ORD 87-29 PUBLIC HEALTH, SAFETY, MORALS AND GENERAL WELFARE12/2/87
TO Be Considered 12/3/87
ORDINANCE NO.87-29
COMPREHENSIVE PLAN
AN ORDINANCE PROVIDING FOR THE PUBLIC HEALTIt, SAFETY,
MORALS AND GENERAL WELFARE, AND IN THE ORDER TO SECURE
FOR TIlE CITIZENS OF TIIE CITY OF WINSLOW THE SOCIAL AND
ECONOMIC ADVANTAGES RESULTING FROM AN ORDERLY PLANNED
USE OF TIlE LAND RESOURCES WITHIN THE CITY, AND TO
REGULATE THE LOCATION AND USE OF BUILDINGS, STRUCTURES
AND LAND FOR RESIDENCE, BUSINESS, INDUSTRIAL AND OTtIER
PURPOSES, AND TO PROVIDE OFFICIAL LAND USE PLANS TO
GUIDE, CONTROL AND REGULATE TIlE GENERAL GROWTIt OF THE
CITY AND ])EVELOPMENTS ON AND OF PUBLIC AND PRIVATE
t'ROPEI{TY WITIIIN, TIIE CITY OF WINSLOW, WASIIiNGTON, DOES
ItEREBY ADOPT AND ESTABblSH AS ITS OFFICIAL COMPREHENSIVE
PLAN FOR THE CITY OF WINSLOW, WASHINGTON AND REPEALING
ITS PRIOR COMPREHENSIVE PLAN.
Whereas, the City Council has determined that the present
Comprehensive Plan should be amended, and
Whereas, the City Council finds these amendments to be in
the interest of the public hea].th, safety, and welfare, now, therefore,
TIlE MAYOR AND CiTY COUNCIL OF TIlE CiTY OF WiNSLOW DO ORDAIN
AS FOLLOWS:
Section 1. Comprehensive Plan (Exhibit 1 hereto)
T~ implement the purposes of this Ordinance, the City
shall adopt as its Comprehensive Plan by this Ordinance
and hereafter filed at the Office of tile City Clerk, said
plan as now adopted or hereafter duly amended as set forth
in Exhibit 1 hereto, incorporated herein as if fully set
forth.
Section 2. Comprehensive Plan Map (E~hibit 2 hereto)'
The Comprehensive Plan Map (Exhibit 2) shall be adopted
herewith, as set forth as Exhibit 2 hereto, incorporated
herein by reference as if fully set forth.
Section 3. Repeal of Resolution No. 75-2 of April 7, 1975.
To the extent inconsistent herewith, Resolution 75-2
of A~ril 7, 1975, and all corresponding Winslow Municipal
Code chapters, maps and regulations are herewith repealed.
Section 4. Partial Invalidity
If any portion of this ordinance is found to void
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or ineffective, the remaining portions shall remain
in full force and effect.
Section 5. This ordinance shall be in full force and
effect five days after passage and publication as pro-
vided by law.
APPROVED:
AY R C . ~AWREbEY ~/
ATTEST/AUTHENTICATED:
APPROVED AS TO FORM
OFF '~ DF THE CITY ATTORNEY
FILED WITH THE CITY CLERK: November 26, 1987
PASSED BY THE CITY COUNCIL: December 3, 1987
POSTED: December 4, 1987 PUBLISHED: Decenber 9, 1987
EFFECTIVE DATE: December 14, 1987
ORDINANCE NO. 87-29
-2-
COMPREHENSIVE PLAN
EXHIBIT
APPROVED:
EFFECTIVE:
~87--29
DEC.
DEC. 14,
1987
1987
SUMMARY
The contents and organization of the plan can be summarized as follows:
I. FOUNDATIONS OF THE PLAN:
A. VALUES AND BELIEFS: Describes the basic values and beliefs
(or working philosophy) that underlie the plan.
B. MISSION: This section identifies the operating mission
(identity and purpose) for the city.
C. VISIONS: This section describes visions for the future of
the city.
FORECASTS AND ASSUMPTIONS: The plan is based on informed
forecasts and assumptions about the city and its environment
(political, social, economic, competitive, constituency,
regulatory). These broad forecasts and assumptions are
presented in this section.
II. PLANNING INTEREST AREAS:
Chapters A through F -- Planning Strategy Key Result Areas: Each
chapter articulates an analysis of the situation, specific working
beliefs and values, goals, and objectives for the key result
area. Specific key objectives which may require frequent updating
and replacement are isolated in a separate Appendix at the end of
this section.
III.LAND USE PLAN:
Presentation of organizational and urban design concept guidance
for land use in the city, including recommended concepts for
regulating land use within the commercial core area. This chapter
includes illustrative plans for overall land use patterns,
circulation, and urban design character. It also includes a
comprehensive description of physical and cultural features of the
city, which suggest and underlie many of the recommendations.
IV. RELATED PLANS:
This plan, as the comprehensive planning vehicle for the City,
recognizes that relevant planning information is also contained
within other specialized planning documents. Where these other
plans are clearly related to this plan, they are referenced with
s~mmary extracts of their basic recommendations.
CONTENTS
INTRODUCTION ........................................
I. FOUNDATIONS OF THE PLAN .........................
A. MISSION ..................................
B. VISIONS FOR THE FUTURE ...................
C. VALUES AND BELIEFS .......................
D. GENERAL FORECASTS AND ASSUMPTIONS ........
II. PLANNING INTEREST AREAS .........................
A. BASIC SERVICES ...........................
B. TRAFFIC AND TRANSPORTATION ...............
C. LAND USE ................................
D. COMMUNITY AND NEIGHBORHOOD VITALITY .....
E. ENVIRONMENT .............................
F. ECONOMIC VITALITY .......................
APPENDIX OF SPECIFIC KEY OBJECTIVES .........
III. LAND USE PLAN ..................................
A. PHYSICAL AND CULTURAL FEATURES ..........
B. LAND USE ................................
C. CIRCULATION .............................
D. URBAN DESIGN ............................
E. IMPLEMENTATIONS .........................
F. THE VISION ...............................
IV. RELATED PLANS ...................................
A. WATER SYSTEM PLAN ........................
B. STORM WATER DRAINAGE PLAN ................
C. COMPREHENSIVE STREET PLAN (DRAWING) ......
D. COMPREHENSIVE SIDEWALK PLAN (DRAWING) ....
E. PARK AND RECREATION FACILITIES PLAN ......
1
3
4
5
7
9
11
12
14
16
19
22
25
27
36
37
45
52
55
58
61
65
66
69
71
72
73
INTRODUCTION
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INTRODUCTION
The first two sections of this Comprehensive Plan are portions of the
Winslow Strategic Plan, which resulted from a broad planning review which
began late in 1984 as a collaborative effort of the Mayor, City Council,
city department heads, members of the Planning Agency, and volunteers from
the Chamber of Commerce. A basic objective of the Strategic Planning
process was to reexamine the city in its total environmental context so
that realistic and practical planning goals and objectives could be
established, as the basis for further operational plans which would follow.
That process was facilitated by consultant Gerald Oncken, of Northwest
Executive Consultants, who also assembled and edited the process
documentation into the final Strategic Plan product, and all meetings were
open to the general public. A draft Strategic Plan was distributed as a
special section within the Bainbridge Review and presented for discussion
in a well-attended Town Meeting on September 18th, 1985. Comment offered
during the meeting and gathered by questionnaire within the published plan
suggested a number of changes, and, in response, the Planning Agency
recommended appropriate revisions in plan language and suggested that
volunteer groups be formed to prepare three additional plan sections
covering neighborhood viability, environmental protection, and economic
vitality. Those revisions and the new sections were added to the plan
after editing by consultant Oncken for conformance to the style and format
of the rest of the plan.
Subsequently, the city hired the urban design firm, Makers, represented by
John Owen, to work with the Planning Agency and prepare alternative
concepts for the physical organization of the city. Three concepts,
exploring and illustrating the implications of the Strategic Plan, were
presented and discussed at a second Town Meeting on November 12th, 1986.
Following careful tabulation and discussion of the public comment and
suggestions, a recommended composite concept was prepared for publication
and display in a series of events held during the week preceding a third
Town Meeting held on February 25th, 1987. That concept, with refinement
and further development in response to public comment, is the basis for
much of the third section of this Comprehensive Plan, which is the Land Use
Plan. An initial description of physical and cultural features of Winslow
has been retained from the 1974 Comprehensive Plan prepared by Latourell
Associates, with updating of some material by the Planning Agency. All
other material in this section was prepared by the Makers firm.
A fourth section contains selected references to other planning documents
which have been separately prepared for specific systems or features of the
city and are part of the city's overall comprehensive planning effort.
This plan provides a basis for subsequent operating plans and implementing
ordinances, where specific objectives are stated and commitments of effort
and resources are made, or where regulatory powers of the city are invoked
to guide and coordinate the use of private resources, such as land, for
greater public benefit. The plan is intended as a working document and has
an intentionally loosely organized structure to facilitate updating.
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FOUNDATIONS
OF TEE PLAN
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FOUNDATIONS OF THE PLAN
This plan is based on four foundations, which together form the conceptual,
ethical, and contextual bases for the plan. The four foundations are:
A. the Mission, which articulates the identity and purpose of
the city;
B. the Visions for the Future, which provide inspiration and
hope;
C. the Values and Beliefs, against which all plans and activities
are evaluated; and
the General Forecasts and Assumptions that underlie and
support the intentions and commitments that are expressed
in the plan.
A. THE MISSION:
The city of Winslow is a community of individuals with a sense of
identity and sensitivity to its waterfront location. It has a clean
and pleasant small town atmosphere, with a diverse economic base.
Winslow is the center of business, cultural, and educational activity
for Bainbridge Island.
The City government acknowledges that its mission is to:
* serve the community in a friendly and efficient manner;
* provide services and regulations that enhance the community;
* balance regulation with private rights;
* insure efficient and effective use of revenue dollars;
* manage the business of government effectively;
* Plan to accommodate change, and protect against
the negative consequences of growth and change.
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B. VISIONS FOR THE FUTURE
Image
The statements below reflect a consolidation of ideas expressed by the
Mayor, City Council members~ department heads, Planning Agency members,
and the general public as to their visions for the future of the city
of Winslow. Note that these vision statements are not presented in
priority order.
Visions reflect a hopeful look to the future. It is important to
understand that visions represent neither intent nor commitment to
actually do something; they are sources of inspiration, hope, and
excitement for the future. In the planning process, visions can serve
as a source of ideas for goals (intent).
As we look to the future of the city of Winslow, we see:
* a quiet, pleasant, thriving town, with an attractive~
compact, pedestrian-oriented image;
a town that reflects a waterfront image, provides easy water
access, and is sensitive to the natural environment in which
it exists;
a thriving commercial center, with improved downtown
appearance (e.g. trees on Winslow Way, underground utilities)
and a sense of harmony, support~ and cohesiveness among
businesses;
* a town that is increasingly attractive to visitors (shopping,
cultural, gastronomical);
* active support of creative people (writers, artists,
thespians, etc.);
* an improved first impression, or "gateway" to the City.
Population/*
Geography
moderate population growth, with commensurate broadening
of boundaries;
a population and neighborhoods that are mixed with respect to
age and other demographic characteristics.
Resources * increased conservation and reuse of resources (e.g. solid
waste, water).
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Management
Movement
Services
Land Use
Recreation
& Leisure
Economic
* attracting and retaining employees who have the goal of
serving the public with excellence;
* building synergistic, supportive relationships with other
governments and taxing bodies.
* easy pedestrian access; decreased dependence on automobiles;
* public transportation and park-and-ride lots;
* better sidewalk and street systems;
* improved traffic flow and convenient, relatively unobtrusive
parking near the ferry terminal.
* having the resources to be 90 percent self-sufficient
for consumer services and professional needs;
* having friendly, helpful, competent police and fire protection;
* an increased image of the police as being a warm, helpful,
knowledgeable service to the community;
* increasingly successful crime prevention activities involving
the whole community;
* continuing to provide the basic services we now provide in a
more efficient and effective manner;
* providing excellent opportunities for basic and continuing
education and access to higher education.
* industrial areas outside the city;
* offices between the ferry terminal and the highway;
* orderly development occurring within the framework of a
comprehensive plan.
* increased opportunities for solitude, peace, and recreation
for people of all ages;
* expanded park areas, including expanded waterfront park
connected to a town common;
* increased public boat moorage;
* a place to spend the night on the island;
* a community civic and cultural center that provides
opportunities for performing and creative arts and a meeting
place for a variety of purposes.
* an increasing diversity of economic and job opportunities.
C. VALUES AND BELIEFS:
Winslow and the rural portion of Bainbridge Island are together an
island community whose residents cherish certain values which
contribute to our unique quality of life. Among these values are:
* a physically, socially, and economically healthy
environment;
* a cooperation and tolerance among our residents, who are
culturally and demographically diverse;
a sense of stability which assimilates necessary growth and
change in a manner reflecting our love for our history and life
values;
* a tolerance for self-sufficiency and individuality that
characterize our citizens.
As the most urban center of a primarily rural island, the city of
Winslow, in order to preserve these values, wishes to further
conditions for successful and enthusiastic community relations by:
* creating an atmosphere which encourages residents and
nonresidents to participate in city government;
building a municipal government composed of staff, elected
officials, and appointed officials by seeking, attracting, and
retaining individuals of excellence;
designing traffic patterns to mix and flow for public safety and
convenience and to further encourage pedestrian traffic within
the city;
seeking a balance among private property rights, business
rights, and community needs in relation to governmental
requirements;
* periodically reevaluating ordinances, regulations, and policies
with an eye to their being stable but not rigid;
valuing our waterfront as a major city asset; it must be
accessible to the public for transportation, recreational use,
and aesthetic enjoyment;
* distributing costs for improvements equitably between long-time
residents and newcomers;
providing local employment opportunities by encouraging
non-polluting industries and businesses when such industries
are compatible with resources (land/water/power);
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* maintaining helpful, personable, and accessible public services;
* assuring that our quality of life is not adversely affected by
management practices and service variations of the Washington
State Ferry System;
* encouraging civic and cultural activities that support a quality
living experience in the community;
* maintaining awareness of and continuity with the unique history
of Winslow and Bainbridge Island;
* maintaining a sense of "place" through land-use policies and
practices that harmoniously integrate a variety of uses.
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D. GENERAL FORECASTS AND ASSUMPTIONS:
This plan is based on a number of forecasts and assumptions about
economic, social, political, geographic, and demographic factors that
influence the city. Any significant departures over time from these
predicted conditions and trends will require a reexamination of the
strategies laid forth in the plan.
Traffic &
Transport
Ferry service to Winslow will continue, offering service that
is compatible with the needs of the population. Any significant
changes in ferry service to Winslow will affect traffic,
parking, population, and economic conditions for the city.
* City traffic will increase in future years.
Population *
The population of Winslow will grow at a moderate 2-6 percent
rate over the next five years. Significant departures from this
expected growth rate will modify the urgency of several parts of
this plan.
Population and boundary growth will be affected by water
resources, drainage, and sewage capacity. It is assumed that
water will continue to be available to meet growth, but from
increasingly costly sources. Methods will have to be developed
to reuse and/or recycle current water resources in addition to
developing new sources.
Growth in multiple-family housing will result in:
increased need for social services
increased need for easier transportation
* Winslow will be increasingly a transition place, with upwardly
mobile people using it as a "bedroom community."
* Winslow residents will continue to expect and maintain the
quality of life that is currently enjoyed here.
Boundaries *
Changes in the boundaries of the city will be affected by
changes in requests for services and utilities, and the economic
base.
* In the event of all-island government, this plan will become
part of an all-island plan and may then require re-evaluation.
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Government * We expect the city will have a full-time mayor or mayor/manager
to meet future needs.
* The city will continue to provide basic services in line with
needs.
There will be increased skill and experience requirements for
city staff as the population grows and the business of managing
the city becomes more complex.
The Public Safety Department is sufficient to meet current
needs, but will have to be reevaluated as the population grows
and other changes take place.
* The revenue base for the city will continue to be sufficient
to cover normal operating costs and reasonable emergency funds.
Commercial/*
Economic
There will be greater commercial concentration at the Village,
producing a "dumbbell" effect. This will create pressure for
more "specialty" shopping downto~nn -- a challenge to keep it
vital.
Winslow will remain the commercial and cultural center of
Bainbridge Island.
The commercial area going up West Madison will compete with
Winslow Way.
Competitive pressure from off-island shopping centers will
continue to grow, requiring Winslow merchants to offer
increasingly attractive incentives for shopping on the island.
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I I
PLANNING INTEREST AREAS
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A. BASIC SERVICES
CURRENT SITUATION
The present sewaRe treatment plant is of sufficient size and capacity to serve
the current population.
EPA disposal requirements continue to change.
Sludge handling capacity limits growth in sewer capacity.
Winslow does not have a comprehensive plan for future sewage disposal,
particularly as it applies to newly annexed areas of the city.
Winslow has a completed drainage study, with specific recommendations.
Winslow's water system is sufficient to meet current needs. A comprehensive
water plan is now being developed to plan for future water needs.
FORECASTS AND ASSUMPTIONS
Water will continue to be available to meet future needs. However, the costs of
acquisition and distribution of water will increase as demand increases.
Boundary annexations and real estate developments will continue to raise issues
of equitable distribution of costs in extending utility services to new areas.
It will be necessary to expand the capacity of the sewage system to meet
population growth needs within the next 5-10 years.
SPECIFIC BELIEFS AND VALUES
It is the city's policy and duty to provide water and an adequate distribution
system.
Adequate planning should be done for expansion of the water system to
accommodate population increases at a reasonable cost to all residents of
Winslow.
It should be the city's policy to encourage conservation, including reuse of
water.
Our planning for the present and future should include cooperation with the
Kitsap County P.U.D., while maintaining our independence.
The city should follow basic service comprehensive plan recommendations as
closely as possible.
It is important to maintain prudent management of risk in the service systems.
Basic services should be provided as cost-effectively as possible.
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BASIC SERVICES GOALS:
Water
Continue to provide a sufficient supply of water to meet day-to-day
operations, heavy use during dry spells or well "down" times, and fire
protection needs. The water should continue to be of high quality.
Sewage
B. Provide for expansion of sewer lines to serve new development in a cost
manner equitable to all.
Become better informed about probable sewage treatment growth and
development needs, including capital improvements, costs, technology, and
service areas.
D. Become more aware of innovative methods of treating waste water.
Solid Waste Disposal
E. Become more informed about possible future situations or exposures involving
solid waste disposal.
Storm Drainage
F. Follow our drainage study recommendations as closely as possible.
Visual Image of the City
G. Continue to upgrade the visual image of the city.
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B. TRAFFIC AND TRANSPORTATION
CURR~NTS~TUATION
Auto/Pedestrian Traffic
There is too much mixing of auto and pedestrian traffic in many areas of the
city; this is unsafe. Most streets used for pedestrians do not have sidewalks.
Traffic congestion problems are periodic, corresponding to ferry arrivals and
school schedules.
Pedestrians frequently jaywalk; it is a common practice.
The city has a recent traffic study, but only parts were endorsed by the city as
policy. Other parts were not accepted. The study needs to be reevaluated.
We have a low accident rate relative to the traffic volume.
The city adopted a sidewalk construction ordinance.
The right-of-way dedication ordinance requires certain properties to dedicate
rights-of-way.
Limited public transportation is available for elderly and handicapped citizens.
Ferry Traffic Impacts
Because of the ferry system, the amount of traffic is out of proportion to the
population of Winslow.
The ferry is a desirable means of transportation to Seattle.
The city exists largely because it is a ferry terminal.
Streets/Routes
There is not an adequate way of handling through traffic from the south part of
the island to the ferry; it gets funnelled along Winslow Way.
Street improvements are expensive, and money is not currently available.
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Parking
Public parking space downtown is inadequate to meet demand.
The city modified the zoning ordinance to remove the requirements for on-site
parking for downtown businesses.
The city and the Chamber of Commerce have had discussions about parking issues.
Some ferry users want free parking and will find it wherever they can.
Internal Strengths/Weaknesses
City officials do not have a great deal of expertise in the areas of
traffic/transportation planning and management.
FORECAST
We expect both auto and pedestrian traffic to increase.
BELIEFS AND VALUES
Additional crosswalks on Winslow Way should be considered once additional
convenient off-street parking is provided.
It is important to separate vehicle and pedestrian traffic.
Winslow needs a measure of protection from heavy traffic flow, but costly
remedial measures should be carefully considered since the heavy traffic flow is
of short duration and occurs only a few times a day.
The current amount of parking for commuters near the ferry terminal, if lost,
would result in a critical impact.
TRAFFIC AND TRANSPORTATION GOALS:
A. Provide more downtown parking that is consolidated and "invisible".
B. Provide more commuter parking that is consolidated and "invisible",
including encouragement of remote park-and-ride lots and public
transportation.
C. Reduce the amount of through traffic in downtown Winslow.
D. Provide improved pedestrian access to downtown businesses.
E. Develop safe pedestrian routes from the ferry terminal to downtown and homes
and from schools to downtown and homes.
F. The idea of cooperating with the property owners to replace parking removed
due to development should be encouraged.
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C. LAND USE
CURRENT SITUATION
Winslow is a ferry terminal and traffic intersection, resulting in heavy
vehicular traffic passing through the city.
Many of Winslow's commercial buildings are owned by absentee landowners who
do not necessarily share the land-use values and goals of Winslow citizens.
Existing buildings are not being maintained as well as they could be.
Unknown quantities of resources and utilities are sometimes used as land-use
planning tools.
Opportunities
The city's comprehensive plan is currently overdue for updating.
The opportunity exists now to develop coordination among several
land-use and related planning and regulatory documents,
including:
Comprehensive Plan;
Zoning Ordinances;
Shoreline Management Plan;
Transportation Plan;
Park/Recreation Plan;
Other land-use plans and regulating ordinances.
Limiting
Factors
Land investment is entangled with current zoning, so that
changes in zoning are perceived to be detrimental to property
owners' interests.
The city has limited voice in ferry system growth and change.
Heavy vehicular traffic passing through Winslow influences land
use.
Growth in off-island shopping threatens the commercial vitality
Of Winslow.
Turnover in elected officials and working volunteers threatens
continuity in land-use values and emphases.
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LAND USE BELIEFS AND VALUES
Land is a limited and precious resource of the city which should be beneficially
used without abuse.
Land-use regulation affects individuals and should respect the rights of private
ownership.
Land-use/abuse affects all residents and should respect the public interest in
community resources and quality.
Land-use planning should be based on the long-term, but remain flexible and
responsive to change.
Land-use planning can facilitate effective public/private cooperation for
quality community development.
Land-use regulation should be based on clear community consensus and predominant
values, and its administration should be fair and open.
Shorelands, streambeds, and the harbor, as well as native trees and other
natural landscape features, are precious and fragile assets of the city.
Single-family neighborhoods are precious and historic assets of the city and
deserve protection.
New development should provide replacement and decorative landscape planting.
SPECIFIC FORECASTS AND ASSUMPTIONS
Projected
Trends
There will be more multifamily rental and condominium units.
New buildings moving outward will result in commercial core
"thinning".
Without planned maintenance and revitalization, the commercial
core will diminish in quality and vitality.
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LAND-USE GOALS:
A. Proceed with coordination and implementation among Comprehensive Plan,
Zoning Ordinances, Shoreline Management Plan, Transportation Plan, Park/
Recreation Plan, SEPA, and other land-use plans and required ordinances.
B. Encourage vitality to insure that Winslow continues to be alive and well.
C. Encourage quality by protecting city assets and using existing resources
wisely.
D. Encourage stability to insure that Winslow is a permanent place.
E. Encourage a sense of pride in Winslow.
F. Continue to improve collaboration among the Mayor, City Council, and the
Planning Agency in the land-use planning and regulation process.
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D. COMMUNITY AND NEIGHBORHOOD VITALITY
CURRENT SITUATION
Strengths
Winslow's residential neighborhoods offer desirable places to live for people
representing many socio-economic groups. Residential areas generally consist of
good quality, well-maintained housing. There is an overall atmosphere of
tranquility.
Easy pedestrian and automobile access exists to downtown Winslow, the ferries,
and other points in Kitsap County via Highway 305.
In spite of the diversity among its residents, a number of reasonably cohesive
neighborhoods can be identified in Winslow. These neighborhoods vary
considerably in size from a large number of single-family residences to single
multiple-dwelling units.
The City of Winslow provides its neighborhoods with a clean and constant water
supply, a community sewage system, excellent police and fire protection, medic
aid unit response, street cleaning, park and recreational facilities.
Weaknesses
Residential areas that are not clearly defined as neighborhoods are more
vulnerable to commercial or other intrusive development. Problems exist in
areas which border between residential and nonresidential areas.
Commuter traffic also threatens neighborhoods.
BELIEFS AND VALUES
Individuals and families value foremost their homes.
Winslow's neighborhoods should function well as unique entities with other
neighborhoods and with the commercial district.
Residents believe their interests should receive careful consideration by
decision-makers, and value a local government that responds to their concerns.
The integrity of the neighborhood is more important than convenience for people
from other parts of the Island (such as parking lots or arterials in residential
areas).
Residents value stability, permanence, and those characteristics of their
neighborhoods that they find desirable.
Water, sewer, and other utility services should continue to be available at
reasonable cost.
FORECASTS AND ASSUMPTIONS
The demand for housing will roughly parallel growth. Over time, this growth
will result in development of new neighborhoods and changes in boundaries in
existing neighborhoods.
More multiple as well as single-family homes will be needed. The trends toward
more single head of household families and senior citizens will continue.
It is expected that the City of Winslow will expand its boundaries by
annexation.
Pressure to expand the commercial district of Winslow, combined with annexation
and development of now undeveloped land, may lead to significant pressure to
rezone present residential areas.
The City's goal will continue to be to provide water and sewer services to all
City residences and to enforce residential sewer hook-ups within 100 feet of the
existing sewer lines.
Living within walking distance of shopping and the ferries will continue to be
desirable.
Parking will grow in importance as a planning issue. Ferry parking and downtown
parking are inadequate at the present time. As Bainbridge Island grows, these
existing parking problems in Winslow will intensify and threaten bordering
residential neighborhoods.
COMMUNITY AND NEIGHBORHOOD VITALITY GOALS:
CHARACTER GOALS
A. To retain for Winslow's neighborhoods the positive qualities that are valued
by their residents.
B. To have new construction be sensitive to existing neighborhood aesthetics.
C. To instill pride in this unique community through emphasis on the history
and heritage of Winslow.
D. To create additional humanizing elements and buffers, such as parks and
green spaces.
E. To expand and integrate cultural and civic activities to enhance the quality
of life for all members of our community.
F. To increase safe teen activities by supporting efforts of sponsoring
agencies.
G. To increase public awareness of Winslow's history, government, parks,
trails, and other public services.
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REPRESENTATION GOALS
H. To encourage groups representing various neighborhoods to address
neighborhood concerns and issues.
I. To be responsive to neighborhood concerns.
ZONING GOALS
J. To create buffer/transition areas to soften the boundaries between
residential and non-residential areas.
Ko To have zoning regulations and enforcement protect neighborhoods.
TRAFFIC/PARKING GOALS
L. Minimize automobile traffic
within neighborhoods.
M. Ensure that plans for commercial and ferry-related parking not compromise
neighborhood integrity.
N. Encourage facilities for walking and biking.
SERVICES GOALS
Continue to provide services such as fire and police protection, potable
water, sanitary and storm sewer to neighborhoods in adequate supply and at
reasonable cost.
P. Expand and/or initiate bus service to downtown Winslow, the ferry, and other
points in Kitsap County.
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E. ENVIRONMENT
CURRENT SITUATION
Winslow has an environmental quality, both natural and developed, which is
highly valued by those who live here. Its waterfront location and the friendly,
informal nature of its residents make Winslow special and different. Trees,
clean air, clean water, and a favorable climate contribute to Winslow's
desirability as a place to live.
Internal Strengths
The Mayor and City Council have become more sensitive to environmental values
and concerns.
As a community, the residents of Winslow recognize and value the quaiity of
their environment.
The citizens of Winslow have access to city government and city officials and
can have an effect on the future.
Internal Weaknesses
There is lack of agreement as to areas of special concern, hazard areas,
valuable vistas, open spaces, etc.
There is apathy among residents and the business community. This could be
reversed by the development of a stimulating, imaginative overall conceptual
"plan."
FORECASTS AND ASSUMPTIONS
The population of Winslow will increase, and undeveloped commercial and
residential areas will be built up.
Degradation of the environment will continue to be threatened by such outcomes
of growth as increased traffic and parking demands, pollution of soil and ground
water, water runoff from developed areas, and the reduction of natural areas.
Awareness of problems in Eagle Harbor will continue to grow.
Although Winslow does not currently have a problem with solid waste disposal,
many communities do, and such problems may arise here also.
- 22 -
Opportunities
Plans to update the comprehensive plan, zoning ordinance, and other related
ordinances provide an opportunity to involve professional planning consultants
and deal effectively with environmental quality.
Effective planning can enhance the quality of life in Winslow.
We have an important opportunity to prevent further degradation of Eagle Harbor
through sewage and drainage control.
The opportunity exists to plan ahead for solid waste disposal (see Section III).
There are still chances to protect the public use and enjoyment of the
waterfront areas of the City.
There are still opportunities to acquire some of the undeveloped environmentally
sensitive areas for public use and enjoyment (e.g. streams and marshes).
Threats and Limiting Factors
Recent State Supreme Court decisions recognize that governments can be held
responsible for damages which occur as an unintended result of development.
Pressure to develop tends to defer or override environmental concern.
There is no comprehensive design for the city's natural and developed
environment.
Individuals' desires to control their own property limit possibilities of
effective controls.
Funding, both public and private, is difficult for environmental improvements.
SPECIFIC BELIEFS AND VALUES
The environment of Winslow has a valuable character which can be either enhanced
or destroyed.
We human beings are an integral part of the environment; we affect it and are
affected by it.
Residents of Winslow recognize and appreciate the quality of the environment.
A healthy, attractive town makes good business sense.
Environmental assets, when lost or destroyed, are usually irretrievable.
The waterfront should be made an integral part of downtown Winslow.
- 23 -
ENVIRONMENTAL GOALS:
A. Protect and enhance those qualities of the natural and developed environment
that make Winslow special.
B. Protect health/life/property from environmental hazard, both natural and
man-made.
C. Make the downtown area a more pleasing experience for those who visit by
improving the City's unity, liveability, atmosphere, and attractiveness-
- 24 -
F. ECONOMIC VITALITY
CURRENT SITUATION
Winslow is the commercial hub of Bainbridge Island.
Businesses are primarily independent, locally owned, but property is often not
owned by business owners or residents.
Winslow has a compact downtown shopping area and a shopping center on the edge
of town.
The City has a large amount of commercially zoned land that has not been
developed.
Projected Trends
Slow, steady growth in population.
Fewer families and more single households and seniors.
Commuter traffic through Winslow will increase.
Opportunities
Opportunities exist to stimulate the Bainbridge Island market by promoting
tourism and by encouraging new service or other small businesses to locate here.
We can also promote more events -- cultural, artistic, athletic -- through such
mediums as proposed community center and arts council.
Threats or Limiting Factors
Lack of convenient parking in downtown business district.
Complacency by businesses.
Divided land and business ownership creates problems.
Continuing ferry fare increases and schedule deficiencies work against bringing
people to Winslow.
Poor marking of access to downtown from ferries for both cars and pedestrians
may limit commercial traffic in Winslow.
The unattractive gateway may discourage tourist visits to Winslow.
More shopping opportunities in Kitsap County (Poulsbo and Silverdale) compete
with Winslow businesses.
- 25 -
Strengths
Winslow has a compact, small-town atmosphere with unique elements or
attractions, such as the ferry terminal, boat harbor, and waterfront park.
Local ownership lends itself to personalized customer service with continuing
loyalty. Also, the variety of goods, services, and stores available makes it
possible for residents to meet many basic needs without leaving the island.
Proximity of the ferry terminal creates a marketing opportunity for tourism-
Local financial institutions support the business community as well as cultural
activities.
VALUES AND BELIEFS
Maintaining personal relations between local businesses and the community will
keep customers on the Island.
Small-town community spirit will keep business on the Island.
The community draws its vitality from a vibrant business community.
A strong local economy contributes to a better "quality of life."
Community attractions can contribute to economic vitality.
ECONOMIC VITALITY GOALS:
A. Provide more customer parking as "invisible" as possible.
B. Improve the gateway to Winslow at the Ferry Terminal. Consider
pedestrian as well as vehicle patterns.
C. Provide a link from Winslow Village to the Central Business District.
D. Increase tourism in Winslow.
E. Continue to upgrade the visual image of the City.
F. Create a visual link from Winslow Way to the waterfront.
- 26 -
II APPENDIX
SPECIFIC K EY OBJECTIVES
- 27 -
KEY OBJECTIVES (BASIC SERVICES):
A.1 Complete the comprehensive water plan.
B.1 Develop a set of guidelines for determining the appropriate cost
distribution for expansions in the sewer system.
C.1 Complete a comprehensive sewage plan. Tie recommendations in the plan to
projected population growth, and include scheduled replacement of the
existing network.
D.1 Conduct a survey of sewage treatment methods and innovations around the
country, as part of C.1.
E.1 Study the future viability of Bainbridge Disposal's system.
E.2 Study other cities' solutions to solid waste disposal.
F.1 Implementation of the drainage control ordi~anceo
G.1 Provide regular maintenance and enhancement of all streets and sidewalks,
parks, buildings, and landscaping. Ongoing.
- 28 -
KEY OBJECTIVES (TRAFFIC AND TRANSPORTATION):
C.1Reevaluate the 1981 transportation study in light of today's situation.
C.2 Keep informed about ferry system plans as they affect traffic/
transportation in Winslow. Ongoing.
D.1 Undertake a citizens' committee concept/cost/feasibility study for improving
pedestrian access to downtown businesses.
E.1 Include these pedestrian routes in the feasibility study in D.1.
F.1 Include this concept in the Land Use comprehensive Plan.
- 29 -
KEY OBJECTIVES (LAND USE):
A.1 Hire a planning consultant.
A.2 Complete a plan for direction for the coordination and implementation.
A-3 Complete plans and ordinances.
B.1 Develop specific ways to increase vitality, particularly in the areas of
tourism, commercial activity, and nonpolluting industry. Ongoing.
B.2 Provide for residential and commercial diversity. Ongoing.
C.1 Develop a written, mutually understood, accepted, and supported program of
specific incentives for high-quality development.
C.2 Establish means of protecting the city from damaging exploitation. Ongoing.
C-3 Include in land-use plans and regulatory ordinances incentives to
concentrate parking and commercial development.
D.1 Develop an inventory and means to protect environmentally sensitive land and
shorelines.
D.2 Develop an inventory and means to protect and preserve permanent historic
and landmark assets.
D.3 Promote access to and recreational use of shorelines. Ongoing.
- 30 -
KEY OBJECTIVES (LAND USE):
E.1 Provide adequate park and recreation opportunities. Ongoing.
E.2 Seek and take advantage of opportunities to encourage and support local arts
activities. Ongoing.
E.3 Incentives for various desirable characteristics such as open space,
architectural style, landscaping, and parking should be included in the
land-use plans and ordinances.
E.4 Study other cities for use of building design standards.
F.1 Develop a specific agreement about how the Mayor, City Council, and Planning
Agency wil~ work together to (1) revise the comprehensive plan, and (2)
insure consistency between the comprehensive plan and zoning ordinances.
-31 ~
KEY OBJECTIVES (COMMUNITY AND NEIGHBORHOOD VITALITY):
A.1 Define and identify for each neighborhood those qualities that are desirable
to be preserved.
A.2 Encourage neighborhood cohesiveness through such programs as neighborhood
watch and neighborhood representatives to City Hall. Ongoing.
A.3 Continue to maintain streets and other city-owned property.
A.4 Encourage maintaining neighborhood appearance through such things as annual
gardening, clean-up days, and other appearance award programs for residents'
participation.
C.1 Develop a program to identify historical sites in Winslow.
C.2 To encourage rehabilitation rather than than destruction of historical
sites. Ongoing.
E.1 Place high priority on the development of a civic and cultural center in
Winslow.
G.1 Establish a public information program.
1.1 The City should coordinate with the County regarding issues of mutual
concern. 0ngoing.
- 32 -
KEY OBJECTIVES (COMMUNITY AND NEIGHBORHOOD VITALITY):
1.2 Establish an organized process for notifying neighborhoods of issues that
affect them and mechanisms for receiving citizen input, such as Town
Meetings.
K.1 Where neighborhoods are not clearly defined, give particular attention to
requests for zoning changes. Such neighborhoods include Ericksen Avenue,
Grow Avenue, and Wyatt Way.
K.2 Consider view blockage in environmental reviews.
L.1 Review all construction projects with regard to potential traffic conflicts
and parking requirements.
L.2 Reroute commuter/through traffic out of residential communities.
L.3 Continue to enforce speed limits.
L.4 Encourage park & ride and other HOV opportunities for commuters.
M.1 Have parking for ferry users remain adjacent to the terminal and not
encroach on contiguous neighborhoods.
- 33 -
KEY OBJECTIVES (ENVIRONMENT):
A.1 Identify and inventory specific qualities in the natural and developed
environment which make Winslow special. Establish ways to protect these
qualities in the Comprehensive, Shorelines, and Zoning Plans and related
actions/ordinances.
B.1 Identify potential environmental hazards which could affect
health/life/property.
B.2 Educate the public about disposal of household chemicals in sewage systems
and storm drainage.
B-3 Develop a solid waste plan which includes incentives to separate garbage for
recycling and cost.
B.4 Develop a water conservation plan with incentives.
B.5 Include in ordinances incentives for providing and maintaining natural and
cultivated vegetation.
C.1 Develop a comprehensive landscape/planting/lighting/street furniture plan
which ~rill enhance the character of the City.
C.2 Open up vistas to the water from Winslow Way so there is more of a
connection between the commercial area and the waterfront.
C-3 Develop ways to improve the approaches to the Winslow Business District.
C.4 Encourage and support an effort to develop a center for the performing arts.
- 34 -
KEY OBJECTIVES (ECONOMIC VITALITY):
D.1 Establish a means of public transportation to the business community.
D.2 Improve access to the City from the ferry.
E.1 Develop a coordinated sign program.
E.2 Encourage building clean-up and maintenance. Ongoing.
E.3 Continue to keep public improvements in business area clean and in good
repair.
E.4 Mark available restrooms.
E.5 Study feasibility of constructing convenient public restrooms downtown.
F.1 Develop view corridors by selective thinning of foliage in Eagle Harbor
Park.
F.2 Develop a trail system from Winslow Way through the park to the beach.
F.3 Develop a coordinated sign program to direct pedestrians from Winslow Way to
the beach.
- 35 -
III
LAND USE PLAN
- 36 -
PHYSICAL AND CULTURAL FEATURES
1. PHYSICAL APPEARANCE
Puget Sound is an arm of the Pacific Ocean which extends into the
northwestern corner of Washington State. There are a number of islands
located in this body of water, one of the largest is Bainbridge Island.
This island encompasses 27-5 square miles and has approximately 45
miles of shoreline. Bainbridge Island is located in Kitsap County and
has two ties to the mainland: one is a bridge over Agate Pass to the
Kitsap Peninsula; the other is a direct ferry route to the central
business district of Seattle. The City of Winslow is located at the
terminal point of this Seattle ferry route.
Winslow, a city of about 2,500 people, is situated on Eagle Harbor. It
is the urban center for all of Bainbridge Island as well as the ferry
terminal for the island and the north Kitsap and Olympic Peninsulas.
In spite of the convenient ferry connections, which have transformed
the island from a sparsely populated retreat to a primarily residential
area of permanent homes and a commuter community, Winslow has retained
a character of small town intimacy.
The City exhibits a rural quality and a landscape predominately green
with heavy vegetation. The residential areas are composed primarily of
single-family dwellings generally in good physical condition. There
are some multifamily and condominium developments and one section of
mobile homes.
Business development along Winslow Way is composed of pedestrian-
oriented small shops and service facilities. Auto-oriented business
uses are dominant in the northern section of the City adjacent to State
Highway 305; the automobile is also prevalent in the south-eastern
portion of the City, where the ferry parking areas and holding lanes
are located. The ferry service and circulation system provide
transportation facilities for many; commercial areas serve the shopping
needs of a substantial population. Generally, these uses do not
interfere with the pleasant life in a small town enjoyed by the
citizens of Winslow, although growth in ferry parking and traffic is a
concern.
One of the most outstanding features of the City is its varied
shoreline. The character of the waterfront changes dramatically as the
topography undulates from steep bluff to marshy lowland. The uses
along this shoreland vary considerably - their use being dependent upon
the location, the topography, and the need. Those uses have changed
with time throughout the history of the City. There has been
significant recent growth in public boat moorage and traffic in Eagle
Harbor, and there is general concern about past and present pollution
of the harbor environment. A central piece of this shoreland property
has been developed by the City for a public waterfront park.
- 37 -
ttle
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5 miles
III II
..... ~ ..... _
j~iCinity map
2. TOPOGRAPHY
Winslow exists in a most unique topographic setting and possesses a
pleasant rolling terrain. Eagle Harbor, bounding the City on the
south, is a sheltered body of water extending far into the land mass at
Head of the Bay. The City rises from this bay and continues north,
forming almost a plateau in the north central region. It slopes gently
downward from north to south, but possesses greater definition from
east to west. Along the 10,350 feet of shoreline, the topography
changes appreciably. At the Head of the Bay, there are lowlands or
mudflats with no bank. As one proceeds eastward, the bank becomes
considerably steeper. The bank becomes low around the park and remains
flat to the ferry dock. Beyond the ferry dock, it is again very steep,
but decreases to an estuarine marsh at the City limits-
The area's topography has a definite pattern of north-south
delineation. Elongated, north-south oriented hill-forms called
drumloids are a result of the shearing action of masses of ice during
the glacial periods. The east-west profile of these drumloids is
almost symmetrical, while the north-south section has a steep northern
and a gently sloping southern exposure. Several small streams flow
southward into the harbor. From the beach, the terrain rises to a
height of 250 feet at the highest point. This variety of terrain
contributes to the view possibilities and to the high degree of
interest in the Winslow landscape. There is potential for greater
utilization of the differences in contour through the use of man-made
features and imaginative circulation systems. For the purposes of
future development, Winslow's topography could be considered in terms
of a series of interrelated topographic spaces framed by the water and
hills, and divided into eastern and western sections by a deep ravine
now paralleled by the highway.
SOILS
Most of the soil in the Winslow area is of the Alderwood series.
Generally, this consists of from two to~four feet of unconsolidated
soil materials lying over a layer of consolidated glacial till or
hardpan. In many areas, the water moves over this consolidated layer
during the rainy months. Due to this problem of impermeability of the
hardpan layer~ this soil is not well suited to the successful
functioning of septic tank drainfields or to below-grade construction.
Otherwise, the Alderwood soil is suitable for development. It has good
drainage and bearing capacities.
Lowlands consist of either coastal beach or organic soils. Coastal
beach soils are scattered, occurring mainly below the high bluff areas
on Wing Point, Yeomalt Point, and the Head of the Bay. The organic
soils are subject to flooding and ponding and are generally not
suitable for development. These are usually located near water sources
and found primarily in the Head of the Bay and in the estuarine marsh
area below Wing Point Way.
- 39 -
topography
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ainbridge Island, Wash.
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4. FLORA AND FAUNA
Because of the mild marine climate which results in relatively warm
winters, Winslow has the lush vegetation characteristic of the Puget
Sound area. Many varieties of trees and shrubs are indigenous to this
area. Those found in greatest abundance include: cedar, fir, madrone,
alder, cottonwood, willow, maple, vine maple, dogwood, Oregon grape,
salal, blackberry, and grasses.
A number of small mammals, eg. deer mice, shrews, moles, skunks,
raccoons, and muskrats, find their habitat in the local vegetation.
Also found in these areas are garter snakes, salamanders, tree frogs,
and toads. A number of bird species nest in the wooded or grassy
places. These include the song sparrow, towhee, robin, Oregon Junco,
blue heron, Mallard ducks, and many others. Eagles have been seen.
Besides providing a habitat for numerous animals and birds, the
presence of vegetation is crucial to the City for a number of other
reasons. It has a moderating influence on the climate; it produces
oxygen; and provides major scenic and aesthetic value. Woodlands also
diminish erosion, sedimentation, and flooding. They provide recreation
potential and give the City and Island a pleasing environment.
5- SPECIAL FEATURES
Winslow possesses a number of qualities which make it a unique city.
These qualities must be preserved and, in some cases, could be
enhanced. Most of the special features are natural; some are man-made.
Essential to Winslow's character is its setting and image as a densely
wooded community adjacent to Puget Sound.
The rehabilitation of existing marinas and other marine-related uses,
plus the addition of more public access to the beach areas serve to
enhance Winslow's waterfront. Also crucial to the waterfront area is
the protection of ecologically fragile areas such as the large marshes
adjacent to the City, the one east of the ferry dock, and the other at
the Head of the Bay.
As a result of Winslow's setting and topography, there are many
excellent viewpoints in the City. The Sound and the Seattle skyline
can be seen from the base of Wood Avenue, the ferry terminal, and
the Hawley area. The Olympic Mountains, the Cascades including Mt.
Rainier, and Eagle Harbor are visible from a number of locations.
Territorial views of grassy plains and the Head of the Bay can be
enjoyed from viewpoints on Lovell and Weaver Avenues. Potential exists
for taking greater advantage of the viewpoints in new development, both
public and private.
43-
vegetation a.d development
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CITY OF WINSLOW
!1 Bainbridge Island, Wash.
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LAND US~
BACKGROUND AND GOALS
The land use plan and its accompanying implementation policies is a cornerstone
of any comprehensive plan because it sets the framework for the City's
developmental growth and affects all other comprehensive planning efforts. In
most general terms, land use provisions are intended to prevent conflicts
between incompatible land uses, organize the city's land uses into an efficient
structure, support the planning of other public systems such as roads and
utilities, improve environmental quality and provide for orderly and predictable
growth. More specifically, the land use component of this plan is directed
toward the following goals which were developed during the City of Winslow
Strategic Planning process.
Goals:
1. Protect and enhance Winslow's residential neighborhoods.
2. Promote the economic viability of commercial activities in the
central core.
Provide an organized planning and administrative structure for
developmental growth that promotes greater predictability of land
use decisions and orderly growth patterns sensitive to community
values.
Protect and enhance the City's natural and environmental assets
including the wooded central ravine, the shoreline area, the
pedestrian scaled downtown, and the city's rural and
residential areas.
5. Provide for a diversity of activities and developmental
opportunities without reducing Winslow's environmental qualities.
STEUCTURAL CONCEPTS
In pursuing these goals, three structural concepts emerged to serve as a
framework for specific land use policies. The first concept is to encourage
higher intensity of residential and commercial development and human
activity in the core area within one-half mile from the ferry terminal.
Several inter-related objectives form the impetus for this idea. First it
provides the opportunity for a greater number of people to live within
walking distance from the ferry. An increased number of core area
residents can then enjoy Winslow's small town atmosphere and literally
"walk-on" to downtown Seattle via the ferry. This increased residential
population will also provide additional support to downtown businesses and
make the Winslow Way CBD a more attractive and diverse activity focus.
Because of the ferry connection to downtown, Central Winslow has the
opportunity to become a twenty-four hour community with commercial
acu~vities serving local residents and attracting visitors from Seattle.
45 -
/
!ttiIli'
t
Another reason for encouraging a more intense city core is to absorb some
of the growth that would otherwise be scattered in outlying areas. This
encourages the establishment of a variety of residential settings on
Bainbridge Island ranging from an in-town community offering the
convenience of the CBD and ferry service to the secluded suburban and rural
character throughout much of the rest of the island.
A second strategic concept is the protection and enhancement of existing
communities through zoning provisions that prevent encroachment of
commercial development on residential neighborhoods and buffers them from
non-residential activities. Capital improvements that upgrade
environmental conditions are also indicated as part of a comprehensive
neighborhood improvement program. Winslow contains a variety of
residential neighborhoods ranging from older single family districts to a
mobile home park to new subdivisions and multifamily complexes. The plan
calls for a recognition of these differences and encourage programs that
enhance neighborhood identity
A third land use concept is the protection and enhancement of Winslow's
natural amenities and through zoning requirements, landscape replacement,
restrictions of development from environmentally critical areas, Shoreline
Master Program provisions to protect conditions along the Winslow
waterfronts and streams, and improvements to parks and public properties.
Winslow's natural features, especially the waterfront park area, the
central ravine, and other highly visible wooded areas are an important
part of Winslow's visual identity and this land use concept is an important
aspect of implementing the Comprehensive Plan's urban design component.
POLICIES AND ACTIONS
The land use policies and actions presented below are intended to implement
the goals and structural concepts.
The majority of current land use issues identified in the strategic
planning process focused on the City's large area zoned for commercial land
uses. The principal action-recommended to address these land use issues is
a set of refinements to the current (1979) zoning ordinance. The
refinements tailor development requirements and opportunities to the
special conditions of each district. The following land use roles and
policies describe the intent of land use provisions for each district to be
implemented through zoning ordinance modifications.
Central Business District
Land Use Role:
To continue as the City's focus for commercial activities providing
services to both Bainbridge Island residents and the visiting public.
While vehicular access and parking are critical to this area, its
primary emphasis is on pedestrian oriented businesses.
Policies:
1. Encourage retail and commercial services in a pedestrian oriented
- 47 -
setting.
2. Insure that the area is provided with sufficient parking and
~ceess.
Protect and enhance the natural environmental qualities of the
central ravine and the intimate scale and pedestrian character of
the shopping district.
4. Encourage residential units in upper floors of commercial buildings
to achieve an "around-the-clock" community.
Madison Avenue District
Land Use Role:
To provide retail and commercial services, the opportunity for in-town
residences, and the opportunity for production enterprises that are
compatible with neighboring land use activities and that benefit from a
visible, publicly accessible location.
Policies:
1. Encourage retail activities that require a central location and
benefit from easy automobile access.
Allow production uses that do not impact on environmental
conditions and which are a positive asset to the surrounding area
and the City of Winslow.
3. Encourage residential development.
4. Institute front yard landscaping standards and undertake public
improvements that upgrade the area's visual character.
5- Protect neighboring residential zones from encroachment of
incompatible development.
North City Center
Land Use Role:
To provide the opportunity for in-city living, commercial development
that enhances the CBD, and mixed use development combining commercial,
civic, recreational and/or residential uses.
Policies:
1. Permit the existing mobile home park to remain.
Encourage the ultimate development of this area to include a mix of
activities that will unify it with the CBD to strengthen the
economic and environmental attributes of both districts.
48 -
Lower Ericksen
Land Use Role:
To provide a high quality setting for residences close to the CBD and
small scale commercial services.
Policies:
1. Restrict the size, character and configuration of commercial uses
to those that are compatible with a residential neighborhood.
2. Allow multifamily residential development.
3. Protect and enhance the visual qualities of Ericksen Avenue.
Upper Ericksen
Land Use Role:
To provide professional and minor retail services.
Policies:
1. Encourage professional office development in a "park-like" setting.
2. Allow multifamily residential development.
3- Restrict retail development to establishments that support the
neighboring office development and which will not negatively impact
the qualities of Ericksen Avenue.
4. Protect adjacent residential zones from the impacts of new
development.
Ferry Terminal District
Land Use Role:
To provide:
a) an efficient transportation link for ferry beat, automobile,
transit, bicycle and pedestrian traffic serving Winslow, Kitsap
county, and the Olympic Peninsula;
b) automobile parking in support of the transportation function and;
c) an attractive entry point into the City of Winslow in keeping with
the town's intimate scale and natural setting.
Policies:
1. Encourage parking that is efficient in terms of traffic circulation
and land utilization.
2. Require that new developments include parking for ferry users.
- 49 -
3. Protect adjacent residential zones from the encroachment of parking
and traffic impacts.
4. Protect the natural environmental qualities of the ravine.
5. Preserve the intimate scale of the district through height
restrictions.
6. Enhance the visual qualities of the district by requiring landscape
buffers for parking lots in highly visible locations.
High School Way District
Land Use Role:
To provide commercial services with an emphasis on those businesses
benefitting from a highly visible location with automobile access near
the highway.
Policies:
1. Encourage high quality commercial development.
2. Require landscaped buffering of parking lots in highly visible
locations.
3- Require sidewalks be constructed as part of development along High
School Way.
Lower Madison Waterfront District
Land Use Role:
To provide retail and personal services in a pedestrian and water-
oriented setting and to provide public access to the shoreline.
Policies:
1. Pursue the construction of a waterfront trail system from Wood
Avenue across the Madison Avenue Slough.
2. Set allowable height limits on structures within 200 feet of the
shoreline to protect views from residential and public properties.
3. Encourage water-dependent and water-related uses and uses with a
pedestrian orientation.
- 50 -
Gateway District
Land Use Role:
To provide:
a) retail and personal services to residents and the visiting public;
b)
the opportunity for small scale production and commercial
enterprises that benefit from a visible location and that enhance
the economic diversity and environmental character of Winslow;
c) an attractive entry point that emphasizes Winslow's intimate
character and natural setting.
Policies:
1. Encourage commercial uses that enhance the city's environmental and
economic assets.
2. Protect the wooded slopes of the central ravine (Hall Brothers
Creek and Slough).
3. Require that new development provide landscaping that enhances the
natural setting of this visually important district.
Place conditions on new development, especially new parking
facilities, that enhance the area's visual character and mitigate
impacts to vehicular and pedestrian circulation.
-51 -
CIRCULATION
BACKGROUND
A major consideration in planning for circulation improvements is to
provide for future increases in traffic volumes. This issue is complicated
by the ebb and flow of commuter ferry traffic and the objective of
protecting the city's environmental quality from the effects of high
traffic volumes. Thus, a comprehensive traffic plan should have the
expansion capability to provide for significant increases in volumes~ and
at the same time, not allow street and parking improvements to undermine
the quality of residential settings or the viability of business areas.
Also, pedestrian, bicycle and transit circulation should play a prominent
role as indicated by the strategic planning objectives formulated in 1986.
STRUCTURAL CONCEPT AND GOALS
The plan's principal circulation concept utilizes the rectangular loop
formed by the current arterials of Winslow Way, Madison Avenue, High School
Way, and Ferncliff Avenue as the city's primary circulation corridors.
This "rectangle" system is admirably configured because it connects the
city's major activity centers and intercepts traffic into the city at major
intersections. The plan calls for a phased series of improvements to
upgrade this network as traffic volumes and pedestrian activity increase.
The circulation system recommendations provide the flexibility to grow to
accommodate traffic increases in three ways. First, the proposed system
can be implemented incrementally over time. Improvements to congested
areas can be added when they become necessary without requiring a complete
revamping of the whole traffic network. Second, the recommendations
emphasize alternate forms of transportation, and if necessary, for
controlling traffic volumes by restrictions to parking. Third, the
geometry of the loop system lends itself to relieving traffic congestion by
giving commuters multiple routes to their destinations.
Goals:
A high priority action to be considered during the next 5 years is
improving Winslow Way from Madison to Highway 305, including
parking/channelization modifications, utility undergrounding,
lighting, sidewalk and landscaping improvements and new signals.
These street elements should be coordinated with a business
district revitalization effort. The dedication of a new street and
parking area connecting Ericksen and Madison north of Winslow Way
is currently being pursued by the downtown merchants and Parking
Advisory Board. This project would help to ease congestion on
Winslow Way and benefit the area's businesses.
Improvements to Ericksen Avenue should be coordinated with land use
decisions for this area. The street improvements should help to
protect existing residential qualities as well as support projected
development.
- 52 -
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A program of building sidewalks and bikelanes and planting street
trees along "rectangle" arterials should be part of an ongoing
capital improvement effort, perhaps constructed when the utility
improvements are built. Congestion at key intersections should be
addressed, especially at 305/Winslow Way, 305/High School Way, and
Winslow Way/Ferncliff. A signal at Winslow Way/Ferncliff
coordinated with the 305/Winslow Way signal may help alleviate
ferry traffic congestion.
Several "second phase" actions deserve exploration. One ambitious,
longer-term effort involves the lowering of Highway 305 below
Winslow Way to reduce traffic congestion and the impact of highway
traffic on the city center. If car-ferry traffic increases
considerably, this option may, one day, justify the construction
cost. Another option that should be periodically examined is the
establishment of a bus shuttle with park-and-ride lots around the
"rectangle" loop. The loop shuttle could first be instituted to
serve peak commuter ferry runs and then expanded as demand
warrants.
This planning study also explored the alternative of extending Wyatt Way
east to connect to Highway 305 and carry additional ferry traffic from
south Bainbridge. This option has the disadvantage of traffic impact to
the local neighborhoods and would either require an extensive interchange
or a signal which would delay traffic on 305- Therefore, this option
should be exercised only after improvements to existing arterials and
transit service prove unable to carry the demand. Limiting parking
development near the terminal will have an obvious effect on ferry traffic
increases, and the manipulation of this control can be considered as a way
to encourage transit use.
- 54 -
URBAN DESIGN
BACKGROUND AND VALUES
Public input during the meeting process of this planning study clearly
indicated that Winslow's citizens place a high value on environmental
quality and design excellence. For this reason, urban design
recommendations are emphasized as an important planning component
integrated with the land use and circulation recommendations. The plan's
urban design recommendations are intended to build upon the following
existing environmental resources and design values:
Preservation and enhancement of Winslow's natural areas including
the central ravine, waterfront park, and the rural and natural
character of the city's outlying areas.
Maintenance of the city's "human" scale by directing new
development to be compatible in size and configuration to existing
patterns and encouraging a pedestrian orientation.
Emphasis on Winslow's heritage as an independent Puget Sound town
and reinforcement of the city center's role as a focus for a viable
community.
STRUCTURAL CONCEPTS
There are three principal design concepts which structure the plan's urban
design recommendation. The first is to enhance and protect the belt of
naturally landscaped open space extending from the waterfront north in the
ravine and along the highway and connecting to the city park and other
outlying areas. This natural green belt, literally growing right out of
the town's heart, can be enhanced as a feature that is unique to Winslow
and the cornerstone of its visual identity. The green belt concept grew
out of suggestions made at a town meeting workshop, and the idea responds
to questionnaire results from citizen participants indicating that
landscaping and natural open space are the most highly valued aspect of
Winslow's visual character.
Because much of this area is public right-of-way or protected by water
management requirements, there is a substantial core of protected land.
Naturalistic landscaping should be added to critical areas such as the
ferry terminal parking lot and the shopping center area to upgrade their
appearance. Also the existing natural ambience of other areas such as the
vicinity of Knectal Way should be protected as new development occurs.
The offices on Ericksen north of Knechtel and the parking areas south of
the Winslow Way business district are good examples of how a natural
landscape character can be retained through sensitive development, and they
present a tradition on which Winslow can build. The central ravine and
highway right-of-way could be considerably enhanced by selective tree
thinning and planting, erosion control, wildlife enhancement and trail
construction. These efforts might comprise a good project for groups such
as the Scouts or Audubon Society.
- 55 -
0
E
0
U
A second major urban design concept is the encouragement of a pedestrian
orientation, especially within about 1/2 mile of the ferry. Extension of
existing trails connecting the ferry to the city center, park, and further
north up the ravine should be pursued. Land use and circulation
recommendations call for a greater intensity and variety of activity
within this zone and an integrated auto, bus/bicycle transportation system
to provide better access and less traffic congestion. A bandstand and
other park improvements, as well as business district revitalization, will
help to increase Winslow's role as a regional destination for recreational
outings.
The third major concept is the establishment of a strong design identity
for the rectangular loop arterials. This formal, geometric structure
contrasts with the more organic pattern of natural open space/landscaping
and adds variety and cohesiveness to Winslow's visual image. It is
recommended that the "rectangle" arterials be articulated with a uniform
planting of street trees that will help to buffer the properties along the
routes and improve conditions for pedestrians and cyclists. Because they
are the city's entry points and are highly visible, the intersections of
the rectangle are optimal locations for urban design elements such as entry
signage, special monuments, landscaping or enhancement of existing
landmarks such as the church at Winslow Way and Madison Avenue.
The special character of some districts should be enhanced by taking
advantage of unique development opportunities and by specialized public
improvements. For example, the waterfront west of Madison, the ferry
terminal area, the high school campus vicinity and the shopping center all
have unique potentials that could be explored to give Winslow a greater
variety of attractive settings.
The individuality of Winslow's residential neighborhoods should be
enhanced. One possible program for neighborhood improvements is to
institute a small annually budgeted fund to be used by neighborhoods on a
rotational basis to fund improvement projects such as local park
improvements, traffic circles, street tree programs, or sidewalk
construction. Neighborhoods could choose how the money is spent and
perhaps elect to augment funds with a local improvement district
assessment.
During the planning process, a need was identified for some type of gateway
or features to welcome visitors to the downtown as they entered from the
ferry near the intersection of Highway 305 and Winslow Way. The ravine
bridge provides unique opportunity for such an element as it forms the view
of the downtown and is visible from 305. Several schemes such as archways
or banners were suggested, but the most effective approach appears to be a
set of viewing platforms extended from the bridge, sidewalks, and a series
of pedestrian lights along Winslow Way from 305 through the downtown. The
grade variation along Winslow Way would make these lights a very visible
pattern leading the eye into downtown as well as lighting this important
pedestrian connection. The bridge viewpoint provides an intersection
attraction midway between the ferry terminal and the downtown and possible
connection to future ravine trails. Furthermore, it articulates this
point's role as the intersection of the natural landscape belt and the
formal "rectangle" loop system.
- 57 -
IMPLEMENTATION
This plan is directed at setting a common vision and a public consensus
regarding key planning objectives. A detailed implementation program is
well beyond the scope of this effort. Nevertheless, it is imperative that
a plan of action be sketched out and major actions, time frames,
responsibilities and schematic costs identified. The chart in this section
is a first step in that process. It should be remembered that the
information is subject to change as the planning process continues. Also,
it is especially difficult to attach costs because the scope of the
individual elements has not been determined, and the local conditions
affecting construction and financing have not been studied. Coordinating
outside funding sources and phasing can play a major factor in reducing
costs. For example, the price of installing sidewalks and pedestrian
improvements at the same time as utility undergrounding or sewerage
installation is much less expensive then if the two projects are done
separately.
Some actions merit immediate attention, such as refinements to the
commercial zoning provisions and land use policies to protect critical
natural areas, and should be accomplished immediately. Other actions
should be commenced immediately but will take longer to complete. Winslow
Way business and traffic improvements, business area parking and access
improvements, park bandstand, pedestrian route, upgrading of the ferry
terminal parking area, central ravine bridge and entry lights fall in this
category. There are several studies and governmental coordination actions
which should be undertaken within the next year because they are necessary
for other capital improvement planning. These include land and local
growth projections, a traffic and parking study, and coordination on ferry
related traffic issues.
Some larger efforts, such as the upgrading of the "rectangle" arterial
system will require an ongoing capital improvements program. This type of
effort should be coordinated with utility construction programs or sidewalk
improvements can be required as part of any private development.
The remaining efforts such as the lowering of Highway 305 under Winslow
Way, the institution of loop transit service with park-and-ride lots, the
relocation of City Hall, and arts center development, must wait until the
functional demand warrants them or a special opportunity occurs. However,
as concepts, they should be remembered so that short term actions do not
conflict with these long term objectives.
Taken together, the recommended actions represent an ambitious civic effort
that will take a cooperative effort on the part of city government,
business interests and local citizens. In formulating policies, it will be
necessary to balance individual interests against city-wide objectives.
Capital improvement projects must be strategized so that costs and benefits
are equally distributed among all the Winslow citizens.
Successful achievement of the above planning actions will require a lot of
civic energy. This is not a plan that can be realized without
self-motivated, local effort. However, this is an advantageous time to
undertake such a task. The recommendations from the strategic planning
process are an important asset.
- 58 -
There are numerous local land use planning issues, each pressing for
attention, but together calling out for a comprehensive approach. With
growth throughout the metropolitan region, Winslowwill become increasingly
attractive for development, which can work either for or against local
objectives. Also, a number of local groups are working on important civic
projects such as the bandstand, the Winslow Way access/parking improvements
and the Main Street Program. Thus, the challenges and the opportunities
are there, as are the physical assets on which to build. Most importantly,
the city has the human resources, the civic interest and the talents to get
the job done. For Winslow, the time to seize the initiative is now.
- 59 -
TIME FRAME
e+GIn immd~:liatoly
C.ocr~ok, le July li~7
Begin 11~i7
Complete lg,68
Begin 1987
C, om~iete 19~g
Begin Immedlelely
C, on'~le lgSll
Begin li~i711i}~8
C~'n.p~te Ig86/Ig~g
Begin immedietely
Compkete 1g.~9
Begin lg.87
OrK}dna Effod
~te ling
Begin
Or~,,lng
~ on I.~rger C&plt.J
Imp, my.re.hi Strategy
UIx.~
Incre~.ed Tr,,~lc ·
~,u~n Funding
ACTION
Refir~ commerk::al zoning Is( specll. t areis. Make zoning
proled ulllc~l nalur~ ~eis. I~ale into ~prel~
~ P~.
P~m st~s I~ further acid: ~ri~ gr~h
m~ltal Improv~nl.
Improve 1~ lerml~ clrcul=tl~ - Inler~ ~1 Ferncliff
L~K~ Improvement..
~nl~n I~provemenll, Poe~l~y I~luding p~ing,
sirHi ~ilgn. algnallzal~n. ei~walkm, un~rgroundl~.
~td=n ~enlllel, fighting, I~n~ge, I&c~e.
Enl~ I~hll~ end v~w d~k. Wlnllow W~y br~ge
Develop new parkIn and acceg I~tws,,n Medi&on end
Ericke4.~ nurth ol WI]netow Way.
Conslrucl new perk Iml~ovemenl Including trill. end
ln.lllul. nelghl:~hood Improvement I~c>gr:m where
nelghLK~iK.~,d clK>c=:.' p~blk; in~ove{nerll Io De &~-
Construct .Id,ewelk.. bike li-fie.
I. lz~Ule ~ e. rlerl.l..
iMtllul,, ~ I/~n~t mice wfih p&~k-~r,d-rld,, loll
Improve Wlns~ow Way/'jO6 InterN, ction by Iowerin~ 306, If
leuib4e.
PRELIMINARY BUDGET & IMPLEMENTATION
S20,000 (f~ con.uttint uT, d In-houle wor'k). Con~jltlnl, lLItf, Ptifinlng A~ency & City
C.~I w'~ with pn;)perty ~ ~ cltlzenl.
$20.CX:X:)48~.(XX) (depending orl mco~e of work and how much Inlorm~llon
UtilLze county ree4:xjrm ~ co(xdl~e, le with Main.treat prog~Nn.
intsreectlon/slgn"l Improvement: - $5O,D00~t00,(XX]. park ng,/clrculello,q peal. r~,Jte -
$100,~,000 (could vN',/gre,,Uy bK4u~e st scope). L~ng ,,qol
(rain). pur~ue J~nl funding wtlh .tale.
1700 000 is $2 000 000 ( deform ~ b · down own revllilizitlon study). Pr
up of bulk:ling f~c~:~.e end Itgn~.
Ll(jhts 1,50.000-$t00.000 De~k $100.000-$200 000 ( dep4nd on en InNring
lundlng p4~rtlclp&llon by mercr'.&nte expk)rld lnd co<)(din·|ed wllh ~nlown
Ii11pi'ove~fie~tl.
Ex lore veriou: publlcJprlva ,, fundin slretegle,. perhaps using L.:I.D. lot plu'ldng
Budget will depend upon mce~e. Some purchue of privet" p~o~erTlf Ifi clnyofl may be
w~r~ted. F--xi:~:~e u&e ol ,~:~unlee~ he~p
S10,000--$+-~,000 (depending ~ Inlorm~Jon). Combine ,,taff
AjoceeltOO.O()O/ye&rlormlnorlm menlLAw,,-dtonelghbo,'hood,,cx~a/o{.allon"l
Funds ,~ugmenLed by L .D. ~l~ny ownerl choose.
S200.O00--~.r.r~.O00. Couk:l vlry w~dely def~ndlng o,'1 K:c~. drAIn. age
wiUt utilities. Co(x dln. e:le with ee. we~ ~ux.t/o~ undogrounding.
Coo~dlnale with FJtl~o Trlme~t to monitor demand ~,d ImpSmerit when fe. Mlbi~.
Study is pad of traffic ~nlng ~ pursue ogtlon wire :tale. Institut,, u p~t o~ Iong-
range p41~nlng.
THE VISION
A cooperative civic effort by all of the city's citizens and interests
requires a common vision for Winslow's future. Achieving this broad-based
consensus is this plan's primary objective. What, then, will be the
combined outcome of the recommendations presented here? If the plan is
implemented, what will the visitor returning to Winslow in 1997 see?
For one thing, he or she will notice many things that have not changed.
The town's overall visual impression will still be dominated by its natural
setting. Tall, native trees and natural green belts will extend from the
shoreline to the north. Winslow will still have kept its small town
character. Many of the older buildings will still be familiar landmarks
and new structures will be small, fitting into the pedestrian scale. Also
the residential neighborhoods will not show much change except for perhaps
some new sidewalks and pedestrian improvements.
But our 1997 visitor will also see some significant improvements. Stepping
from the ferry he will notice that traffic congestion has been reduced
because Highway 305 has been lowered below Winslow Way, improving access
both north and into the city center. The walk to the downtown will also be
more pleasant because of the pathway through the landscaped terminal
parking lot. Walking west along Winslow Way into the center of town, our
visitor will pause to admire the view of water and forest from the bridge
platform overlooking the ravine. New pedestrian lights and attractive
railings will lead him into the city center. Here, he will notice
increased activity, partly as a result of new storefront businesses which
fit in with the older buildings. Also, he will notice that apartments and
studios have been added to upper stories, making the downtown a
round-the-clock community. Facade improvements to the older structures and
improved sidewalks, landscaping and canopies add to the town's pedestrian
ambience. He will notice that the businesses provide several types of
goals including the day-to-day services for the residential population and
the weekly shopping needs of the island's residents. There will also be a
number of galleries, shops, cafes and other attractions for the increased
number of visitors from throughout the region.
Our visitor will probably want to make a short detour through the new
arcade north of Winslow Way leading to the downtown parking lot and
additional small scale shops and a mixed-use complex on the site of the old
mobile home park. The new city hall (relocated during the lowering of
Highway 305) with a community center and civic garden is the focal point of
this area. Keeping the government activities near the city's core will
help to keep public officials accessible and reinforce businesses in the
center of town. The community center component with its recreational
functions and community service will also encourage activity in the core.
These facilities will be partly supported by businesses and groups from
Seattle who use its spaces as a "mini-convention center".
Strolling south from Winslow Way towards the water, our visitor will notice
that the city park is still a tranquil, wooded setting perfect for an
afternoon picnic. If he visits on a Sunday afternoon, he will find
concerts or perhaps a small theater production entertaining local residents
and attracting families from across the sound. The park's boat moorage
will make it easy for pleasure boaters to spend a pleasant weekend at
-61 -
Winslow. Nearby, at the foot of Madison, is a small-scale cluster of
waterfront recreational activities with cafes and boating services arranged
along a public boardwalk.
To complete the tour, a visitor in 1997 will be able to take a shuttle bus
travelling in a rectangular loop along Madison Avenue, High School Way,
Ferncliff Avenue and Winslow Way. The transit service will connect to
park-and-ride lots, primarily to reduce commuter ferry traffic congestion,
but it will also be a useful link for people traveling from around the
city. High school students going to school, people going to the library or
the shopping center, and those just wishing to head downtown without
driving will find it especially convenient.
Traveling along the loop, the visitor will be struck by the uniform rows of
street trees, sheltering adjacent properties from arterial traffic and
adding a more unified identity to the city. The bike lanes and sidewalks
will have also made a difference in encouraging foot and bicycle movement.
The corner intersections of the loop will each have their own identity,
either through a "gateway" sign or pleasant landscaping integrating the
street with local development.
The shopping center district at High School and 305 will have undergone
changes by 1997- New stores will offer auto-oriented convenience and a
greater spectrum of services, but the naturalistic landscaping, the
improved signage, and coordinated site planning have resulted in a more
attractive setting which compliments the city's overall character. The
visitor will not notice much change from the past decade in the residential
and outlying areas. The old neighborhoods have a stable, well maintained
character and new development has been tucked inobtrusively into the
landscape. Even office buildings will be situated in a park-like setting.
Perhaps the strongest impression for our visitor will be the amount of
green space that has been conserved. There will have been growth, to be
sure, but the belt of natural landscaping following the 305 and ravine
corridor and the use of native landscaping in parking lots and new
development has brought the natural environment right into the center of
town, a feature which makes Winslow unique within the region.
The accompanying sketches illustrate several of the ideas presented in the
plan. The first shows pedestrian lights and railing recommended as a
visual gateway element welcoming visitors into the downtown and making this
crucial entry point more attractive. (The design of the lights is
presented as an example, the final design may be different.) The viewing
decks extended from the bridge over the ravine will be an attractive focus,
reinforcing the sense of entry and providing a convenient place to view or
walk down to trails in the proposed green belt. The ravine area greenbelt
itself could be substantially enhanced with selective tree thinning and
planting, wildlife enhancement and a trail system. The second sketch
illustrates typical street improvements recommended on the rectangle loop
arterials (Winslow Way, Madison Avenue, High School Way and Ferncliff
Avenue). Bike lanes and sidewalks are important, not only for pedestrians,
but also to put a finished edge on the street surface. Street trees add
visual continuity, promote a pedestrian orientation and buffer adjacent
properties from traffic impacts.
- 62 -
· riefi.I. (WinjIow W~y, L{~leon ~ve~me, lliil~ Sclm~l W.y ~nd ~'crncli([ ~vcnu~.
I V
RELATED PLANS
- 65 -
WATER SYSTEM PLAN
A Comprehensive Water System Plan Update was prepared by Kramer, Chin &
Mayo, Inc, in November of 1985, and is available for review in the City's
Land Use office. The Summary and Recommendations section is repeated here
for coordination with the general Comprehensive Plan.
SUMMARY AND RECOMMENDATIONS
A comprehensive water plan was developed in order to meet the current and
projected requirements for the next 5 years with an eye toward the year
2010. The plan is based on several key assumptions, namely:
1. Projected service area population growth will range from two percent to
six percent.
2. Service area will be added only at the request of property owners.
3- Per capita consumption will increase at 0.5 percent per year.
4. A water savings due to conservation of six percent can be achieved
system wide. The maximum achievable is 10 to 20 percent.
5. The City plans to budget about $50,000 per year for water system
improvement projects.
6. Project cost estimates include all construction, engineering,
contingency, and taxes and are based on current prices (ENR = 4560)-
7. Future service area water demand will be consistent with the existing
zoning of the service area.
Based on these assumptions, the firm water supply must be increased from
the existing peak capacity of about 1,000 gallons per minute to about 1,600
to 2,800 gallons per minute, depending upon population growth for year 2010
requirements. This may decrease if a conservation program is employed.
Development of additional water supply from another well located at the
Head of the Bay and a well located at an inland site near Murden Cove are
proposed. Storage capacity must be increased by approximately 1.4 to 2.5
million gallons to meet year 2010 requirements.
Extensive improvements of the water distribution system will be required to
upgrade the existing system to meet current requirements and to serve the
projected 2010 population of about 4,900 to 8,400. Approximately 5 miles
of main distribution lines are required to service the area of future
probable growth. Approximately three miles of distribution line are
required to upgrade the existing network, both new lines and replacements,
to meet the current and future requirements.
A future service area expansion will most likely occur due to development
of currently undeveloped land. The most likely area would be north of the
city toward Murden Cove, bounded on the east by Puget Sound and roughly on
the west by Sportsman Club Road. This represents an increase of the basic
service area from 883 acres to 1789 acres by the year 2010. A computer
model was developed to analyze the improvements to the water system to
- 66 -
check for the adequacy of design. The recommended distribution system
improvements are shown in Figure 7.2. (not included here).
Cost of recommended improvements, excluding future source development, is
estimated to be about 3-7 million dollars based upon current (November
1984) construction cost indices. The recommended improvements are divided
into two categories, those required to upgrade the existing system and
those required to serve the probable growth areas. The improvements for
the future growth areas north of the city should be contingent upon demand
due to proposed development. Grant and loan assistance is available under
State Referendum No. 38 for up to 40 percent of eligible construction
costs. Some of the first category of improvements would qualify.
Distribution line costs are not eligible to receive grant money. It is
anticipated that distribution lines to service new areas will be largely
paid for by developers. Available financing may include a combination of
general obligation bonds and revenue bonds and service charges such as
hookup charges and developer extensions. Another source of funds is direct
assessments against property through Local Improvement Districts (LID's).
Population and water consumption can provide a gauge as to the adequacy of
the water distribution system. Variations of these factors will alter the
capital improvement schedule and required funding. For example, additional
storage is required immediately, but due to projects with higher priority
and limited funding, the project is scheduled to start about 1990. Once in
use, additional storage will be required when the population reaches 5,200.
If, however, additional funding or a significant variation in the water
consumption occurs, the schedule and population required for additional
storage would both change.
Additional source is required when the population approaches 3,000 at the
projected rate of water consumption. This will occur from 1986 to 1989
depending upon the rate of population growth. Likewise, if there are
sudden changes in the number or types of connections, both project
scheduling and water consumption would be altered. Therefore, if the
criteria and assumptions used in the development of population and water
consumption should change, the plan must be changed or modified to more
accurately meet the needs of the community.
The following recommendations are made based upon findings of this study:
1. Implement the highest priority distribution improvements as specified
in Table 7.2a and Table 7.2b (not included here).
Additional water will be required to meet Winslow's water demand if the
projected population growth occurs. Some of this requirement will be
met by the new well at the Head of the Bay and the well at Murden Cove.
Where possible, acquire options to purchase the well sites and
sufficient land around the source to satisfy DSHS requirements.
Documentation should be prepared to describe in detail each of the
City's water distribution facilities. This is to include valving
diagrams at each booster station, the type of chlorination system in
use, pump type and operation, etc. Also, implement a system to record
not less than daily (preferably hourly) the rate of pumpage from each
supply source. Also, the water level in each of the reservoirs should
- 67 -
be recorded. All documentation and records should be readily
accessible at a central location in a clear and readable format.
Proper documentation will allow rapid and efficient operation and
repair of the City's facilities. Good record keeping of pumping rates
and reservoir levels will provide better forecasting of future demands
in subsequent water system analyses.
4o Prepare a Developer Extension Manual which sets forth the requirements
and criteria for developers to extend the City's water main system.
Evaluate financing requirements of the Comprehensive Water Plan, such
as available grants, bonding requirements, and a present rate schedule
to determine the specific financing plan.
Negotiate agreements with private water companies which exist in the
probable future growth area to ensure that their water systems will
meet City standards and are in compliance with the Plan. Evaluate the
possible purchase of these companies when future expansion through
annexation reaches their service area. Annexation will only occur if
the water system is in compliance with City requirements.
The preservation of metered usage records of all water customers for a
period of no less than five years. This would allow documentation as
to increases/decreases in the volume of water used by user type. This
information is valuable for future forecasting of water demands as the
system expands.
Establish open lines of communication with Kitsap County Public Utility
District (PUD) to ensure that comprehensive planning as well as plan
implementation are mutually compatible.
Participate in study efforts underway by the Bainbridge Island Water
Coordination Committee to evaluate island water sources, resources and
possible recharge areas, including assistance in financing these
studies.
10. Work with the Kitsap County PUD to develop back-up source and pumping
ability for the Fletcher Bay well.
11. Initiate a conservation program, including ordinances to require
customer water conservation if it can be shown that an ultimate
reduction in costs to the consumer will result.
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STORM WATER DRAINAGE PLAN
A Stormwater Drainage Plan was prepared by Gardner Engineers, Inc. and
Warren Consultants, Inc. in July of 1985, and is available for review in
the City's Land Use office. The Summary of Recommendations section is
repeated here for coordination with the general Comprehensive Plan.
SUMMARY OF RECOMMENDATIONS
The City of Winslow is faced with an immediate need to improve drainage
facilities in the two basins where the greatest development has occurred.
These are:
Basin C - Madison Avenue - In this basin additional storm drain
pipe capacity is needed in Madison Avenue to relieve existing
problems and to provide for additional growth. Additionally since
the City has received a UAB grant to improve a portion of Madison
Street from Wyatt Street to Winslow Way it is imperative that this
portion of the drainage system be constructed with the street
project.
Basin D - The Canyon - The stream in this basin is impacted by
growth along High School Road. A plan has been developed to
utilize Sakai's Pond to control runoff and to construct an improved
culvert under Winslow Way. The development of a runoff control
facility in Sakai's pond has become a top priority with the
proposed redevelopment of the Winslow Village area scheduled to
begin within the next few months. The controls must be in place
for this project to proceed.
In two other basins additional drainage facilities are needed before
substantial further development takes place:
Basin B and B-1 - Weaver Road - A major drainage trunk pipeline
along Weaver Road to Eagle Harbor is needed if substantial further
development is to be allowed in this basin.
Basin E - Wing Point Way - Runoff controls from future development
are needed in this basin. Also, two culverts under Wing Point Way
must be replaced and control structures provided at these points.
Acquisition or control of the wetlands along the shoreline where
this basin discharges is also recommended as a high priority.
The remaining two basins in the City's drainage area must have certain
improvements before substantial further development occurs. However, since
the present problems are less urgent in these basins, any action can be
deferred until the property owners in the basins are prepared to fund the
improvements.
Basin A - Sportsman Club Road - This lightly developed basin will
require runoff controls and certain restrictions on development if
future problems are to be avoided.
6. Basin F - Wing Point - This basin includes some 55 acres within the
City that are poorly drained. Before further significant
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development is allowed, internal drainage must be provided by the
local property owners.
Recommended action by the City
The City has begun a process of informing the public of the drainage
problems facing the City and the cost of recommended solutions. Once the
public and the City have considered the available solutions, a final
decision on what can be implemented should be made. The City's actions
should include:
1. Continued review of the stormwater drainage plan with the public
and affected property owners;
2. Development of a final funding plan after public input is received;
3- Adoption of the final stormwater drainage plan and action to
implement the funding methods selected;
4. Adoption of a new drainage ordinance to regulate drainage runoff
and water quality;
5. Determination of how best to fund the needed additional maintenance
of the drainage system;
6. Coordination of the drainage plan implementation with Kitsap
County.
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II
{ I
PARK AND RECREATION FACILITIES PLAN
A Park and Recreation Facilities Plan was prepared under the direction of
Greg Nelson in the City Engineering Office in 1979', and is available for
review in the City's Land Use Office. The Goals and Objectives section as
well as the Proposed Trail Corridor System diagram are repeated here for
coordination with the general Comprehensive Plan.
* Note: a revised park plan is currently in preparation, and when
adopted, will replace the referenced plan and this extract.
I. GOALS AND OBJECTIVES
This facilities plan has been prepared in order to meet with growing
needs of establishing an organized development plan for the future
expansion of the City of Winslow's park and recreation facilities. As
a framework for the plan, the following goals were established or
reiterated from Winslow's comprehensive plan (1979):
1. Development of a variety of recreational uses oriented towards the
waterfront of the City of Winslow.
2. Recreational uses which are pedestrian oriented should be
developed.
These goals are matched by the following goals from the City of
Winslow's comprehensive plan (1979):
3-1.10.3 Winslow's waterfront and beaches should be a primary source
of recreational activity.
3.1.10.4 Facilities for recreational boaters should be developed.
3.1.10.5 Park and recreation facilities should be located throughout
the City, convenient to each neighborhood.
3.1.10.6 The park system should preserve and maintain the natural
character of the City.
3.1.10.7 Facilities for walking, bicycling and horseback riding should
be provided.
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