HomeMy WebLinkAbout04 Exhibit B.2 Housing AppxBremerton2044 DRAFT
SECTION 8.2
Housing
Appendix
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-2
Part 1: Housing Needs Assessment
Recent trends, local demographics, and characteristics of the housing stock present a significant
challenge if Bremerton is to live up to its legacy as a great place to reside. Current conditions in the local
housing market, detailed in this section, are in large part, the result of a gradual weakening of the
residential qualities of the city’s aging neighborhoods. The data, however, also portrays the opportunity
to capitalize on Bremerton’s well-established neighborhoods, the city’s unique position in the greater
Puget Sound economy, and, lastly, to capitalize on regional and national housing trends. Additionally, the
following information provides and meets the requirements of a Housing Needs Assessment, as required
by GMA 36.70A.070(2)
Community Profile
To better understand Bremerton’s housing needs, it is critical to understand Bremerton’s population
growth first. As of 2023, the estimated population of Bremerton is 44,640. Since 2010, the City of
Bremerton has grown at an average annual rate of 1.54%, which is well above the countywide average
annual growth rate of 0.81%. Bremerton is planning for 63,757 total population by 2044.
Source: Washington State Office of Financial Management. 2023. “April 1 population estimates;” PSRC growth target
Exhibit HSA-2 below reviews the population change in Washington State and Kitsap County, as well as
cities within the county. The table displays the percent population change from 2010-2023. Since 2010,
Bremerton has seen an 18.32% increase in population.
Exhibit HSA-2: Percent Population Change 2010-2023
Washington State 18.24%
Kitsap County 12.77%
Bainbridge Island 9.36%
Bremerton 18.32%
Port Orchard 56.67%
Poulsbo 34.78%
Source: Washington State Office of Financial Management. 2023. “April 1 population estimates.”
37,729
63,757
35,000
40,000
45,000
50,000
55,000
60,000
65,000
70,000
20102011201220132014201520162017201820192020202120222023202420252026202720282029203020312032203320342035203620372038203920402041204220432044Exhibit HSA-1: 2044 PSRC estimated population
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-3
Age of Population
The median age in Bremerton is 33.5, which is well the Kitsap County median age of 39.7 and well below
the state median age of 38. Bremerton has seen a 5% increase in the median age of residents since
2010, as shown in Exhibit HSA-3 below.
Exhibit HSA-3: Median Age Change 2010-2022
2010 2015 2019 2021 2022
31.9 32.1 33 33.2 33.5
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimates.
Residents between 20 and 39 years of age make up a larger portion of the population in Bremerton than
in Kitsap County and the state as a whole: 42% of Bremerton residents are aged 20-39, compared with
28.4% of Kitsap County residents, and 28.7% in Washington.
Nearly 19% of Bremerton’s population is over age 60 and an additional 10% of the population will reach
age 60 within the next 10 years. Many of these residents will have specific and changing housing needs
as they age. A diversity of housing types can be an important asset to support independent adults that
are aging in place. Single-family homes may work for some aging adults, but others may require or desire
maintenance-free housing or need accommodations for limited mobility or sensory impairments. Services,
health care, social opportunities, shopping, transportation, and other needs may be more accessible to
older adults who live in denser neighborhoods with those opportunities nearby. While many of the older
households in Bremerton have the financial means to afford adequate housing and services, many others
will not.
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimates.
As shown in Exhibit HSA-5 below, from 2010 to 2022, Bremerton saw a combined 27% increase in
residents aged 25 to 39 and combined 27% decrease in 5 to 19 years of age. Significant increases were
seen in 65-69 (76%) years of age.
0%10%20%30%40%50%60%70%80%90%100%
Under 5 years
5 to 9 years
10 to 14 years
15 to 19 years
20 to 24 years
25 to 29 years
30 to 34 years
35 to 39 years
40 to 44 years
45 to 49 years
50 to 54 years
55 to 59 years
60 to 64 years
65 to 69 years
70 to 74 years
75 to 79 years
80 to 84 years
85 years and over
Exhibit HSA-4: Population Distribution by Age
Washington Kitsap County Bremerton
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-4
Exhibit HSA-5: Percent Population Change by Age Group 2010-2022, Bremerton
Under 5 years -23%
5 to 9 years -12%
10 to 14 years -25%
15 to 19 years -41%
20 to 24 years +8%
25 to 29 years +26%
30 to 34 years +26%
35 to 39 years +32%
40 to 44 years 0%
45 to 49 years -25%
50 to 54 years -35%
55 to 59 years +8%
60 to 64 years +15%
65 to 69 years +76%
70 to 74 years 0%
75 to 79 years +33%
80 to 84 years 0
85 years and over -24%
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimates.
The old-age dependency ratio is the ratio of the number of elderly people at an age when they are
generally economically inactive (i.e. aged 65 and over), compared to the number of people of working
age (i.e. 15-64 years old). In 2022, Bremerton has an old-age dependency ratio of 19%, which is well
below Kitsap County (30%) and Washington State (26%).
Ethnicity and Race
Race and ethnicity are two different concepts in the Census. Race refers to a person's self-identified
category (White, Black, Asian, etc.), while ethnicity refers to whether a person is of Hispanic or Latino
origin. Hispanic/Latino population can be of any racial group.
The Bremerton population is less racially and ethnically diverse than the population of Kitsap County and
Washington State, as shown in Exhibit 6. 82% of the Bremerton population is white, 11% is Hispanic or
Latino, 12% is two or more races, 3% is Asian alone, and 1.5% is Black or African American.
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimates.
0.00%
20.00%
40.00%
60.00%
80.00%
100.00%
White Black or
African
American
Asian Hispanic or
Latino
AI/AN NH/PI Two or
more races
Some other
race
Exhibit HSA-6: Population by Race and Ethnicity
Washington Kitsap County Bremerton
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-5
As shown in Exhibit HSA-7 below, Bremerton has become more diverse since 2010. While still a small
percentage of the overall population, the Hispanic or Latino population has increased by 573%, while the
Native Hawaiian/Pacific Islander population has increased by 105%. Moreover, those of two or more
races increased by 137%.
Source: U.S. Census Bureau. 2010 and 2022. American Community Survey 5-year Estimates.
Household Income
In 2022, the median household income (MHI) in the City of Bremerton was $94,157 for homeowners,
$50,591 for renters, and $72,554 across all households. While Bremerton is below the median household
income for Kitsap County ($86,668) and Washington State ($85,936), it has increased significantly for
both owner and renter occupied since 2010.
Exhibit HSA-8: Median Household Income by Tenure, Bremerton
Housing Tenure 2010 2019 2022 Change 2010-2022
Owner $60,952 $75,579 $94,517 55%
Renter $28,483 $39,161 $50,591 78%
Source: U.S. Census Bureau. 2010, 2019, 2022. American Community Survey 5-year Estimates
As shown below in Exhibit HSA-9, Bremerton has a lower MHI for owner-occupied and renter-occupied
households than Washington State, Kitsap County, and other cities in the county.
Exhibit HSA-9: 2022 Median Household Income by Tenure, Comparison
Owner Occupied Renter Occupied
Washington State $110,930 $60,941
Kitsap County $110,247 $63,089
Bainbridge Island $167,760 $98,477
Bremerton $94,517 $50,591
Port Orchard $106,301 $60,839
Poulsbo $121,425 $49,732
Source: U.S. Census Bureau 2022. American Community Survey 5-year Estimates
As shown below in Exhibit HSA-10, households that own their homes are more likely to have higher
incomes. Relative to Kitsap County, Bremerton has a higher proportion of residents with annual incomes
less than $35,000 and a lower proportion of residents with annual incomes above $100,000. 33% of
renters in Bremerton make less than $35,000 per year, while 47% of owners in Bremerton make more
than $100,000 per year.
0.0%
20.0%
40.0%
60.0%
80.0%
100.0%
White Black or
African
American
Asian Hispanic or
Latino
AI/AN NH/PI Two or
more races
Some other
race
Exhibit HSA-7: Population by Race and Ethnicity Percent Change
2010 2022
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-6
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimates
Exhibit HSA-10 above illustrates the income gap in Bremerton. Bremerton has a higher proportion of
households making less than $35,000 and a lower proportion of households making more than $100,000
when compared to Kitsap County.
Bremerton has a smaller retirement age population (65 and over) than that of Kitsap County and
Washington State. 23% of households have retirement income. The mean retirement income in 2022 was
$30,962, while the mean social security income is $18,015.
Cost Burdened Households
Cost-burdened households are those that spend more than 30% of their monthly income toward housing
costs while severely cost-burdened households spend more than 50% or half of their incomes on housing
costs. When households face high rates of cost burden, they often must make difficult choices in
prioritizing purchases for other necessities such as food, healthcare, and childcare.
As shown in Exhibit HSA-11 below, about 36% of Bremerton households are either cost burdened or
severely cost-burdened. Overall, renters are substantially more likely to be cost-burdened or severely
cost-burdened than owners. 47% of renters are either cost burdened or severely cost-burdened, while
24% of owners are either cost burdened or severely cost-burdened.
Source: HUD CHAS (based on ACS 5-year Estimates, 2016-2020)
It is important to understand that cost burden is a housing supply issue. Most communities have a
spectrum of households with low, medium, and high incomes. Without an adequate supply of housing
that is affordable to households in each income category, households will experience cost burden.
Households at the lower end of the income scale have the fewest resources to balance cost burden
because there simply is not enough money to meet basic family needs after housing costs.
0%
20%
40%
60%
80%
100%
Less than $34,999 $35,000 to $49,999 $50,000 to $74,999 $75,000 to $99,999 $100,000 or more
Exhibit HSA-10: Household Income Levels for Bremerton and Kitsap County
Kitsap Renter Occupied Kitsap Owner Occupied
Bremerton Renter Occupied Bremerton Owner Occupied
0%10%20%30%40%50%60%70%80%
Owner
Renter
Total HH
Exhibit HSA-11: Cost-Burdened Households by Tenure
Not Available Severely Cost Burdened Cost Burdened Not Cost Burdened
Ord 5511, Exhibit B
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Housing Appendix
HSA-7
Area Median Income (AMI) is a metric calculated by the Department of Housing and Urban Development
(HUD) to determine the income eligibility requirements of federal housing programs. AMI is the midpoint
of a region's income distribution, meaning that half of households in a region earn more than the median
and half earn less than the median. A household's income is calculated by its gross income, which is the
total income received before taxes and other payroll deductions. AMI is calculated on an annual basis by
HUD, which refers to the figure as MFI, or median family income.
Exhibit HSA-12: HUD CHAS Income Levels*
Extremely Low Income ≤30% AMI
Very Low Income 30-50% AMI
Low Income 50-80% AMI
Moderate Income 80-100% AMI
Above Median Income >100% AMI
*A percentage of the AMI based on the specific geographic area where the household is located.
While there are households struggling with housing costs across the entire income spectrum, the greatest
number are among households with incomes below 30% of HUD Area Median Income (AMI). The
greatest need is among small families (36%) and other (32%). HUD defines small family as “2 persons,
neither person 62 years or over, or 3 or 4 persons” and other as “non-elderly non-family”. Exhibit HSA-13
below is Bremerton’s household by type and income level.
Exhibit HSA-13: Cost-Burdened Households by Type and Income Level
≤30%
AMI)
30-50%
AMI
50-80%
AMI
80-100%
AMI
>100%
AMI
All Cost-
Burdened
Households
Percent of Total
Cost-Burdened
Households
Elderly Family 115 140 325 390 630 1600 10%
Small Family 870 720 1225 670 2600 6085 36%
Large Family 110 115 390 80 290 985 6%
Elderly Living Alone 1080 410 680 145 550 2865 17%
Other 1110 775 1065 620 1780 5350 32%
Source: HUD CHAS (based on ACS 5-year Estimates, 2016-2020)
Cost burdens, especially severe cost burdens, affect wellbeing and health in significant ways. This is
especially true for households with older residents or children who need medical care and nutrition. When
these households face cost burdens they have less money to spend on food, healthcare, and
transportation. Spending an outsized amount of the family budget on housing is especially problematic
for low-income households, where higher housing costs affect the family’s ability to meet basic needs.
Exhibit HSA-14 below shows the distribution of households in Bremerton by household income as a
percentage of AMI. In 2020, an estimated 65% of households in Bremerton had incomes at or below the
AMI, while 35% had incomes greater than the AMI.
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-8
Source: HUD CHAS (based on ACS 5-year Estimates, 2014-2018, 2015-2019, 2016-2020)
As shown in Exhibit HSA-15 below, households that own their homes in Bremerton are more likely to
have higher incomes: 64% of homeowners have incomes above the AMI compared with just 29% of
renters. This is an indicator that homeownership may be unaffordable for many moderate-income
households in Bremerton.
Source: HUD CHAS (based on ACS 5-year Estimates, 2016-2020)
Poverty Level
As shown in Exhibit HSA-16 below, Bremerton has seen a 22% decrease to poverty levels. From a high
of 21.5% in 2015 to 14.3% in 2022.
0%
5%
10%
15%
20%
25%
30%
35%
40%
Extremely Low-
Income (≤30% AMI)
Very Low-Income
(31-50% AMI)
Low-Income (51-
80% AMI)
Moderate Income
(81-100% AMI)
Above AMI (>100%)
Exhibit HSA-14: Distribution of Housholds by AMI
2018 2019 2020
0%
10%
20%
30%
40%
50%
60%
Extremely Low-
Income (≤30% AMI)
Very Low-Income
(31-50% AMI)
Low-Income (51-
80% AMI)
Moderate Income
(81-100% AMI)
Above AMI (>100%)
Exhibit HSA-15: Distribution of Households by AMI and Tenure
Owners Renters
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-9
Source: U.S. Census Bureau. 2012-2022. American Community Survey 5-year Estimates
Employment Profile
Employment and Wages
As of 2021, there were 16,079 jobs based in Bremerton, which is a 7% decrease from 2010. The largest
numbers of jobs in Bremerton are available in the sectors of health care and social assistance (4,608),
retail (1,864), and educational services (1,692). In 2020, the average annual wages in the three largest
employment sectors in Bremerton, accounting for nearly 60% of the workforce, range between
approximately $25,000 and $56,000. These numbers include “civilian labor force,” which includes all non-
institutionalized civilians who are either employed or unemployed.
Exhibit HSA-17: Largest Number of Jobs per Sector and Average Annual Wage
Sector Share Average Annual Wage
Health Care and Social Assistance 28.7% $ 55,874
Retail Trade 11.6% $ 40,611
Educational Services 10.5% $ 39,584
Accommodation and Food Services 8.2% $ 25,692
Manufacturing 6.1% $ 63,730
Professional, Scientific, and Technical Services 5.4% $ 93,816
Administration & Support, Waste Management and Remediation 4.3% $ 51,928
Construction 3.1% $ 64,197
Finance and Insurance 2.9% $ 89,053
Real Estate and Rental and Leasing 2.8% $ 48,526
Other Services (excluding Public Administration) 2.5% $ 42,021
Wholesale Trade 1.4% $ 79,185
Source: U.S. Census OnTheMap, 2021 (Bremerton) and Employment Security Department/LMEA, 2020 (Kitsap County)
As shown in Exhibit HSA-18 below, on average, people who work in Bremerton (but do not live there)
earn slightly less than residents of Bremerton, with 45% of Bremerton workers earning less than $40,000
a year, compared to 49% of residents.
14.30%
21.50%
14.00%
15.00%
16.00%
17.00%
18.00%
19.00%
20.00%
21.00%
22.00%
20222021202020192018201720162015201420132012
Exhibit HSA-16: Percent Population Below Poverty Level
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-10
Exhibit HSA-18: Job Counts by Earnings
Bremerton Residents Bremerton Workers
Count Share Count Share
$1,250 per month or less 2385 17% 2412 15%
$1,251 - $3,333 4550 32% 4891 30%
More than $3,333 7476 52% 8776 54%
Source: U.S. Census OnTheMap, 2021
As shown in Exhibit HSA-19 below, the number of jobs in the city that pay $1,250 per month or less
(roughly $15,000 per year) has declined by 31% since 2010, while the number of jobs paying more than
$3,333 per month (roughly $40,000 per year) has grown by 120%. The number of jobs in the city that pay
$1,250 to $3,333 per month has declined by 50%.
Source: U.S. Census OnTheMap, 2010-2021
When examined by occupational employment category, Bremerton’s mix of occupations saw increases
to Manufacturing (104%), Administration & Support, Waste Management and Remediation (83%), and
Construction (57%). While still a small percentage of the overall, the Management of Companies and
Enterprises sector saw a 541% increase. During the same time, decreases were found in Arts,
Entertainment, and Recreation (-56%), Other Services (-51%), Wholesale Trade (-44%), and Information
(-47%).
1,000
3,000
5,000
7,000
9,000
11,000
2010 2012 2014 2016 2018 2020 2021
Exhibit HSA-19: Change in Jobs by Earnings
$1,250 per month or less $1,251 to $3,333 per month or less
$3,334 per month or more
Ord 5511, Exhibit B
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Housing Appendix
HSA-11
Source: U.S. Census OnTheMap, 2021
Regional employment projections can provide important information to shed light on potential future
demand for housing. Washington State Employment Security Department (ESD) provides short-,
medium-, and long-term employment projections by Workforce Development Areas (WDA). Bremerton is
in WDA1 or Olympic, which includes Clallam, Jefferson, and Kitsap Counties. Exhibit HSA-21 below
outlines industries anticipated to see the most growth over the 2020 to 2030 period.
Source: Washington State Employment Security Department, 2020
Naval Base Kitsap
Naval Base Kitsap (NBK) is a U.S. Navy home base for the Navy’s fleet throughout West Puget Sound,
provides base operating services, support for both surface ships and fleet ballistic missile and
other nuclear submarines as one of the U.S. Navy's four nuclear shipyards, one of two strategic nuclear
weapons facilities, and the only West Coast dry aircraft carrier dry dock. NBK is the third-largest Navy
base in the U.S. In the year 2024, Naval Base Kitsap-Bremerton had a total of 25,765 job openings, with
21,802 of those jobs filled. Military housing for NBK-Bremerton included approximately 2,000 beds for
unaccompanied housing/barracks and 41 units consisting of single-family homes and 4-plexes for officers
and their families. The shipyard in Bremerton is the Pacific Northwest's largest Naval shore facility and
0 1,000 2,000 3,000 4,000 5,000 6,000
Health Care and Social Assistance
Retail Trade
Educational Services
Accommodation and Food Services
Manufacturing
Professional, Scientific, and Technical Services
Transportation and Warehousing
Public Administration
Administration & Support, Waste Management and…
Construction
Finance and Insurance
Real Estate and Rental and Leasing
Other Services (excluding Public Administration)
Exhibit HSA-20: Occupation Change 2010 to 2021
2010 2021
- 100,000 200,000 300,000 400,000 500,000
Information
Professional/Scientific/Technical Services
Accommodation/Food Services
Leisure and Hospitaility
Retail Trade
Professional and Business Services
Health Care and Social Assistance
Educational Services
Exhibit HSA-21: Projected Top Five Growth Industries in WDA 1,
2020 –2030
2020 2030
Ord 5511, Exhibit B
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Housing Appendix
HSA-12
one of Washington state's largest industrial installations.
Naval Hospital Bremerton (NHB), located on Boone Road, is the primary military medical facility in the
area. NHB is a community-based acute care and obstetrical hospital, offering primary care, urgent care
and a broad range of outpatient/same day medical and surgical specialties. Naval Hospital Bremerton
and the clinic staff consist of approx. 1,100 dedicated military, federal service civilian and contractor
personnel.
In the 2020 Census, 3,633 residents resided in military group quarters, which is 8.4% of the total
population, compared to 2% of the Kitsap County population.
Jobs and Housing Ratio
Based on 2023 population and 2021 employment numbers, as shown in Exhibit HSA-22, Bremerton has
a jobs-housing ratio of about .83. This is inside what's generally considered to be a "good" balance (0.75
- 1.5). A jobs-housing ratio in the range of 0.75 to 1.5 is considered beneficial for reducing vehicle miles
traveled. Ratios higher than 1.5 indicate that there may be more workers commuting into the area
because of a surplus of jobs. The jobs-housing ratio indicates whether an area has enough housing for
employees to live near employment centers and sufficient jobs in residential areas. An imbalance in jobs
and housing potentially creates longer commute times, more single driver commutes, loss of job
opportunities for workers without vehicles, traffic congestion, and poor air quality.
Exhibit HSA-22: Jobs to Housing Ratio, 2021
Jobs Housing Ratio
Bremerton 16,079 19,399 .83
Source: Census OnTheMap, 2021 and OFM Estimates, 2023.
Using the Inflow/Outflow Analysis tool in Census OnTheMap it’s easy to show that this ratio isn't resulting
in the desired benefit of reduced commute distances. Of the 16,079 jobs located in Bremerton, only 2,884
workers live in Bremerton, or just 18%. Instead, 82% of people working in Bremerton commute in from
home locations outside the city. And 80% of working residents of Bremerton commute to jobs outside of
the city.
The Venn diagram below shows this situation clearly. One reason for this outcome could be that over
45% of the jobs in city limits are lower wage (earning less than $3,333 per month).
Exhibit HSA-23: Inflow/Outflow Counts of Jobs
Source: U.S. Census OnTheMap, 2021
Out of the 11,527 residents employed outside of the city, 16% commute to Seattle, while 7% commute to
Silverdale, as shown in Exhibit HSA-24.
Ord 5511, Exhibit B
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Housing Appendix
HSA-13
Exhibit HSA-24: Where Bremerton Residents Are Employed
Location Percent
Bremerton 20%
Seattle 16%
Silverdale 7%
Tacoma 5%
Port Orchard 4%
Poulsbo 3%
Bellevue 3%
Source: U.S. Census OnTheMap, 2021
As shown in Exhibit HSA-25 below, over 42% of Bremerton residents travel less than 10 miles to their
place of employment and an additional 39% travel 10-24 miles.
Exhibit HSA-25: Job Locations by Distance
Less than 10 miles 41%
10-24 miles 32%
25-50 miles 3%
Greater than 50 miles 6%
Source: U.S. Census OnTheMap, 2021
The COVID-19 pandemic dramatically accelerated the adoption of remote work, and many companies
and employees discovered the benefits of flexible work arrangements. As of 2022, 7.7% of Bremerton
residents were working from home (see HSA Exhibit 26), which was up from 6.2% in 2021. The long-term
prevalence of remote work will depend on several factors, such as company policies, type of industry,
technology, and employee preference. It's challenging to provide a specific percentage as it will vary
widely across different regions and industries. Some experts predict that a significant portion of the
workforce will continue to work remotely in some capacity even after the pandemic subsides, but the
exact percentage will depend on the factors mentioned above. Additionally, the hybrid work model, which
combines in-office and remote work, is becoming increasingly popular as it allows for greater flexibility
and work-life balance.
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimates
Housing Inventory
Characteristics of the existing housing stock include type, occupancy, age, condition, and affordability,
as detailed in sections following this general summary. By comparing the housing stocks of the city and
the wider Kitsap community, the characteristics of Bremerton’s existing housing stock, and its current
position in the development and housing market emerges. This position can then be advanced and
improved upon.
0%
2%
4%
6%
8%
10%
2010 2012 2015 2019 2020 2021 2022
Exhibit HSA-26: Work from Home, 2010-2022
Ord 5511, Exhibit B
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Housing Appendix
HSA-14
Housing Units
As of 2023, there were an estimated 19,399 housing units in the City of Bremerton. Since 2010, there
has been a 12.3% increase in the number of housing units in Bremerton, compared to 53% in Port
Orchard, 30% in Poulsbo, and 8% in unincorporated Kitsap County.
Exhibit HSA-27: Percent Housing Unit Change 2010-2023
Washington State 15.7%
Kitsap County 7.9%
Bainbridge Island 8.1%
Bremerton 12.3%
Port Orchard 52.5%
Poulsbo 29.9%
Source: Washington State Office of Financial Management. 2023. “April 1 population estimates.”
Source: Washington State Office of Financial Management. 2023. “April 1 population estimates” - Housing
According to the 2021 Kitsap County Buildable Lands Report, over half (54%) of the permitted housing
units between 2013 and 2019 were in multifamily buildings, compared to 37% in the previous evaluation
period. As shown in Exhibit HSA-29, the distribution of housing types for Bremerton and Kitsap County is
significantly different. Proportionally, Bremerton has a larger number of multi-unit structures, with 47%
compared to 23% in Kitsap County.
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimates
17,000
17,500
18,000
18,500
19,000
19,500
20,000
2010 2015 2019 2020 2021 2022 2023
Exhibit HSA-28: Housing Units, 2010-2023
0%10%20%30%40%50%60%70%80%
1-unit, detached
1-unit, attached
2 units
3 or 4 units
5 to 9 units
10 to 19 units
20 or more units
Mobile home
Boat, RV, van, etc.
Exhibit HSA-29: Housing Inventory by Units in Structure
Kitsap County Bremerton
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-15
Housing Tenure
As of 2022, an estimated 47% of households in the City of Bremerton owned their home, while 53% were
renting (Exhibit HSA-30 below). This represents an increase in the proportion of owner household units
since 2010, when 41% of Bremerton households were homeowners and 59% were renters.
A healthy housing market includes a mix of both ownership and rental housing types to meet the needs
of a diversity of households and income levels. Not all households can afford homeownership or desire
to own a home. There is some evidence that higher rates of homeownership in a community are
associated with a higher median length of residence (amount of time living the same housing unit). Higher
rates of homeownership are also linked to higher property values, though that relationship may work in
reverse, with higher property values leading to higher ownership rates.
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimates.
Household Size
The term “household” refers to a group of people living together in a single housing unit. As of 2022, the
average household size in the City of Bremerton is 2.27 individuals (2.34 for owner-occupied households
and 2.2 for renter-occupied households), lower than the Washington State and Kitsap County average of
2.48 individuals per household.
As shown in Exhibit HSA-31, one- and two-person households are the most common household size
overall in Bremerton. Among owner-occupied households, two-person households are the most common
size and among renter households, one-person households are the most common size. While smaller
households are more common, there are still a significant number of larger households in Bremerton.
More than 5,000 or 28% of households have three or more members.
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimates.
0%10%20%30%40%50%60%70%80%90%100%
Exhibit HSA-30: Housing Tenure
Owner-Occupied Renter-Occupied
2447
3519
959 590 459 214 72
3863
2730
1506
776 431 79 95
1-person 2-person 3-person 4-person 5-person 6-person 7-person
Exhibit HSA-31: Household Size by Tenure
Owner Occupied Renter Occupied
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-16
The breakdown of households by size has changed over the past decade, as shown below. The city
experienced an increase in all household sizes except 4-person households (20% decrease). The
greatest increase was seen in 7-or-more person households with 54% increase from 2010 to 2022.
Source: U.S. Census Bureau. 2010 and 2022. American Community Survey 5-year Estimates.
Bremerton’s current housing stock size when compared with household size, reveals the situation as
population ages in place. Exhibits HSA-33 and 34 reports a majority of households in Bremerton (71%)
have one or two members and live in housing units with two or more bedrooms.
It is likely that many of the 2-3+ bedroom homes in Bremerton are occupied by households with only one
or two members; this can happen when there are “empty nester” owner households living in single-family
housing stock. This reduces the number of larger homes available for larger households.
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimates.
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimates.
1-person 2-person 3-person 4-person 5-person 6-person 7-or-more
person
Exhibit HSA-32: Change in Number of Households by Household Size
2010 2022
0%
10%
20%
30%
40%
1-person HH 2-person HH 3-person HH 4-or-more-person HH
Exhibit HSA-33: Household Size
Washington Kitsap County Bremerton
0%
20%
40%
60%
80%
Studio 1 BDR 2 - 3 BDR 4 + BDR
Exhibit HSA-34: Housing Unit Size
Washington Kitsap County Bremerton
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-17
Age of Housing Units
As shown in Exhibit HSA-35, 14.7% of occupied housing units in Bremerton have been built since 2000,
with 18% being constructed from 1980-1999 and 23% from 1960-1979. Nearly 36% of Bremerton’s
occupied housing units were built prior to 1950. This creates a unique challenge of maintaining and
rehabilitating an existing, older, housing stock.
Many of these housing units are solidly built and structurally sound but in need of energy efficiency
improvements and upgrades to preserve them for the long‐term. The older age of Bremerton’s housing
stock, with an associated increased cost for maintenance, has an impact on the conditions of housing,
particularly in common deference of maintenance as homes approach obsolescence in today’s market
for homeowners.
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimates.
Housing Conditions
A study of Kitsap County Assessor data also revealed that less than 6% of Bremerton's occupied single
family housing units rated as being in fair, poor or very poor condition. Kitsap County Assessor “fair"
assumes to have only minor deficiencies. Structures rated "poor" or “very poor” are assume to that they
have substantial deficiencies (e.g. cracked foundation or need new roof).
Exhibit HSA-36: 2024 Housing Condition (Buildings)
Type Excellent Very
Good Good Average Fair Poor Very
Poor Total
Single Family 233 1378 3559 4251 351 76 27 9875
Manufactured
Home 2 3 23 78 12 1 2 121
Duplex 23 120 400 386 40 5 5 979
Triplex 1 10 18 32 8 0 3 71
Fourplex 0 5 18 26 6 0 1 56
Total Buildings 259 1516 4018 4773 417 82 37 11,102
Percent 2 14 36 43 4 1 >1%
Source: Kitsap County Assessor, 2024
Substandard housing will need to be replaced or rehabilitated in the next 20 years. In addition to the
existing substandard units, additional units can be expected to become substandard each year. A rule of
thumb is that, based on typical survival rates of existing housing stock, 2% of units at least 25 years old
will become substandard each year. The estimate of units to be replaced or rehabilitated is based on the
following assumptions.
0 500 1000 1500 2000 2500 3000 3500 4000
2020 or later
2010 to 2019
2000 to 2009
1990 to 1999
1980 to 1989
1970 to 1979
1960 to 1969
1950 to 1959
1940 to 1949
1939 or earlier
Exhibit HSA-35: Year Built, Occupied Housing Units
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-18
• A backlog of 119 units rated "poor" or "very poor" must be rehabilitated or replaced in the next 20
years ‐‐ an average of 8 per year.
• An additional 254 housing units are expected to become substandard each year (2% of
approximately 12,697 built before 1980).
It is expected that most pre-1980 units will need some level of rehabilitation during the planning period.
Private and public efforts listed in the Goals and Policies section of this Housing Element describe
measures aimed at stemming this tide of rehabilitation needs. The direction of the elements goals and
policies include taking actions such as supporting code enforcement as well as recognizing the critical
role of new development and increase land values that will spur new investments and property
improvements.
Housing Affordability
Homeownership Affordability
Between 2015 and 2022, the median home value of occupied housing units in Bremerton went from
$178,300 to $369,700, which was a 107% increase. During that same time Kitsap County experienced a
79% increase while Washington State saw an 82% increase.
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimate.
Rental Affordability
From 2015 to 2022, median rent increased by 62% from $870 to $1,413. The median rent in Kitsap
County and Washington State increased by 57% during the same period.
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimate.
170,000
220,000
270,000
320,000
370,000
420,000
470,000
202220212020201820152010
Exhibit HSA-37: Median Home Value, 2010-2022
Washington Kitsap County Bremerton
$700
$900
$1,100
$1,300
$1,500
$1,700
202220212020201820152010
Exhibit HSA-38: Median Gross Rent, 2010-2022
Washington Kitsap County Bremerton
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-19
As shown in Exhibit HSA-39, median rent in Bremerton in 2022 was $1,413 which means that a household
earning the median household income for a renter of $50,591 per year and living in an average priced
apartment has $2,800 per month to cover food, healthcare, transportation, education, childcare, and any
discretionary spending.
The cost-of-living composite consists of grocery, housing, utilities, transportation, and miscellaneous
goods and services. The national average is normalized at 100. Cost of living for Kitsap County in Q3
2023 is 115.3. The cost of living in Kitsap is lower than Seattle (145.7), and other Puget Sound urban
areas (C2ER Cost of Living Index Q3 2023 Report). Kitsap experiences notably higher transportation
costs likely attributed to ferry travel.
Exhibit HSA-39: Rental Affordability, 2010-2022
2010 2022
Median Rent $777 $1413
Income Needed to Afford (at 30% of MHI) ~ $31,000 ~ $56,000
Median Household Income (renters) $28,483 $50,591
Source: U.S. Census Bureau 2010 and 2022 American Community Survey 5-year Estimates.
Displacement Risk
Displacement refers to instances when a household is
forced or pressured to move from their home against their
will. Direct, physical displacement occurs in cases of
eviction, the termination of a tenant’s lease, or public land
claims through eminent domain. Physical displacement can
also occur when a property owner decides to renovate units
to appeal to higher-income tenants or when buildings are
sold for redevelopment. Another cause might be the
expiration of an affordability covenant and resulting
conversion of the unit to market rate housing.
Economic displacement occurs when a household
relocates due to the financial pressure of rising housing
costs. Renters are more vulnerable to economic
displacement, particularly those who are low-income,
although some homeowners can experience this as well
with significant increases to property tax bills. Cultural
displacement is the result of the loss of social nets. When
physical and/or economic displacement affects community businesses and a concentration of racial or
ethnic minority households, other households affiliated with the affected cultural group may begin to feel
increased pressure or desire to relocate.
The Puget Sound Regional Council has developed a strategy to determine the risk of displacement of
census tracts. Each census tract in Bremerton has received a place on the displacement index by
analyzing factors in the following categories: socio-demographics, transportation qualities, neighborhood
characteristics, housing, and civic engagement. Bremerton is shown to have a low to moderate level of
displacement risk. In an effort to address displacement, Bremerton adopted Ordinance No. 5510 which
encourages landlords to maintain existing housing stock in good condition, and adds protections for
vulnerable populations that may be residing in substandard housing, including relocation assistance to
secure better housing conditions.
Affordable Housing
Public and subsidized housing is housing that is guaranteed to be affordable to people who meet certain
income criteria. Often this type of housing is built with the help of federal, state, or local programs that
contribute financing, incentives, or other forms of support for the construction of the housing units.
Exhibit HSA-40: PSRC Displacement Risk
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-20
Sometimes units are built to serve specific vulnerable populations such as older adults, low-income
families, people with disabilities, veterans, or people transitioning out of homelessness. State and federal
rules require that housing created under such programs remain affordable to the intended group for a
defined length of time, sometimes in perpetuity.
Affordable Rental Housing
The City of Bremerton has 39 properties regulated affordable housing properties consisting of 1856 units,
representing the largest ownership for affordable housing units in Kitsap County (44% of affordable
housing units in Kitsap County). In addition, the City has the largest share of deeply affordable rental
stock – those which are restricted to be affordable for households earning 0-30% MFI, as well as the
largest share of units affordable to 50-60% MFI.
Exhibit HSA-41: Distribution of Regulated Affordable Rental Housing, Cities & UGAs
Affordable
Units
Share of 30%
MFI restricted
housing stock
Share of 31%-50%
MFI restricted
housing stock
Share of 51-60%
MFI restricted
housing stock
Share of 61-80%
MFI restricted
housing stock
City of Bremerton 1750 66% 41% 51% 9%
City of Bainbridge
Island
273 13% 7% 1% 60%
Kingston UGA 58 0% 1% 2% 31%
City of Port Orchard 581 9% 28% 20% 0%
City of Poulsbo 288 9% 11% 7% 0%
Silverdale UGA 359 2% 11% 19% 0%
Total 3324
Source: ECONorthwest Exhibit 35 Kitsap-Bremerton Affordable Housing Inventory and Market Analysis, Appendix B
Bremerton Housing Authority (BHA) is a public corporation with the purpose of providing affordable
housing opportunities for people with limited financial means. The primary service area is the City of
Bremerton. BHA provides affordable housing opportunities at the following developments: Wright Court,
Charter House, Tara Heights, Winfield, Shadow Creek, Tamarack, The Firs, Casa Del Sol, Bay Vista
South, Bay Vista West, The Summit, and Bay Vista Commons. The latter project, Bay Vista Commons,
provides affordable assisted living. Combined, these projects consist of 544 units, and represents 13%
of all affordable units countywide.
There are additional programs and projects that support affordable housing properties, programs or
assistance for residents to stay within their home. Exhibit HSA-42 describe additional programs.
Exhibit HSA-42: Bremerton Affordable Rental Housing Programs and Partnerships
Organization Type of Assistance Participant Details
Bremerton Housing
Authority
Rental Assistance
Program to provide rental assistance for
payments of rent, prevent eviction or
security deposit assistance
Housing Navigation Program
Program to increase utilization of federal
housing voucher by providing intensive
housing ‘navigation’ services
Shadow Creek Apartments Expansion of affordable units at Shadow
Creek Apartments
Kitsap Community
Resources Weatherization and Home Repairs
Grants to assist with energy efficiency,
insulation, heating system repairs, health
and safety issues
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-21
Housing Solutions Center of Kitsap
County
One-stop Housing Resource Center for
all housing assistance
Manette Townhouse Project Construction of 9 new townhomes
Mills Crossing Acquisition of 36-unit townhome
complex
Source:https://www.bremertonwa.gov/DocumentCenter/View/10803/Affordable-Housing-Updates-DF?bidId=
Affordable Homeownership Housing
In addition to rental housing, lower-income households have some opportunities for homeownership can
be limited. This is because, depending on the type of assistance, households may need incomes high
enough to qualify for a traditional mortgage from a private bank, but low enough to qualify for assistance,
which may exclude a large share of would-be homeowners.
Affordable homeownership programs in Kitsap County are offered by Housing Kitsap, the Bremerton
Housing Authority, the Housing Resources Board, Habitat for Humanity, and Community Frameworks.
These programs can help lower-income households access the wealth building opportunities traditionally
offered via homeownership.
Exhibit HSA-43: Bremerton Affordable Homeownership Programs and Partnerships
Organization Type of Assistance Participant Details
Housing Kitsap
In conjunction with USDA mortgage
assistance via low-interest loans,
Housing Kitsap provides Technical
Assistance for Construction and
down payment assistance.
Serves 22 households per year
Must earn below 80% of MFI
Loans are about $225,000 with
some down payment assistance
(max 20% of the loan amount)
Bremerton Housing Authority
Mortgage payment assistance for
voucher holders for up to 15 years,
participants must be enrolled in
the Family Self Sufficiency Program
Most earn below 30% of MF
Average home sale was $180,000
Community Frameworks
Down payment assistance for five
years and deferred, low-interest
loans for the duration of the
mortgage. Payments are deferred
until the loan sale. Also offer sweat
equity for rehabilitated housing
programs.
Most earn below 80% of MFI
Assistance totaling over $952,000
since 2013; average of $36,600 per
household
Source: ECONorthwest Exhibit 39 Kitsap-Bremerton Affordable Housing Inventory and Market Analysis, Appendix B
Homelessness and Special Housing
Homelessness
The City of Bremerton homeless response system is coordinated through the Kitsap Housing and
Homelessness Coalition, comprised of 40+ organizations providing prevention rental assistance,
emergency shelter beds, transitional housing units, rapid rehousing subsidies, and permanent supportive
housing units in tandem with a wide range of progressive engagement case management and tailored
supports.
Kitsap’s one-stop coordinated entry program, the Housing Solutions Center, provides intake, assessment,
and referrals for all households experiencing housing instability and homelessness. The Housing
Solutions Center (HSC) has offices in Bremerton, Port Orchard, Poulsbo and Bainbridge Island, and
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-22
refers households to appropriate emergency housing resources and maintains a community‐wide waiting
list for emergency housing.
Chronically homeless individuals are currently underserved in Kitsap, with few programs targeting their
needs. Kitsap Community Resources provides a wide range of social services, including housing and
supports, for homeless families. Veterans receive prevention funding through the Kitsap Veterans
Assistance Fund, and rental assistance and case management through the Veterans Assistance and
Supportive Housing (VASH) voucher and the Supportive Services for Veteran Families (SSVF) program.
The Coffee Oasis provides a wide array of services for unaccompanied homeless and street‐oriented
youth, drop‐in centers, case management, job training, and a youth shelter.
Despite great improvements in the provision of housing and services to people experiencing
homelessness, and a vastly improved capacity in recent years, specific barriers and gaps to our
community’s capacity to assist all people who are homelessness have been identified. These barriers
and gaps are the underlying causes of Kitsap’s inability to meet the needs of all homeless residents at
this time. They include:
• Insufficient funding
• Limited housing stock capacity
• Increased demand and services, and in providers’ ability to expand service provision
Each year, by federal and state mandate, Kitsap County partners with local social services organizations
to conduct an outreach effort to survey as many people experiencing homelessness as possible during a
24-hour period - this is called the Point in Time Count. It offers a snapshot of homelessness for a single
night in January.
The cause of homelessness is gauged as well during the Point in Time survey. In 2024, the following
were reported as reasons for homelessness in Kitsap County:
Source: Kitsap County Human Services/Homelessness
https://www.kitsap.gov/hs/HOUSINGBLOCK/2024%20Kitsap%20County%20PIT%20Overview%20-%20Preliminary.pdf
When asked about various personal characteristics, 165 unsheltered heads of households (76%)
responded. The most common response from survey participants was that they experienced challenges
related to mental health, followed by chronic substance abuse, permanent disability, and chronic health
conditions.
22%
17%
15%
14%
14%
10%
8%
Exhibit HSA-44: 2024 Kitsap County Point in Time
Causes of Homelessness
Health Issues/Mental Health Housing Affordability
Job Loss/Unable to Work Eviction/Loss of Housing
Family Conflict Substance Abuse
Discharged from Systems
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-23
Source: Kitsap County Human Services/Homelessness
https://www.kitsap.gov/hs/HOUSINGBLOCK/2024%20Kitsap%20County%20PIT%20Overview%20-%20Preliminary.pdf
Efforts were made to survey widely across Kitsap County where households experiencing homelessness
were anticipated to be encountered. Participants experiencing unsheltered homelessness (216
households, 255 individuals) were surveyed in the following locations throughout Kitsap County.
Source: Kitsap County Human Services/Homelessness
https://www.kitsap.gov/hs/HOUSINGBLOCK/2024%20Kitsap%20County%20PIT%20Overview%20-%20Preliminary.pdf
Special Needs Housing Opportunities
Special needs populations include the elderly, people living with mental, physical, and/or developmental
disabilities, people with alcohol or other drug addiction, people living with HIV/AIDs, victims of domestic
violence and people who have been discharged from institutions such as jail or prison, State Mental
Hospital or the foster care system. This population represents the majority of Kitsap County’s most
vulnerable people.
64%
53%
34%
30%
16%
8%
6%
0%10%20%30%40%50%60%70%
Mental Health
Chronic Substance Use
Permannent Physical Disablity
Chronic Health Conditions
Developmental Disabilities
No Disability Conditions
Fleeing Domestic Violence
Exhibit HSA-45: 2024 Kitsap County Homeless Point in Time Characteristics
51%
18%
6%
5%
17%
3%
Exhibit HSA-46: 2024 Kitsap County Point In Time
Location
Bremerton Port Orchard Bainbridge Island Poulsbo Silverdale Other
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-24
Community public services needs such as food programs, childcare, poor and homeless case
management and employment skills training are some of the services that support vulnerable populations.
In general, there is a high quality to the supportive services provided to populations with special needs
throughout Kitsap County. However, overall federal and state funding for most services has decreased
or not been renewed during the past decade. Finally, the increasing cost of permanent housing severely
challenges the low‐income majority within Bremerton, as well as the special needs and homeless
populations.
Facilities are available in Bremerton and throughout the county to provide supportive housing for the
elderly and frail elderly. Facilities cover a broad range: adult family homes for 2‐6 adults, Section 8
construction, assisted living, convalescence, and a range of personal care and services. In addition,
services provided throughout the county aim to forestall homelessness of the elderly by providing services
that help the elderly to remain in their existing housing. Paratransit provides transportation to and from
Medicaid covered medical services to anyone who receives medical assistance through DSHS. Kitsap
Transit Access also provides transportation to the elderly and disabled persons who are unable to use
the fixed route transit system and meet specific criteria. However, the service has been significantly
reduced as the result of legislation that reduced transportation funding.
Some individuals with special needs, such as the disabled, have very little income and may never be fully
self‐sufficient. They do not have the ability to work full‐time and many live on very minimal amounts of
Social Security. Because of the disparity between Supplemental Security Income (SSI) income and rental
housing costs, non‐elderly adults with significant disabilities are often forced to choose between
homelessness or placement in a segregated and restrictive institutional setting such as an adult care
home, nursing home, or other congregate setting.
Other special needs populations may require support initially, but with a little assistance and housing, are
able to go on to become self‐sufficient. Because special needs populations are often very low‐ income,
affordable housing is significant issue and often the reason for homelessness and instability. The
combination of lack of income with other housing barriers such as poor credit, criminal history, and poor
rental history, means that even some subsidized housing is not available to them.
Kitsap Mental Health Services provides mental health evaluations and services for homeless individuals;
in partnership with Bremerton Housing Authority, it also provides permanent supportive housing for
individuals needing long‐term mental health supports. Agape Unlimited and West Sound Treatment
Center provide substance abuse disorder treatment, transitional housing, and sober supported housing
for homeless individuals needing these services. Employment services are provided through
WorkSource, a division of the Washington State Department of Labor and Industries, and the Compass
Vocational Program, which is tailored to serve homeless individuals residing in emergency shelters and
transitional housing.
Temporary and Transitional Housing Opportunities
The homeless response system includes a network of shelter operators that include emergency housing
beds for women and children, single men, and families with children. Couples, families with teen‐age
boys, households with pets, and men with children are currently under served. Temporary and transitional
housing available in Bremerton include The Salvation Army, Kitsap Rescue Mission (at the Quality Inn),
Benedict House Men’s Shelter and St. Vincent de Paul Birkenfeld Stella Maris House Women’s Shelter.
As quickly as possible, households are moved from emergency shelter into rapid rehousing programs
(short shallow subsidies with progressive engagement case management), permanent subsidized
housing, long‐term housing with specific supports (such as substance abuse disorder recovery) or
permanent supportive housing. However, insufficient funding for rapid rehousing and a shortage of units
of affordable housing, housing with supports, and permanent supportive housing results in longer shelter
stays and households who stay homeless for longer. Bremerton Housing Authority’s Evergreen Bright
Start provides housing and services for young adults aged 18-24 with behavioral illnesses who are
homeless or at risk of homelessness.
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-25
Homeless youth are served by a spectrum of services, supports, and housing provided through the Coffee
Oasis. These programs include outreach to street‐oriented youth, youth drop‐in locations, case
management for homeless and at‐risk youth, job training for youth, and emergency shelter beds for youth
and young adults.
At this time there are few services available for chronically homeless individuals and/or individuals with
complex and multiple barriers to stable housing.
The Challenge to End Veteran Homelessness in Kitsap is part of a national initiative to end veteran
homelessness. It includes participation from a wide range of programs specific to veterans and programs
that serve all individuals experiencing homelessness. Washington Department of Veterans Assistance,
Building 9 at Retsil provides 60 beds of transitional housing for veterans throughout the region. Kitsap
Community Resources operates the Veterans Assistance Fund under contract with Kitsap County. The
fund provides eligible veterans and/or immediate family members with emergency financial assistance
for rent, utilities, and assistance for food, transportation, medical and prescription costs.
YMCA of Kitsap County operate an emergency shelter for survivors and their children fleeing an
immediate dangerous situation due to domestic violence. The YMCA also provides supportive housing
services for referrals for transitional and long-term housing.
Future Housing Targets
Demographic data taken from U.S Census, described in above help profile the City of Bremerton, Kitsap
County, and the State of Washington. Population and household size are key factors used to estimate
the number of new housing units which will be needed during the next twenty-year period. Income and
age information, described above in occupancy and affordability section above, help identify the types of
housing and physical improvement which will be in demand.
The focus of this Comprehensive Plan, however, is on planning for new growth to the city which
capitalizes on Bremerton’s unique location and access in the region as well as its metropolitan
characteristic, unique in Kitsap County.
Housing Production
According to the Kitsap County’s 2021 Buildable Lands Report (BLR), between 2013 and 2019,
Bremerton permitted a total of 1,729 new housing units, as shown in Exhibit HSA-47. Over half (54%) of
these permits were in multifamily buildings, compared to 37% in the previous evaluation period.
Exhibit HSA-47: Residential Building Permits, 2013-2019
Zone SF Units MF Units ADU Total Units
Low Density Residential (R-10) 555 20 13 584
Medium Density Residential (R-18) 5 14 0 19
High Density Residential (R-40) 2 28 0 30
Bay Vista Subarea Plan 10 297 0 307
District Center Core (DCC) 0 1 0 1
Downtown Subarea Plan 1 390 0 391
Harrison Heights Subarea Plan (HHSAP) 210 20 0 230
General Commercial (GC) 1 164 0 165
Institutional (INST) 2 0 0 2
Total 728 934 13 1729
Source: Kitsap County Buildable Lands Report, 2021
Land Capacity
As part of the 2021 BLR, the city analyzed buildable land capacity based on current zoning and
development standards. The study identified parcels that are vacant or have potential for redevelopment.
Exhibit HSA-48 summarizes the findings.
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-26
Exhibit HSA-48: Housing and Population Capacity (2019)
Zoning SF Unit Capacity MF Unit Capacity Population Capacity
Low Density Residential (R-10) 1752 4082
Medium Density Residential (R-18) 185 393
High Density Residential (R-40) 146 312
Bay Vista Subarea Plan 120 280
East Park Subarea Plan 68 145
District Center Core (DCC) 913 1944
Downtown Subarea Plan 2418 5151
Harrison Heights Subarea Plan (HHSAP) 3610
General Commercial (GC) 254 541
Institutional (INST) 3 6
Neighborhood Business (NB) 84 178
Total 1872 4070 16,640
Source: Kitsap County Buildable Lands Report, 2021
Housing Growth Targets
The Comprehensive Plan periodic update must plan to accommodate a portion of the overall growth
(population, employment, and housing) that is forecast for the Central Puget Sound region (i.e. Kitsap,
Pierce, King, and Snohomish Counties). Growth allocations are determined through a regional process
coordinated through the Puget Sound Regional Council (PSRC) and the Kitsap Regional Coordinating
Council (KRCC). Bremerton actively participates in both coordination organizations. Within the context of
this regional allocation process, Kitsap County and its jurisdictions adopted 2044 growth targets that will
be used as the basis for the 2024 Comprehensive Plan Update.
Exhibit HSA-49 below reports Bremerton’s growth allocations compared to the 2021 BLR Land Capacity.
Attachment A to the Housing Appendix provides additional data that support the following summary
tables.
Exhibit HSA-49: 2044 Growth Targets and 2021 BLR Land Capacity
Current1 Allocation for 20442 Capacity1 Difference
Population
City Limits 43,505 20,252 16,640 - 3,612
UGA 10,105 2762 2422 - 340
Housing Units 18,351 9556 7026 - 2,530
1 Buildable Lands Report (2021) | 2 Kitsap County Countywide Planning Policies
Under the previously adopted 2016 Comprehensive Plan, there was not sufficient land capacity to satisfy
2044 KRCC growth projections for Bremerton. Land capacity adjustments made with the 2024
Comprehensive Plan result in conformance with KRCC growth target of 9,556 housing units, as noted in
Exhibit HSA-50. Kitsap County Land Capacity Analysis methodology, utilized with the 2021 Kitsap County
Buildable Lands Report, was updated to include development trends through the year 2022 and increased
density assumptions. The resulting 2024 Comprehensive Plan land capacity table is provided as Exhibit
HSA-50 and in more detail in Exhibits HSA-70 through -72.
Exhibit HSA-50: 2044 Housing Target and Capacity Summary
Allocation for 2044 Housing Capacity
Housing Units 9556 SF 1731; MF 8344
Totals; Surplus 9556 10,067; 511 surplus
Source: City of Bremerton DCD; FEIS Preferred Alternative
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-27
Housing Growth Targets by Income Levels
In 2021, the Washington Legislature changed the way communities are required to plan for housing.
House Bill 1220 amended the Growth Management Act instruct local governments to “plan for and
accommodate housing affordable to all economic segments of the population of the state.” These
requirements include an inventory and analysis of existing and projected housing needs, including “units
for moderate, low, very low and extremely low-income households” as well as “emergency housing,
emergency shelters and permanent supportive housing (PSH).
The Washington State Department of Commerce provided countywide projections of housing needs for
all counties in Washington State. In Kitsap County, the county and its cities collaboratively decide how to
allocate its 20-year population projection housing allocation. Bremerton must plan to accommodate 9,556
permanent housing units by 2044. Bremerton staff followed the Washington State Department of
Commerce guidance to conduct a land capacity analysis to determine if there is sufficient capacity to
meet future housing needs under current planned zoning and development regulations. This analysis first
identifies the net developable acres and planned density in each land use zone to determine total capacity
in zone categories. Land use zones, for this analysis, are grouped into the following four zone categories:
• Low Density: East Park Subarea Plan
• Low Rise: Bay Vista Subarea Plan, Low Density Residential (R-10), Medium Density Residential
(R-18), High Density Residential (R-40), Neighborhood Business (NB)
• Mid Rise: General Commercial (GC)
• High-Rise/Tower: District Center Core (DCC), Downtown Subarea Plan, Harrison Heights
Subarea Plan
With the positive growth experienced since 2010, cost of housing, both for ownership and rents, have
increased following the experience of the region. The greatest housing need for Bremerton under the HB
1220 is units for 80% or less of AMI. The units needed under these income levels will likely not be provided
by the private marketplace; Bremerton Housing Authority, non-profits, governmental incentives and other
strategies will be necessary to accomplish the State Legislature’s goal. Exhibit HSA-51A compares the
aggregated housing needs of each income level to the total existing capacity in each zone category. The
Department of Commerce guidance indicates Low Rise residential structures satisfy income band
requirements for 0-80% AMI. With the Comprehensive Plan update, residential zones noted above will
permit Low Rise residential structures, and accordingly 0-80% AMI income housing is dispersed
throughout zoning districts. The two largest landowners in the Low Density Residential (R-10) zone, with
land totaling more than 640 acres, have each provided letters of support to add multifamily housing in the
R-10 zone; these lands could hypothetically develop less than 15% of maximum zoned density and still
satisfy all 0-80% AMI housing allotted to the R-10 zone as noted per Exhibit HSA-72.
Kitsap Regional Coordinating Council (KRCC) Housing Allocations indicate Bremerton has 316 existing
emergency housing beds, with an additional 403 needed by the year 2044. The City of Bremerton's
comprehensive plan has to make an estimate for the potential number of shelter beds that could be
accommodated within our jurisdiction by land use designation. The City completed the estimation process
regarding the number of shelter beds that could be created by following the process conducted by Kitsap
County and the City of Port Orchard in their comprehensive plans.
We utilized these agencies as examples because they are similar to Bremerton in that they have no
spacing or intensity restrictions for emergency housing, they permit emergency housing in all zones where
hotels are an allowed use, and they use the same guidance from the Washington State Department of
Commerce (Commerce). Commerce developed guidance for jurisdictions based on three example
projects: Tri-City Union Gospel Mission (Pasco), North King County Enhanced Shelter (Shoreline), and
The Gateway (Seattle), and determined that jurisdictions should use a presumed average planning
density of 29 beds per acre. The table below shows that if all of our current vacant and underutilized
parcels were utilized for emergency housing, and the presumed density of 29 beds per acre were
achieved, then this could result in a presumed capacity of 3,988 emergency housing beds, for a surplus
Ord 5511, Exhibit B
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HSA-28
of 3,585 as seen in Exhibit HSA-51B. Department of Commerce guidance instructs jurisdictions to double
count lands available in the residential land capacity analysis and separate emergency housing land
capacity analysis, leading to the same land accounting for two separate development outcomes; for this
reason estimated emergency housing capacity is likely significantly lower than the reported number of
potential shelter beds, but still illustrating that the City could accommodate the allocated 403 beds needed
by the year 2044.
Exhibit HSA-51A: Comparison of Projected Housing Needs by Income
Income Level Projected Housing
Needs
Zone Categories
Serving These Needs
Aggregated
Housing Needs
Total Zone
Capacity
Capacity
Surplus
0-30% AMI PSH 800
Low Density, Low
Rise, Mid-Rise 5506 5674
168
0-30% AMI Other 1824
>30-50% AMI 1566
>50-80% AMI 1316
>80-100% AMI 678 Moderate Density,
Mid-Rise 1345 1634 289 >100-120% AMI 667
>120% AMI 2705 High-Rise/Tower 2705 2759 54
Total 9556 9556
*Source: Kitsap Countywide Planning Policies Appendix F: Housing Allocation 2020 Through 2044
Data Source: Housing for All Planning Tool, Methodology A, Washington State Department of Commerce, March 1, 2023.
Exhibit HSA-51B: Emergency Shelter Capacity by Zone 2020-2044
Zoning District Net
Acres Beds/Acre Emergency Shelter Bed Capacity
Bay Vista Subarea Plan (BVSAP) 2.53 29 73
District Center Core (DCC) 10.34 29 300
Downtown Subarea Plan (DSAP) 43.86 29 1272
Harrison Heights Subarea Plan (HHSAP) 59 29 1711
General Commercial (GC) 13.48 29 391
Neighborhood Business (NB) 8.30 29 241
Total 137.51 29 3988
KRCC Allocation 403 beds 3585 surplus
Source: City of Bremerton DCD; Harrison Height Subarea DEIS
Part 2: Racially Disparate Impact Analysis
Introduction
In 2021, Washington State made changes to the housing element of the Growth Management Act (GMA).
The changes move from language that encouraged affordable housing to language that requires
Bremerton to plan for and accommodate affordable housing, with specific requirements for identifying
sufficient land capacity for moderate, low, very low, and extremely low-income households. The changes
also require jurisdictions to identify housing policies and regulations that result in racially disparate
impacts, displacement, or exclusion and start the work of undoing those impacts.
The purpose of the following evaluation is to analyze the impacts of Bremerton’s housing policies and
regulations through an equity lens – looking for places those policies may be having disparate impacts
on particular racial or economic groups. This evaluation informs changes to policies in the Comprehensive
Plan relating to housing as part of the City’s Periodic Update.
The Washington State Department of Commerce (Commerce) developed a guidebook on how to respond
to the need to consider Racially Disparate Impacts. The guidebook defines racially disparate impacts as:
“When policies, practices, rules or other systems result in a disproportionate impact on one or more racial
Ord 5511, Exhibit B
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Housing Appendix
HSA-29
groups.” The Bremerton Racially Disparate Impact Analysis utilizes the guidance provided in the
Commerce publication “Guidance to Address Racially Disparate Impacts” dated April 2023.
Historical Context
Tribal Use
Bremerton is within the historical territory of the Suquamish people. The Suquamish people have lived,
gathered plants, collected ceremonial and spiritual items, hunted, and fished since time immemorial in
what is now western Washington State. The Suquamish Tribe is a federally recognized Indian Tribe and
pursuant to the 1855 Treaty of Point Elliott, the Tribe reserved the right to fish and gather shellfish at its
“usual and accustomed” (U&A) fishing grounds and stations in Puget Sound, including Kitsap County and
Bremerton.
Bremerton watershed is within the historic territory of the Skokomish people. What is now known as the
Skokomish Tribe was primarily composed of Twana Indians, a Salishan people whose aboriginal territory
encompassed the Hood Canal drainage basin in western Washington State. The Twana subsisted on
hunting, fishing and gathering activities, practicing a nomadic lifestyle during warmer weather and
resettling at permanent sites during the winter. The Skokomish Tribe is a federally recognized Indian
Tribe and pursuant to the 1855 Treaty of Point Elliott, the Tribe reserved the right to fish and gather
shellfish at its “usual and accustomed” (U&A) fishing grounds and stations in Puget Sound, including
Kitsap County and Bremerton.
White Settlement
Bremerton was planned by German immigrant and Seattle entrepreneur William Bremer in 1891. In that
year, Navy Lieutenant Ambrose Barkley Wyckoff purchased approximately 190 acres of waterfront land
on Sinclair Inlet. This land was owned by the Bremer family. Three years earlier, a U.S. Navy commission
determined that Point Turner, between the protected waters of the Sinclair and Dyes inlets, would be the
best site in the Pacific Northwest on which to establish a shipyard. Recognizing the large number of
workers such a facility would employ, Bremer and his business partner and brother-in-law, Henry Hensel,
purchased the undeveloped land near Point Turner. In April 1891, Bremer arranged for the sale of 190
acres to the Navy. This land became part of the initial footprint of the Puget Sound Navy Yard.
Black Exclusion Laws in Oregon Territory
Before territorial status in 1853 and statehood in 1889, Washington State was part of the Oregon Territory,
which, from its onset, forbade Black people from settling in the area. Black exclusion laws covered what
now encompasses Kitsap County until 1853 and stayed in place until the end of the American Civil War
and the passage of the Fourteenth Amendment in 1868.
Asian Immigration and Exclusion
From the mid-1800s to early 1900s, in reaction to increased immigration from East Asia, federal and state
governments severely limited the ability of immigrants of Chinese, Japanese, and other East Asian
descents to naturalize, own land, conduct business, and/or otherwise access the same rights offered to
White American citizens or European immigrants.
Japanese Internment
Six months after the bombing of Pearl Harbor in 1941, President Roosevelt signed Executive Order 9066,
which authorized the forced evacuation of citizen and non-citizen residents of Japanese ancestry living
along the West Coast to internment camps in the interior of the continent. Overall, the federal government,
with support from state and local governments, incarcerated 12,892 persons of Japanese ancestry in
Washington State. Many of those interned did not return to their communities after internment and those
who did often faced continued discrimination, along with property loss or damage.
Exclusionary Zoning
Starting in the early 20th century, municipalities around the country began to use zoning as an explicit
Ord 5511, Exhibit B
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Housing Appendix
HSA-30
tool of racial segregation. Even upon the Supreme Court ruling in Buchanan v. Wiley (1917) that racial
zoning was unconstitutional, city planners continued to use zoning restrictions that limited the types and
density of building to covertly exclude low-income and black, indigenous, and other people of color, or
BIPOC, communities from wealthier and whiter residential districts. Exclusionary zoning policies
produced systemic barriers to homeownership and educational opportunities for BIPOC, particularly
Black residents. These practices also contributed to the racial wealth gap by limiting housing supply and
excluding BIPOC communities from wealth generation opportunities that homeownership offers.
Racially Restrictive Covenants
Racially restrictive covenants refer to
documents such as deeds, plats, and
homeowners’ association bylaws used by
property owners to restrict the sale of a
property to someone based on their race.
Starting in the early 20th century, racial
covenants on property deeds gained
popularity as a tool for restricting racial
mixing in residential neighborhoods.
Covenants were one of the many ways in
which BIPOC residents, especially Black
residents, were excluded from the emerging
midcentury mortgage market and suburban
expansion in the mid-20th century.
The University of Washington and Eastern
Washington University Racial Restrictive
Covenants Project identified more than
2,300 properties that were legally restricted
in Kitsap County and over 1,050 properties
in Bremerton. The map shows some of the
neighborhoods where racial restrictive
covenants were added to property records in
the first half of the 20th century.
The language of Bremerton specific restriction in these deeds reflects the language of the times, such as:
• Hollywood, 1940: “No persons of any race other than the Caucasian race shall use or occupy any
building or any lot, except that this covenant shall not prevent occupancy by domestic servants
of a different race domiciled with an owner or tenant.”
• Saulsberry Villa Tracts, 1927: “Said premises shall not at any time be leased, sold, conveyed, or
occupied by any person other than one of the Caucasian or white race.”
• Wildwood Addition, 1942: “Ownership and occupancy of property in this plat shall be restricted to
person or persons of the Caucasian race only, except in the capacity of servant when they shall
be domiciled with an owner or tenant.”
Federal Mortgage Discrimination and Redlining
Throughout the 1930s and 1940s, the federal government created several agencies and programs to
encourage homeownership for American citizens but largely refused to offer these homeownership
opportunities to BIPOC borrowers. For example, the short-lived Homeowners Loan Corporation (HOLC),
created risk assessment maps (commonly known as “redlining maps”) that deemed entire neighborhoods
with sizeable Black, Asian or Jewish populations as ineligible for federal mortgage insurance or loans.
The Federal Housing Administration (FHA), created in 1934, encouraged racial segregation in a variety
of ways such as using racially restrictive covenants and denying mortgages in areas with racially mixed
populations.
Exhibit HSA-52: UW & EWU Racial Restrictive Covenants
Project Mapping
Ord 5511, Exhibit B
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HSA-31
Sinclair Park
At the onset of World War II, the Puget Sound Naval Shipyard in Bremerton processed large numbers of
incoming workers, nearly quintupling Bremerton's population. In response to the suddenly increased
demand for housing, the city established a housing authority and began building a series of housing
projects for the workers. The rapid expansion included substantial diversification of the area. Between
1940 and 1945, the number of Black residents in Bremerton grew from just seven to 4,500.
In 1943, Sinclair Park was constructed, consisting of 280 homes overlooking Sinclair Inlet. The
community became racially segregated almost immediately. While the segregation was never explicitly
codified, by 1944 over 80% of Black families placed in city housing were placed in Sinclair Park. The
community did not have bus service and was several miles from the closest grocers' and schools. The
few businesses that were close to the area would sometimes charge higher prices to Sinclair Park's
residents and the local property manager delegated maintenance to the residents themselves, unlike
other Bremerton housing projects at the time.
After World War II ended, all housing projects developed by the city for shipyard workers were
desegregated, including Sinclair Park. In 1947 some of the homes were sold to veterans under the
condition they were removed from the site and transported elsewhere, however, few were ultimately
purchased. The following year the houses left standing were demolished and the community center was
repurposed as an armory for the Washington National Guard before being demolished itself in 2002.
Current Conditions
The historical context above describes the specific ways in which communities of color have been
disadvantaged in accessing housing for decades. This section describes the current housing situation.
The outcomes of discrimination and policy are complex and intertwined with the overall dynamics of the
housing market and population growth. This section follows Department of Commerce guidance on
collecting and presenting the best available data to identify and describe patterns in housing conditions,
exclusion, displacement, and future displacement risk. Additional data can be found in Part 1: Housing
Needs Assessment.
Population and Race
As of 2023, the estimated population of Bremerton is 44,640. Since 2010, the City of Bremerton has
grown at an average annual rate of 1.54%, which is well above the countywide average annual growth
rate of 0.81%. Assuming an average growth rate of 1.54%, the population in Bremerton is projected to
reach 61,532 by 2044.
Source: Washington State Office of Financial Management. 2023. “April 1 population estimates.”
Race and ethnicity are two different concepts in the Census. Race refers to a person's self-identified
category (White, Black, Asian, etc.), while ethnicity refers to whether a person is of Hispanic or Latino
origin. Hispanic/Latino population can be of any racial group.
37,729
44,640 63,757
35,000
45,000
55,000
65,000
2010 2012 2014 2016 2018 2020 2022 2024 2026 2028 2030 2032 2034 2036 2038 2040 2042 2044
Exhibit HSA-53: Historical Population and PSRC Growth
Ord 5511, Exhibit B
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Housing Appendix
HSA-32
The Bremerton population is less racially and ethnically diverse than the population of Kitsap County and
Washington State, as shown below, 6.82% of the Bremerton population is white, 11% is Hispanic or
Latino, 12% is two or more races, 3% is Asian alone, and 1.5% is Black or African American.
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimates.
As shown above, Bremerton has become more diverse since 2010. While still a small percentage of the
overall population, the Hispanic or Latino population has increased by 573%, while the Native
Hawaiian/Pacific Islander population has increased by 105%. Moreover, those of two or more races
increased by 137%.
Households and Income
As of 2023, there were an estimated 19,399 housing units in the City of Bremerton. This represents an
increase of 12% since 2010, when the estimated total was 17,273.
As of 2022, an estimated 47% of households in the City of Bremerton owned their home, while 53% were
renting. This represents an increase in the proportion of owner household units since 2010, when 41% of
Bremerton households were homeowners and 59% were renters.
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimates.
As shown below, 89% of Black or African American and 68% of Hispanic (of any race) households are
likely to be renters, while white households are equally likely to be a homeowner and renter.
0%10%20%30%40%50%60%70%80%90%100%
Exhibit HSA-55: Housing Tenure
Owner-Occupied Renter-Occupied
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
White Black or
African
American
Asian Hispanic or
Latino
AI/AN NH/PI Two or more
races
Some other
race
Exhibit HSA-54: Population by Race and Ethnicity
Washington Kitsap County Bremerton
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-33
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimates.
In 2022, the median household income (MHI) in the City of Bremerton was $94,157 for homeowners,
$50,591 for renters, and $72,554 across all households. Bremerton is below the median household
income for Kitsap County ($86,668) and Washington State ($85,936).
Exhibit HSA-57: Median Household Income by Tenure, Bremerton
Housing Tenure 2010 2019 2022 Change 2010-2022
Owner $60,952 $75,579 $94,517 55%
Renter $28,483 $39,161 $50,591 78%
Source: U.S. Census Bureau. 2010, 2019, 2022. American Community Survey 5-year Estimates
As shown below, households that own their homes are more likely to have higher incomes. Relative to
Kitsap County, Bremerton has a higher proportion of residents with annual incomes less than $35,000
and a lower proportion of residents with annual incomes above $100,000. 33% of renters in Bremerton
make less than $35,000 per year, while 47% of owners in Bremerton make more than $100,000 per year.
Source: U.S. Census Bureau. 2022. American Community Survey 5-year Estimates.
Cost-burdened households are those that spend more than 30% of their monthly income toward housing
costs while severely cost-burdened households spend more than 50% or half of their incomes on housing
costs. When households face high rates of cost burden, they often must make difficult choices in
prioritizing purchases for other necessities such as food, healthcare, and childcare.
54%
11%
32%
39%
35%
50%
46%
46%
89%
68%
61%
65%
50%
54%
0%10%20%30%40%50%60%70%80%90%100%
Asian
Black or African American
Hispanic or Latino (of any race)
Other Race
Households of color
White
All
Exhibit HSA-56: Housing Tenure by Race and Ethnicity
Owner Renter
0%
20%
40%
60%
80%
100%
120%
140%
Less than $34,999 $35,000 to $49,999 $50,000 to $74,999 $75,000 to $99,999 $100,000 or more
Exhibit HSA-58: Household Income Levels for Bremerton and Kitsap County
Kitsap Renter Occupied Kitsap Owner Occupied
Bremerton Renter Occupied Bremerton Owner Occupied
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-34
As shown below, about 36% of Bremerton households are either cost burdened or severely cost-
burdened. Overall, renters are substantially more likely to be cost-burdened or severely cost-burdened
than owners. 47% of renters are either cost burdened or severely cost-burdened, while 24% of owners
are either cost burdened or severely cost-burdened.
Source: HUD CHAS (based on ACS 5-year Estimates, 2016-2020)
As shown below, Hispanic or Latino (of any race) and persons of color households are more likely to be
severely cost-burdened, while white households in Bremerton are more likely not be cost-burdened.
Source: US HUD, 2016-2020 Comprehensive Housing Affordability Strategy (CHAS) (Table 9)
Area Median Income (AMI) is a metric calculated by the Department of Housing and Urban Development
(HUD) to determine the income eligibility requirements of federal housing programs. AMI is the midpoint
of a region's income distribution, meaning that half of households in a region earn more than the median
and half earn less than the median. A household's income is calculated by its gross income, which is the
total income received before taxes and other payroll deductions.
Exhibit HSA-61: HUD Chas Income Levels*
Extremely Low Income (≤30% AMI)
Very Low Income (30-50% AMI)
Low Income (50-80% AMI)
0%10%20%30%40%50%60%70%80%
Owner
Renter
Total HH
Exhibit HSA-59: Cost-Burdened Households by Tenure
Not Available Severely Cost Burdened Cost Burdened Not Cost Burdened
65%
57%
55%
18%
20%
14%
16%
22%
30%
White
Persons of Color
Hispanic or Latino
(of any race)
Exhibit HSA-60: Percent of All Households Experiencing Housing Cost Burden
Not Calculated Not Cost Burdened Cost-Burdened (30-50%)Severely Cost-Burdened (>50%)
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-35
Moderate Income (80-100% AMI)
Above Median Income (>100% AMI)
*A percentage of the AMI based on the specific geographic area where the household is located.
As shown in the graph below, Black or African American (33%) and Hispanic or Latino (of any race) (27%)
Bremerton residents are more likely to be in the extremely low-income category. While Pacific Islander
(61%), Asian (40%) and white (37%) are more likely to be in the above median income category.
Source: US HUD, 2016-2020 Comprehensive Housing Affordability Strategy (CHAS) (Table 1)
Displacement
The Puget Sound Regional Council has developed a strategy to determine the risk of displacement of
census tracts. Each census tract in Bremerton has received a place on the displacement index by
analyzing factors in the following categories: socio-demographics, transportation qualities, neighborhood
characteristics, housing, and civic engagement. Bremerton is shown to have a low to moderate level of
displacement risk.
Exhibit HSA-63: PSRC Displacement Risk Mapping
Based on the National Housing Preservation Database, of Bremerton’s over 1,400 subsidized housing
units, more than 600 are scheduled to expire in the next 10 years. The loss of affordable units with these
housing developments could displace many current residents.
12%
33%
27%
18%
20%
20%
25%
10%
0%
13%
13%
16%
14%
32%
14%
21%
21%
12%
13%
6%
25%
11%
11%
40%
15%
25%
61%
37%
35%
Asian
Black or African American
Hispanic or Latino (of any race)
Pacific Islander
White
All
Exhibit HSA-62: Distribution of Households by Income and Race or Ethnicity, 2020
Extremely Low-Income (≤30% AMI)
Very Low-Income (30-50%)
Low-Income (50-80%)
Moderate Income (80-100%)
Above Median Income (>100%)
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-36
Race and Equity Within City Governance
On May 3, 2023, the City Council passed Ordinance 5474 to create the Race Equity Advisory Commission
(REAC). This commission was intended to replace the prior Race Equity Advisory Committee
(Committee) established by the Council on July 1, 2020. The purpose of the commission is to advise City
Council and the Mayor by applying a race equity analysis to all aspects of governance and to maintain
engagement with and accountability to other work being done throughout the Bremerton community in
service of race equity.
In 2023, the City began researching Diversity, Equity, and Inclusion needs assessment programs and
consultants and added a full-time Diversity, Equity, and Inclusion (DEI) position to the 2023 budget. In
February of 2024, a Diversity, Equity, & Inclusion Project Engagement Report was released, which
includes a recruitment plan for the position. In 2025 a Diversity and Community Engagement Manager
was hired.
Policy Evaluation
Policies that may appear race neutral can in effect result in exclusion in housing, displacement, and other
disparate impacts. This may be due to underlying racial bias affecting the interpretation of policies, or
effects that arise from the way the policy interacts with the housing marketplace, for example. This section
describes the results of individual Comprehensive Plan policy review. Policies were reviewed according
to an evaluative framework adapted from Department of Commerce Guidance on addressing racially
disparate impacts in housing.
The selected rubric outlines an evaluation methodology for policies of the Comprehensive Plan. This tool
is designed to identify policies and regulations that result in racially disparate impacts and displacement
and exclusion in housing.
Key overarching questions include:
• Does this policy contribute to racially disparate impacts or exclusion in housing?
• Is the policy effective in accommodating more housing?
• Does the policy increase displacement risk?
• Does the policy provide protection to communities of interest from displacement?
• Does the policy language include vague terms that could be used to marginalize communities of
color?
Each policy in the Housing Element is reviewed using the criteria shown below. Each policy is reviewed
for the language itself as well as the policy design and potential impacts of the policy, drawing from
housing policy research, the Department of Commerce resources and guidance, and application of
planning experience from multiple jurisdictions. Specific lenses through which each policy was reviewed
include:
• Language clarity and potential for bias. Whether the policy includes use of coded or unclear
language that can lead to inequitable application.
• Deficit-based language. Whether the policy uses language that can lead to an underappreciation
of the needs and contributions of people in specific groups.
• Impact on housing stock. Whether the policy introduces barriers, such as excessive regulation,
or incentives to overall housing stock and affordable housing to meet Bremerton’s goals.
• Impact on housing mix and housing mix. Whether the policy prioritizes certain residential uses,
and which uses are prioritized.
• Distribution of impact by geography, income, and community. Whether the policy creates benefits
and burden or risks that will be unevenly distributed.
• Mitigation for anticipated impacts. Whether the policy includes consideration of impacts and plans
to mitigate them, including displacement risk.
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-37
Policies are broad instruments and their impacts, intended and unintended, unfold over years. In this
review the assessment of a policy as supportive, approaching, or challenging is a useful, but highly
simplified way of summarizing complex issues. Continued monitoring of housing outcomes, community
engagement, and continued policy refinement will be essential for Bremerton to achieve its goals.
Exhibit HSA-64: Existing Policy Evaluation Framework
The policy supports achieving the GMA goal for housing. There is a need for the
policy and/or it addresses identified racially disparate impacts, displacement, and
exclusion in housing.
“S” Supportive
The policy can help achieve the GMA goal for housing but may be insufficient or does
not specifically address racially disparate impacts, displacement, and exclusion in
housing
“A” Approaching
The policy may challenge the jurisdiction’s ability to achieve the GMA goal for
housing. The policy’s benefits and burdens should be reviewed to optimize the ability
to meet the policy’s objectives while improving the equitable distribution of benefits
and burdens imposed by the policy.
“C” Challenging
The policy does not affect the jurisdiction’s ability to achieve GMA goal housing and
has no influence or impact on racially disparate impacts, displacement, or exclusion.
“NA” Not
Applicable
Exhibit HSA-65 below applies the evaluation framework across policies in the proposed Bremerton
Comprehensive Plan’s Housing Element. As described above, each policy was reviewed for the language
itself; the content and design of the policy; likely impacts on housing stock, mix, and disparities; and
whether mitigation efforts are needed. A score of “S” Supportive, “A” Approaching, “C” Challenging or
“NA” Not Applicable summarizes the results of this assessment.
Exhibit HSA-65: Existing Housing Element Policy Evaluation
Policy Evaluation Notes
H1(A): Promote preservation of structures in good repair,
including establishing incentives that encourage private
property owner’s efforts to preserve homes having
historical and or architectural significance.
S
Implementation of this policy could
help preserve existing affordable
housing inventory and allow
residents to stay in housing they
can afford. It is possible that
gentrification may occur over time,
resulting in loss of affordability.
H1(B): Support replacement of substandard structures,
including encouraging rehabilitation and maintenance of
existing housing units; or replacing substandard
structures which have excessive rehabilitation costs with
new structures.
S
Implementation of this policy could
help preserve existing affordable
housing inventory and allow
residents to stay in housing they
can afford. It is possible that
gentrification may occur over time,
resulting in loss of affordability.
H1(C): Promote, and incentivize, private commitments to
improve existing housing stock so that all housing is safe,
sanitary, and in good repair.
S
Implementation of this policy could
help preserve existing affordable
housing inventory and allow
residents to stay in housing they
can afford. It is possible that
gentrification may occur over time,
resulting in loss of affordability.
H1(D): Promote financial assistance for essential repairs
to substandard structures that provide housing for low-
and moderate-income persons.
S
Implementation of this policy could
help preserve existing affordable
housing inventory and allow
residents to stay in housing they
can afford. It is possible that
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-38
gentrification may occur over time,
resulting in loss of affordability.
H1(E): Enhance livability in neighborhoods by
maintaining and upgrading City services such as
sidewalks, bike lanes, parks, and utilities in order to
enhance the overall affordability and health of the
community.
S
H1(F): Promote a robust code enforcement program to
protect the safety and aesthetic quality of existing
neighborhoods, with consideration to impacts and ways
to support marginalized and lower income communities.
A
Amended
to be S
Amended to acknowledge impacts
of code enforcement may have on
marginalized and lower impact
communities.
H1(G): Promote a sense of community within
neighborhoods by creating spaces where residents can
interact by encouraging walkability, and supporting
identification if distinctive neighborhoods.
A
Amended
to be S
Amended to remove “existing” in
order to acknowledge all
neighborhoods.
H2(A): Support the private sector’s efforts to provide a full
range of housing options to meet the needs of all ages
and demographics.
S
H2(B): Encourage new development to blend with the
characteristics of surrounding neighborhoods.
A
Amended
to be S
Amended to remove “positive”
which could be interpreted as
exclusionary.
H2(C): Supporting infill development and increased
densities and the use of Low Impact Development (LID)
techniques and Best Management Practices (BMPs) to
ensure efficient and cost-effective utilization of existing
public utilities.
S
H2(D): Enhance livability in neighborhoods by upgrading
and installing sidewalks, bike lanes, parks, safety
improvements and utilities in order to enhance livability.
S
H2(E): Support efforts to provide for a variety of housing
options such as:
• Emergency group housing, homeless shelters and
short term housing to meet the needs of those in the
lower income categories.
• Promote housing for students, particularly in the
vicinity of Olympic College. Encourage apartments
and dormitories in locations that directly service the
college.
• Plan for and support episodic surges and reductions
in military personnel. Provide opportunities to allow
for different housing densities to accommodate the
diverse needs of military personnel.
• Respond to the needs of the growing elderly
population within the City. Encourage a full range of
housing options including retirement housing
complexes in all residential zones particularly in
areas with direct proximity to services and amenities.
Encourage programs which allow elderly to remain in
their homes as long as possible.
• Provide for integration of special needs housing
within the community by allowing for government-
assisted housing, housing for low-income families,
manufactured housing, group homes, and foster care
facilities.
S
Amended to deleted terms
“special needs” in two bullets, and
amended to include additional
bullet:
• Encourage and support the
development of emergency,
transitional and permanent
supportive housing with
appropriate on-site services
for persons with special needs
and vulnerable populations.
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-39
• Encourage construction to meet and exceed ADA
standards whenever possible.
• Encourage and support the development of
emergency, transitional and permanent supportive
housing with appropriate on-site services for persons
with special needs and vulnerable populations.
H2(F): Promote a sense of community, or gathering
places, within new neighborhoods by creating spaces
where residents can interact.
S
H2(G): Partner with Community Development Block
Grant and other applicable programs and funding
sources to encourage removal or abatement of blighting
neglecting influences in and around residential areas.
A
Amended
to be S
Amended to change ‘blighting
influences’ to ‘neglect’ which is
defined in 2021 International
Property Maintenance Code.
H3(A): Provide opportunities for the production of new
housing, with a variety of housing types that meet the
needs for all residents.
A
Amended
to be S
Amended for provide a variety of
housing types that meet the needs
of all residents, deleting specifics.
H3(B): Encourage rental and subsidized housing near
public transportation, employment opportunities, and
throughout the City in a manner that accommodates
Bremerton’s fair share of the Countywide need.
A
Amended
to be S
Amended to clarify equitable
distribution of subsidized housing.
H3(C): Support increased densities and infill projects in
order to offset costs of providing utility City services
(utilities, sidewalks, bike lanes, parks, etc.) intended to
enhance the overall health of the community with
consideration of historically underserved communities.
A
Amended
to be S
Amended to include consideration
of historically underserved
communities.
H3(D): Encourage expanded availability of incentives for
development within the City such as the Multifamily Tax
Exemption, Community Empowerment Zone, Historically
Underutilized Business zone, etc.
S
H3(E): Eliminate unnecessary regulatory impediments to
the development of affordable housing. S
H4(A): Promote private and public efforts to provide
adequate capital for rehabilitation of housing projects;
such efforts should include commitments to remove or
abate neglecting influences near or within residential
areas.
A
Amended
to be S
Amended to change ‘blighting
influences’ to ‘neglect’ which is
defined in 2021 International
Property Maintenance Code.
H4(B): Promote financial assistance for low and
moderate incomes that assist in essential repairs to
substandard structures. Support private sector low
interest loan programs for such repairs, combined with
public resources when available.
S
H4(C): Target and enhance the use of tax incentives to
improve affordable housing throughout the City, and
particularly in Centers where housing is intended to be in
close proximity to public transportation and employment.
S
H4(D): Encourage efficient permit review by eliminating
unnecessary regulatory impediments, improving
certainty in development regulations, and provide an
expedited permit process.
S
H4(E): Aim to improve coordinated, effective planning
programs that improve access to affordable housing.
Specifically promote intergovernmental cooperation and
agreements that support strategies and programs to
achieve City housing goals.
S
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-40
H4(F): Promote increased housing density to provide a
broader customer base for more affordable public
services including utilities.
S
Exhibit HSA-66: New Supportive Policies Proposed for Housing Element
H2(H): Provide sufficient land for the city’s projected population and housing targets, especially in the City’s
Centers and accessible to transit.
H2(I): Plan for sufficient housing and a variety of housing types to meet the needs of the existing and
projected population at all income levels while also encouraging the private sector to meet the changing
demographic needs and preferences.
H2(J): Promote jobs-housing balance by providing for a range of housing choices that are accessible and
attainable to people of all income levels, near job centers, and high-capacity transit centers.
H2(K): Review and streamline development standards and regulations to improve public benefit, provide
flexibility and minimize additional costs to housing.
H2(L): Expand housing capacity for Missing Middle Housing to bridge the gap between single- family and
more intense multifamily development by allowing a variety of housing types and densities.
H3(B): Encourage rental and subsidized housing near public transportation, employment opportunities, and
throughout the city in a manner that accommodates Bremerton’s fair share of the Countywide need.
H3(F): Identify and implement strategies to meet affordable housing targets identified by the Kitsap
Countywide Planning Policies.
H3(G): Support agency and nonprofit organizations in the creation of housing opportunities for homeless,
elderly, physically or mentally challenged, and other segments of the population who have special needs.
H3(H): Identify potential physical, economic, and cultural displacement of low-income households and
marginalized populations and work with communities to develop anti-displacement strategies when planning
for growth. Remove prior polices and regulations that may have resulted in racially disparate impacts,
displacement, and exclusion in housing, including zoning that may have a discriminatory effect and areas
of disinvestment and infrastructure availability.
H3(I): Promote, and encourage Bremerton Housing Authority, nonprofits, other agencies, and private
developers to create housing and home ownership opportunities for low- and moderate- income households.
Identify incentives for development proposals which create housing units for low-and moderate-income
households.
H3(J): Address the need for low- and very low-income households’ affordability, recognizing these critical
needs will require public support through funding, collaboration and action by agencies, non-profit
organizations, developers, and jurisdictions.
H4(G): Encourage development of accessory dwelling units (ADUs) through streamlined permitting,
education and resources, and monitoring for effectiveness.
Regulation Evaluation
RCW 36.70A.070(2)(f) requires jurisdictions to implement regulations that address and begin to undo
racially disparate impacts, displacement and exclusion in housing. To support jurisdictions in reviewing
and updating regulations and programs, this section compiles a list of incentive, strategy, action and
regulation options that can begin to undo racially disparate impacts, displacement and exclusion in
housing at the local or regional level.
Staff will utilize the Department of Commerce example evaluation approach (Step 5, Guidance to Address
Racially Disparate Impacts) as a model for updating development regulations to align with goals and
policies to ensure that they equitably serve all community members. Staff will consider the regulations
intended and unintended impacts and the distribution of the benefits and burdens.
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-41
Attachment A: Housing Growth Target Capacity Tables
Housing Unit Demand
Housing Unit Capacity
Exhibit HSA-69: 2020-2044 Housing Unit Target Summary
Allocation for 2044 Housing
Housing Units 9,556 SF 1,731; MF 8,344
Totals (Surplus/Deficit) 9,556 10,067 (511 surplus)
Source: City of Bremerton DCD
1 Permanent supportive housing (PSH) is subsidized, leased housing with no limit on length of stay that prioritizes people who need comprehensive support
services to retain tenancy and utilizes admissions practices designed to use lower barriers to entry than would be typical for other subsidized or unsubsidized
rental housing, especially related to rental history, criminal history, and personal behaviors. Permanent supportive housing is paired with on site or off site
voluntary services designed to support a person living with a comprehensive and disabling behavioral health or physical health condition who was experiencing
homelessness or was at imminent risk of homelessness prior to moving into housing to retain their housing and be a successful tenant in a housing
arrangement, improve the residents health status, and connect the resident of the housing with community based health care, treatment, or employment
services. Permanent supportive housing is subject to all of the rights and responsibilities defined in chapter 59.18 RCW. Source: RCW 36.70A.030.
2 Emergency housing means temporary indoor accommodations for individuals or families who are homeless or at imminent risk of becoming homeless that
is intended to address the basic health food clothing and personal hygiene needs of individuals or families. Emergency housing may or may not require
occupants to enter into a lease or an occupancy agreement.
Exhibit HSA-67: 2020-2044 Growth Targets and 2021 BLR Land Capacity
2021 BLR1 Allocation for 20442 Capacity1 Difference
Population
City Limits 43,505 20,252 16,640 - 3,612
UGA 10,105 2,762 2,422 - 340
Housing Units (city limits only) 18,351 9,556 7,026 - 2,530
1 Buildable Lands Report (2021) | 2 Kitsap County Countywide Planning Policies Appendix B-1
Exhibit HSA-68: COB Permanent Housing Needs by Income Level
% of Area Median Income
Existing
(2020)
Housing Need
(2020-2044)
0-30% 1346 1824
0-30% Permanent Supportive Housing 1 106 800
>30-50% 3030 1566
>50-80% 8960 1316
>80-100% 2496 678
>100-120% 879 667
Market Rate or <120% 1534 2705
Total 18,351 9556
Emergency Housing (Temporary Beds)2 316 403
Source: Kitsap Countywide Planning Policies Appendix F: Housing Allocation 2020 Through 2044
Data Source: Housing for All Planning Tool, Methodology A, Washington State Department of Commerce, March 1, 2023.
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-42
Exhibit HSA-70: 2020-2044 Housing Unit Capacity by Zoning District
Housing
Singe Family Unit Capacity Multifamily Unit Capacity
Zoning Districts
Low Density Residential (R-10)
Pipeline housing units
1394
209
Medium Density Residential (R-18) 131
High Density Residential (R-40) 341
Bay Vista Subarea Plan
Pipeline housing units 120 62
East Park Subarea Plan 56
District Center Core (DCC)
Pipeline housing units 469
359
Charleston District Center (CDC) 114
Downtown Subarea Plan (DSAP)
Pipeline housing units 4027
295
Harrison Heights Subarea Plan (HHSAP) 1695
General Commercial (GC)
Pipeline housing units 636
72
Institutional (INST) 3
Neighborhood Business (NB) 84
Puget Sound Industrial Center (PSIC)
Total 1723 8344
Total All Units 10,067
Source: City of Bremerton DCD; Pipeline housing units constructed 2020-2022
Housing Unit Distribution by Income Band
Exhibit HSA-71: Projected Housing Needs by Income
Income Level
Projected
Housing
Needs*
Zone Categories
Serving These
Needs
Aggregated
Housing Needs
Total Zone
Capacity
Capacity
Surplus
0-30% AMI PSH 800
Low Density, Low
Rise, Mid-Rise 5506
5674
168 0-30% AMI 1824
>30-50% AMI 1566
>50-80% AMI 1316
>80-100% AMI 678 Moderate Density,
Mid-Rise 1345
1634
289 >100-120% AMI 667
>120% AMI 2705 High-Rise/Tower 2705 2759 54
Total 9556 9556
*Source: Kitsap Countywide Planning Policies Appendix F: Housing Allocation 2020 Through 2044
Data Source: Housing for All Planning Tool, Methodology A, Washington State Department of Commerce, March 1, 2023.
Ord 5511, Exhibit B
Bremerton2044 DRAFT
Housing Appendix
HSA-43
Exhibit HSA-72: 2020-2044 Housing Unit Capacity Distribution by Income Band
Zoning District Unit
Capacity AMI 0-80% AMI >80-
120% AMI >120%:
Low Density Residential (R-10)
55/15/30 1603 882 240 481
Medium Density Residential (R-18)
30/30/40 131 39 39 53
High Density Residential (R-40)
50/20/30 341 171 68 102
Bay Vista Subarea Plan
50/50/0 182 91 91 0
East Park Subarea Plan
50/50/0 56 28 28 0
District Center Core (DCC)
60/10/30 828 497 83 248
Charleston District Center (CDC)
80/10/10 114 91 11 12
Downtown Subarea Plan
55/15/30 4322 2377 648 1297
Harrison Heights Subarea Plan (HHSAP)
65/10/25 1695 1102 169 424
General Commercial (GC)
50/30/20 708 354 212 142
Institutional (INST)
0/100/0 3 0 3 0
Neighborhood Business (NB)
50/50/0 84 42 42 0
Puget Sound Industrial Center (PSIC)
0/0/0 0 0 0 0
Total 10,067 5674 1634 2759
Kitsap CPP Appendix F Total Units Needed
Surplus
9556
511
5506
168
1345
289
2705
54
Ord 5511, Exhibit B