people traveling to
Downtown and improve congestion.
CTR3
Incentives to ride transit Incentives like citation forgiveness for smart commuter registration and
1 month of activity would encourage mode shift from driving alone and
improve congestion in Downtown.
CTR4 Reduced fare and regular bus passes.
Reduced fare based on income
Reduced fare would encourage mode shift from driving alone and improve
congestion in Downtown.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
6-4
PROJECT
CODE PROJECT DESCRIPTION EXPECTED BENEFITS
CTR5
Provide incentives for mode shift away from
single-occupancy vehicles for residents of
neighborhoods along SR 303
Incentives could include subsidized bus passes, free bus zones, or
incentives such as shower facilities for bicyclists and childcare options from
employers that do not provide free parking.
CTR8 Collocate worker/driver stops with origins
(daycares, schools, etc.)
Improvements to transit would encourage mode shift from driving alone
and improve congestion in Downtown.
CTR11 Improve technology to make the worker/
driver program more efficient
Improvements to transit would encourage mode shift from driving alone
and improve congestion in Downtown.
CTR12 Partner with Port Orchard to incentivize
foot-ferry ridership
Improvements to transit would encourage mode shift from driving alone
and improve congestion in Downtown.
O6 Better enforcement of HOV lanes Improvements would encourage mode shift from driving alone and
improve congestion in Downtown.
O9
Enforcement at at-capacity or over-capacity
park and rides
Maintaining park and ride parking spaces for people using transit would
encourage mode shift from driving alone and improve congestion in
Downtown.
O10 Make Callow area more livable – get
NBK-BR employees to live near NBK
Improving a neighborhood adjacent to NBK-BR would encourage
NBK-BR employees to live next to NBK-BR and commute by walking.
O12 Keep worker/driver system map more
up to date
Improvements to transit would encourage mode shift from driving
alone and improve congestion in Downtown.
O16 More shelters at transit stops with
lighting
Improvements to transit would encourage mode shift from driving
alone and improve congestion in Downtown.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
6-5
The three Build Alternatives are described below
and are shown in detail in Appendix J. The proposed
active transportation improvements were evaluated
separately from the three Build Alternatives and are
also shown in Appendix J.
Support Parking Alternative
This alternative assumes the City continues to
pursue population and employment growth and
supports the current parking system used today.
This alternative would result in higher levels of
traffic coming into Downtown, which would be
accompanied by roadway capacity improvements
needed to accommodate that growth. The key
projects included in the Support Parking Alternative
are as follows:
• Capacity improvements along Kitsap Way and
Burwell Street (C1, C32, C39)
• 6th Street and 11th Street Road Diets (C24)
• Expand parking at strategic locations Downtown
(PC13, PC14, PC16)
• HOV lane along northbound SR 304 (C16)
• NBK-BR gate improvements to decrease queuing
on City streets (B4)
Relocate Parking Alternative
This alternative assumes a larger portion of
commuters would use transit to access Downtown
and NBKBR. This alternative includes new or
expanded park and ride facilities, repurposing City
parking areas to be mixed use, new parking policies,
and increased parking enforcement. This alternative
would result in lower levels of GP traffic coming into
Downtown and would be accompanied by transit
improvements and livability improvements that take
advantage of the decreased traffic demand. The key
projects included in the Relocate Parking Alternative
are as follows:
• Park and rides to encourage mode shift to transit
(PC3, PC4, PC5, PC6, PC17)
• 6th Street and 11th Street Road Diets (C24)
• NBK-BR gate improvements for better
multimodal access (T22)
• Transit lane along westbound Kitsap Way (C7)
• Parking policies to discourage commuter
vehicles in Downtown (PM4, PM14)
Add Base Parking Alternative
This alternative assumes that all NBK-BR employees
would have access to current or new parking on
Base. This alternative includes expanded parking, a
shuttle to transport employees from on-installation
parking, and increased parking enforcement
Downtown to ensure the on-installation parking
would be used. This alternative would result in a
change in travel patterns Downtown from current
local parking to on-installation parking on the
west end of NBK-BR and would be accompanied by
roadway capacity improvements. Downtown surface
parking owned by the City may be repurposed to
mixed use development. The key projects included in
the Add Base Parking Alternative are as follows:
• Parking within base gates (B7)
• NBK-BR gate improvements to add capacity (B3)
• Capacity improvements along Kitsap Way and
Burwell Street (C6, C8, C10, C32)
• Base transit improvements to move people from
parking areas to work areas (T17, T19)
• HOV lane along northbound SR 304 (C16)
• Parking policies to discourage parking in
Downtown (PM4, PM7, PM9, PM10)
CITY OF BREMERTON
Joint Compatibility Transportation Plan
6-6
Second Level Screening
Second Level Screening Metrics
The Second Level Screening was a more quantitative
analysis that measured each alternative’s
performance. Each alternative was measured
according to the following metrics and compared to
the other alternatives. For Second Level Screening,
alternatives were evaluated for Year 2050.
• Travel Times: Alternatives were evaluated for AM
and PM peak direction travel times along seven
major corridors. Travel times were taken from
the Synchro and Sidra models for both GP traffic
and transit.
• Travel Time Reliability: Alternatives were
evaluated for reliability of the peak direction
travel times based on Federal Highway
Administration travel time reliability equations.
• Mobility: Alternatives were evaluated for AM and
PM peak direction person-hours of delay along
seven major corridors. Mobility was measured
by travel speed, traffic volumes, and vehicle
occupancy for both GP traffic and transit.
• Safety: Alternatives were evaluated for number
of overall crashes and serious injury and fatal
crashes based on crash modification factors.
• Active Transportation: Alternatives were
evaluated for size of walk/bike sheds,
number of high quality travel choices, and
improvement to bicycle level of traffic stress or
pedestrian enhancement.
• Economic Vitality: Alternatives were evaluated
for benefits to economic investment of each
individual project.
• Parking: Alternatives were evaluated for parking
utilization, parking violations in Downtown
and adjacent neighborhoods, City parking
revenue, City parking enforcement technology,
accessibility to parking for NBK-BR workers, and
impacts to the “Bremerton Shuffle.”
• Base Accessibility: Alternatives were qualitatively
evaluated for their ability to improve efficiency
of entry points, walkable housing options,
multimodal access, and simplicity of access.
• Livability: Alternatives were qualitatively
evaluated for their ability to improve multimodal
connectivity, parking for businesses, walkable
housing options, and health (improving physical
health and reducing carbon emission by
providing additional options to safely use active
transportation modes).
Additional information on the Second Level
Screening metrics is available in the Screening and
Evaluation Methodology Memo in Appendix H.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
6-7
However, several projects showed clear benefits
under all Build Alternatives, including:
• Intelligent signal systems for all major
commuter corridors.
• Active transportation improvements that will
encourage more active transportation trips to/
from work.
• Improvements proposed by the SR 303
Corridor Study.
• Safety improvements.
The Support Parking Alternative and Build Parking
Alternative both included roadway capacity
projects and assumed traffic volumes increase
into Downtown Bremerton along with forecasted
increases in future population and employment
growth. The Relocate Parking Alternative included
more transit and active transportation supportive
projects and assumed fewer cars coming into
Downtown Bremerton as growth occurs.
As shown in Figure 6-1, the Support Parking
Alternative would provide the most benefit to safety
while having some negative impact on surface
parking and land use impacts. The Relocate Parking
Alternative would provide the most benefit to
safety, parking, and livability. The Add Base Parking
Alternative would provide the most benefit to
mobility and safety while having some negative
impacts on City parking revenue.
Detailed Second Level Screening results are included
in Appendix K.
Because all three Build Alternatives would
provide benefits in different ways, the individual
improvements were further evaluated through
a cost-benefit analysis. A parking analysis was
also completed to help in the development of
a preliminary Preferred Alternative. These are
discussed in the following sections.
Second Level Screening Results
The No Build Alternative and each Build Alternative
were evaluated according to the performance
metrics and assigned a score between −1 and 3,
with −1 generally being worse than Future No Build
Conditions and 3 being the largest improvement
compared to Future No Build Conditions. A summary
of the scoring is shown in Figure 6-1, the legend for
which is shown in the right.
For Second Level Screening, each Build Alternative
was evaluated as a package of improvements.
It was intended that, following Second Level
Screening, individual improvements that performed
well according to the performance metrics could
be incorporated into the Preferred Alternative,
regardless of which Build Alternative it was originally
assigned to.
Results of the Build Alternative analysis indicated
that no one alternative showed improvements to
all the metrics and two metrics were often at odds:
base accessibility and livability. Projects that would
improve base accessibility, such as added roadway
capacity, were often incompatible with projects that
would improve pedestrian and bicycle accessibility
and safety. Projects that would improve livability,
such as road re-channelization to accommodate
bikes and pedestrians, were incompatible with
projects that do not reduce vehicles coming
into Bremerton.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
6-8
Travel times (GP and transit)
Travel Time Reliability (GP and transit)
Average Score
Person hours of delay - general purpose
Person hours of delay - Transit
Average Score
Number of overall crashes
Number of serious injury and fatal crashes
Average Score
Number of people who can walk/bike to
NBK-BR or P&Rs under low stress
conditions
Number of high-quality travel choices in
the study area
Safe and Comfortable Walking and Biking
Options
Average Score
Parking utilization
Parking violations
City parking revenue
City parking enforcement
Accessibility to parking for Base workers
Tracking the "Bremerton Shuffle"
Surface parking/land use impacts
Average Score
Base Accessibility: Improve Base
accessibility for NBK-BR workers.
Livability: Improve overall livability for
Bremerton residents.
Parking:
Parking system supports a vibrant,
attractive and user-friendly Downtown
with thriving neighborhood districts
and attractive residential
neighborhoods.
Active Transportation:
Improve accessibility, connectivity and
increase safe ped/bike options to
decrease percent of trips made by
driving alone.
Mobility:
Increase the transportation system's
ability to efficiently move all people
and goods.
Safety:
Improve safety and reduce serious
injury and fatal crashes.
Travel Times and Reliability:
Improve travel times to/from
downtown Bremerton and make travel
times to/from downtown Bremerton
more predictable.
Support
Parking
Alternative
Study Goal Area Performance Measures
Relocate
Parking
Alternative
Add Base
Parking
Alternative
Figure 6-1. Second Level Screening Results Summary
CITY OF BREMERTON
Joint Compatibility Transportation Plan
6-9
Cost-Benefit Analysis
A cost-benefit analysis was completed to
further evaluate the proposed roadway capacity
improvements. For each improvement, a benefit cost
was compared to the project cost to calculate the
benefit-cost ratio. A positive benefit-cost ratio means
that the benefits of the improvement outweigh the
cost to implement it, while a negative benefit-cost
ratio means that the project cost outweighs the
benefits of the improvement. The planning-level
project cost estimates for Year 2021 were created
using the methodology discussed in Section 7
Benefit cost was calculated based on the following:
• Change in annual cost of person-delay:
Additional travel time along each travel time
corridor was converted from PM peak hour
to annual by applying a daily factor for an
approximate 250 working days a year. The
monetized value of “all purpose” travel time
savings used in this benefit-cost analysis
was obtained from the 2021 USDOT Benefit-
Cost Analysis Guidance for Discretionary
Grant Programs.
• Change in annual cost of crashes: The change
in crashes for each level of crash severity was
estimated using crash modification factors. The
monetized values attributed to the reduction
of each crash severity were obtained from the
2021 USDOT Benefit-Cost Analysis Guidance for
Discretionary Grant Programs.
Some improvements that had a negative benefit-
cost ratio had a positive change in annual cost
of crashes but a negative change in annual cost
of person-delay. Improvements like road diets,
installing medians, and installing roundabouts on
high-volume roads would have a positive impact
on safety while worsening traffic operations. The
improvements with the highest benefit-cost ratios
were projects that would have a positive impact on
both safety and traffic operations with a low project
cost, like adaptive signal timing and transit
signal priority.
The cost-benefit analysis is available in Appendix L.
Parking Strategy
Through Second Level Screening and the cost-
benefit analysis, the following conclusions were
made in relation to parking strategies:
• A single parking garage (as evaluated in the
Add Base Parking Alternative) on NBK-BR to
accommodate all of the NBK-BR employees who
currently drive to work is not feasible.
• Building multiple off-site parking lots to
accommodate all of the NBK-BR employees who
currently drive to work is not desirable.
• A combination of parking strategies from all
three Build Alternatives is needed to balance
livability and accessibility to NBK-BR.
Parking Analysis
The mode splits, origins of commuter trips,
distribution of NBK-BR employees work locations
within NBK-BR, and existing parking within
Downtown and NBK-BR were evaluated to develop
assumptions about current parking habits and future
ability to relocate parking and switch modes. Based
on this evaluation, it is assumed that 8,500 total
NBK-BR employees currently park Downtown and
walk into NBK-BR. This equates to approximately
6,300 vehicles that park outside the gate, as some
employees carpool or use vanpools. Of those 8,500
employees, it is assumed that 3,630 total NBK-BR
vehicles would relocate to parking lots outside of
Downtown and travel into Downtown via transit or
active transportation. This assumption is based on
expected vehicle relocation that could occur with
implementation of parking management strategies
proposed as part of the Relocate Parking Alternative.
The breakdown of where these 3,630 vehicles would
relocate from is as follows:
• 380 vehicles from Downtown on-street parking
• 1,500 vehicles from residential on-street parking
• 1,500 vehicles from Downtown surface lots
• 250 from residential garages and lots
The existing P&R capacity and occupancy were
evaluated to develop assumptions about where
additional parking may be needed. Of the vehicles
that would relocate to parking lots outside of
Downtown, it is estimated that 45 percent are
CITY OF BREMERTON
Joint Compatibility Transportation Plan
6-10
traveling from the south via Charleston Boulevard
(SR 304), 30 percent are traveling from the north via
SR 303, and 25 percent are traveling from the west
via Kitsap Way. Based on this estimated demand and
existing occupancy at the park and rides, 1,240 stalls
would be needed south of Downtown, 800 stalls
would be needed north of Downtown, and 680 stalls
would be needed west of Downtown.
7. PREFERRED ALTERNATIVE
CITY OF BREMERTON
Joint Compatibility Transportation Plan
7-1
7. Preferred Alternative
The preliminary Preferred Alternative was developed
by processing the findings of the Second Level
Screening analysis, defining a broad vision for the
City, and selecting projects based on this vision
and the cost-benefit analysis and parking analysis
discussed in Section 6. The study team analyzed
the preliminary Preferred Alternative using the
same evaluation metrics as Second Level Screening
then sought feedback on the preliminary Preferred
Alternative from the public, the CSB, City Council,
and NBK-BR before identifying a final Preferred
Alternative.
Preliminary Preferred Alternative
The study team presented the findings of the
Second Level Screening analysis to City Council
in June 2022. The study team shared that none of
the three Build Alternatives showed improvements
for all the evaluation metrics used in the analysis
and that, in particular, there was tension between
base accessibility and livability. Defining a vision
for the City, with guidance from the City Council,
was important to establish because the vision
determined what recommended projects and
strategies would make up the Preferred Alternative.
The three Build Alternatives can be grouped into two
broad visions for the City. A comparison of the two
visions is shown below.
LIVABILITY CENTERED VISION
(ASSUMES FEWER CARS COMING INTO
DOWNTOWN BREMERTON)
VS.
CAPACITY CENTERED VISION
(ASSUMES MORE CARS COMING INTO
DOWNTOWN BREMERTON)
Success measured by improvements to
Bremerton’s livability and economic vitality vs.Success measured by improvements to travel
time for commuters during peak hours
Growth addressed by strategies that reduce the
number of cars on the roads vs.Growth addressed with road capacity projects
Mode shift assumptions are more aggressive
and are driven by transit and policy/operations
projects
vs.Mode shift assumptions are conservative
Requires interagency cooperation to be effective vs.Most improvements are capital projects led by
City of Bremerton
CITY OF BREMERTON
Joint Compatibility Transportation Plan
7-2
Preliminary Preferred Alternative Analysis Results
To ensure the preliminary Preferred Alternative
would meet the study goals and provide benefits, it
was analyzed according to the same performance
metrics that were used in Second Level Screening.
The results are summarized in Figure 7-1. The
preliminary Preferred Alternative would provide
the most benefit to GP and transit travel times,
GP mobility, safety, parking, and livability. The
preliminary Preferred Alternative would also
provide some benefit to travel time reliability, active
transportation, and base accessibility. Detailed
Preferred Alternative analysis results are included in
Appendix M.
Planning-Level Cost Estimates
Cost ranges were estimated for each capital project.
These cost ranges were estimated based on
preliminary design layouts and planning-level cost
estimates. These cost ranges were not used in the
Second Level Screening process but were developed
to facilitate the development of the Preferred
Alternative and support the City in their pursuit of
funding to construct the Preferred Alternative at
various stages. Cost estimates for each project are
shown in Appendix O.
A benefit of a capacity-centered vision would be less
dependence on interagency cooperations. However,
large road capacity projects are costly, disruptive,
and will require more right-of-way. Additionally,
roadway capacity projects can be hard to fund and
may be infeasible due to environmental constraints.
Parking constraints under a capacity-centered vision
will remain and may worsen as growth increases
density in downtown Bremerton.
Benefits of a livability-centered vision include
improved walking and bicycling experiences,
reduced commuter parking in neighborhoods,
increased available parking for businesses, a greater
likelihood of achieving mode shift goals that thereby
reduce congestion and improving travel times,
and finally, consistency with City plans to increase
density downtown and improve economic vitality.
Challenges of a livability centered vision include
the need for significant coordination between
agencies, and costs for building more parking (such
as multilevel park and rides) could be high.
The City Council voiced strong support for a
livability-centered vision for the JCTP project.
Additionally, community leaders from the
Community Sounding Board supported the livability
centered vision. NBK-BR voiced concerns about base
accessibility and asked that a livability centered
vision balance accessibility needs. The study team
moved forward with creating a preliminary preferred
alternative based on all feedback gathered.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
7-3
Travel times (GP and transit)
Travel Time Reliability (GP and transit)
Average Score
Person hours of delay - general purpose
Person hours of delay - Transit
Average Score
Number of overall crashes
Number of serious injury and fatal crashes
Average Score
Number of people who can walk/bike to
NBK-BR or P&Rs under low stress
conditions
Number of high-quality travel choices in
the study area
Safe and Comfortable Walking and Biking
Options
Average Score
Parking utilization
Parking violations
City parking revenue
City parking enforcement
Accessibility to parking for Base workers
Tracking the "Bremerton Shuffle"
Surface parking/land use impacts
Average Score
Base Accessibility: Improve Base
accessibility for NBK-BR workers.
Livability: Improve overall livability for
Bremerton residents.
Preferred
Alternative
Parking:
Parking system supports a vibrant,
attractive and user-friendly Downtown
with thriving neighborhood districts
and attractive residential
neighborhoods.
Active Transportation:
Improve accessibility, connectivity and
increase safe ped/bike options to
decrease percent of trips made by
driving alone.
Mobility:
Increase the transportation system's
ability to efficiently move all people
and goods.
Safety:
Improve safety and reduce serious
injury and fatal crashes.
Travel Times and Reliability:
Improve travel times to/from
downtown Bremerton and make travel
times to/from downtown Bremerton
more predictable.
Study Goal Area Performance Measures
Figure 7-1. Preferred Alternative Analysis Results Summary
CITY OF BREMERTON
Joint Compatibility Transportation Plan
7-4
elements of the preliminary Preferred Alternative
and the feedback received from the CSB and online
open house.
Meeting with Navy and Shipyard
Finally, prior to finalizing the Preferred Alternative,
the study team met with Navy and Shipyard staff in
February 2023. The key feedback from NBK-BR was
that lighting upgrades are desired as part of design
projects, further coordination is needed on the
Jackson Park bicycle route, a flyover ramp from SR 3
southbound to Charleston Boulevard (SR 304) should
be considered, and there are concerns over the 6th
Street and Naval Avenue road diets.
The input collected at these four events led to the
following additional analysis and refinements to the
Preferred Alternative:
• Additional analysis of the existing queue
spillback from the Naval gate paired with the
proposed 6th Street and Naval Avenue road diets
was conducted to confirm the feasibility of the
road diet. The term “road diet” was also changed
to “re-channelization” based on feedback from
the CSB.
• It was recommended that NBK-BR review the
need for a new ramp from southbound SR 3
to eastbound SR 304 (Charleston Blvd) as part
of upcoming planning efforts for Bremerton
Waterfront Infrastructure Improvements at PSNS
and IMF.
• A new active transportation project on 1st Street
between Callow Avenue and Naval Avenue
was added to highlight active transportation
improvements near NBK-BR.
• Several park and ride projects were revised to
align with the Kitsap Transit Long Range Plan and
feedback from Kitsap County about not building
new structured parking.
• Language for several project descriptions was
revised based on CSB and NBK-BR input.
The Preferred Alternative is shown in Figure 7-2
below and described in the next section in Table 8-1.
Feedback on Preliminary Preferred Alternative
The study team solicited input on the preliminary
Preferred Alternative through several events in the
fall of 2022.
CSB Presentation
At the presentation of the preliminary Preferred
Alternative to the CSB in September 2022, the study
team heard the following key feedback:
• Building more structured parking on NBK-BR will
be difficult due to DOD funding constraints.
• Kitsap Transit is moving toward smaller P&Rs
in mixed-use centers instead of big lots, and
building new P&Rs with structured parking are
not consistent with Kitsap Transit’s long-range
plans and goals.
• New structured parking is also not consistent
with Kitsap County’s land use plans.
• Housing and housing affordability may impact
the project.
• More incentives are needed to increase transit
and worker/driver ridership. In an effort to
reduce the number of vehicle trips, increased
housing density surrounding NBK-BR could be
a potential strategy to promote transit, bicycle
transportation, and walkability in addition to
addressing housing affordability in Downtown
Bremerton.
• NBK-BR is concerned about potential traffic
impacts from the proposed 6th Street and
Naval Avenue road diets and the existing
queue spillback from the Naval gate during the
morning commute.
Online Open House
Following the Online Open House in October 2022,
the study team received feedback that was in
support of the plan, especially related to pedestrian
and bicycle improvements. Also, concerns about
how the Shipyard Infrastructure Optimization
Program (SIOP) will impact traffic in the near term
were expressed.
Public Works Committee presentation
The study team presented on the status of the JCTP
to the City Public Works Committee in October 2022.
The presentation included information on key
CITY OF BREMERTON
Joint Compatibility Transportation Plan
7-5
Final Preferred Alternative
The Preferred Alternative was chosen through a
collaborative process that included the public, the
CSB, City Council, NBK-BR, and the study team. The
final outcome is the result of an alternatives analysis
approach that outlines performance-based needs
and reasonable solutions that meet the needs at the
right time.
The Preferred Alternative is made up of several
improvements that address the study goals and
the existing and future needs. The themes of the
Preferred Alternative include the following:
• Build active transportation projects that facilitate
modal shift for commute trips to Downtown and
NBK-BR.
• Add parking in strategic locations outside
Downtown.
• Develop and implement parking policies that
improve and reduce NBK-BR commuter parking
in Downtown and adjacent neighborhoods.
• Build transit capacity and reliability.
• Encourage mode shift using Downtown parking
strategies, education, and employer incentives.
• Improve inbound capacity at NBK-BR gates to
minimize local roadway congestion and improve
air quality.
The Preferred Alternative is shown in Figure 7-2.
7-6
CITY OF BREMERTON
Joint Compatibility Transportation Plan
0 ½¼ MilesN
P & R
Preferred Alternative
Sheet 1 of 3
Preferred Alternative
Sheet 1 of 3
W
H
E
A
T
O
N
W
A
Y
SHERIDAN RD
11TH STPINE RDWHEATON WAY (SR 303)6TH ST
RIDDELL RD
SR
3
SYLVAN WAY
SR 16
BAY ST (
S
R
1
6
6
)CHARLESTON BLVDHIGH AVESR 3LYLE AVEMcWILLIAMS RD
PORT ORCHARD BLVDS
H
O
R
E
WOOD DRLEB
O BLVD
BEACH DR
KITSAP WAY (SR 310)
BURWELL ST (SR 304)
City of Bremerton Urban Growth Boundary
City Limits
Naval Base Kitsap - Bremerton
5-Minute Walkshed
10-Minute Walkshed
Active Transportation Projects in Improvement C29
(projects proposed in SR 303 study)
NBK-BR Gates
No Build Projects
Roadway Improvement
Proposed Bicycle Improvements
Source: City of Bremerton, Bremerton Non-Motorized Transportation Plan, USGS
PC - New / Expanded Parking, C - Capacity Projects,
B - Projects on Base, T - Transit Service/ Frequency,
PM - Parking Management / Policy,
CTR - Programs to encourage mode shift,
AT - Active Transportation, O - Other
PM2 Implement permit only parking in residential
neighborhoods adjacent to and surrounding NBK-BR
PM3
Establish a transportation management association. This
is typically a non-profi t established as a public/private
partnership with funding primarily from major employers.
Funding is used to support expansion of commuter
transportation options as alternatives to single-occupancy
vehicles through education, programs, and incentives.
C14
Study need for a new o -ramp from southbound SR 3 to
eastbound SR 304 as part of the Navy’s planning for any
future Base modifi cations that triggers this project
C26 Tra c Management Center that includes IT infrastructure
to support adaptive signals (e.g. Cloud based technology)
C31 Pedestrian/bike improvements within 5 minute walkshed
of park and rides or transit hubs
C35 Adaptive signal timing at 19 signalized intersections along
Kitsap Way, 6th St, and 11th St
C38 Support Burwell Street adaptive signal system
(project part of 2022 Strategic Road Safety Plan)
T6 More bus routes and greater frequency (10-15 minute
headways) to NBK-BR
T8 Shuttle service between Park & Rides and downtown
Bremerton (regular bus route with high frequency)
CTR3
Improve NBK-BR/Kitsap Transit Worker Driver Bus
program by making changes to reimbursement process
and easing use requirements
CTR4 Reduced fare and regular bus passes. Reduced fare
based on income
CTR11 Improve technology to make the NBK-BR/Kitsap Transit
Worker Driver Bus program more e cient
CTR12
Study increased foot-ferry capacity between Bremerton
and Port Orchard to align with Kitsap Transit’s Long Range
Transit Plan
O6 Better enforcement of HOV lanes
CTR1 Maintain telework options currently available to Base
System-Level Improvements (Not Depicted in Map Set)
AT5
Within the 10-minute walksheds of base gates, upgrade
and/or add sidewalks; upgrade marked and unmarked
crossings to be ADA compliant.
AT14 Support planning e orts for SR 3 in Gorst
PC4
Build projects in Kitsap Transit’s Long Range Plan that
provide a reliable non-auto travel mode such as new
circulator route in Bremerton, new express bus service
between Tacoma and Bremerton, high capacity transit
on SR 303, new on-demand ride zones in Bremerton,
multimodal hubs, and additional park and ride lots.
New
Parking
Park & Ride
Improvement
Base Gate
Improvement
Signal
Improvement
Roundabout Bicycle
Improvement
Combined
Pedestrian/Bicycle
Improvement
Pedestrian
Improvement
P&R
CITY OF BREMERTON
Description
ID
Improvement
Type
Build projects proposed
in SR 303 Corridor Study
Build park and rides in Kitsap Transit’s
Long Range Plan at the Puget Sound
Industrial Center and in South Kitsap;
look for opportunities to add parking
beyond planned parking stalls
C29
PC3
Preferred Alternative
Sheet 1 of 3
Figure 7-2. Preferred Alternative
7-7
CITY OF BREMERTON
Joint Compatibility Transportation Plan
15TH ST
15TH ST
11TH ST
6TH ST WARREN AVE (SR 303)16TH T
13TH ST
PARK AVESHELDONB
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V
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WAY
(SR
3
10
)
12TH ST PARK AVEEVA CIFICAP4TH STNAVALAVEVENETA AVE2ND
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TWASHINGTON AVEELIZABETH AVEHIGH AVELINCOLN AVEEVA ETIREUGRAMEVA YAWDAORBNCAMBRIANAVEN WYCOFF AVE5TH STN MONTGOMERY AVES CALLOW AVEMANETTE
BRIDGE
STATE AVE6TH ST
CITY OF BREMERTON
Preferred Alternative
Sheet 2 of 3
N 0 600300 Feet
City of Bremerton
Urban Growth Boundary
City Limits
Naval Base Kitsap - Bremerton
NBK-BR Gates
No Build Projects
Roadway Improvement
10-Minute Walkshed
5-Minute Walkshed
Active Transportation Projects in
Improvement C29
(projects proposed in SR 303 study)
Proposed Bicycle Improvements
Source: City of Bremerton, Bremerton Non-Motorized Transportation Plan, USGS
PC - New / Expanded Parking,
C - Capacity Projects,
B - Projects on Base,
T - Transit Service / Frequency,
PM - Parking Management / Policy
CTR - Programs to encourage mode shift,
AT - Active Transportation, O - Other
Base Gate
Improvement
Park & Ride
Improvement
P & R
Roundabout
New
Parking
Signal
Improvement
Bicycle
Improvement
Combined
Pedestrian/Bicycle
Improvement
Pedestrian
Improvement
BURWELL ST (SR 304)
Description
ID
Improvement
Type
Add “all-walk” pedestrian phase
Convert signal
to roundabout
Naval Ave Road Re-
channelization
6th St Road
Re-channelization
Construct mobility hubConstruct bike laneSupport Kitsap Transit’s
redevelopment of the
Gateway Park & Ride
Add a shared-use path
Support pedestrian crossing
improvements (project part of
2022 Strategic Road Safety Plan)
Support pedestrian safety
treatments (project part of 2022
Strategic Road Safety Plan)
Improve or manage input
at NBK-BR in the AM peak
to decrease queueing
Open gate during
both peak hours
Implement paid on-street parking
in the downtown subarea
C20
C41
C40
C24 AT2AT55AT1
AT15B3
B18
PM15
C38
C38
Install secure
covered bike parking
AT19
Figure 7-2. Preferred Alternative (continued)
7-8
CITY OF BREMERTON
Joint Compatibility Transportation Plan
S NATIONAL AVE1ST STNNATIONALAVE
3RD AVECORBET DROYSTERBAY AVES CHARLESTON AVERODGERS ST
W ARSENALWAYMAR
IN
E
D
R
KITSAP WAY (SR 310)N LAFAYETTE AVEN MARION AVEUNIONAVE21ST ST
19TH STJACKSONDR
S SUMMIT AVES CAMBRIAN AVEMONROE ST
11TH ST
BREMERTON BLVD1ST ST
6TH ST
ROOSEVELTBLVDEPHINNEYBAY DR
9TH ST
S LAFAYETTE AVEMORGAN RDBAY
V
ISTA
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13TH ST
KELLY RD
W WERNER RD ADELEAVEAUT
OC
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RDNW17TH ST
20TH ST
1ST ST
O ST
CHARLESTON BLVD24TH ST
CHARLOTTE AVEETHAN
CTLOXIE EAGANS BLVDN OYSTER BAY AVESUNDOWN DR
BRUENNAVEAUTO
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ENT
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RBLV
D
SINCLAI
R
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A
Y WILBERT AVESR
3 FORDAVENW 18TH ST
SHARTFORDAVES SUMMIT AVE17TH ST
N WYCOFF AVETIMES AVEBERTHA AVEL
OWERMARIN
E
D
R
6THST
N CHARLOTTE AVEDORA AVEEVA NAIRBMAC NSDORAAVESR3SMARINEDRS MARION AVEKEAN BLVD
CHARLESTON BLVDPreferred Alternative
Sheet 3 of 3
P & R
0 0.20.1 MilesN
CITY OF BREMERTON
City of Bremerton Urban Growth Boundary
City Limits
Naval Base Kitsap - Bremerton
NBK-BR Gates
No Build Projects
Roadway Improvement
Source: City of Bremerton, Bremerton Non-Motorized Transportation Plan, USGS
PC - New / Expanded Parking, C - Capacity Projects, B - Projects on Base, T - Transit Service / Frequency,
PM - Parking Management / Policy, CTR - Programs to encourage mode shift, AT - Active Transportation, O - Other
Base Gate
Improvement
Park & Ride
Improvement
P & R
Roundabout
New
Parking
Signal
Improvement
Combined
Pedestrian/Bicycle
Improvement
Pedestrian
Improvement
Active Transportation Projects in
Improvement C29
(projects proposed in SR 303 study)
Proposed Bicycle Improvements
Bicycle
Improvement
10-Minute Walkshed
5-Minute Walkshed
Description
ID
Improvement
Type
Build the park and rides outlined
in the Kitsap Transit’s Long Range
Plan north of Bremerton and the
West Bremerton Transit/Park and
Ride at Auto Center Way
Build intersection
improvements as
recommended by the
West Kitsap Way study
Convert stop sign and
signal to roundabouts
Improve sidewalks west
of Charleston Boulevard
Maximize the e cient
use of parking stalls on
installation and construct
additional parking
PC6
C1
C2
AT27
B7
Add bike facility on
Shorewood Drive
AT48
Figure 7-2. Preferred Alternative (continued)
CITY OF BREMERTON
Joint Compatibility Transportation Plan
7-9
Ongoing and Early Actions
The projects identified in the Preferred Alternative
will follow and build upon projects that are already
underway and should continue. These projects
include the following:
• Education for the general public and NBK-BR
on the non-auto commuting options available,
including vanpool, carpool, transit, Worker/Driver
Bus program, and active transportation.
• Maintain and improve management of incoming
traffic at the NBK-BR gates, including additional
officers to check credentials.
• Maintain and expand teleworking options for
NBK-BR and other employees commuting to
Downtown Bremerton.
• Implementation of recommendations from
the City of Bremerton Parking Study (City of
Bremerton 2017), including prioritizing certain
parking areas, discouraging the “Bremerton
Shuffle,” and increasing enforcement.
• Improve street lighting in Downtown Bremerton
to provide a more comfortable environment for
active transportation users.
• Increase density in Downtown Bremerton
through land use changes.
Recommended Parking Policies
The City of Bremerton Parking Study (City of
Bremerton 2017) and this study identified the need
for the City to actively manage parking Downtown to
meet the City goals and vision of increased livability
in Downtown. The City should focus on enforcement
and management of the parking system, including
increasing options for drivers to switch to other
modes, such a walking, biking, or transit as they
travel to and from Downtown. In addition, updates
are recommended for some of the current City
parking regulations contained in the Bremerton
Municipal Code (BMC).
The recommended parking policies are described
below. More information on the projects, including
implementation steps, is included in the project one-
pagers in Appendix O.
Implement permit-only parking in residential
neighborhoods adjacent to and surrounding
NBK-BR (PM2)
Bremerton currently maintains a residential permit
parking program in neighborhoods near Downtown
that have a high demand for commuter parking.
Permits are available to residents at no cost, and
parking for non-permit holders is typically restricted
to 2 hours, although time limits vary. The regulations
for the permit parking program are contained in BMC
10.10.040. Enforcement has improved significantly
in recent years due to technology investments by
the City, but it remains challenging, and commuter
parking impacts still exist and, in some cases, have
shifted to other parts of the City. Permit only zones
would limit parking to only those who have a
residential permit and their guests and would make
enforcement easier because it would not require
verifying compliance with time limits. Permit only
zones are currently authorized by BMC 10.10.040(e)
but may not be authorized by petition. Permit only
zones may only be created, deleted, or modified
by the City Council. The parking code should be
modified to allow for permit-only zones by petition
and require input from the neighborhood residents
regarding the desirability of a permit-only zone prior
to enactment.
Nonresidential zone permits limit parking to only
permit holders and, in some cases, short-term
parking by non-permit holders. Nonresidential zones
are typically in areas that are primarily business
oriented. Nonresidential permit zones are authorized
in BMC 10.10.30 and may be established by the
Director of Public Works following a finding that the
“change is in the best interest of the community and
will improve the health, safety, and welfare of the
community” or by the City Council. The current code
lacks details about the conditions that would warrant
the establishment of a nonresidential zone or the
type of nonresidential zone where permits may be
appropriate. The City should specifically prohibit
nonresidential zones in the Downtown subarea,
where customer and visitor access should be
prioritized so that long-term parking by employees,
commuters, and businesses occurs elsewhere, such
as in off-street facilities. Time limits and/or paid
parking are better solutions in commercial areas to
CITY OF BREMERTON
Joint Compatibility Transportation Plan
7-10
restrict commuter parking unless there is a need and
desire for employees to park on the street for longer
periods of time (e.g., 4 hours or more).
Establish a transportation management association
(PM3)
A transportation management association (TMA)
is typically a collaborative effort among some
combination of cities, public agencies, major
institutions, and major employers to collectively
address transportation issues in a localized area.
TMAs can also be primarily employer driven, either
by a single major employer or a group of employers.
TMAs are listed in the BMC in the CTR regulations
in BMC 10.20, but there is not much detail on how
TMAs are encouraged as a CTR strategy. Compared
to other parking strategies, the establishment of
a TMA will require a higher level of coordination
and interest from organizations outside of the
City. TMAs are often nonprofits that are controlled
by their members and function as public-private
partnerships. TMAs provide transportation demand
management services within their boundary and can
provide a wide range of services, such as marketing,
commuter incentives, parking management, transit
enhancements, and micromobility. Once established,
TMAs can generate revenue beyond member
contributions and through their programs.
Implement paid on-street parking in the Downtown
subarea (PM15)
Downtown Bremerton has been impacted by
commuter parking for many years. Downtown
Bremerton has many assets, including local retail
and restaurants, a connection to the waterfront,
residences, cultural uses, and parks and open spaces.
Access to Downtown and, in particular, use of on-
street parking should be prioritized for customers
and visitors, with longer-term parking, such as for
employees and residents, occurring off-street. To
minimize the impacts of long-term parking and
enhance access to Downtown for customers and
visitors, the City should move forward with paid
on-street parking using an asset-lite strategy, mobile
payment, and demand-based pricing.
Modern technology, such as mobile payment, has
revolutionized the parking industry and allows cities
to implement paid parking at relatively minimal
cost and without the use of expensive hardware.
Mobile payment companies will provide the up-front
technology, setup, and parking signs to the City at
relatively little cost. The City is typically responsible
for installing the signage through the Public Works
Department. A license plate-based payment system
will allow for integration with the City’s existing
enforcement technology and the use of license plate
readers for real-time enforcement against violations
(i.e., it does not require virtual chalking). The mobile
payment systems also provide other ways to pay,
such as calling an 800 number, using a website,
or paying at a local business if they do not have a
mobile phone. The City could consider installing a
few parking kiosks for payments, but it is likely not
necessary if partnerships with local businesses can
be developed.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
7-11
The parking technology system allows for integration
and management of the City’s permit programs
for both on- and off-street parking as well as the
collection of routine parking data to inform pricing.
The City should implement a demand-based pricing
program that varies rates by periods of demand.
Demand-based pricing can vary by season, monthly,
daily, or hourly. Under demand-based pricing, rates
are set higher at periods of peak demand and lower
or potentially free at times of low demand. Rates
can be preprogrammed to adjust and can easily
be modified over time as demand changes. Rates
are ultimately set to manage parking demand and
ensure access to Downtown and not to achieve a
certain revenue target. Demand-based pricing gives
parking users options for when they choose to travel
to Downtown, such as to take advantage of free
parking or, at high-demand times, to be able to find
parking at a reasonable cost.
Parking revenue generated should first pay for
management and maintenance of the parking
system. However, if revenues exceed the
management and maintenance costs, the City
should consider investing the revenue back into
the Downtown. This strategy is known as a parking
benefit district and can significantly improve the
Downtown, such as supporting capital projects,
marketing, the maintenance of streets and public
spaces, lighting, and public art. Parking benefit
districts can transform downtowns by providing a
consistent revenue stream for improvements and
maintenance while creating visible benefits from
parking management.
Other Considerations
Per the Coordination with Military
Installations section of VISION 2050 (PSRC 2020),
“while military installations are not subject to
local, regional, or state plans and regulations, PSRC
recognizes the relationship between regional
growth patterns and military installations, and the
importance of military employment and personnel
in all aspects of regional planning.” In an effort to
reduce the number of vehicle trips, the JCTP effort
has identified increased housing density surrounding
NBK-BR as a potential strategy to promote transit,
bicycle transportation, and walkability. Future
transit, bicycle, and pedestrian improvements
should be prioritized in areas that provide linkages
between high-density housing in Bremerton and
NBK-BR access points. With the 2024 Comprehensive
Plan update, when evaluating how to achieve
population growth targets identified in VISION 2050
(PSRC 2020), the City should consider strategies
to increase housing density in areas surrounding
NBK-BR. Further coordination with NBK-BR and local
stakeholders should take place at that time to ensure
any such proposal is consistent with City planning
policies, NBK-BR security objectives, Kitsap Transit
services, neighborhood compatibility, and outcomes
identified in the JCTP.
There is a parking garage in Downtown located at
4th Street and Park Avenue that has approximately
960 parking stalls dedicated to NBK-BR civilians.
Zoning in Downtown allows this exclusive use of the
parking garage by NBK-BR. While this plan does not
recommend new publicly owned parking structures
in Downtown it does not preclude a private structure
where zoning allows such.
The DOD is in the process of completing the SIOP for
PSNS. SIOP’s mission is “to execute the Navy’s once-
in-a-century investment to reconfigure, modernize
and optimize our four aging Naval Shipyards into
new modern facilities that will serve this Nation into
the future.” The Navy’s four public shipyards, which
include PSNS, “need substantial recapitalization and
reconfiguration in order to improve the timely return
of ships and submarines back to the fleet following
maintenance and modernization” (NAVSEA 2023).
As part of SIOP, the Navy is currently preparing an
Environmental Impact Statement (EIS) to evaluate
the potential environmental impacts of constructing
a new dry dock and associated waterfront
infrastructure improvements at PSNS & IMF (see
Section 9.3)
Per PSRC MultiCounty Planning Policy (MPP-T-19),
the City must design transportation programs and
projects to support the Downtown Regional Growth
Center and High-Capacity Transit Station Areas. This
includes areas within 1/2 mile of the ferry terminal
property, and within 1/4 mile of future High-Capacity
Transit Station Areas (specific sites Downtown TBD).
8. IMPLEMENTATION PLAN
CITY OF BREMERTON
Joint Compatibility Transportation Plan
8-1
8. Implementation Plan
The Preferred Alternative includes a mix of capital
projects and policy-based projects that address
existing and future needs related to GP traffic, transit,
active transportation, and parking. These projects
were evaluated to determine the project phasing
and implementation order. The Preferred Alternative
improvements were first divided into groups based
on the type of project (capital or policy-based) and
the agency that has the ownership or ability to lead
the project. These groups include the following:
• City of Bremerton capital projects (CC)
• City of Bremerton policy projects (CP)
• NBK-BR capital projects (BC)
• NBK-BR policy projects (BP)
• Kitsap Transit capital projects (KC)
• Kitsap Transit policy projects (KP)
• Washington State capital projects (WC)
• Washington State policy projects (WP)
Each project was scored based on the following
four criteria. For each criterion, a score of 1, 2, or
3 was assigned. These scores were added up for a
maximum score of 12. The criteria are described
below.
• City Goals: This criterion assessed how well
the project met the City’s goals for improving
livability in Bremerton and improving
accessibility to NBK-BR. A score of 3 was assigned
to projects that would improve both Livability
and Base Accessibility, a score of 2 was assigned
to projects that would only improve Livability,
and a score of 1 was assigned to projects that
would only improve Base Accessibility. To be
consistent with the City’s overall vision of the
Preferred Alternative being “Livability Centered”
versus “Capacity Centered,” a higher score was
given to projects within the Preferred Alternative
that will improve livability.
• Cost Level: This criterion assessed the cost level
of the project. These cost levels were estimated
based on preliminary design layouts and
planning-level cost estimates. A score of 3 was
assigned to a project that would be a low cost
(less than $500,000), a score of 2 was assigned to
a project that would be medium cost (between
$500,000 and $5 million), and a score of 1 was
assigned to a project that would be high cost
(greater than $5 million).
• Ease of Implementation: This criterion assessed
how difficult it would be to construct the project
based on limitations such as other City project
timelines and acquiring right-of-way. A score
of 3 was assigned to projects that could be
implemented within 6 years, a score of 2 was
assigned to projects that could be implemented
in 6 to 20 years, and a score of 1 was assigned
to projects that could be implemented in 20 to
30 years. Six years correlates to the timeline for
the City TIP, and 20 years correlates to the to the
timeline for the City Comprehensive Plan. The
horizon year for this planning study is 30 years.
• Funding: This criterion assessed how easily
funding would be acquired. A score of 3 was
assigned to projects for which funding is already
available, a score of 2 was assigned to projects
for which funding sources could be identified
and easily secured, and a score of 1 was assigned
to projects for which funding sources could not
be easily identified.
The total scores assigned to each project were used
as a baseline for grouping projects into phases. Early
phases include projects that will provide much-
needed benefits at lower costs, such as signal timing
changes, or projects that can be easily implemented
because they are “shovel ready,” such as the
Naval Avenue re-channelization.
These projects were prioritized based on how well
the project met the study goals, the estimated cost
level, the ease of implementation, and potential
funding. The horizon year for the JCTP traffic
analysis was 2050. The Preferred Alternative project
phases are not scheduled for specific years, but it
is anticipated that all projects will be constructed
over the next 30 years. The proposed project
phases for this study are suggestions and may be
updated as the projects move towards design and
implementation stages. Additionally, the order of the
project phases may be altered during coordination
with other jurisdictions, as conditions change in
CITY OF BREMERTON
Joint Compatibility Transportation Plan
8-2
the study area, or as new funding sources become
available. A summary of the proposed project
phasing is shown in Table 8-1 and the phasing matrix
is available in Appendix N.
The proposed project phases are also documented in
project one-pagers that provide detailed information
on the included improvements, benefits, issues, risks,
and estimated cost ranges. The project one-pagers
are included in Appendix O. The table is organized
by project time frame and owner, with the projects
listed in order of priority for completion for each
owner. This does not represent an exact timeline
for implementation because each project will be
dependent on many other actions, including funding
and permitting, and some might require additional
analysis, design, and environmental review. Because
there are four different owners included in this
Preferred Alternative, continued coordination
and collaboration between the agencies will be
necessary for successful delivery of the Preferred
Alternative.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
8-3
Table 8-1. Preferred Alternative Project Phasing
PHASE PROJECT ID1 PROJECT DESCRIPTION OWNER AGENCY
Short-Term Projects (0 to 6 years)
CC-1 C40 Naval Ave Road Re-channelization – revises lane configuration on Naval Ave to include
a 2-way center turn lane and bike lanes City of Bremerton
CC-2 C24 6th St Road Re-channelization – revises lane configuration on 6th St to include a 2-way
center turn lane and bike lanes City of Bremerton
CC-3 AT15 Add a shared-use path on south side of 1st St between Naval Ave and Callow Ave City of Bremerton
CC-4 AT5 Within the 10-minute walksheds of base gates, upgrade and/or add sidewalks; upgrade
marked and unmarked crossings to be ADA compliant City of Bremerton
CC-5 C20 Change signal timing to include all-way pedestrian phase at State St/Burwell St, Park
Ave/Burwell St, and Pacific Ave/Burwell St intersections City of Bremerton
CC-5 C35 Adaptive signal timing at 19 signalized intersections along Kitsap Way, 6th St, and 11th
St City of Bremerton
CC-6 C38
Build projects proposed in Bremerton Strategic Road Safety Plan (City of Bremerton
2022). Includes adaptive signal timing along Burwell St and pedestrian crossing
treatments at 6th St/Hewitt Ave and Burwell St/Washington Ave
City of Bremerton
CC-7 AT48
Add bicycle facilities on Shorewood Dr to connect to Kitsap Way and to downtown
Bremerton. Navy should consider improving path from Grays Harbor Court to
Shorewood Dr to provide connection for Jackson Park to City facilities
City of Bremerton
CC-8 C31 Pedestrian/bicycle improvements within 5-minute walkshed of park and rides or transit
hubs (existing and proposed)City of Bremerton
CC-9 AT27 Improve the sidewalk conditions in the neighborhood west of Charleston Blvd City of Bremerton
CP-1 AT1
Support Kitsap Transit’s redevelopment of the Gateway Park and Ride property located
at 6th St and Montgomery Ave in a manner consistent with the Comprehensive Plan,
Zoning Code, and Charleston Area-wide Planning Study
City of Bremerton
BC-1 AT19 Install secure covered bicycle parking inside NBK-BR, PSNS, and outside gates NBK-BR
BC-2 B3 Improve or manage vehicle input at NBK-BR gates in the AM peak to decrease queuing
on City streets NBK-BR
BC-3 B18 Allow input at Montgomery gate during AM peak hours and allow output during PM
peak hours NBK-BR
BC-4 C14 Study the need for a new off-ramp from southbound SR 3 to eastbound SR 304 as part
of the Navy’s planning for any future NBK-BR modifications that triggers this project NBK-BR
BP-1 CTR1 Maintain telework options currently available to DOD employees NBK-BR
BP-2 CTR3 Improve NBK-BR/Kitsap Transit Worker/Driver Bus program by making changes to
improve reimbursement process that ease use requirements NBK-BR
KP-1 CTR11
Improve NBK-BR/Kitsap Transit Worker/Driver Bus program by using technology and
active management to optimize routes and by adding “late” routes and/or alternative
shift routes
Kitsap Transit
KP-2 CTR12 Study increased foot-ferry capacity between Bremerton and Port Orchard to align with
the Kitsap Transit Long Range Plan Kitsap Transit
KP-3 CTR4 Reduced fare and regular bus passes. Reduced fare based on income Kitsap Transit
WP-1 O6 Better enforcement of HOV lanes Washington State
Patrol
WP-2 AT14 Support planning efforts for SR 3 in Gorst Washington State
Patrol
Mid-Term Projects (6 to 20 years)
CC-10 AT2 Construct a mobility hub at the southwest corner of Park Ave and 4th St for first/last
mile connections City of Bremerton
CC-10 AT55 Construct bike lanes on Park Ave from 4th St to 6th St City of Bremerton
CITY OF BREMERTON
Joint Compatibility Transportation Plan
8-4
PHASE PROJECT ID1 PROJECT DESCRIPTION OWNER AGENCY
CC-11 C26 Traffic Management Center that includes IT infrastructure to support adaptive signals
(e.g., cloud-based technology)City of Bremerton
CC-12 C41 Convert signal at Naval Ave/6th St to a roundabout City of Bremerton
CP-2 PM15 Implement paid on-street parking in the downtown subarea City of Bremerton
CP-3 PM2 Implement permit-only parking in residential neighborhoods adjacent to and
surrounding NBK-BR City of Bremerton
KC-1 PC6
Build the park and rides, outlined in the Kitsap Transit Long Range Plan, including the
Silverdale Park and Ride north of Bremerton and the West Bremerton Transit Center/
Park and Ride at Auto Center Way
Kitsap Transit
KC-2 PC4
Build projects in the Kitsap Transit Long Range Plan that provide a reliable non-auto
travel mode, such as new circulator route in Bremerton, new express bus service
between Tacoma and Bremerton, high-capacity transit on SR 303, new on-demand ride
zones in Bremerton, multimodal hubs, and additional park and ride lots
Kitsap Transit
KC-3 PC3
Build park and rides in the Kitsap Transit Long Range Plan at the Puget Sound Industrial
Center and in South Kitsap; look for opportunities to add parking beyond planned 520
parking stalls
City of Bremerton
KP-4 T8 Shuttle service between park and rides and downtown Bremerton (regular bus route
with high frequency)Kitsap Transit
KP-5 T6 More bus routes and greater frequency (10–15 minute headways) to NBK-BR, including
early morning and late evening routes Kitsap Transit
KP-6 PM3
Establish a transportation management association. This is typically a nonprofit
established as a public-private partnership with funding primarily from major
employers. Funding is used to support expansion of commuter transportation options
as alternatives to single-occupancy vehicles through education, programs, and
incentives.
Kitsap Transit
WC-1 C1 Build intersection improvements at SR 3/Kitsap Way as recommended by the West
Kitsap Way study WSDOT
WC-2 C2 Convert stop sign and signals at SR 3/W Loxie Eagans Blvd interchange to roundabouts WSDOT
Long-Term Projects (20+ years)
CC-13 C29 Build projects proposed in SR 303 Corridor Study (City of Bremerton 2021) – prioritize
capacity projects including roundabouts and BAT lane City of Bremerton
BC-5 B7 Maximize the efficient use of parking stalls on NBK-BR installation and construct
additional parking NBK-BR
1 PC - New/Expanded Parking, C - Capacity Projects, B: Projects on Base, T - Transit Service/Frequency, AT - Active Transportation, PM - Parking
Management/Policy, CTR - Programs/Technologies/Incentives to Encourage Mode Shift, O - Other
CITY OF BREMERTON
Joint Compatibility Transportation Plan
8-5
Potential Funding
The projects identified in the Preferred Alternative will require funding. There are multiple funding options
available, depending on the type of project. Table 8-2 includes list of potential funding sources for JCTP
projects.
Table 8-2. Potential Funding Sources for JCTP Projects
GRANT SOURCE PROJECT ELIGIBILITY
Rebuild America Infrastructure with
Sustainability and Equity Grants Many types including road projects and public transportation projects
Safe Streets and Roads for All – Implementation
Grants Projects identified in a Safety Action Plan to address roadway safety problems
Transportation Alternatives Program Community-based transportation improvements, such as bicycle and pedestrian
facilities
PSRC Regional and Kitsap Countywide
Competitive grants
Projects that support development of centers and the transportation corridors
that serve them
Surface Transportation
Block Grant Program
Variety of transportation projects and programs, including roadways, bridges,
pedestrian and bicycle infrastructure, transit and other investments
Highway Safety Improvement Program Projects that reduce fatal and serious injury crashes, following Washington state’s
Strategic Highway Safety Plan and the City’s local road safety plan.
WSDOT’s Safe Routes to School and Pedestrian/
Bicyclist programs
Projects for bicycle facilities, pedestrian facilities, crossing improvements
for people who walk and bicycle, speed management, and education and
encouragement about walking and bicycling.
Defense Access Roads program,
jointly administered by DOD’s Military Surface
Deployment and Distribution Command
Transportation Engineering Agency and the
Federal Highway Administration
Defense Access Roads program allows the Secretary of Transportation to provide
for the construction and maintenance of roads that give access to military
installations and other defense-related properties and for the replacement of
highways that are closed to the public due to closures or restrictions at military
installations and defense industry sites. It is the only federal mechanism that
allows for the military to fund improvements to roads outside of an installation.
DOD’s Defense Community Infrastructure Pilot
Program
Infrastructure projects located on a military installation; projects must support
military installations, be owned by state or local government, be endorsed by
local installation commander, and be construction-ready.
Washington State’s Defense Community
Compatibility Account
Projects that promote land use compatibility between communities and military
installations, such as projects that improve or enhance aspects of the local
economy, environment, or quality of life impacted by the presence of military
activities.
9. NEXT STEPS
CITY OF BREMERTON
Joint Compatibility Transportation Plan
9-1
9. Next Steps
The goal of the JCTP study is to create a responsive
and actionable plan to examine existing and future
needs for all transportation modes serving NBK-BR
and ensure Bremerton’s growth will not impede NBK-
BR missions, which are critical to our Nation’s military
readiness. The plan defines solutions to improve
multimodal mobility, outline parking strategies, and
enhance Bremerton’s livability. Success of this plan
will ensure NBK-BR meets its missions for national
defense while supporting Bremerton’s long-range
growth needs.
The Preferred Alternative provides a prioritized set
of projects to address the needs identified in the
Existing Conditions and Future No Build Conditions
analysis. The proposed phasing plan includes short-
term, mid-term, and longterm improvements that
will provide benefits to both the City and NBK-BR.
Using the JCTP, the City, NBK-BR, the County, and
WSDOT will:
• Work with Kitsap Transit to plan for transit
accessibility improvements, transit service
improvements, and transit infrastructure
improvements within the study area.
• Continue to monitor needs in the study
area to ensure each proposed project meets
those needs.
• Continue to engage the public to refine and
improve the proposed projects.
• Identify and apply for various funding sources for
each project.
• Continue to consider construction phasing
packages based on needs and funding
availability.
• Include and prioritize the recommended
projects in the City’s Comprehensive Plan and
Transportation Improvement Program
Ongoing Study Roles and
Responsibilities
It is anticipated that the CSB members for this
study will continue to coordinate during the design
and implementation stages for the proposed
improvements. Coordination between the City of
Bremerton, NBK-BR, Kitsap Transit, Kitsap County,
and WSDOT will continue as funding sources are
identified and pursued.
Ongoing Public Involvement
Just as public involvement helped shape the
outcome of the JCTP, ongoing public involvement
will be critical to future planning, design, and
development. Consistent with the community
engagement for this study, future phases of study
will need to actively provide opportunities for
the public and study area community members
to provide comments and input. All community
engagement during the design and implementation
stages will need to closely follow National
Environmental Policy Act and Washington State
Environmental Policy Act procedures related to
public involvement.
CITY OF BREMERTON
Joint Compatibility Transportation Plan
9-2
Future Upcoming Studies
Additional studies in the study area are being
completed now or in the near future.
West Kitsap Way Planning Study
The City was awarded a federal Surface
Transportation Program grant via PSRC to conduct
a transportation planning study for Kitsap Way from
SR 3 to Chico Way. West Kitsap Way has concrete
pavement in poor condition and lacks pedestrian
and bicycle infrastructure. The study will determine,
through a public process, updated cross sections
and 5-10 percent level of design for the future
reconstruction of the roadway.
City of Bremerton Comprehensive Plan 2024
The City of Bremerton is currently in the process of
updating their Comprehensive Plan. Bremerton’s
Comprehensive Plan provides guidance for how
the City will grow and develop over the next 20
years. The Comprehensive Plan is the centerpiece
of local planning efforts and relays the goals and
policies that will guide the day-to-day decisions
of elected officials and local government staff. The
City Comprehensive Plan update is scheduled to
be completed by December 2024. The Preferred
Alternative projects included in the JCTP will
be reviewed to included and prioritized in the
Comprehensive Plan and integrated into the
Transportation Improvement Program.
Bremerton Waterfront Infrastructure Improvements
Environmental Impact Statement
The Navy is preparing an EIS to evaluate the potential
environmental impacts associated with construction
of a new dry dock and associated waterfront
infrastructure improvements at PSNS & IMF at NBK-
BR. Much of the infrastructure at PSNS & IMF dates
back to the late 1800s and early 1900s, and it was
designed primarily for building and maintaining
ship classes that are no longer part of the modern
naval fleet. Other than construction of Dry Dock 6
in the early 1960s, the shipyard has had few major
infrastructure updates since the mid-1900s, which
has led to significant production inefficiencies for
maintaining current ships. The shipyard lacks the
necessary capability to accommodate new and
future classes of ships.
The Proposed Action includes construction of
new dry dock, seismic upgrades, demolition of
Hammerhead Crane, and modification, demolition
and/or replacement of other piers, wharves, quay
walls, buildings, and utilities at shipyard. The draft
EIS is currently being prepared and the Final EIS is
expected in the spring of 2024.
SR 3/Gorst Area – Widening Project
As part of the $16.8 billion Move Ahead Washington
Transportation Package passed by the Washington
State Legislature in 2021, $74.3 million was allocated
to the SR 3/Gorst Area widening project to fund the
initial design and environmental work. The planning
efforts for this project are expected to get under way
in late 2023 or early 2024.
10. REFERENCES
CITY OF BREMERTON
Joint Compatibility Transportation Plan
10-1
10. References
City of Bremerton. 2007. Bremerton Non-Motorized
Transportation Plan. Prepared by Parametrix and
Alta Planning & Design. https://www.bremertonwa.
gov/DocumentCenter/View /840/Non-Motorized-
Transportation-Plan-PDF.
City of Bremerton. 2012. Puget Sound Industrial Center –
Bremerton Subarea Plan (First adopted as the South Kitsap
Industrial Area Subarea Plan). Bremerton, WA. August.
City of Bremerton. 2016a. City of Bremerton
Comprehensive Plan. Adopted by Ordinance 5299.
Bremerton, WA. Effective June 3, 2016.
City of Bremerton. 2016b. City of Bremerton ADA
Transition Plan. Prepared by Al King, PE. Bremerton, WA.
March 10.
City of Bremerton. 2017. City of Bremerton Parking
Study. Prepared for City of Bremerton by BERK Consulting,
Seattle, WA. June.
City of Bremerton. 2020a. Bremerton Citywide
Transportation Concurrency Review. Prepared for City of
Bremerton by Transportation Solutions, Inc., Redmond,
WA. January 31.
City of Bremerton. 2020b. Bremerton Strategic Road
Safety Plan. Prepared for City of Bremerton by DKS
Associates, Seattle, WA. February 2020.
City of Bremerton. 2020c. 2021–2016 Six Year
Transportation Improvement Program. Resolution
No. 3328. July 15.
City of Bremerton. 2021. SR 303 Corridor Study. Prepared
for City of Bremerton and WSDOT by Parametrix, Seattle,
WA. May.
City of Bremerton. 2022. Bremerton Strategic Road Safety
Plan. Prepared for City of Bremerton by DKS Associates,
Seattle, WA. March.
Kitsap County. 2015. Joint Land Use Study: Naval Base
Kitsap and Naval Magazine Indian Island. Prepared for
Kitsap County, Jefferson County, and City of Bremerton
by MAKERS architecture and urban design, LLP, White &
Smith, LLC, TranspoGroup, and Community Attributes.
September.
Kitsap County. 2016a. Kitsap County Comprehensive
Plan. Adopted June 2016 with revisions through April
2020.
Kitsap Transit. 2016b. Kitsap Transit Long Range Transit
Plan 2016–2036. https://www.kitsaptransit.com/uploads/
pdf/projects/2016-2036-long-range-transit-plan-without-
appendices.pdf.
Kitsap County. 2018. Kitsap County Non-Motorized
Facility Plan. Adopted December 2, 2013; Maps Amended
December 11, 2018.
Kitsap County. 2020. 2021–2026 Six Year Transportation
Improvement Program. November 23.
Kitsap Transit. 2022. Long-Range Transit Plan 2022–2042.
December. https://www.kitsaptransit.com/uploads/pdf/
planning/lrtpreport_6dec2022.pdf.
NACTO (National Association of City Transportation
Officials). 2016. Transit Street Design Guide: Transit Lanes
and Transit Ways. https://nacto.org/publication/transit-
street-design-guide/transit-lanes-transitways/.
Naval Facilities Engineering Command Northwest.
2013. Vehicle and Pedestrian Safety Study NBK Bremerton.
Prepared for Naval Facilities Engineering Command
Northwest and MAKERS architecture and urban design,
LLP, by TranspoGroup. June.
NAVSEA (Naval Sea Systems Command). 2023. Shipyard
Infrastructure Optimization Program: Building the
Shipyards the Nation Needs. https://www.navsea.navy.mil/
Home/Shipyards/SIOP/.
PSRC (Puget Sound Regional Council). 2020. VISION 2050.
https://www.psrc.org/planning-2050/vision-2050.
USDOT (U.S. Department of Transportation). 2021. Benefit-
Cost Analysis Guidance for Discretionary Grant Programs.
Office of the Secretary. February.
WSDOT (Washington State Department of
Transportation). 2012. Bremerton Economic Development
Study: Kitsap and Mason Counties, Washington. US 101,
SR 3 and SR 16. Final Report. Prepared by WSDOT Olympic
Region, in association with H W Lochner, Inc., and
EnviroIssues, Inc. March.
WSDOT. 2018. SR 16, Tacoma Narrows Bridge to SR 3,
Congestion Study. Final. Prepared by WSDOT Olympic
Region, Tumwater, WA. December.
WSDOT. 2019. Washington State Ferries 2040 Long Range
Plan. Washington State Ferries, WSDOT, Olympia, WA.
January.
City Council Do’s and Don’ts
Presented by
Rob Roscoe
Deputy Director
Washington Cities Insurance Authority
Washington Cities Insurance Authority
•A municipal non-profit organization of Washington
public entities joined to share risk
–Over 165 members and over $193 million in assets
•Advantages of WCIA Membership
–Run by a board of directors composed entirely of
members
–Assist members in avoiding and reducing losses through
risk management, training, and claim handling
–Stability and transparency in rates
–Coverage decisions made by the Executive Director with
appealable rights to the Executive Committee
Washington Cities Insurance Authority
•Provides Self-Insurance Liability Coverage
–Auto Liability, General Liability, Employment Practices,
Errors & Omission
–$20,000,000 per Occurrence
–Look for coverage not exclusions
•Additional Insurance
–Member Property, Auto & Boiler Machinery
–Crime Fidelity purchased by members
–Cyber and Pollution Premises Liability purchased for all
members
Avoiding Liability
Individuals can receive absolute immunity for legislative
activities
–Adoption of budgets, ordinances, and resolutions
Only within context of council meeting as a whole and
not acting as an individual
Avoiding Liability
Land Use
–Use of Hearing Examiners
•Less issues with appearance of fairness
•Eliminates many arbitrary and capricious decision allegations
–Do not insert yourself in the process
•Westmark v. Burien, Mission Springs v. Spokane
–Development Agreements
•Held to contractual law and remedies which may not be covered by
WCIA
Avoiding Liability
Personnel
–Stay in legislative role
•Set policies, budgets, municipal codes
Do not to stray into Executive role
–Management of employees, hiring/firing, discipline
–Harassment and Discrimination
•Held to same standard as City employees
–Can be sued individually
–Know the law and your policies
•Report to Executive
–If you witness behavior or are made aware of problem by
employee
Avoiding Liability
Negligent Misrepresentation
–Do not make specific promises or assurances
–Refer specific questions to staff
–Do not take matters into your own hands
Avoiding Liability
Defamation
–If the statement/opinion is regarding a legislative concern
you have immunity
–Careful discussing or naming individuals
•Are they a public official, staff or private individual?
•Any untruth gives rise to liability
Avoiding Liability
Public Works
–Do not “politically engineer”
•Crosswalks, Signs, Speed Limits
–Ask for staff input off the record
–Have staff respond to public requests
•Joint and Several Liability
–Avoid promises, assurances and inflammatory
statements
Avoiding Liability
Do not leak Executive Session information
–Resist the temptation to share
–Disclose conflicts prior to session and recuse yourself
–Claims and Litigation
•Can jeopardize defense
•Possible sanctions imposed
Avoiding Liability
Be mindful of written communications
–Email/Social Media
•Always use City email address, not personal
–Public record and discoverable in litigation
•Is your social media account personal? For election
activity? To discuss City business?
–Do you allow comments and discussions?
»Possible Public Forum creation with First Amendment Protections
Published for
December 6
Council Meeting
Item 5 – Public Recognition
12.06.2023
To Bremerton City Council
RE: Bremerton Homeless Shelter Plans; Oyster Bay Ave Site
Why has this site been chosen?
The Mayor has consistently said that his team reviewed 10 sites in Bremerton and selected the Oyster
Bay site as it was the best optfon based on it meetfng a certain set of metrics set up by his team. But he
has yet to provide any data to back up why this site is superior to the other optfons or provide the sites
reviewed. With a plan and site in-mind, creatfng a checklist that would support selectfng a chosen site is
an easy assignment.
Choosing this has likely little to do with being best suited for a homeless shelter. To begin, this site is an
undeveloped, wooded and steep property. It is mapped as a critfcal area due to the steep slope
designatfon. A soil and geotechnical analysis was done in 2019 but does not appear to have been
updated. To get this site flat enough, a massive grading effort will need to take place including import
and export of soil and massive pile driven retaining walls. Doing this work during a wet season would put
this site as well as adjacent propertfes at massive risk of failure and landslide, so theoretfcally the grading
work could not be started prior to April. The grading effort will likely take 3-6 months so this site doesn’t
begin to meet the tfmeline the Mayor has been using to push a decision. Choosing this site for a shelter
and one that needs to open when Salvatfon Army closes is a fools errand.
Second, though public records requests, it came to light that RPM who was hired by the City to do site
analysis for the shelter locatfon determined a different site to be a ‘superior site’ to the Oyster Bay Ave
site. Among the issues flagged, the stormwater mitfgatfon and emergency response/fire department
access were going to prove problematfc; the pedestrian access is non-existent and would require
sidewalk installatfon. But most pointedly is the fact that in his words, ‘While they could likely get the
grading to pencil out on paper, would be a nightmare to meet many practfcal engineering requirements’.
So again, I ask why this site is being selected and pushed through despite expert opinions that do not
support it?
There has been a lot of push back about the Water Treatment site being the superior site, however it
was bypassed on the consideratfons due to the development costs being higher than the Oyster Bay site.
It is important to recognize this is not an apples to apples comparison. The cost to development the
Oyster Bay site far exceed the development cost of the Water Treatment site; the difference being the
City and Public works are being vague about who is paying for that development and omitting it from the
shelter costs. When asked directly about funding of site development; if it in-fact wasn’t part of the
Homeless shelter budget; Director Knuckey has said that ALL of the site development will be paid for out
of public works and water district funds since they would be the ultfmate beneficiaries of a graded site.
Do they have the funds now for this kind of work when it is earmarked for a future project? Is the City
hoping to get money from the County to develop the site? Due to the behind closed doors discussions, it
appears this site selectfon is a way for Public Works to fast track the development of the site. It also
appears that using the ‘emergency response’ tactfc, they appear to be sidestepping the process. Given
the lack of transparency throughout this process –you have to ask yourself why?
This is just one piece of a very big puzzle, but it is one to seriously consider when you review the plan the
Mayor will be presentfng.
I want to be very clear, I welcome an appropriate homeless solutfon (which in my opinion is palette style
housing with a communal kitchen and bathroom and outdoor space) being located in my district.
Jefferson County’s Community Build Group (www.community-build.org) has implemented a number of
small 8-12 palette house communitfes placed throughout their County and it has been wildly successful.
Providing dignified housing within neighborhoods is good for everyone. When you include a community
in the discussions and decision-making process, a sense of pride and dedicatfon to its success is fostered.
Removing the community from the discussion was a calculated one. Warehouse style congregate
shelters are meant to be located in large industrial or urban commercial areas. The site chosen is
inappropriate for this type of shelter ONLY. There is an agenda that the Mayor has been concealing from
Bremerton citfzens and City Council alike. You hold the keys to unlocking transparency.
I understand the urgent need to address the homelessness some Bremerton citfzens are experiencing,
and what a difficult task it is. But I would ask that you demand the Mayor look at this holistfcally and
collectfvly with agencies that will be supportfng these communitfes. There is an immediate need that can
be met through Salvatfon Army with contfnued City funding while a real 1-year, 5-year and 10-year plan
gets put together. A quick-fix solutfon to this issue does not exist. This is an issue that requires
compassion and dignity from and for all members of Bremerton. You are in the unique positfon to be
able to demand it. This is not a one size fits all problem, the Mayor is attemptfng a one size fits all
solutfon and frankly it is fatally flawed. Please do not be pressured into votfng for something in which
you do not have all the facts for, cannot stand behind as a real solutfon or doesn’t pencil out financially.
You are the safeguard put in place to ensure flawed plans do not make it through the system. The Mayor
is blatantly failing this City on this matter. We are depending on each of you, our Council members to
represent OUR needs, not the heavily cloaked agenda of the Mayor.
Respectiully,
Bree Medley
Bremerton Resident
District 6
Published for
December 6
Council Meeting
Item 3 – Mayor’s Report
MAYOR’S REPORT
December 6, 2023
Downtown Library Reopening on Dec. 11!
City has completed work on heating, cooling and ventilation upgrades to MLK Jr. Library in
downtown Bremerton
Kitsap Regional Library (KRL) has announced library will reopen to public on Mon, Dec. 11
Lack of cooling previously caused unscheduled closures –upgrades will maintain comfortable
environment for patrons and provide shelter as warming and cooling center in extreme weather
“The unique construction of this historic building presented significant challenges, but
the City’s dedication to this project has been unwavering.” –Kitsap Regional Library
New Housing Development –Eastside Village
16 townhome units have started construction –result of City’s adopted plan for Eastside
Village
Located near Warren Avenue bridge, replacing an old duplex and billboard sign
Estimated completion: summer/fall of 2024
Expansion of Broadband Across Bremerton
City has contracted with Astound to install and expand fiber network across the City
Once completed, new infrastructure will deliver faster and more reliable internet speeds,
improve network stability, and increase capacity
Glenn Akramoff
Public Works Operations Manager
Snow & Ice Response Report
Keeping You Safely Moving
Philosophy
Considerations
•Public Safety Access
•Understand the traveling public’s needs and expectations
•Risk vs. Reward
Aggressive Approach
•Response can mean life and death
•Workers take the risks
•We never quit working
Level of
Service
•7 Plows with Sanders
•2 Salt Brine Deicer Tanks
•3 Nine-hour shifts
•Fleet 12 hours and on call
•Parks and Fire have Resources
Western Washington Conditions
Phases of
Snow
Removal
•Pre-treatment
•Initial Plowing
•Salt/Sand
Application
•Secondary Plowing
•Ice Control
Priorities
•Access for Emergency Responders
•Arterials (Priority 1 Routes) Drivable
•Secondary (Priority 2,3,4 Routes) Drivable
•Arterials Clear
•Neighborhoods Drivable
The Current
Response
Plan
•Preparation
•Snowfall
•Hour 0 thru 48
•Hour 49 thru 72
•Hour 144 Plus
•Event completion
Actions Underway
Daily Weather Monitoring since November 1
Staff Training on December 6th
Coordination meetings December 6th
Reorganized and update the snow and ice response plan
Fleet has prepared the equipment
Increasing internal collaboration
Help Us Help You
•Be Prepared
1.Home (food, water, power)
2.Vehicle (fuel, clothes, winter supplies)
•Check on Your Neighbors
1.Particularly the elderly and young families
2.Shoveling of walkways, sidewalks and driveways
•Do Not Abandon Your Vehicle
•Understand the Conditions
•Stay Home If Possible
The
Cleanup
•Sweeping, Sand, and Debris
•Downtown Streets
•Arterials (Priority 1)
•Secondary Streets (Priority 2, 3, 4)
•Medians, Bike Lanes, Walkways,
Limited Sidewalks
•Neighborhoods
* Catch basins programmed yearly
Staffing the Event
?
Questions
Published for
December 6
Council Meeting
Item 8 – Council Reports