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ORD 98-11 AMENDING COMP PLAN TO INCLUDE WINSLOW MASTER PLANORDINANCE NO. 98 -11 AN ORDINANCE of the City of Bainbridge Island, Washington, amending the City's Comprehensive Plan to incorporate recommendations in the Winslow Master Plan WHEREAS, the City adopted a Comprehensive Plan on September 1, 1994, which has subsequently been amended; and WHEREAS, Policy W 1.7 of the Comprehensive Plan requires the City to develop a master plan for Winslow to implement the goals and policies of the Plan; and WHEREAS, the City Council appointed the Winslow Master Plan Committee to develop a draft master plan for Winslow, with the assistance of City staff and consultants; and WHEREAS, the Winslow Master Plan is an integrated plan/EIS developed in ordinance with and consistent with RCW Chapter 35A and the State Environmental Policy Act; and WHEREAS, after extension public participation as described in the Winslow Master Plan; and WHEREAS, the Planning Commission reviewed the draft Master Plan forwarded to it by the Winslow Master Plan Committee and received public comment and held a public hearing; and WHEREAS, the City Council review the draft Master Plan, as amended by the Planning Commission, received public comment and held a public hearing; now therefore THE CITY COUNCIL OF THE CITY OF BAINBRIDGE ISLAND, WASHINGTON, DO ORDAIN, as follows: Section 1. The Land Use Element of the Comprehensive Plan, adopted by Section 2 of Ordinance No. 94-21, as amended, is further amended as set forth below May 21, 1998 FRW 1.3: The Plan targets Winslow to accommodate 50% of the population growth through the year 2012, with the Neighborhood Service Centers to accommodate up to 5%. The balance of the growth would be absorbed throughout the remainder of the Island. For uumoses of allocation 50% of the growth, Winslow shall be defined as Winslow Master Plan Study Area. Figure 3of Exhibit A of this Ordinance -the Winslow Master Plan.} Discussion: ~-~^",~ ,i.,,.:o~ „~ *t,~ ., a .,,,o ~;,,-,;+~ „c *~o ~;.,, ,.~ ~xr.,,i~,,,.. The 1992 population of Winslow was 3,397 persons. Fifty percent of the Island's 2012 population allocation is 3,715. Winslow is therefore targeted fora 2012 population of 7,112 persons. The Winslow Master Plan study area.is intended to encoura eg a neighborhood of the Island which contains a strengthened, vital downtown where people want to live, shop and work. Outside the mixed use, higher density center, there would be a variety of housing choices from higher density multi-family areas immediate) ~ adjacent to the downtown to single family residential neighborhoods FRW 2.2: ', b b ` , Increased density over and above the existin z~g in the NSCs should only occur through a shift in density from critical areas overlay districts and farms through TDRs and through the use of density bonuses for affordable housing Development within the MUTC and High School Road Districts shall be consistent with the Winllow Master Plan (contained in the Subarea chapter of this Plan). The level of development shall be determined by using Floor Area Ratio (FAR) rather than dwellin units per acre. The use of FAR may result in an increase in the base level of development (density) over the existing zoning, but will provide greater flexibility in type and size of housing units that will further the goals of this Plan. May 21,.1998 A base level of commercial and residential density within the overlay districts of the MUTC and the High School Road districts shall be established as described in the Winslow Master Plan with an increase in the FAR allowed through the use of • affordable housing • TDRs (transferable develo ment rights) • contributions to public infrastructure and public amenities in excess of what is required to mitigate the impacts of development • transfer of density within the MUTC and within the High School Road Districts • preservation on-site of historic structures eligible for inclusion on a local state or federal register of historic places • locating ferry-related parking underbuilding_ Goa14 Establish and maintain a successful purchase and transfer of development rights program to implement the goals and policies for the purchase (PDRs) and transfer (TDRs) of development rights contained in this Plan. LU 4.1 The City recognizes the need to take a proactive rol_e_ _in the purchase and transfer of development rights, including a) The outright purchase of development ri hg is by the City; b) The banking of developing rights; and c) The coordination of the private purchase and transfer of development rights. LU 4.2 The funding needed to achieve this goal should be one of the priorities for the City. The City should provide sufficient funding to purchase development rights for farmland and resell for use for development within Winslow. W 1.4 The base density in the Mixed-Use Town Center shall be the density which is permitted under existing zoning for each property. A maximum of up to 28 units per acre may be achieved through the use of Transfer Development Rights; an affordable-housing density bonus or contributions to public infrastructure or public amenities in excess of what is required to mitigate development impacts, , Discussion: This policy reflects a balancing of two goals in the Plan. First, the Mixed-Use Town Center has been identified in the Plan as the core of Winslow. The Plan recommends an increase in density in the Town Center to enhance its vitality, increase density where the infrastructure already exists, locate the density where impact on traffic would be minimized due to proximity to shopping, the ferries, and a variety of services, and provide for opportunities for affordable-housing. Second, May 21, 1998 3 the Plan provides for a shift in density from environmentally sensitive areas and farms to Mixed-use Town Center, or through the use of an affordable housing density bonus. W 1.5: The area north of Bainbridge Performing Arts to High School Road, between Madison and Ericksen Avenues, is most appropriate for high-density, residential uses. W 1.9: Monitor the success in achieving the Plan's goal to increase the vitality of the MUTC uiiu a . ° , "`' ~`"r' `'° `'` f ~*~ ~' ~ and the effectiveness of the bonus density ro ram. The monitoring program shall include tracking the use of TDRs, the affordable housing density bonus, and bonuses for contributions to public facilities, the types of businesses which are located in the Town Center, and the number and frequency of business changes. Discussion: There is some concern that the increased density in the Town Center will not be achieved if it can only be accomplished through the use of TDRs or an affordable housing density bonus. Through a regular monitoring program, an assessment can be made as to whether the goals of the Plan are being achieved and if not, corrective measures should be taken. W 2.5: The existing mobile home park in the Central Core District provides an affordable housing alternative and should be encouraged to remain. With retention of these mobile homes. the unused development potential from the parcels on which the mobile home park is located may be transferred to another parcel. within the MUTC and a mechanism should be established to allow the permanent preservation of the mobile homes to be used as an affordable housin bonus on another parcel within the MUTC. W 6.3: The properties designated on the Land Use Map as High School Road District II shall be limited to no more than -~-8-,599- 14,400 square feet of retail use. Retail use between 5,000 and -15;899- 14,000 square feet shall require a conditional use permit. Discussion: This portion of High School Road, designated High School Road District II on the Land Use Map, is immediately adjacent to a semi-urban, residential area of 2.9 to 3.5 units per acre and should have less intense uses than the remainder of the High School Road district. Since existing businesses are located in this area and infrastructure is in place, this Plan recommends the area for the High School Road designation, but with a limitation on the size of retail uses. Section 2. The Housing Element of the Comprehensive Plan, adopted by Section 2 of Ordinance No. 94-21, as amended, is further amended as set forth below H 2.1: The Islander Mobile Home Park provides affordable housing and its continued preservation should be encouraged_ ..~°~*'~°~ ' ` ^ °^*~^^ ^ ~4ar.~~t-ur~~ u,,,,,° n.,..~. May 21, 1998 4 w-~e~ The City shall develop a strate~y for maintaining the Mobile Home Park on the existing site, including exercising its priority rights through the Housing Preservation Section of the Federal Housing Act or other applicable federal or state pro rg ams b , t1.'. ~ thtiy ~trE+-ro , o,a b,,. „L,1•„ ,7 r H 2.2: The City shall develop a continuing strategy for maintaining the Farm Home and HUD subsidies on existing rent-assisted housing which should include affirmation of the city's interest in exercising its priority rights for purchase through the Housing Preservation Section of the 1990 Federal Housing Act. H 4.1: In order to reduce the land cost component of for-purchase housing, new developments may be eligible for up to 50% affordable-housing density bonuses in all residential districts (except in the Critical Area Overlay Zones), based upon the HUD-defined income group to be targeted, as follows: 50% bonus for units for the extremely low, very low, and low income groups 40% bonus for units for the moderate income group 20% bonus for units for the middle income group The following additional provisions shall also apply: 1) All affordable units must be included within the development. 2) Developments of 8 or more units (based on underlying density) must provide at least 10% affordable units. 3) Developments of 50 or more units (based on underlying density) must provide at least 10% affordable units which must include a balance among units for the low, moderate, and middle income groups. 4) No density bonuses will be provided for developments in the Critical Area Overlay Zone (TDR sending areas). 6) All applicable development standards including Health District requirements for adequate sewer and water facilities must be met. Section 3. Amend Figure 2 of the Water Resources Element of the Comprehensive Plan by substituting Exhibit A of this Ordinance as Figure 2. Section 4. The Capital Facilities Element of the Comprehensive Plan, adopted by Section 2 of Ordinance No. 94-21, as amended, is further amended as set forth below May 21, 1998 5 CF 1.13: ,The capital facilities identified in the Winslow Master Plan contained in the Subarea section of this Plan, :':°~e ^ ~*^' f~cilitie~ iu°^*~~°-' f° .,.^..l'`,,~a,. viiuc QicT-ncccrrisr~-ivr ~~- shall be included in this Capital Facilities Element and the Winslow capital facility needs shall be included in subsequent six-year financing. While the Master Plan establishes a priorit~pital facilities by indicating those projects to be funded during the first Six-year CIP as identified in the Master Plan, continued prioritization of capital facilities projects identified in the Master Plan should be based on the following criteria: • Is it vulnerable to preemption (e.g., land acquisition or development bar parties)? • Does it further the goals of the Comprehensive Plan ? • Does it serve the Core, then work outward or does it serve the Cit,~population? • Can it be combined or sequenced with other City or government agency yrojects to provide the best cost effectiveness? • Does it provide the least cost/hi hey st impact? • What is the funding source? Is it eligible for grants? Paid for in whole or in part by development fees? • Is the project needed to accommodate growth or retain the established LOS or existing conditions? Section 5. The land use map of the City of Bainbridge Island comprehensive plan, as amended, shall be further amended to modify the location and boundaries within the Winslow Study Area to incorporate the modifications approved by this ordinance as shown on Figure 7 -Composite Land Use Changes of Exhibit B of this Ordinance (the Winslow Master Plan). Section 6. Amend the section of the Comprehensive Plan entitled "Subarea Plans" to add the Winslow Master Plan, Exhibit B of this ordinance. May 21, 1998 6 Section 7. This ordinance shall take effect on and be in force five days from and after its passage, approval and publication as required by law. PASSED by the City Council this 21st day of MaY , 1998. APPROVED by the Mayor this 28th day of MaY , 1998. ,~ Dwigfit Sutton, Mayor ATTEST/AUTHENTICATE: ue Kasper, City Clerk APPROVED AS TO FORM: Rod P. Kaseguma, City Attorney FILED WITH THE CITY CLERK: May 28, 1998 PASSED BY THE CITY COUNCIL: May 21, 1998 PUBLISHED: May 30, 1998 EFFECTIVE DATE: .Tune 4, 1998 ORDINANCE NUMBER: 98-11 C:lwinslowmplCityCouncil~final~IVlay 210rd.final May 21, 1998 7 nitory dce '~) slow Sanitory ver Service ro (existing) City of Bainbridge lslond Sewer Service Areas Winslow IVlaster Plan ~v_ _. si t~.. May 21,199$ Winslow Master Plan Acknowledgments CITY OF BAINBRIDGE ISLAND Winslow Master Plan Steering Committee • Hannette Allen • Lois Andrus • Bruce Anderson, Planning Commission Liaison • Charles Averill, City Council Liaison • Brenda Bell • Marie Gallagher (partial term) • Sam Granato (partial term) • Jessie Hey City Staff • Jane Allan, Senior Planner -Project Manager • Kathy Cook, Planning Assistant • Marti Stave, Planner CONSULTANTS Kato & Warren Bryce Ecklein, Project and SEPA Coordinator Rich Kato, Utilities Cascade Design Collaborative Mark Hinshaw, Development Regulation TDA John Davies, Transportation Planning • Bill Kreger (partial term) • Andy Mueller (co-chair) • Peter O'Connor (co-chair) • Steve Olsen • Douglas Robert (partial term) • Merrill Robison • Jackie Scherer (partial term) • Dan Suchman • Marge Williams • JeffJensen, City Engineer • Bill Bryan, Public Works Director • Melva Iallanardo, Engineering Technician Property Counselors Greg Easton, Real Estate Economist Berryman Henigar Roger Wagoner, Capital Facilities Carlson Architects Don Carlson, Development Prototypes Murase Associates Eric Schmidt, Urban Design BAINBRIDGE FERRY TERMINAL PLANS Washington State Ferries Sverdrup Civil Hewitt Isley Richard Brater, P.E., Project Mngr Russ East, P.E., Project Mngr. Bill Isley Brian Holling, P.E., Gene Armstrong, P.E.. Rob Berman Joel Colby, P.E. Jce Bement. Richard Brater, P.E., Kitsap Transit Parametrix Dick Hayes Bernie Chaplin Wendy Clark, P.E. McClure Research Mary McClure Pam Kellner Winslow Master Plan May 2I 1998 Table of Contents Chapter 1-Introduction and Summary Why a Master Plan For Winslow 1 Key Characteristics of the Master Plan 1 Description of Process Used to Develop the Master Plan 1 Range of Alternatives Considered 4 Chapter 2--Land Use 5 Existing Conditions 5 General Land Use Pattern 5 Population and Market Background ~ 12 Comprehensive Plan Land Use Framework 13 Master Plan Land Use Policies 16 Overview 16 Boundary Changes 19 MUTC Overlay District 19 Establishment ofNew District 19 Designation as Multifamily District 19 Density Determination 19 Bonus Floor Area Ratios (FAR) Provisions 20 Transfer of Development Rights (I'DRs) 20 Internal FAR Transfers 21 Public Amenities/Infrastructure 22 Historic Preservation 22 Combining the Bonus FAR Provisions 22 Policies -for Specific Districts Mixed Use Town Center/High School Road Districts 24 Central Core Overlay District 24 Ericksen Avenue Overlay District 24 Madison Overlay District 24 Gateway Overlay District 24 Ferry Terminal Overlay District 24 High School Road II 26 Waterfront Industrial District 26 Levels of Development-FAR 26 Design Guidelines 27 Chapter 3--Housing Zg Existing Conditions Comprehensive Plan Housing Framework 29 Master Plan Housing Policies 30 Housing Distribution 30 Mobile Home Park 30 Navy Housing Site 30 ~nstaivlKasteP F'la:: 1l~av 2d, d99~ Chapter 4--Open Space/Trails Existing Conditions Comprehensive Plan Open 5pace/Trails Framework Master Plan Open 5pace/Trails Policies Overview Parks Trails MUTC/High School Road Trails Trails outside MUTC/HS Rd. Districts Waterfront Trail The Ravine Streets as Part of the Open Space Network. Use of Existing Land or Right-of--Way Retain Right-of--Way and Easemerns Chapter S--Public Facilities Existing Conditions Comprehensive Plan Framework Master Plan Public Facilities Policies Chapter C~Transportation Existing Conditions '1'raf~~ (°ir~iilatlon Roadway Classification Roadway Conditions Kitsap Transit Circulation Pedestrian and Bicycle Circulation Parking Comprehensive Plan Transportation Framework Master Plan Transportation Policies Overview Transportation Elements By Pass Route Ericksen Avenue New City Hall Access Winslow Transit Loop perry Service to/from South Side of Eagle Harbor Traffic Calming Streetscape Specific Street Standards Pedestrian and Bicycle Facilities Parking 31 31 33 33 33 33 34 34 34 34 34 34 35 35 39 39 39 41 42 42 42 49 49 51 51 53 57 58 58 58 58 59 59 59 59 61 61 62 66 68 ll Winslow Master Plan May 21, 1998 Chapter 7-Washington State Ferries Issues 71 Existing Conditions 71 Holding Lanes 71 -Local Access 71 Marine Facilities 71 Transit and Terminal Facilities 71 Site Circulation 71 Comprehensive Plan Framework 72 Master Plan WSF Policies 72 Long Term Infrastructure Improvements 72 Third Slip 75 Holding Area Expansion 75 Transit and Terminal Facilities 76 Bicycle Access 76 Pedestrian Walkway 77 Winslow Way/SR 305 Irrtersection 77 Chapter S-Utilities 79 Existing Conditions 79 Overview 79 Water 79 Sewer 81 Storm Drainage 83 Comprehensive Plan Framework 85 Master Plan Utilities Policies 85 Water 85 Sewer 85 Storm Drainage 85 Chapter 9--Capital Facilities 90 Overview 90 Project Summaries 91 Funding 93 Six-Year CIP 95 Chapter 10--Implementation Action Strategy 99 Actions 99 Regulatory 99 Open Space%1'rails 99 Transportation 99 Facilities 99 Investment Responsibilities 99 City of Bainbridge Island 100 Washington State Department or Transportation 100 Washington State Ferry System 100 Kitsap Transit 100 Bainbridge Island Park District 100 m l~nsfmv ~Kaster Stan 1l~av 2d, d 99~ Private Parking Authority Chapter 11-Monitoring Chapter 12--Impacts and Mitigation Assumptions Land Use Open Space Transportation Evaluation Criteria and Analysis Roadway LOS Intersection. LOS Impacts Land Use District Boundary Shifts USF 8 Designation Uniform Base FAR and Maximum FAR for each District Changes to TDR Provisions Changes to Oher Bonus Provisions Housing Parks and Open Space Park Sites East-West Trails North-south and East-West Trails Waterfront Trail Transportation Roadway and Intersection LOS Intersection LOS Winslow Way /SR 305 Intersection Transportation Facilities Commuter By Pass Ericksen Avenue New City Hall Road (Access) Transit Loop Streetscape Traffic Calming Pedestrian Circulation Bicycle Circulation Short Term Nan-Ferry Parking Mitigation Land Use District Boundary Shifts Uniform Base FAR & Base Density for Gateway and Ferry Terminal Districts Changes to other Bonus Provisions Parks and Open Space East-west Trail Ravine Footbridge 100 100 104 109 109 109 109 109 114 114 114 114 114 114 115 115 117 117 117 118 118 118 118 119 119 119 120 122 122 122 123 123 123 123 124 124 124 125 125 125 125 126 126 126 iv Winslow Master Plan MaV 21, 1998 North-south and East-west trails 126 Waterfro~ Trail 126 Transportation 127 Roadway and Intersection LOS 127 Winslow Way /SR 305 Intersection 127 Transportation Facilities 127 Commuter By Pass 127 Ericksen Avenue 128 New City Hall Road (Access) 128 Traffic Calming 128 Short Term Non-Commuter Parking 128 Washington State Ferry Related 129 Evaluation Criteria and Analysis 129 ~pa~ 129 Third Ferry 129 Marine Facilities 130 Holding Area Expansion 130 Transit and Terminal Facilities 131 Bicycle Access 131 Winslow Way/SR 305 Intersection 131 Mitigation 131 Third Ferry 131 Marine Facilities 132 Holding Area 132 Transit and Terminal Facilities 133 Bicycle Access 133 v ~nslaw Mas~eP Ptai~ 1~lav ~ 1 1998 List of Figures Figure 1 Winslow Master Plan Primary Study Area Figure 2 Winslow Master Plan Study Area Figure 3 Existing Land Uses Figure 4 Historic Structures Figure 5 Winslow Overlay Districts Figure 6 Vacant Land and Land with Redevelopment Potential Figure 7 Composite Land Use Changes Figure 8 Public Open Space and Sensitive Areas Figure 9 Composite Open Space Plan Figure 10 Area Wide Trail Network Figure 11 Waterfront Trail Figure 12 Existing Public Structures Figure 13 Percent of Direct Through Trips to Total Trough Trips - P.M. Peak Hour Figure 14 .Ferry Terminal Circulation Figure 15 Roadway Classification Figure 16 Existing Sidewalks Figure 17 Parking Utilization Figure 18 Ferry Parking Supply Figure 19 Common Transportation Elemeirts Figure 20a lliustrations of S`uee~. S``a--,dards Figure 20b Illustrations of Street Standards Figure 21 Pedestrian and Bicycle System Plan Figure 22 Potential New Short Term Parking Options Figure 23 Composite of Washington State Ferry System Plan Figure 24 Winslow Water System Service Area Figure 25 Winslow Sanitary Sewer System Service Area Figure 26 Drainage Basins Figure 27 Storm Water System Improvements Figure 28 Auto Trips By Residential Zone During P.M. Peak How Figure 29 Auto Trips By Retail Zone During P.M. Peak Hour vi Winslow Master Plan May 2I 1998 List of Tables Table 1 Application of Optional Bonus Provision to Each District Table 2 Levels of Development (FAR) Table 3 Intersection Levels of Service Table 4 Method of Departure from Ferry Terminal Table 5 Total Ferry Capacity by Route Table 6 Kitsap County Population and Ferry Ridership Distribution Table 7 Winslow Master Plan Capital Improvements Table 8 Capital Facilities Funding for Winslow Master Plan Table 9 Capital Projects Already Funded and in Process Table 10 Winslow Master Plan Storm Drainage Capital Improvements Table 11 Implementation Action Strategy Table 12 Traffic Growth Table 13 Retail (Office) Traffic Growth Table 14 Roadway LOS Table 15 Inrtersection LOS Table 16 Travel Time Table 17 Summary of Washington State Ferry Related Impacts and Mitigation Preferred Sanctuary Ahemative vii Wir~slo~' Maser ~~ May 21 1998 Winslow Master Plan Appendices Appendiz A -Land Use 1. Appendix 1 Winslow Master Plan Economic Analysis 2. Developable Land Estimates 3. FAR Site Development Implications Appendix B -Transportation Winslow Subarea Transportation Study Technical Appendix Appendiz C -Washington State Ferries 1. December 22, 1996 Memorandum For The Record From Russ East Re. Bainbridge Island Muhunodal Ferry Terminal -Ridership Estimate 2. December 22, 1996 Memorandum For The Record From Russ East Re. Bainbridge Island Muhunodal Ferry -Terminal Traffic 3. November 26, 1997 Memorandum From Jce Bemem Re. WSF Bainbridge Island Ferry Terminal Master Plan ROW Impacts to Adjacent Properties. Appendiz D -Capital Facilities 1. Worksheets 2. Apri129, 1998, Memo from William Bryan re. Wyatt Way/Knechtel Way ROW Cost Estimates. vm Winslow Master Plan May 2l 1998 CHAPTER 1 INTRODUCTION AND SUMMARY WHY A MASTER PLAN FOR WINSLOW? The Comprehensive Plan establishes the vision and overall framework for the future of Winslow. It is designated as the major area of urban concentration -the commercial, cultural and commuter hub of the Island. The Comprehensive Plan provides three major goals for Winslow: Strengthen the vitality of downtown Winslow as a place for people to live, shop and work. Encourage a lively community by having a strong residential component. Accommodate 50% (3,715 people) of the projected population growth of Bainbridge Island through the year 2012. Higher intensity of residential and commercial activity is recommended for Winslow to 1) encourage development where public facilities and services exist or can be efficiently expanded, 2) provide choice of housing for all economic segments of the population, 3) reduce sprawl elsewhere on the Island, 4) encourage efficient multimodal transportation, and 5) encourage economic development within Winslow. While the Comprehensive Plan establishes the overall. framework for Winslow, the Master Plan is needed to: 1. Refine the goals and policies of the Comprehensive Plan as they relate to Winslow; 2. Develop a detailed facilities and amenities plan, including • pedestrian and bicycle facilities • an open space and trails plan • a transportation circulation system; 3. Prioritize funding to ensure implementation of the Master Plan; 4. Identify impacts and mitigation measures at the planning level that will allow for more streamlined approval of permit applications; 5. Identify implementation strategies; and 6. Develop a monitoring program to ensure that the Master Plan is implemented. There will be impacts on Winslow from additional population, both on- and off-Island, and from additional ferry traffic, resulting in increased pressure on the character and vitality of Winslow. The challenge of the Master Plan is to accommodate the anticipated additional growth and development without sacrificing that character and vitality. The Master Plan was developed to be consistent with the goals and requirements of the Growth Management Act (GMA), Multi-County Policies, and the Kitsap County-Wide Planning Policies. The Winslow Master Plan and EIS is anon-project EIS that addresses future development and growth in the Winslow Study Area. Subsequent projects implementing the Master Plan will be Winslaw 142aster Plan 142av 21 1998 evaluated on the basis of consistency with the approved Master Plan/EIS, consistency with the Growth Management Act (GMA) and compliance with the requirements of the. State , Environmental Policy Act. KEY CHARACTERISTICS OF THE PLAN The Master Plan focuses on the creation of an enhanced, continuous pedestrian and bicycle experience within Winslow, linking access to retail shopping, the ferry, major public facilities, open space and residential areas. Vehicular circulation is left at its current level of development and, in fact, would be "calmed" through a variety of traffic slowing mechanisms and street design techniques. The overall goal is to increase pedestrian accessibility in Winslow as a means of preventing further commitment to vehicular facilities. By making pedestrian circulation easy and enjoyable, a vibrant retail core and strong residential community can be sustained and enhanced. The Plan also addresses parking for businesses in the downtown area. The Plan also provides certain land use changes to the Comprehensive Plan and existing regulations to encourage residential and mixed use development in the Town Center and High School Road Districts, rather than commercial only development. Several strategies are identified to preserve the mobile home park in Winslow. The Master Plan also provides incentives to place the existing parking at the ferry terminal under building. and create anew residential office neighborhood consistent with the goals of the Comprehensive Plan. PROCESS USED TO DEVELOP THE WINSLOW MASTER PLAN Winslow Master Plan Committee The Winslow Master Plan Committee (composed of representatives of the business community, neighborhood groups, and the design and development community) developed the draft Winslow .Master Plan with assistance from urban design, transportation, market analysis and planning consultants and City staff. The Committee began its work by reviewing the goals and policies of the adopted Comprehensive Plan. The Committee also considered the results of a Design Workshop held in February 1994 to examine the viability of the Comprehensive Plan for Winslow. (The Workshop was conducted by a .group of local design professionals, members of the local business community and representatives of neighborhood groups.) , The Committee then began to develop a list of issues which needed to be addressed in the Master Plan (Issues Identified by the Winslow Master Plan Committee, February, 1996). The Committee conducted a public meeting in February, 1996 to obtain community comments on the issues (Issues Raised at the Winslow Master Plan Public Workshop, February 26, 1996, revised March 15, 1996). Next, the Committee examined the different ways to meet the goals and policies of the Comprehensive Plan and to address the issues identified by the Committee and the community. Alternative solutions were explored which involved tradeoffs, prioritizing of funding of capital improvements and developing creative solutions. A second public meeting was held in April, 1996 to obtain community input on possible alternatives. After that meeting, the Committee worked with the consultants and City staff to develop a draft Master Plan. This draft Plan presented three alternatives to address future development and growth in the Winslow Study Area: 1) a preferred alternative, the Sanctuary Plan; 2) the Winslow Master Plan May 2l 1998 Dispersed Alternative; and 3) an analysis of the existing Comprehensive Plan recommendations, the "No Action" Alternative. Washington State Ferries (WSF) and Kitsap Transit, with community input, developed the October, 1995 draft Ferry Terminal Zone Master Plan to address WSF proposed future plans for the ferry terminal in Winslow. WSF, Kitsap Transit and the City have worked together and with the Winslow Master Plan Committee, the Planning Commission and the City Council to integrate the WSF/Kitsap Transit draft Plan into the Winslow Master Plan in order to have one integrated plan for Winslow's future that addresses the needs and goals of WSF and the Bainbridge Island community. On January 30, 1997 the Winslow Master Plan Committee and the Bainbridge Island Planning Commission held a joint public hearing on the draft Winslow Master Plan and EIS. The draft Ferry Terminal Plan prepared by Washington State Ferries was also included in the Winslow Master Plan. The public hearing was attended by approximately 300 citizens. In addition to the oral public comment taken at that hearing, written comment was accepted through February 28, 1997. Based on a review of those comments, the Winslow Master Plan Committee then made revisions to the January draft Winslow Master Plan, and forwarded the revised document to the Planning Commission for review.. The Planning Commission also received copies of all public comments. Planning Commission The Planning Commission held several study sessions to review the revised draft Winslow Master Plan. The Commission then convened a public hearing on May 22, 1997 in order to elicit further oral and written public comment on the revised Plan. This public hearing was followed by a number of Planning Commission study sessions to review the Plan in response to public comment and then revise the Plan. City Council Upon completion of this process, the Planning Commission forwarded the document to City Council for review in the fall of 1997. During a number of study sessions the Council reviewed the draft Plan and the Planning Commission's recommended changes. Issues requiring additional analysis were referred to the Land Use and Public Works committees of the Council. The Council also appointed a special Capital Facilities Task Force composed of the chairs of the Public Works and Finance committees and a City Council member who had served on the Winslow Master Plan Committee. to review the capital facilities portion of the Master Plan. On January 29, 1998 the City Council held a public meeting to obtain further comment on the draft Plan, with particular emphasis on transportation and WSF-related issues. The Council then held several more meetings to study and discuss the Plan. A second public meeting that focused on land use and capital facilities issues was held on April 16, 1998. Extensive efforts were taken at each stage of the Master Plan process to inform and involve the public. Public workshops and meetings were publicized as much as possible. Articles and announcements appeared in the newspapers, and posters and displays were placed in prominent public locations such as the local grocery stores, the public library and the ferry terminal. Flyers were mailed out tp community organizations, citizen committees, business owners, architects, builders and developers, and residents living within the study area. Announcements for two of the public meetings were inserted in City utility bills. Flyers were also distributed to drivers and K'enslow Pi9aster Plan Pi9av 2l I998 passengers waiting in Seattle to board the Bainbridge-bound ferry during the peak p.m. commute hours. City staff and consultants and WSF representatives also gave presentations and answered questions at a number of smaller meetings organized by the Chamber of Commerce, Team Winslow and the Municipal League. All of these efforts were aimed at communicating information on the Master Plan to as wide an audience as possible. RANGE OF ALTERNATIVES CONSIDERED Three alternatives to implement the Comprehensive Plan goals and policies for Winslow and to address the identified issues were considered in developing this Plan: (a) the No Action Alternative, (b) the preferred Sanctuary Alternative and (c) the Dispersed Alternative. No Action The No Action alternative relied on the vision of the Comprehensive Plan and implementing ordinances that have been enacted since Plan adoption. Because the Comprehensive Plan provided for base density increases and pursued a population goal in Winslow of 3,700 new residents, it is possible ±ha± some of the Comprehensive Plar. vision could be achieved. It is less likely that the vision of a vibrant town center, high level of pedestrian circulation or interesting mix of uses would be met. The No Action Alternative was retained for further evaluation, partly to act as a benchmark to test other alternatives and partly because other alternatives considered would require amendments to policies contained in the Comprehensive Plan. 1 he Sanctuary flan .(The ~reterred Alternative) This approach, which was identified by the Committee as its preferred alternative, seeks to maximize pedestrian circulation in the Core through provision of a comprehensive pedestrian system of sidewalks and trails while de-emphasizing vehicular circulation through the use of traffic calming techniques and the reduction of impacts from ferry-related traffic. Residential development densities in the Core are promoted as a means of assuring an active and vibrant village center. Transit is relied upon to aid in circulation throughout the Core. The Dispersed Alternative This alternative proposed a certain accommodation of vehicular needs while also providing for basic pedestrian circulation. It would ease vehicular circulation through the provision of additional vehicular access (both north-south and east-west) but would also pursue some traffic calming goals. Overall density in the Mixed Use Town Center and High School Road Districts would be sinular to the "Sanctuary" Plau but could be inure dispersed. Transit would be a key component in aiding circulation in the Core. Winslow Master Plan May 2l I998 CHAPTER 2 LAND USE EXISTING CONDITIONS (See Appendix A for a More Detailed Discussion) General Land Use Pattern Winslow has the land use pattern of a small-scale town which was established during the early decades of the twentieth century and overlaid with post-war development patterns. The original, tightly configured variety of shops, workplaces, and housing began to be replaced with larger buildings surrounded by parking, structures set back from the street and residential subdivisions. In more recent years, with the development of major convenience retail along High School Road, the role of the original town center along Winslow Way has been altered. Figure 3 ,depicts the arrangement of land uses. Previously, people who lived in Winslow were concentrated within fairly close proximity to the ferry terminal. Indeed, most of the rest of Bainbridge Island was rural and agricultural. Residents could meet most of their needs in the town's commercial center. Over the years, the center has become as much a social center of the community as an economic one. This role still exists today, as neighbors can run into one another on the streets and in the stores, and enjoy the intimacy, cordiality, and personal relationships of a small town. Fortunately, the land use pattern in the older part of Winslow still reinforces this behavior, although it too has been affected by the amount of space consumed by the moving and parking of autos. Although much of its character remains relatively intact, the town has seen its finely grained arrangement of land uses pulled apart by standards which govern parking and streets. The land use portion of this Master Plan focuses on those areas referred to in the 1994 Comprehensive Plan as the Mixed-Use Town Center and High School Road Districts.. These areas contain most of the retail and office activities of old Winslow and a relatively dense population. The limits of this area are shown as the Primary Study Area on Figure 1. For context and connectivity, a slightly larger area has been included in the Master Plan. This is referred to as the Secondary. Study Area and is also shown on Figure 2. Total acreage within the study area is estimated at 1,527, of which approximately 390 acres are currently vacant. Total acreage within the Mixed-Use Town Center portion of the study area is estimated at 258 acres, of which approximately 53 acres are currently vacant. Existing land uses are shown on Figure 3. 5 Winslow Master Plan Mav 21.1998 Figure 1 Winslow Master Plan Primary Study Area .„„„,.~ ., .,= ~~ ~ ~i~ ~" High School Road ~~ ~~ ~~ ~- 1 1 3 1 1 ~.,... ,' .E 1 • ~ ~~ ~~ 1 ~~~.~~~~ann 1 ~~ ~ '. =~ 1 1 1 :°; 1 Wallace_Way~ i ~ _ Y' ~, ~ 1 ~ ~ 3 1 1 ~ ,~ c~ _ 1 ~ • ~ 1 _1 1 ~_~~ i 1 ~ t / ~ 1 ~ • / • ~, 1 W ~ ~ Q Wyatt Way , p ~_f ~ Wing Pcint Way 1 ~' c m ~ ~ ~ ~ - ~ 1 ~ ~.... ~1 1 1 1 •~ ,1 Winslow Way E. 1 1 1 ~, 1 ~ _,' ¢I ~. o l ~' o , ~ 1 _, •~. \ ` ., ...-. ; ~_, ;- - ~ ._. /"~ -. ;r ; 1 1~ --- " Study Area Legend MUTC: Mixed Use Town Center HS I: High School I HSI1: High School II 6 Winslow Master Plan May 21.1998 Figure 2 Winslow Master Plan Study Area y. ] ~ Murden ov L~~f~ren Rd New Brooklyn Rd b ~ s U C Ilr ~_ T~:. FED r ~_., ,.. L' ~~~~ -^~ J ~~ ~" « .r -rte., f~'~~9"~» ~° ~` x ~ „ 6n ~ ti4111 ~ ax ~ ~~~ ~ tl« x 1~ie~s'~~+~~eu'~Rd ~ 9~; ~~ > , ~, ~ r ~ ~xxq _ x, ~ 'S+~ ~K ~ a ! ~ ~ 3, ~ ,~ ~"'~ `~ Ill Nilllll ti~ I4' ~ ~ "~., ~aa ~~~ ~~ .Eagle Ka~bo~ Legend ~- '~°e"a~a""°xs° Secondary Study Area ..« ~a_ f. a. a.. ". ~~~ PrimarynStudy Area see also Primary Study Area detail map 7 Winslow Master Plan May 21.1998 Figure 3 Existing Land Uses ,.: `;~ n ~~ ~ ~~ ~ ~ i Ifl f „y~ ~4.Ewciuxx l ~ :: ~: .. .. ~ ~~~ ..+ ~~ N ,~"i ~f Cr,~ R a 1 w,. ...y ... _ ~~~~ a New 6rooktjm Rtl .~ -ti ~i.4 ~,~ ~~ ee ti~igy. SP¢pI ~~ 1 4.~\ t, ~•,E ~• ~~~ `v.~l~ ~ ~ r ~<~ ` . ~, ti.\ ~, tip. ~ ','~~~~~.° I ~ ~ ~ ~ ,, ~, ~ r 'y~ .~ ~. r s : y ~. ~ z '~, ~ .~1 C ~ ~ ~ , ~;' F ~ ~' fd F $ ) ~, j y ~' k ~ a, „0.P. 1~. ,.~~ l~~y ~s ,~ , ~ Winslow Way E F +~;, ~~E ~Ft~m N _~ h ..'...+ 1 maw.- g ~ J~ a~, 'C ,, ~ .~~~ 7 ~~a ,51 r~~~~ pgy~~ ,, ' ~. S 4 FFFG w~ e ~'« '~ F 1S r~` as ~ ~ ~3 ,: a' ~~ ~ ~,~ lti }-?C~~i~~~ i ~_ ~~_ Legend ~~ Low Density Residential .;:;;: Private Institutions 8 Commercial ~`~ Agriculture Public [~ Transportation E£ High Density Residential Winslow Master Plan May 21 1998 Within Winslow, there are a number of distinct areas. The original town center, along Winslow Way west of SR 305 and lower Madison Avenue contains numerous small uses -convenience stores, specialty shops, banks, services, and cafes largely located within one-story buildings. The major exception is the Town and Country Supermarket, which has a large footprint building and an expansive parking lot. One of the attributes of the retail uses along Winslow Way West is that there has been some degree of turnover, resulting in occasionally vacant storefronts. However, there is still a strong concentration of retail uses -both convenience and specialty stores - along Winslow Way and Madison. Parfitt Way is lined with small commercial uses next to the marinas. Surrounding the commercial uses that are concentrated in the core are a number of multi-story buildings containing apartments and condominiums. This predominantly "horizontal" mixture of uses offers some degree of proximity for residents, though there are still some significant distances between uses that make walking less comfortable for some people, particularly the elderly. As the Master Plan process began, there were only two examples of "vertical" mixed use: the Winslow Green and Wyatt's Corner. Since that time, two additional projects have been built and several others have been approved. Ericksen Avenue contains a number of historic houses (see Figure 4 for historic structures). These are built almost in the form of a New England village. They are close to the street, close to each other and have front porches and relatively consistent architectural character. Virtually all of the older houses now contain commercial uses. This presents a strong image for lower Ericksen that infuses the rest of the town center with a sense of longevity and stability. Upper Ericksen has seen some development that is more suburban in nature, breaking the previous pattern, although very recent development has begun to reflect the more traditional physical relationships. Certainly, the loss of any of the older structures along Ericksen would damage the image of Winslow as a small town with a distinct heritage. Madison Avenue, in contrast to Winslow Way West, has a more diverse mix of post-war and pre- war development patterns. Buildings are not set close to the street. There is much more of a pattern of separation between buildings, with trees, yards, and parking areas more prevalent. A number of historic structures have been identified on Madison Avenue. (See Figure 4.) The intersection of Madison Avenue and High School Road is marked by two very important public buildings: the high school, which has a large campus of structures and spaces, and the public library. The latter use has just expanded to almost double its original size, and will take on a more important role as a landmark and civic structure. The other two corners of this intersection are occupied by churches. Winslow Master Plan May 2LI998 Figure 4 Historic Structures ------ . -- -'' "~ High School Road "" "- "' ~ ~ f ~ ~1..... ~.~ i - , -- -- .~ ~ L l (' ~ ~ F ~ ~ ~ Waliace Way'- - L ,,,,,: ~ m ~ ~ 3 ~ ~ ~ < l ~~ Q _,~ ~ r ~ ~ ~ `~ ~ ,~ ~ /i , W att Wa f a , ~ - ~ U Wing Point Way ~ ~ ~ ~ a~ ~ ~ Q \ ~ ~ 1 w ~ ~ ~ Winslow Way E ,~ .~ - ,I p ¢~ Y l ~ o l , ~ ~I ~ ~ ~ ~ ~ _ ;, ._ ,~.., ~ ~~ I_ ,.,.._ ;_ I - I'~, -... Legend Approximate Location 10 of Hisi~ric Structure Winslow Master Plan May 21 1998 The land use pattern along High School Road is not unlike that found in many North American suburban communities. Its pattern is largely the product of contemporary zoning regulations, street design standards, and market trends. Large, linear buildings, set back from the street behind parking lots, dominate the area. Individual developments are also pulled apart from each other, with few obvious connections for people on foot. This is exacerbated by the fact that both blocks and parcels are relatively large and have few intervening streets, none of which go through the blocks. Although actual distances are not very great, they seem so due to expanses of asphalt, fast-moving vehicles, and broad streets. Most of the commercial uses are located between SR 305 and Madison Avenue, which is the same length as the concentration along Winslow Way West. However, there is limited housing within close proximity to this commercial node; it is accessed principally by automobile. - The SR 305 corridor has significant green space, with mature vegetation associated with a steeply sloping ravine meandering along its alignment between High School Road and Winslow Way. Vegetation in this corridor has diminished over the years as a result of adjacent development. There is a commercial winery located within the vegetated portion of the corridor. In the vicinity of High School Road, there is less vegetation; commercial land uses and parking lots are visually prominent. While these uses are visible from the highway, they are accessible only from High School Road. The limited access highway is largely a greenway dividing Winslow rather than tying it together. The Ferry Terminal end of the SR 305 Corridor also divides uses along Winslow Way. Virtually all of the commercial activity is located along Winslow Way west of SR 305. Winslow Way east of SR 305 contains several office structures (as well as the current City Hall), but none of these have the pedestrian-oriented characteristics of the uses west of SR 305. The parking lots associated with the ferry terminal constitute the major use of land east of SR 305. Although there are a number of privately-owned lots, they abut one another and present a large expanse of surface area devoted exclusively to ferry commuter parking. Policies in the Comprehensive Plan suggest the desirability of transforming this area into a new, small neighborhood of multiple family housing, office use, retail uses aimed at commuter traffic, and a new street network that would break up the large tracts. The edges of the town center quickly graduate downward in intensity from medium density multiple-family housing to single-family detached residential.. No commercial uses are found around the perimeter. Residents use both the older area around the center of Winslow and the new area along High School Road for goods and services. These two concentrations of commercial land use, while somewhat competitive, offer residents many choices within close proximity to where they live. Moreover, they serve a social function in that people can easily maintain contacts with friends and other residents. For the most part, this social activity occurs during the daytime; only grocery stores and a few restaurants remain open during the evening. A number of historical structures and sites in Winslow have been identified. See Figure 4 and the Bainbridge Island Historical Society's "Historic Sites and Buildings of Winslow," (1990). Finally, Winslow is a waterfront community. A good measure of its history and image has been tied to uses along the waterfront. Although types of uses along the waterfront have changed over the years, for the most part the community is still cut off from its primary amenity. The waterfront park provides some degree of access, but the trees and structures within it cut off visual access from locations upland. There are still some industrial uses such as the ferry 11 Winslaw Master Flan I~lay 2I 1998 maintenance facility that prevent access. The marinas offer some degree of access, but present a largely private enclave along the water. Population and Market Background In order for a vibrant mixed use town center to succeed as envisioned in the Comprehensive Plan, there must be an underlying source of demand for both the residential and- commercial uses. The Master Plan process required an understanding of the trends affecting development of various uses in Winslow, an evaluation of site-specific development opportunities, and. an identification of regulatory approaches and incentives that could increase the likelihood of success. To this end, the City contracted with Property Counselors, an economic consulting firm, to prepare a market analysis. The resulting study, "Winslow Master Plan Economic Analysis" (Property Counselors, 1996-Appendix A(1)), provides detailed information on existing local conditions, an analysis and comparison of conditions in other communities in the region, and projections for potential demand by use. A summary of the findings is discussed below: Regional Context Winslow is located in Kitsap County in the Central Puget Sound region, which comprises Kitsap, King, Pierce, and Snohomish Counties. King County is the dominant county of the four with 55% of the regional population in 1990 and 67% of the jobs, The region is projected to grow by 46,000 persons per year between 1990 and 2020. Kitsap County's share of regional population is projected to increase from 7% to 8% by 2020. The county will continue to be a net exporter of residents to jobs. As the major employment center in the area, downtown Seattle represents a daily destination for residents throughout the region. Wlnslo:v Can be Compared to ot.".er Cornlnunlties in the region. Beyond ti3e ilrsi tier of areas around the Seattle Central Business District, existing communities are mature and largely built- out; Winslow can compete effectively in terms of commute time with these areas. Winslow has a small and specialized downtown by regional standards, but it is similar to other waterfront communities in terms of level of employment and scope of its businesses. Winslow offers an opportunity to provide a more balanced distribution of incomes than either the close-in Seattle communities or the other waterfront communities in the region. Residential There are two obvious segments of potential demand for residential growth in Winslow: households with one or more members working in downtown Seattle (often younger families just getting started), and current residents of the Island looking for smaller, lower maintenance dwelling units (often empty nesters). Within these groups there is a clear need for affordable housing. The segments described above are the two most obvious ones. In addition, there will be interest by young families attracted to the local schools and Island lifestyle. While many of them will be attracted to single-family units, there will certainly be a percentage who will be interested in higher density alternatives in Winslow prior to starting their families. In all cases, the demand for housing in Winslow will be related to the area's ability to maintain. and enhance an active and attractive physical setting. In addition, the demand will depend on housing opportunities in the Seattle Central Business District, Denny Regrade and South Lake Union. If Seattle's proposed urban villages are slow to realize their visions, Winslow will offer a particularly strong alternative. 12 Winslow Master Plan Mav 2l 1998 Office Office-type uses on the Island fall into one of two categories: businesses serving Island residents, and businesses serving a larger market area but choosing to locate on the Island, perhaps because the owner lives here. The demand for office space for the former businesses will grow as the Island population grows; the demand for the latter will depend on whether businesses continue to choose Winslow over alternative locations, and also on the impact of home-based businesses. Enhancement of Winslow as an active, pedestrian-oriented district would increase its attractiveness somewhat for such businesses. Retail Winslow has the potential to serve in three roles as a retail center: • for residents in the immediate area, • for residents of the Island-wide market area, and • as a specialty destination for visitors from elsewhere in the region. New residents in Winslow will spend relatively more of their income in Winslow than residents elsewhere. Population growth in the rest of the Island over the next 20 years will also result in increase demand for retail trade and services. The potential demand for new retail space to service visitors is somewhat speculative. (The draft Economic Element of the Comprehensive Plan addresses the role of tourism in the Island's economy.) Total commercial potential (office and retail) is estimated at 520,000 sf. through the year 2012. The ability to achieve this number may be limited by available vacant parcels and/or parcels with redevelopment potential. A review of land availability and zoning limitations conducted as part of the Master Plan effort suggests that approximately 440,000 sf. of new commercial use could actually develop (Appendix A(2)). COMPREHENSIVE PLAN FRAMEWORK The Comprehensive Plan policies identify the Mixed-Use Town Center as the commercial and civic core of the community, with a wide variety of residential choices. New development would be encouraged in the Winslow town center as one strategy to preserve the character of the Island. In addition, planning policies seek to create a core that is active, pedestrian-oriented, and filled with new housing choices to reduce sprawl and encourage multi-modal transportation. Furthermore, Winslow would be the focus of new commercial development. The Plan recognizes that considerable growth will occur simply due to natural market forces but suggests that improvements and strategies will be required to direct the location, intensity, and quality of development. Civic facilities and recreation would be provided within Winslow, while development standards would guide the form and character of new development. There would be more parking available which would be managed more efficiently. A fundamental concept in the Plan is to achieve increased density in the Town Center (except portions of Ericksen Ave.) through three mechanisms: transferring development rights from outlying agricultural and environmentally "sensitive" lands, density bonuses for providing affordable housing, and density bonuses for contributing to public infrastructure or public amenities beyond what might be required to mitigate the impacts of a development. 13 6Yireslow 14~astep Plan 14~av 2l 1998 The Mixed-Use Town Center establishes five overlay districts with policies intended to reflect different existing conditions and goals for each district. (See Figure 5) The Central Core Overlay District is the most intense, with both single purpose commercial development and mixed use development. Design standards would recognize the more urban character of this area. The Ericksen Avenue Overlay District is intended to preserve the unique, small-scale historic character provided by the older single-family houses. Conversion to non-residential use is allowed, but any additions would have to be made to the rear. New development would need to maintain the overall character of the street. The portion of this district between Winslow and Wyatt Way would not be eligible to receive bonus density. The Madison Avenue Overlay District allows for a mix of residential and small-scale nonresidential development. However, single-purpose commercial development is not allowed; the intent is to emphasize higher density residential use in this area. The Gateway Overlay District principally addresses the desire to protect the ravine through designation of appropriate land uses and/or acquisition of land or easements. The SR 305 corridor is recognized as an important visual gateway to the Island and as a potential passive open space. The Ferry Terminal Overlay District contains policies that recognize its potential as a new, higher density residentiaUoffice neighborhood. Policies indicate the need to accommodate the fiin~tin i re iii em f thig rr~a n 1 tra nn a ~ ;; ,µh . , .1° A„l, 't r L. na. q r ents o. ..blo..a. ..tisr rt t o h ,.h „ ,,.,a,a:.c.ng i< <hroug~~ .~.eans such as underground parking, landscaping, signage, and buffers. Language in the plan indicates the need for coordination between the State, the City, Kitsap Transit, and the owners of property both within the Ferry Terminal District and the Gateway District. The Commercial High School Road Districts contain policies that promote the provision of goods and services for residents. While some uses may be automobile-oriented, the overall pattern of uses should promote pedestrian access and movement. Development standards would address the form, orientation, and bulk of buildings, as well as landscaping, open space, circulation, and signage. A policy regarding the Water-Dependent Industrial District calls for new and expanded development to provide physical and/or visual access to shorelines and visual access to the facilities. This suggests the need for better relationships between activities along the shoreline and those that are upland. Another policy calls for retaining the current allowable densities for the Urban Multi-Family District, but there is a suggestion that this district might be eligible to receive additional density through Transfer of Development Rights (TDRs). Policies for this district also call for landscape buffers between multiple family and single-family development and indicate a list of possible design standards. Other policies contained within the section addressing Winslow are relevant to the master plan. Policies call for retaining the pattern of single family development around the edges of Winslow. 14 Winslow Master Plan May 2l 1998 Figure 5 Winslow Overlay Districts ~~~ r rte',-U ~^ _. ~. + .:J#::a,_-- ~ ~ ~^ 1^ ~ ~~~ High School Road ~~ i! ~~ n ~~s ` ~- ?i Batt A ~r ~ +. 1 . 1 . ~..^.....~ ~ 1 ~ ~ 1 ~ 1 :~ 1 t M, ,1 ~•^ ' ~ ~. WallajG~U 7 s 1 > ~ ' ` ~ ~ ~ , ~ ~ ., ~ ~ ~ ~ r ~~ ~ _ - ~ ~~ ~ ~ ~~ - Wyatt WaY ~ m ~ lL . `~..... i. • , ~ • ~ Q ~ Wing Point Vday ~ ~ m ~ ~ ~ ~ '\ M ~ ~ ~ ~ ~ ~ f _ ~ .... . l 1,~ ~ ~ ..' ~ ~ ~ ~ , I ~ .~., ' Winslow Way E. ` ; :: ~. .. ;,., ; ; i ' . ~, ',, .a ° ~ .....~ o ~ ~ r '~ , , T ~ ® _.~ i _ _ ~` ~ Urban Mufti Family ~. . _ 1 ~~ 15 Winslow Master Plan May 2l 1998 MASTER PLAN LAND USE POLICIES Overview The Master Plan builds on the goals and policies of the Comprehensive Plan. Producing the effects called for in the Master Plan will require relatively minor adjustments and refinements to the current land use policies and map for Winslow.. This is due to the extent of work that was recently accomplished during the development of the City's Comprehensive -Plan. The Comprehensive Plan has defined the parameters into which the Master Plan should fit. The Plan recognizes and emphasizes the vitality and importance of Winslow and its retail core. The area defined as the Winslow Master Plan study area (see Figure 1) is designated to receive 50% of the allocation of future growth for the Island. The Master Plan assumes that up to 50% of this new residential development will be concentrated within the Mixed-Use Town Center and the High School Road Districts. Based on the City of Bainbridge Island population growth of 7,430 over the period ending 2012, and Window's portion thereof at 3,715 people, the associated growth in Winslow housing units would be approximately 1,500 dwelling units. Discussion: Achieving the population projections, and the associated 1,500 dwelling units, involves some denser single family (on smaller lots) and multiple family developments. This new development, whether in stacked flats, row houses, duplexes, small lot single family or other forms, is expected to be built on both vacant lots and lots that are not developed to the intensity allowed by the existing zoning. The location, intensity, mix and connections between developments would be done in a way that is conducive to walking, biking and transit and that is supported by the availability of public infrastructure -streets, utilities, and public open space. Figure 6 shows vacant land and land (as of 1996) in the MUTC and High School Road Districts that has considerably greater development potential than its current use. Since it has been receiving 35% of the growth since 1992, it should be possible for Winslow to absorb this additional increment without producing a dramatic change in the pattern, intensity or appearance of development with the strategies contained in this Plan. However, the focus and form of development will be somewhat different. The land use policies, district boundary changes, and potential code provisions described below address the issues of focus and form in each of the districts. 1 fi Winslow Master Plan Ma 21.1998 Vacant Land °°~ `Redevelopment Potential Winslow Master Plan May 21.1998 Figure 7 Composite Land Use Changes ~~ r ~ ~ ~ r__-:. i w ~ ~ ,.~ ~ A ~ ~ ~ ~ ~~~ ~ y • High School Ro~i ~~ ~~ ~~ a ~~~ ~~ ~r ~~ ~, ,, • 1 ~~1 1 1 :o' 1 ~ _" -~ ,. m 1 ~ ~.,, 3 ~ t ~ ~ ~ ;. ~ ~ i ~ ~: ~ ~ ~ ~~ ~ ~~~ 1 ~ ~ ~ ~ ~ .v ~ ~ ~ ,..:: Wyatt WaY !... ~. ~ rr ~. ~. ~ ~ . - ~ ~ ~ ~ ~ a; F-~ ~ ~ ~ J ~~ ~~ ~ ~ ~h; ~ ~ -~ ~~»~ +.~ ~ ~ ;~ .. ~~ ~ Winslow Way_E. ~ ~ ~ ~ i ~ ,, ~ ~ „~ ,~' .~ ,. ~ . ~ .~ .. ....~ ~, ~~~r~ _ _ ., __, i" ~' •, ~ / /°: „, ' ~ ,,; ~,\ ' ~ 1=Gateway t?istrict ,' Legend ... ''~ ~- t~tl~ USFB Zone Area of Deferred Retail Development `' t t i l t t t Area Added to Core Area Added lu Madison ~~~~ Urban Multi-Family/Ferry Terminal Zone 1 Gateway District Urban Multi-Family (Rt3) ifnt Way ~`` J ~~'~ 18 Winslow Master Plan May 2l 1998 Boundary Changes MUTC Overlay District Boundary Changes Change the boundaries of the Core, Madison and Gateway Districts. Specifically: The Core Area is extended along lower Madison Avenue to include higher density development. The Core is also extended out Winslow Way 300' east of SR 305 to allow proper integration of Winslow Way from SR 305 to Madison Avenue, an area previously in the Gateway District (see Figure 7). The Madison District is extended north to the intersection of Madison Avenue and High School Road. This brings the Library into the district boundaries. The Gateway District is reduced in size at the south to reflect enlargement of the Core. It is extended to the north to include John Nelson Park. See Figure 7 for further description of District changes. Establishment of New District Designate an area along Ferncliff Avenue (as shown on Figure 7) as a new Urban Single Family District (USF 8) to allow moderate density single family development. An increase from existing density to eight units per acre would be allowed using transfer of development rights (TDRs). Adopt design guidelines to ensure that development is consistent with surrounding areas. Designation as Multifamily Designate tax parcels 262502-3-011-2006 and 262502-3-012- for multi-family district (R8). (See Figure 7.) Development of the property should include screening from the single family residential zone to the east and from SR 305. Access using an easement to Cave Avenue will need to consider the impact on the existing residential and day care uses. Discussion: These .lots had been zoned R8 prior to the adoption of the Comprehensive Plan. The Master Plan designated the two lots for the urban single family district. Density Determination For the Mixed-Use Town Center and High School Road Districts, the City would discontinue the method of setting future density through the standard of "dwelling units per acre." The alternative method to be used is "Floor Area Ratio".(FAR), in which an overall level of intensity is set for a site, but the exact number of units is not specified. Floor area ratio refers to a figure that expresses the total allowable floor area in relation to the total lot azea. This figure is determined by dividing the floor area of all buildings on a lot by the lot area. For example, if a lot is 25,000 squaze feet and the FAR is 1.0, then the total square footage allowed would be: 25,000 x 1 = 25,000 sq. ft. A development of 1 FAR could have up to 25,000 sq. ft. of development that could be commercial or residential. Discussion: Although density is frequently defined by dwelling units per acre in suburban communities that aze comprised of single-use districts, it is less useful in areas where a mixture 19 Wznsl®w 142aster Place 142ay 21 1998 of uses is desired. Using FARs provides flexibility to design a project to address a particular site. The use of FAR allows the market to determine the number and size of units and the mix in the type of development. (Conventional density limits can discourage affordability since smaller, less expensive units count the same as larger, more expensive ones.) It is possible to relate FAR to a range of achievable units per acre, as follows: 0.4 FAR would produce 8-20 units per acre 0.8 FAR would produce 16-40 units per acre 1.5 FAR would produce 24-60 units per acre The unit range results from the variety of unit sizes that can occur. Parking requirements also influence the number of units that a site could accommodate. The form of parking also affects the extent to which a~ development actually reaches the densities suggested by each range. Surface parking coupled with larger average unit sizes would tend to produce the lower end of the range, while structured parking coupled with smaller average unit sizes would allow the higher end to be possible. (See Appendix D for indication of how FARs would apply to typical parcels.) FAR allows uses to be weighted according to the characteristics of a particular district. For example, one district might allow an FAR of 0.4 for commercial and 0.4 for residential, while another might allow 0.4 for commercial and 0.8 for residential. Each development would be a unique blend of uses and unit sizes. An interim FAR Ordinance that has been in place daring development of ±he Master Pla^, •t~o'~'.ld b~ replaced by provisions in the new P.~Iaster Plan. Bonus Floor Area Ratios (FAR) Provisions Base levels of commercial, residential and mixed-use development (FAR) are recommended for the MUTC and the High School Road Districts. A maximum level of development beyond this base is allowed for each of the districts through the use of bonus FAR provisions. The bonus FAR provisions are a means of advancing specific Comprehensive Plan policies to preserve farmlands and sensitive areas, provide affordable housing, and provide for public amenities and facilities that serve the community and preserve historic structures. Priorities among these policies are established through the level of bonus which can be achieved through each of the bonus provisions. (See Table 1.) Specific values and ratios affecting the bonus provisions may change based on future conditions without amending the Master Plan as long as those changes continue to meet the goals of the Comprehensive Plan and the Winslow Master Plan, and so long as the maximum FAR is not exceeded. Transfer of Development Rights (TDRs) The Transfer of Development Rights (TDRs) would be used to preserve agricultural land and environmentally sensitive areas identified in the Comprehensive Plan (TDR Sending Areas) by allowing the transfer of density from these Sending Areas to the MUTC and High School Road Districts (TDR Receiving Areas). The exact TDR valuation and transfer ratios/mechanisms need to be established in a manner that will encourage their use. 20 Winslow Master Plan May 2l 1998 One hundred percent of the increase in development from the base FAR to the maximum FAR allowed in the MUTC and High School Road Districts. could be achieved through utilizing TDRs. The existing TDR ordinance should be revised as follows: • The existing policy allowing only development rights from agricultural lands to be transferred should be extended to three years from the date of adoption of the Master Plan or until 100 acres of agricultural land has been preserved using TDRs/PDRs, whichever occurs first. The activation of environmentally sensitive areas as TDR Sending Areas would be deferred accordingly. • Revise the TDR transfer ratios to encourage the use of TDRs to preserve agricultural land. The owner of qualified agricultural land may transfer the equivalent of 5 development rights of agricultural land for each unused development right, using the Optional Bonus provisions of the existing TDR Program, (to reflect the change to FARs). Use of the Optional Bonus provision should be limited to conforming properties in the R0.4 zone and that contain at least 2.5 acres of land. • Use TDRs in the TDR Receiving Areas for commercial and. residential development and establish valuations/development units that reflect the difference in value of each type of development. (For example, a development right in the Receiving Area may equate to 1200 sf. feet of residential development and 600 sf of commercial development.) 1 Discussion: The existing TDR Ordinance adopted to implement the Comprehensive Plan provides that (1) for the first year of the TDR Program, only development rights from agricultural farmland may be transferred, (2) one development right can be sold or transferred for every unused development right in the TDR Sending Area and (3) the owner of qualified agricultural land has the option of selling three development rights for every unused development right if the owner places an easement to conserve and forever maintain the agricultural productivity of the land to the American Farmland Trust; Inc. or other appropriate trustee approved by the City of Bainbridge Island. Internal FAR Transfers Up to 20% of the maximum available FAR bonus may come from internal transfers of FAR within the MUTC and within the High School Road Districts. The bonus would consist of development potential (FAR) transferred to create permanent open space on parcels that contain critical areas, provided that there are no adverse impacts to the critical areas as defined by Chapter 16.20.C.2.a of the Island's Municipal Code. (For example, if a property in the MUTC contains a critical area of approximately 10,000 sq. ft., then 10,000 sq. ft. of development potential could be transferred to another property within the MUTC. ) Affordable Housing Up to one hundred percent of the available FAR bonus may come from providing affordable housing. The provisions of the 1994 Comprehensive Plan and implementing ordinance would remain, except that the condition that requires at least 30% affordable housing (beyond the initial 10% requirement) would be eliminated. To implement the Master Plan, the affordable housing provisions of the BIMC will need to be amended to reflect the change from dwelling units per acre to FAR. ' The market feasibility consultants for the Master Plan indicate that the value of commercial space is approximately twice that of residential space. 21 Winslow Master Plan l~lav 21 1998 Public Amenities/Infrastructure A bonus density would be established for providing public amenities/infrastructure beyond those required for SEPA mitigation. Separate cost equivalents (e.g., 1200 sq. ft. of commercial and residential development) would be established. In order to utilize this bonus provision, the developer would pay the cost equivalent of the additional development. For example, assume the cost equivalent of commercial development is $6,000 for 1200 sq. ft. An additional 4800 sq. ft of commercial development would require a contribution of $24,000 toward identified public amenities/infrastructure. Funds derived from such bonus density purchase would be used exclusively in the MUTC/HSI/HSII districts and would be used on projects identified in the Six Year Capital Improvement Program. Up to 40% of the maximum available bonus density may , use the public amenities/infrastructure provision. The remainder of the bonus density would come from one or more of the other bonus options. The bonus could also be achieved by the construction of public amenities/infrastructure identified in the Master Plan and not required to mitigate the impacts of development, including (a) mid-block pedestrian connections identified in the Master Plan where public right-of-way does not exist, (2) pocket parks of approximately 10,000 sq. ft. dedicated for public use, located in or in the immediate vicinity of locations identified in the Open Space Plan of the Master Plan. Historic Preservation Provide a FAR bonus for the preservation of on-site historic structures included on a local, state or federal register of historic resources. Combining the Bonus FAR Provisions The various bonus FAR provisions may be combined to achieve the maximum level of development established for each district, For example, assume ±he base level of development for a property is 25,000 square feet. With the bonus provisions, assume the maximum level of development could be 50,000 square feet. The 25,000 square feet of additional development could be achieved by using one or more of the bonus provisions. One hundred percent of the bonus could come from the use of TDRs or affordable housing. Or, up to 40% of the maximum available bonus could come from contributing to public amenities. The .additional 25,000 of square feet of development could be achieved by "mixing and matching." 22 Winslow Master Plan May 2l 1998 Table 1 APPLICATION OF OPTIONAL BONUS PROVISIONS TO EACH DISTRICT Central Madison Erickse Gatewa Ferry HSR Core Ave. n Terminal I&II 1. 100% of available bonus density ma come from TDRs. 2. Up to 20% of the available bonus density may use internal density transfers within the MUTC and within the HSR Districts from development potential transferred to create permanent open space containing environmentally sensitive areas. 3. 100% of the available bonus density may come from providing affordable housin . 4. Up to 40% of the available bonus density may use the public amenities/ infrastructure rovision. 5: All ferry-related underbuilding parking (% depends on extent of arkin relocated underbuildin ). 6. Preserving on -site historic structure eligible for inclusion on a local, state or federal register of historic resources. 23 bYinsd®sv 1l2caster Pdcan li~cay 21 1998 Policies for Specific Districts Mixed Used Town Center High School Road Districts • Minimize driveways and encourage use of joint driveways. • Beginning 100' north of Winslow Way, provide a full vegetative screen along SR 305. A similar screen should be provided within the SR 305 right-of-way. This requirement would not apply to the interior renovation of existing buildings. • Establish transition standards for other boundaries abutting less intense districts. Specific land use policies and district boundary changes in the MUTC are as follows: Central Core Overlay District • The Core area boundary along lower Madison should shift to mid-block between Madison and Wood Avenue to recognize the character of existing development (e.g., senior housing). • The Core area boundary should extend to a point 300' east of SR 305 along Winslow Way East. This recognizes the commercial and streetscape continuity of properties in this area. • Retail development exceeding 5,000 sf. would be allowed only on Winslow Way and Madison Avenue. • Establish FARs as shown in Table 2. Ericksen Overlay District • No change in boundary. • Establish FARs as shown in Table 2. • Review design guidelines to ensure that any new development is compatible with the character and scale of the historic structures. Madison Overlay District • The boundary is extended north to the intersection of Madison Avenue and High School Road. This brings the library into the district boundaries. • Establish FARs as shown in Table 2. Gateway Overlay District • Development within the zone should include provisions for pedestrian access to adjoining parcels and as part of the pedestrian link to the ferry terminal. • Establish FARs as shown in Table 2. Two options aze available for properties within the Gateway District: (lj the development potential from the Ravine can be transferred to other properties within the MUTC as part of the Internal Transfer Optional Bonus provision or (2) allow development potential from the Ravine azea to be shifted to the upland azea, providing no adverse impacts to the Ravine are shown and the requirements of the ESA are satisfied. Ferry Terminal Overlay District The Ferry Terminal azea -currently dominated by pazking -could witness the greatest amount of change as it transforms from surface parking lots for commuters to residential with small amounts of service retail. and office development. It is not envisioned to be an extension of the core, but rather a new neighborhood. Higher density housing is appropriate for this azea because of its proximity to the ferry and downtown and because it is a prime 24 Winslow Master Plan May 21 1998 view location. Higher density housing would also be used as an incentive to offset the cost of placing commuter parking in structures. New housing would be developed at higher densities ranging from an equivalent of 24 units per acre up to 60 units per acre with maximum use of bonus density provisions for locating existing parking under buildings or underground. Parking for both commuters and new development may be integrated within (or under) housing or in adjacent garages. Ferry Terminal -General • No change in boundary. • All development shall include at least 10% of landscaped or naturally vegetated open space (parking may be located under the open space.) • The number of commuter parking spaces located in the Ferry Terminal District is 1,121 (as shown in Figure 18.) The rights to use these spaces may be bought, sold, traded, leased or otherwise exchanged between properties within the Ferry Terminal District. Commuter parking spaces that are not shown on Figure 18 are not allowed in the Ferry Terminal District. • Establish FARs as shown in Table 2. • Guest accommodations (e.g., small inn) limited to a maximum of 55 rooms with public access to exterior open space and limited parking, could be located anywhere within the District. Ferry Terminal -North of Winslow Way • Permit only commuter-oriented retail, located along Winslow Way and 200 feet from Winslow Way up Cave Avenue and up Ferncliff Avenue. • North 100 feet of the district between Cave Avenue and Ferncliff should have transition standards involving landscaped buffers and lower height limits. • Establish transition standards for other boundaries abutting less intense districts. • Should parking needed to serve commercial development not be fully utilized by a development, then the unused parking may be converted to non-commuter ferry parking. The property owner would need to demonstrate that the parking was not needed for the commercial uses. (Allowing unused parking spaces designated for commercial use to be converted to non-commuter ferry parking could encourage commercial uses that generate minimal traffic.) Ferry Terminal -South of Winslow Way • Permit only commuter-oriented retail use. • Allow an additional 225 parking spaces in structured parking south of Winslow Way for use by non-commuter ferry passengers in off-peak hours (e.g., after 9:00 a.m.), when constructed. in conjunction with placement of an equivalent amount of existing surface ferry parking in structure. 25 Winslotiv lilasfer flan l~fav ZI I998 Specific land use policies and district boundary changes for the High School Road Districts as follows: High School Road I • No change in boundary. • Establish FARs as shown in Table 2. High School Road II • No change in boundary. • Retail uses shall be limited to 14,400 sq. ft. (See Land Use Element Policy W 63.) • Establish FARs as shown in Table 2. The Waterfront Industrial District will be subject to an amendment to the Master Plan for any changes that would affect site layout, use, employment levels, traffic generation or vehicular access. Levels of Development -FAR To implement the policies of the Comprehensive Plan, interim development standards for the MUTC and High School Road districts were adopted in 1996 with the understanding that the standards would be reexamined as part of the Winslow Master Plan. As a result of the market feasibility study, the use of FAR and the reexamination of the standards in light of the goals and policies for Winslow and each of the specific districts, the interim standards should be revised as shown in Table 2 below. The table establishes the base level of development for the MUTC and HSR districts and the maximum level of development allowed using the bonus density provisions deS~iibed ~cviouSl". if the cxlStln" F AR of a iv ei~ " iS hi"'tica" than tiie base FAR 'without P" y ~ P_,.p y ~ i using any of the bonus density provisions), then the existing FAR will be considered the base FAR. (For example, if the base FAR for a district is .S, but the existing base FAR for a property is .6, then .6 would constitute the base FAR.) 26 Winslow Master Plan May 21 1998 Table 2 LEVELS OF DEVELOPMENT (FAR) Central .Core Commercial Residential Mixed Use Base 0.6 0.4 1.0 Maximum 1.0 1.0 1.5 Madison Commercial Residential Mixed Use Base 0.4 0.4 0.5 Maximum 0.6 0.6 1.0 Ericksen Commercial Residential Mixed Use Base 0.3 0.3 0.5 Maximum 0.6 0.6 1.0 Gatewa Commercial Residential Mixed Use Base 0.15 0.5 0.5 Maximum 0.3 1.0 1.0 Fer Terminal Commerciale Residential Mixed Use Base 0.1 (.15) 0.4 0.5 Maximum 0.2 (1.3) 1.1 1.3** High School Road IandII Commercial Residential Mixed Use Base 0.3 0.3 0.3 Maximum 0.6 0.6 1.0 **Additional .2 FAR of either residential or commercial development is permitted if existing legal ferry-related parking (as shown on Figure 18) is relocated from the surface parking to underbuilding parking at a one to one ratio.) Specific values and ratios affecting the base FAR and the bonus provisions may change, based on future conditions, without amending the Master Plan as long as those changes continue to meet the goals of the Comprehensive Plan and the Winslow Master Plan, and so long as the maximum mixed use FAR is not exceeded. Design Guidelines One reason that residents object to higher density housing is that it is often not designed in a manner that re$pects the surrounding context. Large, bulky, flat-roofed buildings with repetitive designs surrounded by parking lots do not fit very gracefully into or next to lower density neighborhoods. However, the City recently adopted design guidelines for the Mixed-Use Town Center and High School Road Districts. These should be reviewed to ensure that, with the changes established in this Master Plan, new development will reflect a certain sensitivity and character of these districts. Guidelines dealing with such subjects as bulk, roof form, parking, and transitional features should be adopted for the Urban Multi-Family (UMF) district. Guidelines that focus on site design should be developed for single family districts. 27 yi'inslow MasteP Flan ligay 2I I998 CHAPTER 3 HOUSING EXISTING CONDITIONS Winslow contains a broad mix of housing types, from manufactured homes to single-family detached dwellings to higher density, multi-story apartments and condominiums. With the exception of two senior- housing developments, the highest density housing is 14 units per acre. Most of the City's multiple family housing is found within Winslow. This is due to the availability of appropriate zoning, the prevalence of goods and services and the close proximity to the ferry terminal, which allows people to commute easily to jobs in Seattle. As the lifestyle opportunities offered by Bainbridge Island have become increasingly more popular, various forms of new and less conventional housing have been developed. In recent years, a co-housing development has been built, duplexes and other attached housing have been developed, a project containing very small houses tightly arranged around narrow alleys has been completed, and two projects that mix residential and commercial use have been developed. While single-family detached housing has been the most prevalent form of residential use, rising land prices and diminishing land supply have caused property values to increase. Much of the new housing has attempted to reflect the established character of the Island, with stands of mature trees preserved, new landscaping added, and small scale proportions used in buildings. Winslow has seen only some of the large-sized, repetitive multiple family development that has been o%Ciiiiing eisewiiere in the region. Typically, denser forms of housing are developed where there are amenities close by. The town center contains many positive attributes, such as proximity to regional transportation, a waterfront, a friendly, small-town atmosphere, cultural facilities, good schools, and a sense of being an active, lively community. Nonetheless, it is relatively difficult and takes some extra effort to develop housing mixed (especially vertically mixed) with other uses because of the complexities of constnaction, parking, ownership, building codes, and financing. Accordingly, initial forms of higher density housing will likely be on sites where housing is the only use. As land values further increase and property is even more scarce, developers will begin to look at sites that can accommodate both housing and commercial. Winslow already has some examples of mixed use development that provide excellent models for this form of development. As Winslow becomes a more mature community, it. will need to accommodate a range of household types and incomes. Seniors, singles, and single-parent households all constitute the fastest growing segments of the population in the region. Many of these households cannot afford median-priced single-family housing. Fortunately, new forms of housing are being developed around the region, and in Winslow, that can. meet the more modest incomes of these households. However, left to its own, the market will tend to offer choices first to households with higher incomes. 28 Winslow Master Plan Mav 2l 1998 COMPREHENSIVE PLAN FRAMEWORK The Comprehensive Plan contains policies that address the supply, type, and affordability of housing. Policies also indicate the role that Winslow will play in accommodating new growth. Policies call for the city to provide a fair share of affordable housing in the county, using its regulatory process and ability to bring together a combination of public and private resources. Policies also recognize the need to maintain the existing stock of affordable housing, a portion of which consists of mobile homes that may be subject to redevelopment pressures. The Comprehensive Plan makes a commitment to increasing the supply of multiple family housing, both market-rate and rent-assisted, and indicates that affordable housing should be dispersed throughout the community. Policies also indicate that the City will streamline its regulatory process and facilitate the provision of housing for populations with special needs. Within Winslow .outside the Mixed-Use Town Center and High School Road Districts in the areas that are zoned for single family development, new housing will likely take the form of additional single family units and accessory dwelling units. In theory, the amount of vacant and underdeveloped land should be sufficiently large to accommodate the projected growth in housing units, assuming that development will be built to the maximum permitted under City zoning. However, it is not certain that new development or redevelopment will be using the maximum densities permitted. Some developers may not wish to participate in the TDR -system or provide additional affordable units. If most individual projects in the MUTC and High School Road Districts were built only to the basic allowable densities, then all vacant and underdeveloped land would have to be used to meet projected housing needs; this is not a likely prospect. To meet the demand for housing over the next fifteen years, there will need to be development that exceeds the base densities for those districts. In order to facilitate this, the City has recognized the need to allow increased density within the Mixed-Use Town Center. This is accomplished by allowing density bonuses for various combinations of TDRs, provision of affordable housing, and provision of infrastructure and public amenities beyond basic requirements. The current TDR program focuses on preservation of farmlands and sensitive areas; the emphasis of the first two years of the program is on farmland preservation. Since the adoption of the ordinance in May, 1996 implementing this Comprehensive Plan provision, the only bonus density credits utilized in the MUTC were based on provision of affordable housing. The valuation aspect of the TDR program does not appear to be reflective of current development economics (i.e., the cost of purchasing a TDR significantly exceeds the equivalent per unit land cost in the proposed development). The purchase of residential density through provisional public amenities is not utilized only because a value has not been established for the amenity provision, nor has a final implementing ordinance been put into place. This concept of increasing housing density is intended to be a part of an overall set of techniques to encourage forms of housing that can provide options for various households in the town center. Other techniques recently permitted by the City include accessory dwellings, flexible lot design development, cluster development and mixed use. ~g dYinsdow Master Plan Ndav 2d d998 MASTER PLAN HOUSING POLICIES Housing Distribution The Master Plan assumes the Comprehensive Plan target -that the Winslow study area will accommodate approximately 1,500 new housing units and the Master Plan establishes a subtarget that up to 50% of this new residential development will be concentrated within the Mixed-Use Town Center and the High School Road Districts. The change from dwelling units per acre to FAR could result in additional housing. The MUTC and High School Road Districts would be more dense than at present. The outer portions of Winslow would receive only modest increases through the affordable housing program and would not be likely to be perceived much differently than now since the increases would be distributed over a wider area. (See the Land Use section of this chapter for density allocations.) As discussed in the Land Use Chapter, density bonuses will be offered in return for providing improvements to infrastructure and public amenities beyond the level necessary to mitigate the impacts of a specific development, or for providing affordable housing. An array of TDR options would also be available as a means of achieving bonus densities. Mobile Home Park The existing mobile home park sihwated to the north of ±he BPA provides an existing source of affordable housing. Because the site is zoned for higher intensity residentiaUcommercial use, it is possible that the housing could be lost. Several mechanisms should be established to encourage the preservation of the mobile home park: (1) the unused development potential from the parcels on which the mobile home park is located may be transferred to another parcel within the MUTC and (2) allow the permanent preservation of the mobile homes to be used as an affordabie housing bonus on another parcel within the ii~iiJTC. Navy Housing Site If the existing Naval housing area is surplused, appropriate site for affordable housing. that area should 'be considered as an additional 30 Winslow Master Plan May 2I I998 CHAPTER 4 OPEN SPACE AND TRAILS EXISTING CONDITIONS Figure 8 shows the location and extent of parks, open space and sensitive areas. The Winslow area, though relatively well-developed, contains mature stands of vegetation that are woven through and around development. In addition, there are vacant parcels found throughout. The ravine that extends north from the waterfront provides a substantial corridor of green and adjoins an undeveloped park site, John Nelson Park, which has been the interim location for the City of Bainbridge Island public works yard. These attributes produce an illusion of prevalent open space. In fact, Winslow contains very little open space that is publicly owned and therefore protected from development. The waterfront park, which is approximately 8 acres in size, is the principal public open space in the town center. There is a smaller neighborhood park along Grow Avenue which is approximately 2.5 acres. (Outside of the town center, but within the study area, there is a 10 acre park along Weaver to the west and a 3 acre home-owner-controlled park along Grand Avenue to the east. In addition, the high school and middle school grounds contain sports fields.) While there are numerous parks and recreational open spaces around the Island which are used by residents, visitors, shoppers and office workers, it is often necessary to drive to make use of them. There are relatively few public open spaces within walking distance of Winslow, the most intense concentration of residents. Although Winslow has a considerable amount of shoreline, only a fraction of it is open to public use. The ravine is important as a natural resource, a habitat, a drainage basin, and potentially as the location of a trail for passive recreation. However, it is privately owned. As additional development occurs, residents and workers in the town center will desire access to park and recreation facilities, both active and passive. While some of this can be provided as part of a development, it is not possible to meet these needs on an incremental, project-by-project basis. Existing trails are shown on Figure 9. 31 Winslow Master Plan May 2I.I998 Figure 8 ' Public Open Space and Sensitive Areas q, .... i i '~f3. }v !~„ ~fF:- Eagle Harbor Legend ~'~ Public Open Space Sensitive Areas r3 Ferry , , ~/~ /.' i ~.. T j y~` Y ~r P . M.... ~.1.. _ , ;. 32 Winslow Master Plan May 2l 1998 COMPREHENSIVE PLAN FRAMEWORK The Comprehensive Plan does offer some policy guidance specifically aimed at providing additional open space within Winslow. The Comprehensive Plan states that design standards should contain provisions for green space for the Mixed Use Town Center, High School Road and Urban Multi-Family districts. There are also policies that address the need for open space on the Island as a whole. A network of greenways is envisioned to lace throughout the community, offering views, wildlife habitat, and recreational connections and storm detention. Within Winslow, both the waterfront and the ravine are viewed as a part of this expansive network. Furthermore, portions of SR 305 are considered to have scenic value. Within Winslow, opportunities for large aggregations of open space are very limited. Furthermore, Winslow is viewed as receiving a considerable amount of commercial and residential intensity over the next twenty years. Accordingly, open space needs would have to be met at smaller scale through neighborhood and community parks, boulevards, squares, plazas, pathways, and even sidewalks. Some recreational and open space needs will be met within new residential development. The concept of density bonuses embodies the notion that new development should provide a range of spaces for residents, workers, and visitors. Trails should serve a number of functions that encourage passive and active pursuits such as recreation, shopping and commuting to work or school. Linkages should be provided between residential areas, public transportation and commercial and recreational areas. The Plan encourages the retention of existing informal or private pathways and the creation of new pathways. MASTER PLAN OPEN SPACE/TRAILS POLICIES Overview There would be an open space network consisting of a combination of small pocket parks and larger parks, private open space and portions of the natural systems such as the ravine and drainage facilities, that would be used for passive recreation and trails. A trail system would be developed to provide for the needs of the residents of Bainbridge Island in the future, and for those who live, work or shop in Winslow. Prime public viewpoints and view corridors should be designated and either preserved or enhanced. Parks Because Winslow serves a wide variety of users, including shoppers, residents, visitors and workers, and because new population and employment would be concentrated in the Town Center, there will be a need for up to 2 - 3 acres of centrally-located parks for passive recreation. . These could be either an acre or more in size or pocket parks, depending on site availability and distribution. Designate and acquire sites ranging from pocket parks (approx. 10,000 sf.) to sites up to 1 acre, for a total of up to 2 to 3 acres, at locations shown on Figure 9. The final configuration of these parks would be based in part on opportunities, such as future private development and City capital improvements. 33 6Vinsd®w Master Pdan Mav 2l 1998 Trails MUTC/High School Road Trails Develop mid-block north/south and east west trail systems that complement the proposed sidewalk and roadway improvements program. Acquire R.O.W. and/or easements as necessary, and develop the following trails: • Two major north/south connections between Winslow Way and High School Road: the area between SR 305 and Ferncliff and a low impact trail from Waterfront Park adjacent to the ravine to the High School Road area. • An east-west pedestrian connection at Knechtel and a pedestrian overpass of SR 305. Consider paving this trail. • Amid-block trail system from lower Grow Avenue and the Navy site to the Winslow retail core, including the new street adjacent to the B.P.A., continuing onto and connecting with the ferry terminal area. This path would be more urban in character and would be integrated into future retail or mixed-use activities. • Connect to trail system to be developed from Madison Avenue to Grow Avenue through to `J~Jeaver Way, using Shepherd Way right-of--way. • An east west connection from Nakata Avenue to Madison Avenue at Wallace Way. Trails Outside MUTC/High School Road Districts Numerous opportunities also exist to develop trails to destinations beyond the Mixed-Use Town Center, such as schools, waterfront access points, parks, .and surrounding residential neighborhoods. Additional neighborhood trails are encouraged in the residential areas of Winslow that provide mid-block connections. Links to areas outside the Mixed-Use Town Center are shown on Figure 10. Waterfront Trail The missing link would be filled in from Waterfront Park to the foot of Madison Avenue. While the preferred route for completion of the trail project would not require easement acquisition, the alternative route would require some easement acquisition. A boardwalk could be necessary. The City should work to obtain easements, where possible, to extend the trail to the head of Eagle Harbor.. (See Figure 11.) The Ravine Land use policies should be implemented to preserve the Ravine as green space. A low impact trail adjacent to the Ravine should connect south to egress from the ferry. (Figure 9 provides an illustration of the trail.) Eagle Harbor Pedestrian Bicycle Bridge Explore the possibility of a pedestrian bicycle bridge across the head of Eagle Harbor. Streets as Part of Open Space Network Streets would be improved so that they could be a part of the open space network, with sidewalks or paths as appropriate. 34 Winslow Master Plan May 2l 1998 Use of Existing Land or Right -Of-Way Utilize existing vacant or under-developed land before acquiring more costly properties. Retain Right-of-Way and Easements The City should refrain from allowing rights-of-way and easements to be vacated unless it can be demonstrated that they cannot be used to provide better pedestrian access. 35 Winslow Master Plan May 21.1998 Figure 9 Composite Open Space Plan ~._ __ ,- -- - - - _ -' HI~n scnool Rosa -- ~ - i ~ .- ,• ~ .r • ~ 1 ~ i • ~ • • ~ ® : ~ • tt7 • ~ . i ; M • options i . ~ ~ •. 1® {~ Walla~eyday`- -- ~ ~, v, ~ i ¢' ~ • i ~` 3 i i 'Z ~ 5 • 3 4 ~ /~ i w Wyatt Way Q • • ~ • "~"-v Win Paint Way I _ . ~~ ~Q g I ~ '• s ~ 1 • ~- _ _ _ i ,6~• ~ _ ~ 1 i • ~ ~ •° • : ~•••• ~ • ~ ,~~ • •r , r • ::__., • ~ ~ ~ `. i a ,. i. ~ .,.._ mod, ~~, ( ~ ~"" ~~~ .._: ~, i / +` . ` i ,~'~ Legend ._ -~ • • ~ Existing Trail • • • Proposed Trail Existing Parks 36 ® Target Sites for Pocket Parks Target Sites for 1+~Acre Parks Winslow Master Plan May 21.1998 Figure 10 Area Wide Trail Network Legend Public Open Space Sensitive Areas • • MUTC Trails - - Potential area-wide network* • Public street ends 'includes sidewalk connections where necessary 37 Ma 2I.I998 Winslow Master Plan Figure 11 Waterfront Trail ~ Cdr ° U ~ 'a ~,- ,__, 1 n ~ d~~ ~ I Winslow Waterfront Trail 7007 38 Winslow Master Plan May 2I I998 CHAPTER 5 PUBLIC FACILITIES EXISTING CONDITIONS Public buildings are shown on Figure 12. Many are located along Madison Avenue, which is beginning to emerge as a corridor containing a number of public buildings. Afire station anchors the north end. The library and High School flank the intersection of High School Road and Madison. A substantial expansion of the public library was completed in 1997. The City has acquired property fronting on Madison for a new city hall. The Bainbridge Performing Arts Center is located squarely in the center of the older part of town and is accessed from Madison. The Commons on Bjune Drive provides space for community meetings and senior citizen services and activities. This Master Plan can establish a strong, coherent civic role for public buildings and outline the subsequent actions necessary for such a role. The Washington State Ferry Terminal generates major activity in Winslow and provides a vital link to Seattle and the east side of Puget Sound. The terminal is a regional facility that serves Bainbridge Island and the rest of Kitsap County. It serves auto, pedestrian and bicycle modes of travel and often operates beyond capacity during peak hour periods and on summer and holiday weekends. COMPREHENSIVE PLAN FRAMEWORK The Comprehensive Plan identified downtown Winslow as the preferred location for the city hall. A specific need for other types of public buildings was not identified in the plan. However, inherent in the concept of the Mixed-Use Town Center is the notion that a range of public facilities could be available over time to add to the existing variety. The installation of works of art along streets, in parks, and in public buildings would strengthen the image of the community. The City has a "One Percent for Art" program that applies to public projects, but techniques could be used to encourage privately provided public art. Gateways into Winslow are needed. There is little sense of entering Winslow from any direction, aside from that provided by the modest clock tower at City Hall. Some combination of a marker element, landscaping, lighting, and signage could provide a gateway effect at various locations. 39 , Winslow Master Plan May 21.1998 Figure 12 Existing Public Structures Bainbridge _ ~ ~; High School ,.. .... ' _~ Library '" ; ~- - ~,'~~ "~ High School Road -- -- --, ;: ~ ~ 1 ' .., ~ `- ~ -- -- , i ~~ i ~ ;° ;~ ,~ i-~ ,~' ~ Wallace Way - ~ ~ ~ Q ~ ~ ~ \~ ~ ~ ~ ~ ~ ~ i _ 1 ~` ~ ~ -- --- , i { 4 ~ ~ G m ~` ~ ~; ~ \/ > ~ ~ ,~ Wyatt Way ~ ¢ ~ ~ s ~ c l ~ Wing Point b`Vay n ~ ~ 1 ~ ~ l ~ ~ . ~ ~ ~ ;; ~ ____ ~ ~' ~1 ~ ._. ~ ~ i t~ ~ . ; _ _ ~_~, C Banbrdge f r- - - ~ ~ "~ Performing Arts ,: i ~ City Hall ~ ' Winslow Way E. l `~ ,,....%' ... i i . ~ .-_ ^ - ~ G .., r- 1 m ~ i / ~ . _, Q Past ~ r ~ Office w'~' Commons ~ •' o ' 0 ~ (~ ~ Ferry Terminal ~._, ... '~ i ., .,.... _....: Legend ~~ Public Use Facilities 40 Winslow Master Plan May 2l 1998 PUBLIC BUILDINGS AND PUBLIC SPACES Construction of a new city hall north of Winslow Way in the vicinity of the Performing Arts Center is expected to begin in the fall of 1998. The core area will. have more parking, serving as a common pool of parking for commercial uses. And, as the parking lots in the vicinity of the ferry terminal are redeveloped for housing, parking could be contained within one or more structures there. As the population increases, additional multipurpose meeting spaces could be built, either by expanding existing facilities or building new ones. Unique pieces of art could be integrated into streets and public facilities in a way that helps symbolize the history or character of the community as part of the "One Percent for the Arts" program. Gateways into the town center are to be developed. These could involve landscaping, lighting, graphics, and/or architectural elements. Public restroom(s) would be constructed in convenient downtown locations to serve Winslow residents and visitors. Over time, additional public facilities may be needed to serve the town center, such as: • A public parking structure to serve the retail shops along Winslow Way. • Gallery space for visual arts. • Indoor recreation spaces (possibly in partnership with private organizations). • A civic square for community celebrations and events. 41 Winslow Master Plan May 2l 1998 CHAPTER 6 TRANSPORTATION EXISTING CONDITIONS Unlike the rest of the Island, where traffic is isolated to a few locations, Winslow's urban nature attracts the majority. of the traffic and congestion. The businesses, government buildings, schools and ferry terminal attract not only the residents of the area, but persons from throughout the region. The residents of Winslow tend to be less dependent on their automobiles than other Island residents due to their proximity to the ferry terminal and shopping. Many residents hold jobs in downtown Seattle, making driving to work unnecessary. Two retail areas, on Winslow Way and High School Road, provide the opportunity for residents of Winslow to walk to shopping. For a more detailed analysis of Existing Conditions, see Appendix B, Winslow Sub Area Plan Transportation Study, Technical Appendix. Traffic Circulation Current traffic conditions in the Winslow area can be described through analysis of the two major elements of a transportation system: circulation and parking. The analysis below, although detailed and complete, does not pretend to show the transportation system at its very best or worst. Rather, this study concentrates on providing results that describe conditions on a typical day. The circulation system describes the travel patterns of residents, employees and visitors within and passing through the Winslow area. A variety of elements are considered to evaluate the circulation system, including traffic volumes, roadway classification; roadway conditions, trip types, levels of service, travel times and accident data. Traffic Volumes: Weekday Traffic is normally measured using volumes, the number of vehicles over a specified length of time. Volumes can be defined either by daily or peak (highest) hourly use. Although daily volumes are helpful in identifying primary travel routes, peak hour volumes better identify whether a roadway or intersection has sufficient capacity to handle traffic.. The roads with the highest weekday daily volumes are: • the SR 305 corridor High School Road between Madison Avenue and SR 305 Winslow Way between SR 305 and Ericksen Avenue • Madison between Wyatt Way and High School Road. • Wyatt Way east of Finch Road. The impact of ferry terminal traffic on these routes is apparent. Traffic Volumes: Weekend Weekend traffic can vary considerably depending on the season. During a February weekend, daily traffic volumes within Winslow were 10-15% lower than weekday traffic. During a peak - summer weekday, traffic on SR 305 may queue beyond High School Road as waits for the ferry 47, 6~'irasl®e+~ hdaster Plan il2ay 2l d998 may exceed two boats. Weekend peak hours tend to occur during the midday hours of 11 a.m. to 2 p.m. There is .an even balance of entering and exiting volumes, implying that the ferry system has less of a directional impact on Winslow's roadways than during the weekdays. Trip Types Winslow is mainly affected by three types of trips: internal trips, trips with a Winslow destination and through trips. Internal trips are those made within Winslow by residents of Winslow. These trips typically are related to shopping, use of public facilities (libraries and schools) and work trips. Reductions in the number of internal trips made by automobile could help relieve existing and future congestion. Because of their proximity to both the ferry terminal and shopping, many residents are already able to walk to many of their destinations. The limited pedestrian facilities in Winslow likely reduce the number of residents who actually walk. Winslow-destined trips are trips originating outside of Winslow, where the purpose (destination) of the trip is to visit, shop or use services within Winslow. These trips, although mostly made by private automobile, are generally considered beneficial to the community, because they help support the commercial establishments within Winslow. Through trips use Winslow streets to get to another destination. The traffic associated with these trips unnecessarily adds traffic to Winslow area streets and intersections without benefiting the community. A study of vehicle through movements was conducted on July 25, 1996 to assess the number of these trips during the p.m. peak hour.2 As seen in Figure 13, nearly 60% of the through trips from Winslow Way to Wyatt Way do not stop to use services within Wingl~w, Similarly, nearly 53% of trips west along High School Road are through trips. It is desirable for the community to maintain or increase the number of Winslow-destined trips while reducing or eliminating the number of through trips to reserve street capacity for Winslow growth and access to Winslow businesses. 2 This date would most likely be characterized by a higher percentage of visitor traffic and general recreation traffic in the background conditions but little or no school-related activities. A date during the school year would see a trade of visitor and general recreation for higher school-related trips. 43 Winslow Master Plan May 21.1998 Figure 13 Percent of Direct Through Trips to Total Through Trips P.M. Peak Hour ~~ 'J`~\~ Murden ~~ Cove New ~ Brooklyn Rd -~ x g w ~. ,t Lafgren Rd 3 i C ~ ,f_. ~t ~.:,~~ ° 40.0 /o . G' '.1 % ~ rd~,ol o ~`ya tx= 31.3%.. School Rd ~ ~ 52.5% > >~ '~ d ¢ o a~ a~ ~o 3 '° ~ ~ a Eagle Ha~bo~ Byron Dr ~.; , ~~ ,~°., ~~ d ~ • ~ ~~ w ~ ~.~ a~ ~ x Wing Point Way :~. Legend • • ^ ^ From Winslow Way ~~ From High School Road TOLL FE~,R Y 44 Winslow Master Plan May 21 1998 Intersection Levels of Service Traffic varies seasonally, weekly, daily, hourly and even by minutes. This study concentrates on describing operations during the peak hour of daily traffic which occurs from 4:30 to 5:30 p.m. Based on the guidelines for traffic impact analysis, intersection operating conditions were evaluated using the Highway Capacity Manual, Third Edition, updated 1994,, and Highway Capacity Software (1994) for signalized and unsignalized intersections. The intersection and operating conditions are indicated by a level of service (LOS) letter designation. LOS provides a measure of delay ranging from LOS A (free flowing, minimal delay) to LOS F (extreme congestion, long delays). As part of this study, the LOS was calculated for key intersections in the Winslow Sub Area. Table 3 shows the existing LOS intersections within the Winslow study area. The City of Bainbridge Island has set LOS E as the minimum acceptable within the Winslow area.3 All intersections operate at an acceptable LOS under existing conditions; however, the intersection of Winslow Way/SR 305/Olympic Way (LOS E) is rapidly approaching its maximum capacity. As traffic continues to grow; especially if a third ferry is added at the terminal, changes may be necessary at this intersection. Changes will need to address ferry related traffic ,and transit as well as cross town vehicular and pedestrian movements on Winslow Way. Table 3 INTERSECTION LEVELS OF SERVICE Signalized Intersections Overall LOS Madison/Winslow Way B SR-305/Winslow Way E SR-305/High School Road D Unsignalized Intersections Overall LOS Sportsman Club/High School Road A Sportsman Club/New Brooklyn A Ericksen/Winslow Way A Madison/Wyatt C High School Road/Madison C 3In the City of Bainbridge Island Comprehensive Plan, the LOS was based on a comparison of the volume of traffic with the capacity of traffic. To add greater detail, this study looks at LOS based on the delay experienced at key intersections. 45 ii'inslow li~Paster Plan li~Pav 2l 1998 Ferry Terminal Circulation Ferry related traffic constitutes a major part of the weekday 'and weekend traffic within the Winslow area. Ferry-related traffic includes passengers being picked up or dropped off, vehicles entering or leaving nearby parking areas and vehicles transported on the ferry. Table 4 Method of Departure from Ferry Terminal Mode of Departure Percent by Mod Single Occupant Auto 30.4°Io Carpool/Motorcycle (driver or passenger) 27.2°Io Picked up at terminal 5.9°Io PedestrianBicycle 21.1 °Io Bus Passenger 11.2°Io Other 0.5 °Io No response 3.6°Io Total (n= 757) 100.0°Io Source: Washington State Ferries 1993 Origin-Destination Surveys: Final Report, Parsons, Brinckerhoff, Quade & Douglas -Inc., March 1994. A significant impact is traffic created by ferry loading/unloading and vehicles parking nearby. Table 4 Shows how persons depart the ferry during the p.m, pear period. Of the private vehicles leaving the terminal, 53°Io of them are single occupant vehicles, 34°Io are carpools and 13°Io are motorcycles. An average of 80-100 persons per boat are picked up at the terminal by auto, resulting in further traffic impacts. Figure 14 shows the roads that experience the most impact from ferry traffic. Winslow Way east of SR 305 is the most affected since it is the primary access point for ferry terminal parking and passenger pick-up/drop-off. Other roads, such as Ferncliff Avenue, Winslow Way west of SR 305, Madison Avenue, Grow, Ericksen and High School Road also carry large portions of the ferry-related traffic. SR 305 State Route 305 (SR 305) provides a primary link from Winslow and the ferry terminal to the rest of the City and the Kitsap Peninsula. The route intersects the local street system in three locations in the study area: at Winslow Way, at High School Road and of Madison Avenue. The intersections at Winslow Way and High School Road are signalized and have left turn pockets. SR 305 begins (or terminates) at the ferry terminal with 26% of the trips being ferry-related traffic in the section from Winslow Way to High School Road. Travel Times When given a choice of travel routes, most persons will choose what they perceive is the shortest route to get from their origin to their destination. This may or may not be the shortest distance in terms of mileage. Other factors, such as the average speed, the number of times a vehicle must 46 Winslow Master Plan May 21 1998 stop, the delay caused by traffic controls and congestion are all key parts of the route selection process. As part of the transportation study for this Plan, three routes were compared to assess the travel times from the ferry terminal (Winslow Way/SR 305) to Wyatt Way/Finch Road. Wyatt Way is the shortest route to get to or from the ferry terminal. However, it is also the slowest route, with an average travel speed of 23.0 mph. On the other hand, the longest route studied, using New Brooklyn Road, has an average travel speed of 31.8 mph., even though seven intersections (few of which give the route right-of-way preference) impact the route. 47 Winslow Master Plun Mav 2I I998 Figure 14 Ferry Terminal Circulation Legend «ry~ Access/Egress Vehicular Movements 48 Winslow Master Plan Mav 2I I998 Roadway Classification The City of Bainbridge Island classifies roads to describe their use and to set standazds for future improvements. Roads can be arterials, collectors or local residential streets. Arterials, such as Wyatt Road, Madison Avenue, High School Road and Winslow Way are the primary roads for moving people in or through the Winslow sub area. Collector streets, such as Bjune Road, Ericksen Avenue and Winslow Way, feed the arterials. Residential streets serve neighborhoods. Figure 15 shows the road classifications within the Winslow area.4 Roadway Conditions The City of Bainbridge Island maintains an inventory of roadway conditions for all roads on the Island. A ranking system from 0 (poor) to 100 (excellent) is used by the Public Works Department to prioritize roadway repair funding. Most of the main roadways have been characterized as in good to excellent condition. The three lowest-ranked segments in the study area are: 1) Wing Point Way east of Ferncliff Avenue (17) 2) East Winslow Way between SR 305 and Cave Avenue (35) 3) Ericksen Avenue between Wallace Way and Knechtel Way (47) 4The City of Bainbridge Island's Comprehensive Plan provides descriptions or characterizations of street classifications (See Transportation Element, pg. 24). The City has adopted road standards for each classification of roadway (See Ordinance 96-47, as amended by Ordinance 97-23.) 49 Figure 15 Roadwa Classification ~u~den . . ~~ =- Cope -~~=~ „o • Lofgren Rd --~_4 ~~ ~ ~ ~ ~ ~ i o ~~ ~ ~.. ~~ ~~ ~ •+~ 1~ C~ New Brooklyn Rd ~ dr, 1 9p ~M ~ ~ ~ Byron Dr -o ~I ~ cn High School Rd ^ > d ~ w ~ d w a ,~~, o ~ ° ~ • w 3~ ~l~ ~ • ' d i Wing F Wyatt Way ~ ~ t ~ • U ~ ~' ~ W. Winsl Way w ~ ~ ~ ~, ~~ t` ~ y ~ ~,• ~,,r ~~ j=_ ~J ,~ ...._.. ~.. ~~;le Harborljf ~`,,~.. i~~..~..__.~ ~ ~agl e Harbor G Legend ----~ Residential Street . ^ ~ ~ ^ Primary Arterial Signalized intersection ~~ Secondary Arterial Q. ••~~ Collector Street 2 50 TOLL FEfZ~y ~`'~.~~ Winslow Master Plan May 21 1998 Kitsap Transit Circulation Kitsap Transit provides mainly peak hour service to commuters destined for the ferry terminal. A total of eight routes currently serves the area. One route, Route 90, provides the only off-peak transit service within the Winslow area. The off-peak service runs through Winslow on Winslow Way, Madison Avenue and High School Road between 9:00 a.m. and 3:00 p.m. approximately once per hour. The route then continues north to Poulsbo. Hourly weekend service is also provided by Route 90 from 8:00 a.m. to 5:20 p.m. on both Saturdays and Sundays. These service levels are not enough to generate much transit ridership outside of peak hour service. According to the 1993 WSDOT study, 11.2% of ferry terminal passengers use transit. Pedestrian and Bicycle Circulation Pedestrian and bicycle circulation is an important element in the transportation system. Existing bicycle facilities in Winslow are limited. Madison Avenue between Winslow Way and High School Road has bicycle lanes on both sides. High School Road has afour-foot nonstandard bicycle lane between Hildebrand and Sportsman Club Rd. Construction of bicycle lanes on Ferncliff Avenue between Winslow Way and High School Road has been funded and construction is scheduled to begin in 1998. Figure 16 shows the existing sidewalk network. Currently, the streets serving Winslow offer little in the way of facilities for pedestrians. In some locations, notably Ericksen Avenue, there are no sidewalks. Along other streets, such as Madison Avenue, sidewalks are narrow and expose pedestrians to fast-moving traffic. Even along Winslow Way, within the core, the sidewalks are very narrow and are not conducive to leisurely strolling. Recent pockets containing seating and a bit of paved area have added substantially to the character and pedestrian ambiance of the street. High School Road has sidewalks but little else and has a road system that encourages vehicles to move fast. There are no standards for the range of elements that contribute to the convenience, comfort and appeal of the streetscape. There are no standards regarding the type and installation of street trees. There is no lighting fixture scaled and arranged to support pedestrian movement. Except for along segments of Winslow Way West, there are virtually no street furnishings such as seating, waste receptacles, drinking fountains, or coordinated newspaper racks that could reinforce the pedestrian setting. Standards and guidelines are useful for directing the location, width, and finishing of sidewalks, crosswalks, and mid-block connections and ensuring that there is continuity and compatibility. 51 Winslow Master Plan May 21.1998 Figure 16 Existing Sidewalks _. High School Road Wyatt Way. i o w _~ ~~ Wing Point Way ~ ~ ` ro ~ ~ ~ ~ ~ ~ _ ~ ~---~ j i .. ...~r~, ` m ~ _~ a o f ~ ~ -- ' _ _._ _ , ~. .._.. - ._ ,- _~.~ ~. ~ ~ ~ i Study Area Legend s2 Sidewalks Winslow Master Plan May 2l I998 Parking Parking is a key issue in the downtown area of Winslow and near the ferry terminal. Too much parking (non-commuter) encourages automobile trips and increases traffic, while not enough parking limits the viability of downtown commercial establishments. The impact of the ferry terminal on downtown parking is also a key issue. This section describes existing parking conditions, including parking supply and utilization, parking turnover and duration, parking restrictions, ferry terminal parking and other parking issues. Downtown Winslow Parking supply is determined by the number of available parking spaces. In the downtown Winslow core the following supply exists: Winslow Way (on-street): 116 Bjune/Brien (estimated on-street and permit): 142 Madison (on-street): 3 Lot spaces north of Winslow Way (includes permit): 252 Lot spaces south of Winslow Way (includes private/permit): 360 Total parking in Winslow downtown: 873 spaces Parking utilization is defined as the demand for parking as a percentage of supply. For example, if there are 100 parking spaces and 75 are taken, the parking utilization is 75%. Generally, numbers above 85% are considered at "full utilization" for on-street parking -the average driver will have little or no opportunity to find an available space. For parking lots, utilization at or above 90% is considered full utilization. As seen in Figure 17, much of the parking near the Town and Country Market is above the full utilization standard. There is some indication that available parking does exist under peak conditions, albeit in less convenient areas. The perception of the community is that additional parking that is convenient to primary destinations, such as T&C Market, will be needed in the future. Most parking limits in the downtown core allow 2 hour parking between 6:00 a.m. to 6:00 p.m., Mondays through. Saturdays.. On Bjune DriveBrien Drive, four-hour parking zones exist, long enough to be used for a brief ferry trip. On weekends, the four-hour parking spaces along BjuneBrien are reserved for boat/trailer parking only. Some factors that are important to parking analysis are the average length of time vehicles are parked and the number of times a space becomes available during a specified period of time. A study was done to examine the parking duration over a three hour period for 30 randomly picked spaces at the T&C market (spaces in the north and west lots only, to avoid employee parking). Over 90% of the vehicles were parked for less than one hour in the lot, implying that drivers are patrons of the store. However, 9% were parked for much longer periods of time (more than 1.25 hours), raising the possibility that some ferry patrons are using the lot. Parking turnover numbers show the average number_of times parking spaces are vacated during the 3:00 p.m. - 6:00 p.m. period. With a two hour limit on Winslow Way, one would expect turnover rates above 0.66 if the full two hour period was used. On-street parking on Winslow Way had a turnover rate between 2.6-5.7, indicating that the majority of vehicles were parked 53 6Yinsd®w Master Pdan May 21 i99~ from 30-75 minutes. These higher turnover rates indicate that shorter parking restrictions (90 minutes) could be put in place without inconveniencing shoppers. Opportunities for employee parking have been provided around the periphery, and businesses actively encourage use of these spaces or alternate means of access. Ferry Termdnad Parkdng Figure 18 shows the parking available at or near the ferry terminal, and the time restrictions. A Washington State Department of Transportation (WSDOT) study in 1989 found there were 1,265 spaces available to ferry terminal patrons. This study found that two areas identified in WSDOT's study no longer exist, having been replaced by the Kitsap Transit bus staging area. The current total, including increased supply in some lots, is approximately 1,121 spaces within the Ferry Terminal Zone. (173 parking spaces in the Gateway District are available for commuter parking.) Parking in the ferry terminal lots is fully utilized at approximately 91%. This includes monthly and carpool parking that is less likely to be fully utilized on a daily basis. Generally, available ferry parking fills up during a.m. peak commute hours, leaving little available parking for those who need to travel by ferry during midday hours. Ferry terminal parking caters to commuters and those parking for the day. The 185 space carpooUvanpool lot contains 30 spaces for those arriving after 9:00 a.m. Generally, this lack of mid-day parking may create more pedestrian trips to the terminal; however, it may also result in more vehicles traveling to pick up and drop off passengers, as well as illegal parking in private lots. 54 Winslow Master Plan May 21.1998 Figure 17 Parking Utilization ^ ~ /O 71% 63°~i 83% 75% u 69°l0 100% 86% ,, ~~~~ ~~~~ ~ ~~ ~~~ r-- ~ ~ r ~ 45% i m ~ 100% Madison Ave j _s ~ ~12% 53 ° ~~ 75% ~ 41 7 °51° 58% 95 /o 29% 87 /° 87°~ 52% ° 100 99°1° 71% ~ Ericksen Ave ~~ ~'% 88 0 43% 100° 55 Legend SO°l° Parking Utilization Winslow Master Plan May 21.1998 Figure 18 Ferry Parking Supply Legend Parking Supply Ferry Terminal District 1,121 spaces Gateway District 173 spaces 56 Winslow Master Plan May 21 1998 COMPREHENSIVE PLAN FRAMEWORK Comprehensive Plan policies identify the need for transportation improvements and strategies that will maximize pedestrian circulation in the Core, increase safety, encourage efficient multimodal transportation and improve transit. The Plan does not provide specific guidance for developing the character and quality of the streetscape. However, it promotes design guidelines to encourage on-street parking, more crosswalks, street landscaping and trees, and slow moving vehicular traffic. Streets are to be considered as part of the public open space system, and traffic calming techniques would enhance pedestrian safety. The Plan also acknowledges the importance of safe bicycle travel in the overall transportation network, and calls for safe bicycle travel from neighborhoods to Winslow, within Winslow and along roads in Winslow (as identified in the Bike Access Plan) and along designated school routes. Improvements would include signage, improving or adding bicycle lanes and public transit accommodation for bicycles. The Comprehensive Plan encourages the identification of small, public, non-commuter parking lots, reduction of parking requirements within the MUTC and increased on-street and shared parking. Landscape and signage standards for parking areas should be developed. Commuter . parking would be limited. New parking facilities in the ferry district would be placed underbuilding. Carpools, van pools and ridesharing would be promoted as alternatives to SOV use, and park-and-ride use would increase through the development of more lots located near commuters' points of origin. Improving transit efficiency and providing effective links between transit and other types of transportation would encourage the use of transit over automobiles. An expansion of Island transit services and transit-friendly building design would make transit use to and within Winslow easier. SR 305 serves as a major thoroughfare at the local and the regional level. However, it also serves to divide the Island community. The Comprehensive Plan recognizes the importance of the route, but also airns to minimize its divisiveness. Improvements to SR 305 would be limited so as to preserve its scenic character. The highway would not be widened, and the placement of signs would be minimized. Additional transit stops would be provided on both sides of SR 305. Right-turn lanes, controlled local access, channelization and electronic signalization would be used to reduce congestion from both through and local traffic. The Plan also acknowledges the SR 305 Corridor Study which had just gotten underway at the time the Comprehensive Plan was adopted. The road is designed to highway standards and has full shoulders throughout most of the study area. Posted speeds range from 30 mph. near the ferry terminal to 55 mph. north of High School Road. SR 305, both within the City and on the Peninsula, has been the focus of a detailed study to determine future needs. That study, entitled SR 305 Corridor Analysis Major Investment Study (Draft, November 1996), contains certain recommendations that affect planning in Winslow. These include 1) the designation of bicycle lanes on the shoulders, 2) left turn channelization at the Madison Avenue intersection, 3) exclusive northbound left-turn and southbound right-turn channelization at Winslow Way. (Any long-term improvements would 57 i~i'inslow Master Plan Mav 21 1998 need to be consistent with the Bainbridge Island Comprehensive Plan and Winslow Master Plan), and 4) northbound queue jump lane and signal priority for buses. MASTER PLAN TRANSPORTATION POLICIES ®vea~vaew The streets of Winslow shall be designed and constructed to reinforce an efficient, safe and interesting pedestrian environment, provide for transit and bicycle use and the efficient use of streets for automobiles. Traffic calming devices will be used extensively throughout the Town Center and High School Road Districts to create a more pedestrian-oriented environment supportive of walking, biking and transit, and to de-emphasize free flowing automobile circulation as it exists at present. The more often people use means of transportation other than the auto, the longer existing roads will have an acceptable level of service (LOS). The Plan encourages people who live in the residential areas of Winslow to walk or bicycle into town. Ta~anspoa~tataon Elements Vehicular transportation improvements would be modest. By-Pass Route A designated ferry commuter bypass route would be established utilizing SR 3051Madison to New Brooklyn Road-Sportsman Club Road-Finch Road, to provide atime-effective alternative to traversing through the Winslow core (see Figure 19.) This bypass route, which currently exists, would receive priority right-of--way geared to the evening commute along its entire length to gain travel time over existing conditions. Disincentives in the form of increased travel time would be built into the Winslow core route through a variety of traffic calming techniques (stop signs, on- street parking, street trees,. etc.). The bypass should be constructed only after improvements are made to SR 305 between High School Road and Madison Avenue to make the bypass work. The following actions are recommended to implement the bypass: Intersection Modifications: Anew intersection and signal would be constructed at the intersection of Madison Avenue and SR 305. This would serve as the preferred access. The intersection will have a left turn pocket for northbound traffic and right turn lanes for southbound and eastbound traffic. Signal Coordination: To maximize the efficiency of this route, the signals along SR 305 would be coordinated between High School Road and Madison Avenue in the northbound direction. Allow priority to through traffic along the by-pass route at the following intersections: • Madison Avenue%New Brooklyn Road • New Brooklyn/Sportsman Club Road • High School Road/Sportsman Club Road • Sportsman Club Road/Finch Road • Wyatt Way/Finch Road Prior to implementation of the bypass, the City will work with the Bainbridge Island School, Parks and Fire Districts to minimize any impacts the bypass could have on school, park and fire activities. 58 Winslow Master Plan May 2l 1998 Discussion: Development of the bypass is seen as a means to reduce the negative impact of through traffic (estimated at 35% of total volume) on the Core area retail and pedestrian environment while allowing continued easy and direct access for those wishing to utilize services in the Core. By reducing the number of vehicles turning left onto Winslow Way from Olympic Drive at SR 3051Winslow Way, congestion in the Core would be greatly reduced. The. SR 3051Winslow Way intersection should be designed so that it functions as a major gateway into Winslow. Ericksen Avenue Ericksen Avenue should be opened from Wallace Way north only: (a) if it can be designed in a configuration other than a straight extension and with adequate traffic calming and pedestrian-friendly measures. The existing median should be extended as far as possible from Wyatt Way up to High School Road. The extension should be designed to maximize the amount of green space at Ericksen Avenue and Wallace Way and retain or create a pocket park. Bike lanes, sidewalks on both sides and traffic calming features should be added to Ericksen Avenue; and (b) after a traffic study is conducted that reexamines the impact of opening Ericksen Avenue on (1) the overall north-south circulation between Winslow Way and High School Road from Ericksen, Madison and Grow Avenues and, (2) the intersections of Winslow Way/ Ericksen Avenue, Hildebrand/High School Rd.%SR 305, Madison Avenue/Winslow Way, Madison Avenue/High School Rd., (3) pedestrian and bicycle access and safety and (4) new approved development within the High School Road District. The traffic study should include solutions to impacts identified in the study and should include timing phasing of any recommended changes. ' New City Hall Access A new access would be constructed from Madison Avenue through to Ericksen Avenue, connecting the new City Hall and the Bainbridge Performing Arts facility. This access could also serve new parking and infill development that could occur north of Winslow Way. (See Figure 19 for location of this new access.) Winslow Transit Loop A transit loop would circulate through the Winslow core and connect with the ferry terminal, providing a transportation alternative for certain commuters and residents. The proposed route would travel in both directions along Winslow Way, Madison Avenue, High School Road and Ferncliff and would serve the ferry terminal. The shuttle would begin operation just after the completion of the peak hour runs by Kitsap Transit and continue throughout the day and into the early evening (approximately 9:00 a.m. to 9:00 p.m.). This will provide off-peak service in the area, a tourist connection from the ferry terminal into Winslow and a connection between the Winslow Way and High School Road shopping centers. The service would operate approximately every 15 minutes. (See Figure 19 for routing of transit loop.) Ferry Service to/from South Side of Eagle Harbor A private ferry service across Eagle Harbor to Waterfront Park and/or the south side of the ferry terminal should be encouraged. 59 Winslow Master Plan May 21.1998 Figure 19 Common Transportation Elements h New Brooklyn Rd ,~•~. 4~ ~ ,~! ~~ g~ Murders Cove New Signalized r Intersection . a s ~: ~L z ~' c ~ ! kti r~.n Dr " v, ~ High School Rd • ~~ ~ ~ 305 ~ d ~ ~r,rt),r1~ /~ .'~.. ~ a ¢ > _ aG w ~ 3 ~ c7 :n ~ ~# w _ ~ `~~•. ~_ Wyatt Way ~ ~ Wing Point Way r 2 „~ ~ e --, ra a W. Win~lcjw Wa ~~~ ~, "~. ~ ~~ J~ ~. .> ~~,~ ;~ u, ' i ~~ ~ . ~ ~,~ ~ ~~;~" ~ met ~~ ~ ~, ~ a Eagl e ~arbo~ ..~ F _: ~~ - . -. Legend ~~:~~~~ ~~ ~ ~ ~ ~ New Road • • • By Pass Route ~ ^e ^ Transit Loop Winslow Master Plan May 2l 1998 Traffic Calming Traffic calming measures are designed to reduce and control travel speeds within the Winslow area and on key arterials that serve as "gateways" to the town (see Figure 19). In general, the decrease in automobile travel speeds will be offset by gains in comfort for pedestrians and bicycles. Changes to the design of a roadway, traffic controls and on-street parking provide reductions in travel speed. The City will consult with the Fire District prior to installing traffic calming measures. Specific changes will include: No additional traffic signals are planned within the Winslow area as part of the Plan. The following intersections should have some type of traffic calming, such as stop signs or round- abouts: • Madison Avenue/Wallace Way • Ferncliff Avenue/Winslow Way • Ferncliff Avenue/Wing Point Way • Ericksen Avenue/Winslow Way • Grow Avenue/Winslow Way • Ericksen Avenue/Wyatt Way • Possibly Grow Avenue/Wyatt Way and others as appropriate. Mid-block crossings should be installed where practical, specifically: • Madison and Ihland, • Madison and Wallace, • Madison mid-block between Wyatt and Winslow Way • Grow Ave. between Winslow Way and Wyatt. • Ericksen Ave. at Wallace Way • Two on High School Road between Madison Avenue and SR 305 and one on High School Road between SR 305 and Ferncliff Avenue • Several locations for on-street parking have been identified on streets with high levels of commercial activity such as Winslow Way and portions of High School Road. Streetscape Street design standards are intended to reinforce the character of the streets and emphasize their pedestrian orientation, and improve bicycle access in and around Winslow. Changes to roadway design could include narrowing of travel lanes, installation of sidewalks, crosswalks and bicycle lanes. Primary commercial streets would have wider sidewalks. Landscaping and amenities would be included to increase the visual appeal of streets. Some streets would be fitted with special pedestrian-scaled light fixtures, street furnishings and transit shelters as appropriate. Variations to these standards due to ADA requirements, funding or liability issues must also reinforce street character and facilitate pedestrian and bicycle access. 61 Winslow Master Plan Mav 2l 1998 Street design should include two levels of standards: Type AStreet -Madison Avenue from Parfitt Way to High School Road; Winslow Way from Grow Avenue to Ferncliff, Brien Drive and Bjune Drive have been identified as streets that are appropriate for enhanced amenities, sidewalks with special texture standards; concrete curbs; street trees, pedestrian scaled lighting; landscaping; benches and trash receptacles; and banners and flower boxes. Type BStreet -All remaining streets within the Winslow Master Plan Primary Study Area are targeted for improvements such as sidewalks, curbs, street trees; pedestrian scaled lighting and landscaping and benches Specific Street Standards Grow Avenue (Winslow Way to Wyatt Way Road) Add bike lanes on both sides and sidewallc on one side and traffic calming features. Utilities: Storm drainage and possible water system improvements Winslow Way (Madison to Grow) Add bike lanes and sidewalk both sides and traffic calming features Utilities: Storm drainage, water system and minor sewer system improvements. Wyatt Way (Ericksen Avenue to Finch Road) Add bike lanes and sidewalks on both sides and traffic calming features from Ericksen Avenue to Grow Avenue. (Change cross section to show ~ ft. sidewalks on both side and l0 ft. travel lanes.) Add bike lanes on both sides and sidewalk on one side and traffic calming measures from Grow Avenue to Finch. (Change cross section to show 5 ft. sidewalk on one side and 10 ft. travel lanes. ) Utilities: Storm drainage and water system improvements Madison Avenue (Winslow Way to High School Rd) Widen sidewalks. Retain bicycle lanes on l0~dadison Avenue. Use other traffic calming means to slow vehicular traffic and enhance the pedestrian experience, including installing traffic islands, cross-walks with "bubble outs," stop signs, street trees and changing the configuration of Madison Avenue to make it more winding in character and with wider sidewalks. Knechtel Way Add curb, gutter. and sidewalks on both one sides; no bike lanes. Utilities: Storm drainage and water system improvements. Wallace Way Add sidewalks both sides; no bike lanes. Winslow Way (Ferncliff to SR 305) (consistent with approved project) Winslow Way (SR 305 to Madison) Widen sidewalks and increase pedestrian amenities; special lighting and street furniture Utilities: Storm drainage, water and sewer system improvements. 62 Winslow Master Plan May 21 1998 Ericksen Avenue Add bike lanes and sidewalks on both sides and traffic calming features. High School Road (Ferncliff to Madison) Use traffic calming means to slow vehicular traffic and enhance the pedestrian experience, such as cross walks with "bubble outs" and wider sidewalks. Institute on-street parking for the portion of High School Road east of SR 305. On-street parking for the portion of High School Road between Madison Avenue and SR 305 should be considered if other traffic measures are not effective. Add bike lanes to both sides. The City should work with property owners to create amid-block intersection serving both north and south sides of High School between SR. 305 and Ferncliff Avenue and one that serves High School Road between SR 305 and Madison Avenue. Mid-block intersections should be created as part of redevelopment that occurs along High School Road. High School Road (Madison to Weaver) Add sidewalks and bike lanes on both sides with parking on the south side in front of High School and traffic calming features Wing Point Way Add sidewalk to one side and bike lane on uphill portion of road; the side of the road without a bike lane should be 13 ft. in width. Madison Ave. (High School. Rd to New Brooklyn) Add sidewalks both sides from High School Road up to New Brooklyn Road. Add parking on one side up to elementary school and traffic calming Ferncliff Avenue Retain bicycle lanes on Ferncliff Avenue. Use other traffic calming means to slow vehicular traffic and enhance the pedestrian experience, including installing traffic islands, cross-walks with "bubble outs,"' and street trees, stop signs and changing the configuration of Ferncliff Avenue to make it more winding in character and with wider sidewalks. Gateways Special landscape features, pavement change and art work would be added at: • Wyatt Way at approximately Weaver Road • Madison Avenue at New Brooklyn Road • Ferncliff Avenue at approximately High School Road • High School Road at approximately Sportsman Club Road KnechteUWyattRlght-Of--Way to SR 305 The City should ensure that the right-of--way exists to connect SR 305 to Wyatt Way or SR 305 to Knechtel Avenue. See Figures 20a and 20b for illustrations of street standards. 63 Winslow Master Plan Mav 21.1998 Figure 20a Illustrations of Street Standards ~=__ ~ ~ I 5, ~.""~. ~ __`"~efl '~ ~-~ 5` gyp` i lZ~` 5 ` '7' S` ~. ~ . -~- ~ "fi' -~,. max.-". ,.- ~., b __ 10 ( ~~ ~' ~ T Travel Lane B Bicycle Lane _ - _ _ _ _ .. P Parking Space S Sidewalk 64 T,i D Travel and Bicycle Latte T+S Travel and Sidewalk Lane - EX Existing Condition Winslow Master Plan Ma 21.1998 Figure 20b Illustrations of Street Standards s ~ ~; 1 -~ ~ ~x_ ~. o~ s. -~ ~ ~ 1 ~ S Tt J3 ~ ~"'+ A ~ ~" 5'' t 2~ ~ 12 5 T Travel Lane B Bicycle Lane P Parking Space S Sidewalk T+B Travel and Bicycle Lane TfS Travel and Sidewalk Lane EX Existing Condition 65 Winslow Master Plan Mav 2l 1998 Pedestrian and Bicycle Facilities Pedestrian Circulation An extensive pedestrian system of sidewalks and trails would be developed in the primary area with key linkages into the secondary study area in accordance with the Master Plan. Streets shown on Figure 21 would receive sidewalks on at least one side to provide a safe, continuous system for pedestrians. Construction of this system could be in phases; initial focus would be on completion of facilities in the core area, with subsequent phases extending to adjacent districts. A trail network has also been designated in the Master Plan. (See the Open Space/Trails Policies.) The pedestrian circulation system should be designed to avoid discontinuity. Bicycle Circulation A basic bicycle circulation system is incorporated into the roadway network to serve both commuters and recreation needs. This system is shown on Figure 21 and is included in the specific street standards above. Due to the relatively intense nature of development in Winslow, no separate recreational bike paths are shown. However, recreational bicyclists would be able to use new trails that will be developed in accordance with the Master Plan. 66 Winslow Master Plan May 21.1998 Figure 21 Pedestrian & Bicycle System Plan To New Brooklyn Road ~ _ ._ _.._ _~ ,• '• ~• • ~• • '• . ~• • - - - - ~ ~ • • • • • ~ • To Sportsman's Club Road ~ ~ • ~ • • Hi h School Road • ~ • •~ ~ v ~ ` rv • •. • • ~ ,• ~ •~ ~ v ` } •~ ~ • •• • • ~ • ~ • ~~ •~ ~ ~ •~ ,•o •~ •~ ~ ~ Wallace Wayi •~ ' • «~ •~ .......r..a.....~~~,.•• -.. • .• .~ ~ • ~ ~. o •. i • ~ •• ~ ~ ~ +• •' ~ ~'; t / To Weaver Road .~ ( ~ v . w ~/ /r - •• • • • ~ /` .~3••••••!••••r•~ •••v••••••••~re••• - • Win PorntWa .~ Wyatt Way l v ~• • ! .~•. 9 Y • . ~ ._.~ ~ 7 •. , 1 ~. ~ _ .....:.._ ~. :• ~ ~ .~ ~• • ~ ~ :~ • ~_ ., .. o ': •. •.' •'.. .' • ~ f ~~® ' I ,. , .. _. ~ _.... ,= ,- : --_ ....,. ;; ., ', ,._. _. -- Legend 67 • . • Pedestrian System -Sidewalks • • • Bicycle System Winslow Master Plan May 21 1998 Parking Parking -Non Commuter A series of 3 - 4 smaller surface lots (20 - 30 cazs) also would be sited around the core within 200 feet of Winslow Way and lower Madison (south of Wyatt), or one or two small lots and structured parking pf approximately 190 spaces would be developed in conjunction with the new City Hall. These lots would be acquired, developed and operated by a City of Bainbridge Island Parking Authority or another agency or entity designated by the City. Suggested "tazget" locations aze shown on Figure 22. The increased parking supply may require a more focused pazking enforcement effort to assure that these spaces aze not utilized for ferry terminal pazking. On-street parking would continue to be allowed on Winslow Way and would be added to a portion of High School Road. Development-Related Parking Parking standards would be reviewed to ensure that new development either provides sufficient pazking to accommodate the proposed uses on-site or provides funds for off-site pazking. 68 Winslow Master Plan May 21.1998 Figure 22 Potential New Short-Term Parking Options ,.,.r„r, On-street Parking Additions • + + Possible additional On-Street Parking 69 Potential 5+77a11 Parking Lots Winslow Master Plan May 2l 1998 Parking -Commuter In conjunction with future development of the Ferry Terminal District and in cooperation with private development interests and Washington State Ferries, structured parking would be developed to incorporate the number of existing spaces available during the a.m. peak hours (e.g., to 9:00 a.m.). An additiona1225 spaces may be developed south of Winslow Way for ferry users arriving after the a.m. peak hours. Development of these 225 spaces would be offered as an incentive to encourage locating the existing ferry parking within a parking structure. The structure would be suitable for air rights development consistent with underlying zoning (see also Ferry District discussion). At no time would a.m. peak supply in the Ferry Terminal District exceed 1,121 spaces (i.e., no more spaces can be built than are being replaced). (An additional 173 spaces are located in the Gateway District). See Figure 18 which delineates the location of existing ferry-related parking. The City should consider the development of a Parking Authority to develop and manage parking. The Authority could contract with private parties for development and operation of parking in this district to maximize efficiency of site development. Specifics • Develop a comprehensive streetscape improvement program that is integrated with a traffic/parking program and an open space/pedestrian trail program that responds to the projected land use changes and density increases for the area. • Concentrate pedestrian amenities in the core while providing sufficient safety and ADA needs (sidewalks and lighting) for those streets where commuters/residents walk. • Concentrate improvements in the area defined by Grow Avenue, Winslow Way, Ferncliff Avenue and High School Road with a first phase of work on the portions of the following linked streets: Winslow Way to lower Ericksen to, portion of Wyatt to, a portion of Madison and the new connection at the B.P.A./City Hall. • Phase improvements with other roadway bicycle improvements as development occurs. • Where possible, utilize existing infrastructure. • Work with WSDOT to improve traffic, pedestrian functions and visual quality at the intersections of SR 305 with High School Road and Winslow Way and Sportsman's Club Road. • Where appropriate, retain some of the natural drainage swales along the streets with low pedestrian volumes. Retained swales will support natural water quality efforts, retain the more "small-town" character and save money. 70 6Vinsd®w 1l~aster Pdars 14~av 2l 199 CHAPTER 7 WASHINGTON STATE FERRIES ISSUES EXISTING CONDITIONS (The following information has been provided by Washington State Ferries) Holding Lanes - The existing holding lane configuration of the facility can accommodate approximately 210 vehicles. The holding area consists of 16 lanes with 10 foot widths and varying lengths. This configuration prevents the Washington State Ferries (WSF) from loading more than one vessel at a time. WSF has proposed extending seven holding lanes under a near term dock improvement project to add approximately 90 more vehicles for a total of 300 vehicles. Local Access iJehicular access to the Eagle hiarbor Maintenance Facility and Eagle Harbor Condominiums is provided along a two lane roadway just north of the toll booths. This roadway provides sufficient access between the developments, Olympic Drive and Winslow Way. Marine Facilities Currently, there are two slips for the SeattleBainbridge Island route. The existing slip configuration is sufficient for the two vessel operation, however, mechanical failures and slip maintenance results in schedule delays. The headway between vessel operations varies from 40 to 55 minutes. Transit and Terminal Facilities The existing transit center north of the ferry terminal building serves 10 buses for approximately 300 to 350 passengers per vessel. The estimated capacity of the transit center is 600 to 700 passengers per sailing with 201arge bus equivalents, assuming the removal of the building in the center of the property. The transit facility is not fully. accessible to handicapped individuals and is not within a 90 second walk to the vessels. The buses must cross exiting ferry traffic to enter the transit center which contributes to frequent 4-5 minute total delays in the transit schedules. Transit must also compete with pedestrians at numerous locations on the site. The vessel passengers do not fully utilize the existing terminal building. The location of the current building is not within the circulation path of many of the passengers who enter the facility via transit, vehicle, or walking. Passengers tend to circulate near the pedestrian walkways in closer proximity to the vessels prior to loading. The building lacks sufficient capacity for the passenger loads and does not meet the design requirements of the American Disabilities Act (ADA). Most importantly, the terminal building does not contribute to mode separation and efficiency of operations. Site Circulation The existing site circulation network is insufficient for bicyclists, pedestrians, transit, and vehicles. There are no exclusive bicycle lanes, defined pedestrian routes, or dedicated .transit 71 Winslow Master Plan May 2l 1998 lanes around the facility. This leads to frequent conflicts between the different modes of transportation and major delays for vehicular and transit traffic. The intersection of Winslow Way and Olympic Drive/SR-305 serves traffic entering and exiting the ferry terminal, Eagle Harbor Maintenance Yard, and the Eagle Harbor Condominiums. This signalized intersection provides control for pedestrians, bicyclists, and a variety of vehicle types. COMPREHENSIVE PLAN FRAMEWORK The Comprehensive Plan establishes a Ferry Terminal District intended to provide for the ferry and associated transportation-oriented uses and to serve as an entry point into Winslow. This district is designated for the ferry terminal and associated loading and parking bays, and residential and office development, with limited retail adjacent to the terminal to serve commuters. Commuter parking would be limited and encouraged to be located underground. New development would provide landscaping and signage to visually enhance the setting. Adjacent residential development would be protected from parking and traffic impacts. The Comprehensive Plan also identifies the need to: • Reduce air pollution from idling vehicles at SR 305/Winslow Way. • Consider possible grade separation at congested locations to minimize disruption of Island community. • Minimize wait-time at the ferry for walk-on passengers, bicyclists, motorcyclists and HOV passengers. • Equalize overall time for a single occupancy vehicle trip from Bremerton, Bainbridge and Kingston to Seattle. • Improve ingress/egress to the terminal and minimize conflicts between pedestrian bicyclists, transit users and autos. (The Multi-County Policies and Metropolitan Transportation Plan, Kitsap County-Wide Policies, WSF and Kitsap Transit long range goals were also incorporated into the planning process of the Master Plan.) MASTER PLAN WSF POLICIES The ferry terminal should be developed in a manner that is consistent with the goals of the Master Plan and that coordinates key land use and circulation elements contained in the Master Plan, while meeting basic needs of Washington State Ferries and Kitsap Transit. The Winslow Master Plan includes those portions of the Terminal Master Plan dealing with land- based activities. Long Term Infrastructure Improvements Prior to construction of long-term infrastructure improvements at the Bainbridge terminal, such as the third slip or transit deck/new terminal, WSF should consider the following plans: • A Kitsap County long range strategic transportation plan that is ,integrated with the Puget Sound Regional Council (PSRC) planning. The strategic plan should (1) emphasize transportation improvements that support local comprehensive plans and (2) evaluate the most effective route to place the third boat in light of (a) the County-wide Planning Policies, 72 6Yins1®w blaster Plan blav 2d d998 (b) changes in population distribution and employment patterns for Kitsap County that result in changes in demand, (c) examination of change in land use patterns due to addition of third ferry, (d) cost-benefit to the overall system and (e) the goal of panty of service to Kitsap County ports (including such factors as crossing time plus frequency of service, total origin- destination trip time, service proportionate to the population distribution and different modes of travel (freight, tourist, commuter and occasional riders). ~ An updated WSF long range plan for service to/from Kitsap County which considers the Kitsap County strategic transportation plan. Discussion: The decision to place a third ferry on the Bainbridge-Seattle route was made by the State legislature in 1988, prior to the enactment of the GMA and prior to the adoption of any local GMA comprehensive plans. A number of factors could alter the appropriateness of assigning the third ferry to the Bainbridge route: (1) changes in population distribution and employment patterns throughout Kitsap County that could affect ridership patterns, (2) development of new technologies that affect how people work, the types of ferries available, the way fares are collected and (3) the status of funding of the entire WSF long range plan for all of the Kitsap ferry routes. None of the long-term infrastructure improvements are in the WSF six-year CIP and, based on WSF information, it will be at least 6-10 years before any of these long-term facilities would be funded, resulting in a 15-20 year lapse in time from when the initial decision was made to place the third ferry at the Bainbridge terminal. If the third boat is added to the Seattle-Bainbridge route and major infrastructure improvements are added to the Bainbridge terminal, there will be little flexibility in the future to alter routes and improvements should new information or limitations in funding indicate that .revisions to the routes or improvements are warranted. Before the extensive capital investments are made at the Bainbridge .Terminal, the City of Bainbridge Island is requesting that the improvements be consistent with the WSF long range plan, Kitsap County strategic transportation plan and the Seattle-King County plans which should all be consistent with the PSRC planning efforts. WSF has stated on page 4 of Painbridge dsland Ferry Terminal Master Plan Study that "Washington State Ferries is concerned about "creating unbalanced demand' at any one terminal and has developed a service plan to distribute growth through the region equally." The placement of the third boat at Bainbridge could result in "creating unbalanced demand" at the Bainbridge terminal rather than "distribut(ing) growth through the region equally." As Table 5 shows, the Seattle-Bainbridge route currently has the greatest vehicular and walk-on passenger capacity of all three of the Kitsap-Seattle/King County routes. This scenario would continue even with the implementation of the Washington State Ferry (WSF) proposed 1_ong range plan. 73 Winslow Master Plan May 21 1998 Table 5 TOTAL FERRY CAPACITY BY ROUTE % Total Passen ers 1995 2015 Difference Bainbrid a Island 61.0 49.2 -11.4 Kin ston 20.8 .29.2 +8.4 Bremerton 18.2 21.2 +3.0 % Total Vehicles 1995 2015 Difference Bainbrid a Island 52.4 49.7 -2.7 Kin ston 35.0 38.2 +3.2 Bremerton 12.6 .12.1 -0.5 Source of Table: Draft Bainbridge Island Ferry Terminal Master Plan Study, p. 6, Table: Central Puget Sound -Western Terminal Ridership Distribution 1995 and 2015; % Total Passengers rv/Passenger Only Foot Ferry). ' The WSF long-range plan continues to create more supply (capacity) at Bainbridge Island, irrespective of the population distribution for the County, as shown in Table 6. Existing and projected population estimates show South-Central Kitsap with approximately 64% of the Kitsap population, Bainbridge Island 8%; North Kitsap and Bainbridge combined 36%. However, the Bremerton-Seattle route currently has 18% of the total passenger capacity and 12.6 % of the total vehicle capacity; by the year 2012, Bremerton would have 21.5% of the total passenger capacity and 12.1 % of the total vehicle capacity: 74 dYinsd®w 1l~aster Pdan 1Vlay 2i 1998 Table 6 KIT~AP COUNTY POPULATION AND FERRY RIDERSHIP DISTRIBUTION 1992' 19952 Population % of Total % of Total % of Total % of Total Area Distribution Population Passengers Passengers Vehicles (w/o POFF*) (w/POFF) Bainbridge 16,850 8.2 63.3 61.0 52.4 Island Kingston (North Kitsa )3 56,625 27.5 21.6 20.8 35.0 Bremerton (South Kitsa )3 132,125 64.2 15.1 18.2 12.6 Kitsa Coun 205,600 100.0 100.0 100.0 100.0 20 12' ~ 20152 Population % of Total % of Total % of Total % of Total Area Distribution Population Passengers Passengers Vehicles (w/o POFF*) (w/POFF) Bainbridge 24,280 8.3 65.3 49.6 49.7 Island Kingston (North Kitsa )3 80,383 27.5 22.3 29.2 38.2 Bremerton (South Kitsa )3 187,560 64.2 12.3 21.2 12.1 Kitsa Coun 292 224 100.0 100.0 100.0 100.0 *Passenger-only Foot Ferry 1 1992 and 2012 population data aze taken from Kitsap County Comprehensive Plan, 1996 (see attachment) 2 Ridership data aze based on WSF data (see chart above) 3 Population distribution is based on the assumption that, after subtracting the population of Bainbridge Island, North Kitsap represents 30% of the remainder of the population and South Kitsap represent 70% of the population and includes Bremerton, South Kitsap, and Central Kitsap as represented on the attached sub-azea map. Third flip Add third slip only after Shoreline Substantial Development Permit is obtained from the City of Bainbridge Island, along with other applicable federal, state or local permits and an environmental analysis in accordance with the State Environmental Policy Act is prepared to analyze the impacts of the third slip, including the impacts and potential mitigation identified in this Master Plan. Holding Area Expansion Vehicle holding area could expand up to Harborview Drive, the local access road for the condominiums and WSF maintenance yard. Expand the holding area only after Shoreline 75 Winslow Master Plan May 2l 1998 Substantial Development Permit is obtained from the City of Bainbridge Island, along with other applicable federal, state or local permits and an environmental analysis in accordance with the State Environmental Policy Act is prepared to analyze the impacts of the expansion, including the impacts and potential mitigation identified in this Master Plan. Discussion: The existing holding area holds 210 vehicles. With the expansion of the holding area up to Harborview Drive, the holding area could hold 330 vehicles - a 57% expansion. The impacts to Winslow from waiting vehicles in excess of the holding area capacity would occur during the a.m. weekday peak hours, when the downtown Winslow businesses are generally not open and on Sunday p.m. Transit Deck/New Terminal Short Term Kitsap Transit should work with Washington State Ferries to incorporate improvements to transit service and intermodal connections to accommodate demonstrated Island need and regional need. Utilize existing transit site, with a queue jump or other mechanism to give transit priority onto Olympic Drive. Long Term Provide a new transit deck/terminal facility that is scaled to actual demand and is the most cost- effective in terms of the improvements to the overall Kitsap system. The new facility would require that a Shoreline Substantial Development Permit be obtained from the City of Bainbridge Island, along with other applicable federal, state or local permits and that an environmental analysis in accordance with State Environmental Policy Act be prepared to analyze the impacts of the transit deck/terminal, including the impacts and potential mitigation identified in this Master Plan. Discussion: Anew transit deck would be constructed adjacent to the new terminal. This facility would also be over the water and would be accessed by ramps that straddle the loading/exiting lanes to the ferry. By locating closer to the off-loading ferry, a time advantage would be gained for .transit in departing the terminal area. Bus capacity of this ramp has not been finally determined, nor has timing of construction. The ramp would be needed prior to Kitsap Transit reaching .capacity in their current location (11 buses currently per peak hour ferry with site capacity of approximately 20 buses). Until a commitment is made to the ramp, transit will continue to operate across exiting ferry traffic. This element of the terminal development plan involves waters of .the State and requires approval under the Shoreline Master Program as well as Federal permits. It is subject to further EIS. review under both the State Environmental Policy Act and National Environmental Policy Act. Bicycle Access WSF should ensure easy, direct and safe access for all bicyclists to the ferry terminal, including those arriving from the north east. Bicycles exiting the ferry can either proceed up Olympic Drive on a designated bicycle lane or route designated for bicycle use, or traverse the area currently occupied by commuter surface parking. 76 6dinsd®w Master Pdarz May 21 1998 Construct the bicycle lane along the south side of the holding area, described as part of Project 2 of the WSF Bainbridge Island Ferry Terminal Dock Widening and City Trail Connection Shoreline Permit Package. Discussion: WSF proposes eliminating the bicycle access through the terminal azea because of the new U.S. Coast Guazd requirements to count all of the bicycle passengers and also to provide safe and controlled bicycle access. There may be alternative ways to meet these goals. Pedestrian Walkway Construct pedestrian walkways along the south side of the holding area connecting to the existing walkway and also up to Winslow Way, described as part of Project 2 of the WSF Bainbridge Island Ferry Terminal Dock Widening and City Trail Connection Shoreline Permit Package. Winslow Way Way/SR 305 Intersection In order for the WSF to achieve an acceptable headway for the third ferry, the timing of the traffic signal at Winslow Way/SR 305 may be adjusted. Any adjustment must address pedestrian safety and circulation by minimizing pedestrian waiting time to cross intersection segments and east/west vehiculaz waiting time. Acceptable LOS for vehicles and pedestrians should be maintained. The intersection of Winslow Way/SR 305 may be widened to approximately 78 feet in order to accommodate the 35 minute headway and transit and bicycle riders. In keeping with the City's stated goal, the design and function of the intersection should help create a "gateway" into Winslow and provide a pleasant visual experience for the pedestrian. If the City, WSF and the Washington Department of Transportation determine that adjusting the timing of the light at Winslow Way/SR 305 intersection does not achieve the goals of a 35 minute headway balanced with pedestrian safety/circulation and acceptable LOS, then the following two options should be considered: 1. Construction of vehicle exit holding lanes within the designated azea as shown on Figure 23 without further degradation of vehicular access from properties along Olympic Drive. WSF and the City will conduct a coordinated planning effort to incorporate urban design concepts into the project, specifically visual impact, with the recognition that the ferry terminal serves as a gateway to Bainbridge Island. 2. A northbound cut and cover grade sepazation for through vehicles. `1'he two options should be thoroughly analyzed to address: 1. Goals of the City of Bainbridge Island as embodied in the Comprehensive Plan 2. Goals of the Washington State Ferry System 3. Kitsap County Strategic Transportation Plan (if completed) , 4. SR 305 Corridor Study 5. Impacts of both alternatives 6. Feasibility 7. Cost benefit See Figure 23 for a composite of the Washington State Ferries plan. 77 ,l ! i. ' I. BEACN - 1~ SF- .,.,..,._ .,.I~i ' .. _ . I '; ~ ! Ire 4 ~~ I ; ~ ;' ~ > \ ~~ : - . I " ` (~ G `) 1 s I- ~ i ( ff L~ ~ ~ .~ J~.t 1 r 7 < ... ~~ 1', i ~ ,: f ((FF , I . _ r ~ ~ r i WN5LdN 1IAY .i 1-. 1 - -L ..7 J /~_yl 9'~, -. 1,....-.. rh... -:.: R _.. _ ~~ J{ 7 Ar ~ •. -c'T ~ ~,~'~,~ r~.: '~~I r`.I ~ ~: ,K vi I \V i- _ ~~yy~~~ _: r ~`ti"l l.. 1}l&IVf 65Gi t4 -.._.` ~~ ~-P ~{{s:,$ ..- ~~' •. ~ - ... 1 ;~ - '11 ~MRW EA5 Nj --- E ~~~~,. _~IT ?"II i,.~'j'rl I ~ }}~'- __'_ s - _ 1 .~ ~.. - ~. ~C 1 ~ 4~ei~ ! i - 1 ~ V f 1, I ) t y 1 ~. , ~ ..II .. ~ I I .. 'J, I~I .. 1 1 \, ~y ` , •. ~ i -: •.1 E _ill1~. ~3 \ i nuln ( 'l ,1 / ( % it \ T ~\•\EiE-11L / ~'~_ ~\` ~' +~,'~ ~(~ "_ ~ -..! ... -- ~`}~ .. F: ~~ 2~ v''\ I }fir` ~/ ~' .., 1lNfON 3B ~ ... ..I ... .... ~ Y' s, ~l'~ :...~ ~.' ti..; ~ I 1 N .,~, ' ,i 1 IL -3.076- _ \ ~ ~ r - _ 1~,••~1 .68N. SF '1-' ': le _ -.1/ ~ ._.._. \ 3^ ._ • . `7,-BRWBRIDGE PAPoCING P K` IP 9 ~; :y: ~ 1 ~ ri IB ' 1tirr.' I ~ v ~ / / / >f - ~ S.pOIOLE -850 SF. ~\ rC_ ,~\~~+- \\ ~~ ;1, C' `~ ,r ~~ .-y„ ./v,i.'"1_S-r {a._:.,nF~ ~~~~ • K ll/ ~ !/ \. ~ "" ~ .: ,` ~~ 1~ ~K..1 `.L ~~ ?i: ~~ 1 ~. I I I I I I III : /~` ~ f . tl S•r( ,t'~ \\\. ) 1/ 1:X -~~' III _ .. . ~r j 6 YINSLOY MARINE ASSDCIATION - 55,160 SF 1 I /. ~ .~~ ~ r~ _ - f \3 \ •`' /~~J f~Z •'~~`. PASSENGER PICK-UP / DRDP-OFF KKK ~{{,`,~, i \ ~.Ll AREA (IffIR TERM) ~~t~~!~-~[L/~//,,/~,` ( t h'1'. r•y ~ ~ ' / FOUR E%IT HOLDWG LANES (TWO LANES F ~L ~ {/ / ~ y1.• ~ ~~~ f(. \ T ,.~,! '. ry", i~ SEPMAT D NAiER~CTgNT PROPOSEDRADE ` ~ C.. _~l/ YpSF MM7TENANCE r ~ / , ;4E71CLE ACCESS 1 ~ , •/ `' ! ~ '• ' //~~ . ' , 7q ~ f_, I ' .. ~-, i ; ,~ ja~-~` ~l `?~.:~ '•" ~~~ OVERNEID WALKWAY 1 ~ j!~ _ . • !C-~JI'.) ~~ J,i--.~~/'J"~ ~.` \ / i.1~ / I fNEAFi TERM) f _-1 ~ may, .l.l t ~YY.rYF fNEN4 TER 1 J ~'~ - ~';'Ck•:~,. _ ``. ~„ /`~ NOluqu t~ 570 j:~. ' \ "~\ ..,~•. ~"`. °; 1 ~ VENgFE CAPAdTY /~ •" ~-'~ ~ `~ }` ~ \"~-~~ ELEVATED TRANSfT DECK ,/, /Y ~ ~ '~~ i'~ ~eA6~,~ NutBOURG J\ 2.i~> ~ :1 Ir ~ / ., ;~~ '"`~ `• Efi15T~G BEAGft ACCE55~ ~:.' ~ _._ ~.~ ~- c CI l f ~ '/ ! ~ 1 - - \ I i 11I~ ~~`, lY' ~ \ TERMinf'~ BUILDING ~ ~ I -. -T /< } ~k "WIDENR/G' AND~.IAIBER \ t G./ ;.,. .... ODCN REPiA~EMENT (A(Ift TERMJ, % ~ ' ' l `' ~= BAINBRIDGE ISLAND MULTIMODAL FERRY TERMINAL --_ s~ ~ , Washington MASTER PLAN IMPACTS TO LAND USES '- ~ ~, -_ Y .R ~ _ _ .. Sfa1lFetnlCS Washington State Ferries SCALE IN METERS Sverdrup CIVIL. INC. Winslow Master Plan May 21 1998 CHAPTER 8 UTILITIES EXISTING CONDITIONS Overview The Winslow area is served by three publicly owned and operated utilities: water, sanitary sewer and storm drainage. Each system is briefly described below. In all cases, the existing capital facilities plans for the systems would allow for development levels contemplated in the 1994 Comprehensive Plan. Minor service routing will need to be made for actual development scenarios, but City-wide needs will remain the same. Water The study area is served by the Winslow water system which is a utility owned and operated by the City of Bainbridge Island under the direction and control of its Public Works Department (see Figure 24). A Water System Plan was prepared by R.W. Beck in 1992. and incorporated by reference into the adopted City. Comprehensive Plan. In July of 1995, R. W. Beck reviewed the system plan and concluded that the existing water system has adequate sources of supply to meet both present and projected demand in the historic Winslow area through the year 2012 ("Bainbridge Water Plan," July 1995). Improvements were identified, such as increasing pipe sizes in the distribution system and increasing storage in the system to provide adequate fire flow. The Winslow water system is supplied from 10 wells with a total yield of 1,678 gallons per minute or 2.4 million gallons per day. The distribution has approximately 20 miles of pipe and four storage reservoirs serving two pressure zones. Because of the City's new design standards requiring a minimum of eight-inch ductile iron for water mains, much of the system has to be upgraded. Although domestic service is adequately served, fire flow requirements of 3,000 gallons per minute for commercial and multi-family areas and 1,000 gallons per minute for single family residential areas are not always available with the existing distribution system. The identified deficiencies are in the lower zone, such as the Wing Point area and some downtown areas. The downtown area fire flow currently is limited to less than 1,500 gallons per minute. Corrections to undersized pipes, as shown in the water comprehensive plan, should reduce the inadequate fire flows. Storage reservoirs have the usable capacity of 405,000 gallons. Additional storage of approximately 1.7 milliori gallons is required in the future to provide for quantity equalization, fire flow and standby volumes. 79 Winslow Master Plan Mav 21 1998 Figure 24 Winslow Water System Service Area • • • Service Area Boundary 80 Legend Winslow Master Plan Mav 21 1998 Sanitary Sewer The study area is serviced by the sanitary sewer system owned and operated by the City of Bainbridge Island. A Wastewater Facility Plan was completed in February 1994 and incorporated by reference in the City's Comprehensive Plan. In July of 1995, R. W. Beck studied the system and concluded that the existing sanitary sewers have adequate capacity to accommodate a projected increase in population to 7,112 by the year 2012 ("Bainbridge Sewer Plan," July 1995). The adopted Comprehensive Plan established a service area for the Sewer System. Once the wastewater treatment plat upgrade was completed, the proposed future service area boundary was to be re-examined. Since the adoption of the Comprehensive Plan, the upgrade has been completed and the City Council has approved a change in the Sewer Service Area. (February 20, 1997). (See Figure 25). The collection system includes several miles of pipes of various sizes and 11 pump stations. The 1995 R. W. Beck study analyzed the capacity of each major component and concluded that the capacity of the existing trunk sewers and the pump station will not likely be exceeded by the projected growth. The sanitary sewer treatment plant has been recently upgraded to handle a flow of one million gallons per day. This is the equivalent of servicing approximately 10,000 people per day at 100 gallons per capita per day and is adequate for development levels contemplated in the 1994 Comprehensive Plan. 81 Winslow Master Plan May 21 1998 Figure 25 s2 Winslow Master Plan May 21 1998 Storm Drainage The storm drainage system is owned and operated by the City of Bainbridge Island. It consists of a series of natural drainage features such as creeks, ravines and swales together with manmade features such as roadway ditches, culverts and pipe systems. The 1985 Gardiner Engineers report inventories the existing system within the limits of the study area ("Bainbridge Drainage Plan," July 1995). The study area has approximately six drainage basins. The drainage basins are shown in Figure 26. Pipe systems in conjunction with the natural features are prevalent in all basins. The quantitative capacity of the system is generally adequate to handle the development in the area if new development uses the WSDOE Stormwater Guidelines. These guidelines require that individual properties detain water and provide water quality features. This would keep flows at or near existing flow rates. Since the city has only localized and minor flooding problems in the developed commercial areas, the capacity of the existing conveyance is deemed adequate. This does not apply to the developing areas where there is a need to detain water and increase system capacity as growth occurs. For the most part, water quality issues have not been comprehensively addressed although it is felt that the system of roadside vegetated ditches has been effective for normal runoff conditions. 83 Winslow Master Plan May 21 1998 Figure 26 . Drainage basins Legend "Public Open Space :, Sensitive Areas © Basin Boundaries 84 Winslow Master Plan May 21 1998 COMPREHENSIVE PLAN FRAMEWORK The Comprehensive Plan contains a separate Water Resources Element to highlight the importance of water resources to the Island. Land use policies should be consistent with prudent use and protection of those resources. New water sources/systems or expansion of existing systems should occur only if the existing quantity or quality levels of existing water supplies is maintained at a sustainable level. Water conservation, water re-use and reclamation should be pursued. Water system infrastructure which may provide water supplies exceeding local needs should not be used to justify development counter to the adopted Comprehensive Plan. Sewage should be collected, treated and disposed of in a manner that prevents public health hazazds and pollution of groundwater, surface water and promotes recharge of the waters of Puget Sound. Siting of additional sewer facilities or the expansion of existing facilities should consider solutions to existing on-site failure problems, as well as planned areas for increased density. Re-use of treated wastewater for irrigation, fire. flow and other non-potable uses should be encouraged. Stormwater runoff should be managed to protect property from flooding and erosion; protect streams and shorelines to avoid the degradation of environmental quality and natural system aesthetics; protect the quality of groundwater, surface water and waters of Puget Sound. Development should be designed and constructed to minimize disruption and/or degradation of natural drainage systems, using both on-site and off-site improvements. Infiltration is preferred over surface discharge. Zoning and development standards should encourage site permeability and minimize impervious areas by restricting site coverage. MASTER PLAN UTILITIES POLICIES Water The Master Plan is based on the applicable goals and policies of the Comprehensive Plan, as amended, including the improvements set out in the R. W. Beck Study, 1995. Sewer The Master Plan is based on the applicable goals and policies of the Comprehensive Plan, as amended, including the improvements set out in the R. W. Beck Study, 1995. Storm Drainage The basis for calculating the storm drainage system improvements in this Plan is found in the 1985 Storm Drainage Comprehensive ~ Plan prepazed by Gazdiner Engineers. That Comprehensive Plan, however, generally addressed only quantity concerns. Conveyance, pipes, and system improvements were sized to meet the requirements of full buildout under 1985 land use and zoning. Currently, more attention has been given to open space, thereby making the sizing of the 1985 conveyance system conservative and large enough to handle the anticipated loading. The 1985 Comprehensive Plan developed a series of capital improvement projects for Basins A through F in historic Winslow. Although several of the Comprehensive Plan projects have been accomplished over the last 10 years, it is not surprising that the more expensive projects still remain. The larger scaled projects are generally found in the lower reaches of the basins and are required to increase pipe capacity and improve outlet conditions to Eagle Hazbor. 85 6Yinslow MasEep Plan Mav 21 1998 New State storm drainage design regulations and recommendations have been implemented since 1985 requiring water quality enhancement and detention facilities. Although the 1985 Comprehensive Plan required detention in the upper reaches of all sub-basins, additional detention is being recommended to allow for the development of all of Winslow. Typically, the detention facilities shown on the list below occur at least at the midway point up the sub-basins. This is because of the lack of available space in the lower half of all sub-basins in Winslow. The water quality enhancements focus on improvements at three points in the lower ends of Sub- basins B, C, and D. An additional retrofit water quality project is also identified at an existing pond at the Commodore development at the upper end of Weaver Avenue. See Figure 27 for approximate location of recommended improvements. In addition to the capital improvements shown, there are a number of minor improvements that will be required to alleviate areas of nuisance flooding and backups. The Bainbridge Island Storm Drainage Regulations should be reviewed and updated to bring the design criteria into line with the requirements of the Puget Sound Storm Manual, prepared by the Washington State Department of Ecology (WSDOE). The City should also review the potential of making the requirements stricter than the WSDOE Manual because of the sensitivity of the soils, the natural drainage system and the receiving body of water. The City should also consider extending their surface water utility fees to include capital funding. They currently cover only maintenance costs. Recommended improvements are set out below: Storm Draina a Pro'ects Characterization of Pro'ects Conveyance The come ance: im rovements aze- enerall located at the Lower art of the sub-basins, Conveyance A -Lower Sportsman Club To occur concurrently with new Approximately 1,700 feet of pipe to allow for the release of development. Sub-basin A. Conveyance B - Wyatt/Grow To occur concurrently with new Improvements to the lower collection system of Basin B development. upstream of the most recent installation of the release point at the foot of Weaver. Conveyance C -Lower Madison Addressed as part of Brier/ Currently being designed as a part of the lower Madison Bjune/Lower Madison project. improvements. The project consists of approximately 1,100 feet of pipe and a detention facility, which is listed under the water ualit enhancements (WQ-C). Conveyance 1) - Ericksen . Should occur as part of installing The closing of the ditch system along Ericksen, which may be sidewalks. affected b the scenario selected. Conveyance E -Winslow Way/Cave. Should be included in Winslow Way Approximately 3,500 lineal feet of pipeline to allow for the East project. release of storm drainage in the azea of Winslow Avenue and Cave Avenue. The development of this particulaz line may drain to the east or to the west towazd the ravine. Conveyance F - Basin F Improvements Long Term The development of collection system improvements in Basin F. 86 Winslow Master Plan May 21 1998 Detention Regionalized detention facilities are preferred over a number of small individually maintained detention facilities. Detention A -High School Road/Sportsman Club Road To occur concurrently with new Additional detention is desirable at the intersection of High development. School Road and Sportsman Club Road to protect downstream conditions in Sub-basin A. Detention B - Basin A at Wyatt To occur concurrently with new Again, another small regional facility in Basin A to detain development. water and protect the lower reaches of Basin A's release oints. Detention C -Rotary One additional detention pond It is anticipated that the Rotary Club ball field site may be to occur concurrently with required for additional storage for protection in Sub-basin B. development. Detention D -Mid-Weaver Another Sub-basin B detention pond located in the sub-basin where increased develo ment is antici ated. Detention E -Sakai Pond Recharge Long Term consideration. The Sakai Pond area is a known peat bog and potentially a recharge system for the ravine and groundwater aquifer system. This project would develop infiltration systems for the a uifer. Detention F -Wing Point Way/Lower Golf Course Long Term consideration This detention facility is located on the lower portion of the Wing Point Golf Course and may be developed in conjunction with the golf course facility. Also envisioned is a pipe system that will take overflows from the pond down to the beach. Water unlit Enhancements Water Quality A -Commodore Pond Maintenance Issue The existing pond is continually laden with sediment. The pond should be divided to provide sediment trapping and the capability to remove sediments. Water Quality B -Lower Weaver Oil Storage Identifies Potential Issue This existing site is an oil storage site which may prove to be a potential cleanup site. It is adjacent to the release point of Sub-basin B. Water Quality C -Lower Madison Maintenance Issue This facility is an oversized vault which will trap sediments and remove floatable material. It is currently under design as a art of the lower Madison im rovements. Water Quality D -Ferry Terminal To occur concurrently with new Improvements to the ferry terminal including rehabilitation or development. expansion of existing parking facilities shall have water unlit features desi ed and built into this s stem. 87 dYdnsd®w blaster Plana 112ay 2i i99~ Not included in the capital lists, but just as important, is a comprehensive review of the design criteria and regulations now in existence on the Island. Potential funding modifications .may be required to assist in the payment of basin improvements. Such funding needs may include impact fees, developer charges and sub-basin surcharges. 88 Winslow Master Plan May 21 1998 Figure 27 Storm Water System Improvements F ~~ ~_ a o 0 ::Ferry " Eagle Harbor Legend - ''` Public Open Space Basin Boundaries Regional Needs sQ Storage Water Quality Enhancement ` ® Recharge/Storage ~__= Conveyance R9 Winslow Master Plan May 2l I998 .CHAPTER 9 CAPITAL FACILITIES OVERVIEW The Capital Facilities section of the Master Plan identifies capital facilities projects and expenditures and proposes timing and funding priorities to ensure that the Plan strategies will be implemented. The strategies are intended to: • enhance the vitality of Winslow as the commercial and cultural center of the Island; • enhance Winslow as a desirable place to live by creating green spaces to offset the intensity of new residential and commercial development • make Winslow more pedestrian and bicycle friendly to encourage people to drive less; • add a transit loop which will allow people to park in one location and quickly move around Winslow; also allow in-town residents to get to destinations in and around Winslow without using the auto, thereby freeing up road capacity; • provide additional parking for downtown Winslow to make shopping trips easier. The more often people use means of transportation other than the auto, the longer our existing roads will have an acceptable LOS. The Plan encourages people who live in the residential areas of Winslow to walk or bicycle into town. To attract development in Winslow, adequate facilities need to be available, including new or upgraded pedestrian and bicycle facilities, water and sewer systems, storm drainage facilities, improved roadways and local parks PROJECT SUMMARIES Parks and Open Space Parks Two to three acres of centrally-located parks for passive recreation. These could be either an acre or more in size or pocket parks, depending on site availability and distribution. Components could include paths, children's play areas, seating, open lawn, landscaping and limited picnic facilities. The smaller pocket parks would be approximately one-quarter acre in size, with seating, small play areas and landscaping. Trails Acquire R.O.W. and/or easements as necessary, and develop the following trails within MUTC/High School Road Districts: • Two major north/south connections between Winslow Way and High School Road: the area between SR 305 and Ferncliff and a low impact trail from Waterfront Park adjacent to the ravine to the High School Road area. • An east-west pedestrian connection at Knechtel and a pedestrian overpass of SR 305. Consider paving this trail. • Amid-block trail system from lower Grow Avenue and the Navy site to the Winslow retail core, including the new street adjacent to the B.P.A., continuing onto and connecting with 90 Winsd®w 14~aster Pdan 14~ay 21 1998 the ferry terminal area. This path would be more urban in character and would be integrated into future retail or mixed-use activities. • Connect to trail system to be developed from Madison Avenue to Grow Avenue through to Weaver Way, using Shepherd Way right-of-way. • An east/west connection from Nakata Avenue to Madison Avenue at Wallace Way. Trails Outside MUTC/High School Road Districts Provide for opportunities to develop trails that provide mid-block connections and access to destinations beyond the Mixed-Use Town Center, such as schools, waterfront access points, parks, and surrounding residential neighborhoods. Waterfront Trail The missing link would be filled in from Waterfront Park to the foot of Madison Avenue. While the preferred route for completion of the trail project would not require easement acquisition, the alternative route would require some easement acquisition. A boardwalk could be necessary. The City should work to obtain easements, where possible, to extend the trail to the head of Eagle Harbor. Transportation and Related Utility Improvements Streets -Pedestrian and Bicycle Facilities and Traffic Calming Measures (For a more detailed description of improvements, please refer to Chapter 6, Transportation.) By-Pass Route A designated ferry commuter bypass route would be established utilizing SR 305/Madison to New Brooklyn Road-Sportsman Club Road-Finch Road, to provide atime-effective alternative to traversing through the Winslow core. Grow Avenue (Winslow Way to Wyatt Way Road) Add bike lanes on both sides and sidewalk on one side and traffic calming features. Utilities: Storm drainage and possible water system improvements Winslow Way (Madison to Grow) Add bike lanes and sidewalk both sides and traffic calming features Utilities: Storm drainage, water system and minor sewer system improvements. Wyatt Way (Ericksen Avenue to Finch Road) Add bike lanes and sidewalks on both sides and traffic calming features from Ericksen Avenue to Grow Avenue. Add bike lanes on both sides and sidewalk on one side and traffic calming measures from Grow Avenue to Finch. Utilities: Storm drainage and water system improvements 91 Winslow Master Plan May 2l 1998 Madison Avenue (Winslow Way to High School Rd) Widen sidewalks. Retain bicycle lanes on Madison Avenue. Use other traffic calming means to slow vehicular traffic and enhance the pedestrian experience, including installing traffic islands, cross-walks with "bubble outs," stop signs, street trees and changing the configuration of Madison Avenue to make it more winding in character and with wider sidewalks. Knechtel Way Add curb, gutter and sidewalks on both one sides; no bike lanes. Utilities: Storm drainage and water system improvements. Wallace Way Add sidewalks both sides; no bike lanes. Winslow Way (Ferncliff to SR 305) (consistent with approved project) Winslow Way (SR 305 to Madison) Widen sidewalks and increase pedestrian amenities; special lighting and street furniture Utilities: Storm drainage, water and sewer system improvements Ericksen Avenue Add bike lanes and sidewalks on both sides and traffic calming features. High School Road (Ferncliff to Madison) Use traffic calming means to slow vehicular traffic and enhance the pedestrian experience, such as cross walks with "bubble outs" and wider sidewalks. Institute on-street parking for the portion of High School Road east of SR 305. High School Road (Madison to Weaver) Add sidewalks and bike lanes on both sides with parking on the south side in front of High School and traffic calming features Wing Point Way Add sidewalk to one side and bike lane on uphill portion of road; the side of the road without a bike lane should be 13 ft. in width. Madison Ave. (High School. Rd to New Brooklyn) Add sidewalks both sides from High School Road up to New Brooklyn Road. Add parking on one side up to elementary school and traffic calming Gateways Special landscape features, pavement change and art work would be to key roadways into Winlsow. KnechteUWyatt Right-Of--Way to SR 305 The City should ensure that the right-of--way exists to connect SR 305 to Wyatt Way or SR 305 to Knechtel Avenue. 92 63'inslow tOlaster Plan tOlav 21 1998 Parking Surface Lots #1 - #S -Small lots of approximately 20 car capacity each, located within 200 feet of retail core on Winslow Way, or one or two small lots and structured parking of approximately 190 spaces developed in conjunction with new City Hall/BPA parking. Winsdow Transit Poop A transit loop run by Kitsap Transit would circulate through the Winslow core and connect with the ferry terminal, providing a transportation alternative for certain commuters and residents. The proposed route would travel in both directions along Winslow Way, Madison Avenue, High School Road and Ferncliff and would serve the ferry terminal. Utilities In addition to utilities improvements described in Transportation and Related Utilities section above, Table 10 describes additional utility improvements. FUNDING Designated projects will be funded in 1999 either by a 20-year limited general obligation bond or through the 1999 budget. The manner of funding will be determined during the 1999 budget process. Proposed funding options for projects identified for funding in the years of 2000-2004 are set out in Table 8. The Capital Facilities requirements of the Winslow Master Plan identified herein (see Tables 7, 8, 9 and 10, and Appendix D) become a part of the overall City of Bainbridge Island Capital Facilities program. While the Plan provides an indication of priority among the various projects over the first Six years of the Piaii, Integration Wlth overail City pr~oritles "vJlii be needed. Following the adoption of the Winslow Master Plan, the City Council will begin its review of the 1999-2004 Six-Year Capital Element (CFE), to be adopted by December, 1998. As part of the development of that document, the City Council, with community input, will more fully integrate the Winslow Master Plan projects into the six-year CFP. As required by the Growth Management Act and Policy CF 1.3 of the Comprehensive Plan, if funding for capital facilities falls short of projected needs, the City will review the Comprehensive Plan and make the necessary adjustments, taking into consideration fiscal conditions and service quality to existing residents. Dependable revenue sources must be identified that equal or exceed the anticipated costs. If the costs exceed the revenue, adjustments must be made to bring future development into balance with available or affordable facilities and services. The costs of all the facilities will then be added together in order to determine the financial feasibility of the plan. In setting priorities for the funding and timing of capital projects, the following criteria should be considered in evaluating each project. These criteria are not in order of priority, but are intended to be reviewed together. • Is it vulnerable to preemption (e.g., land acquisition or development by other parties)? • Does it further the goals of the Comprehensive Plan ? • Does it serve the Core, then work outward or does it serve the City-wide population? • Can it be combined or sequenced with other City or government agency projects to provide the best cost effectiveness? • Does it provide the least cost/highest impact? 93 Winslow Master Plan Mav 2l I998 • What is the funding source? Is it eligible for grants? Paid for in whole or in part by development fees? • Is the project needed to accommodate growth or retain the established LOS or existing conditions? 94 bYinsd®w ldlaster Plan ldlay 21 199 Table 7 WINSLOW MASTER PLAN-CAPITAL IMPROVEMENTS CATEGORY 1999 2000-2004 2005- 2012 Desi * Construction Grow Avenue -- Winslow Way to Wyatt Way TOTAL $218,000 $ 48,000 $ 170,000 Roads (Sidewalks one side, bike lanes) Utilities (Storm draina a and ossible water im rovements) Winslow Way -- Grow to Madison Avenue TOTAL $439,000 $ 97,000 $ 342,000 Roads (Sidewalks and bike lanes both sides) Utilities (Storm water, water and minor sewers stem im rovements ) Ericksen Avenue -Winslow Way to Wallace TOTAL $634,000 $ 168,000 $ 592,000 Roads (Sidewalks and bike lanes both sides) Utilities (Storm draina e; *water im rovements in ado ted CFP) Wyatt Way - Ericksen Ave. to Finch Rd. TOTAL .$875,000 $ 192,000 $683,000 Roads (Sidewalks both sides to Grow Ave., sidewalks one side Grow Ave. to Finch Rd., bike lanes both sides) Utilities (Storm draina a and water) Madison Ave. Traffic Calming - TOTAL $1,296,000 $ 285,000 $ 1,011,000 Winslow Way to High School Rd. Roads (Sidewalks and traffic calming, such as "bulbouts" both sides) Utilities: (*Water improvements in adopted CFP) Knechtel TOTAL $147,000 $ 32,000 $ 115,000 Roads (Sidewalks both sides) Utilities (Storm draina a and water) Wallace Way DOTAL $139,000 $' 31;000 $108,000 Roads (Sidewalks both sides) Utilities B ass Road TOTAL $120 000 $ 26 Q00' $ 94' 000 Winslow Way - SR 305 -Madison Avenue 1999 Intersection improvements and widening sidewalks $1,239,000** 2005+ (Street improvements) Utilities (Storm draina e, water and sewer) Madison Avenue- High School Rd: to New Brooklyn $ 382,000 High-School Road -1VIadison Ave.,to Ferncliff Ave. ' $ 384,000 Roads (Traffic calmin edestrian enhancements) Wing. Point Way - Fernciiff Ave. to Park Ave.. $ 88,000 Roads: Add sidewalks to one side and bike lane on uphill portion of road. NOTE: Does not include water im rovements in ado ted CFP Knechtel'R-O=W urchase between SR 305 - Ericksen Ave. $ 415 OOQ. W att Wa R-O-W urehase between SR 305 - Ericltsen Ave. $156 000 _._._.._ .. ...... .... PARKING Surface Lot #1 or Parkin Facili $ 250,000 $ 250,000 $ 750,000 PARKS/TRAILS $ 100,000 $ 500,000 $1,280,000 TOTAL $1 29 000 $ 5 675 000 $2 884 000 * Design costs have been calculated as 22% of the total cost of the project. **Using Public Trust Fund Loan 95 Ma 21 1998 _.~---- LpW MASTER PLAN Mpster plan FpR ~IwNS Yark-ng .., Jinstow F ACILIT~S FUrIDING Utilities -- $25~,00~ pITAL Developer contributions thru CA sidewalks, fees TABLES goads tpavemen~ in) $113, mitigation in ~ traffic calm ears or funding gEPA bution Costs bike tan ds - 2~ y or f inancial contri .Table 12 $~66,~ anon Bon of construction of Tax General Oblig lieu er code. $ 1,229, Limited Budget parking stalls p 1994 through 1999 merit through er repay or partial develop ents DevelopeL construct late comer agree fees itigation financed. ~ SEPA n' 240._. ~p~~4 ~~T~18,uw General Year 5,b'-5,~ 1 LimitedTax 2p s Obligation Bonds ^ " ayment partial developer rep through er agreements late c° mitigation fees SEPA am contributions ~ bonus Pr eg Constructed or 2 Develop financed 3. Utilities "Tax Trust Fund ~• public works . 5 Grants ~rK~ iced Tax General 1, lim Bonds Obligation 2~ Years er repayment partial develop through late comerpA agreements and SE mitigation fees. 2 Developer constructed or finances' 3 Utilities Tax would be reduCeden the Cost e impr°Vem to value of th b developers prior constructed Y bonds. issuance of the pa-- trails $1 '~ District Cityrpark Parklmpa~ 1 ected) (already er constn~cted or Develop financed. $25q' artnershiP 1 publiclprivate p arking for development ha 1 site. structure on City er contributions 2• Develop anon fees thN SEPA rnitig •bution in or financial contra of construction of lieaurkng stalls peL code. ~500,~'r' k District 1. C1tylQ P~kLp .9 acres for each residents applied to 1'~ tar ets 3,~~0 new .Winslow ~ g residents, 3 acres of park) er constructed or 2 Develop finked through fees mitigation ~ SEPA . bonus program contributions p cted or 3 Developer constru financed' Cost would be reroVemen she value of the im developers constructed by ce of the bonds prior to issuan be reduced by the Cost would eats value of the irnprovem constructed by developers prior to issuance of the bonds. 3 Grants be reduced by Cost would the value °f th constructed improvements by developers p~onds• issuance of the b ~- 96 ED AND IN pgpCESS I~AD~ FUND Winslow pITAL pgO~CTS AL OS from WaY CA etoSR3 CianVe°A nuetoFerncliff? Higr School Rd~ .Weaves) ve. to ~Niadison A City Hall CO~ector Lower NiadisonlB&'B Ferncliff Avenue public Restrooms park Madison Avenue W att W ay and between y Bechtel Way . bicycle lanes and rrght turn tan e lanes Sidewalks e side; add b~k lane on es and Pedestrian high schoosGdes. ) Add combined bike lan king across from both one side and P elks and bike lanes on and sidewalk ased sidew tMaster Plan prep developed as Part of City Hall. To be part of City Na11 City purchased in 1996 ~ 200,000 ~ ~p~,000 ~ 853,p00 $1~2g5'~ ~ 16~,~ Winslow Master Plan May 21 1998 Table 10 WINSLOW MASTER PLAN STORM DRAINAGE CAPITAL IMPROVEMENTS CATEGORY WMP 1999-2005 FUNDING SOURCES Conve ance Pro'ects Lower Weaver Ave. S ortsman Club 153 000 80% Developer; 20% City W att/Grow Basin B 788 000 500 000 Ericksen Avenue $144,000 Lower Madison $ 99,000 Winslow Way/Cave Avenue $ 297,0005 Subtotal 1094 000 Detention Pro'ects Hi h SchooUS ortsman $ 45,000 Developer Funded Basin A/W att 50 000 Rot $ 35,000 Subtotal 135 000 Water uali Fe Terminal 80 000 Develo er Funded Total 1309 000 SA portion is included in Winslow Way E project. 98 Winslow Master Plan May 2l I998 CHAPTER 10 IMPLEMENTATION ACTION STRATEGY ACTIONS The Winslow Master Plan presents a number of actions which are necessary to achieve the objectives of the community. These actions include regulatory programs, as well as capital facilities projects or other activities necessary to implement the Plan. The attached Table 11 is intended to be a tool for making investment decisions. The following describes the components of the table in more detail Regulatory Actions These involve changes or additions to the City's development regulations. While not directly related to the capital project actions, these are important in implementing the Master Plan since they direct private investment decisions. Open Space/Trails Actions These include park and trail projects as well as potential public/private partnerships, including right-of--way dedications or donations and the design, placement and maintenance of landscaping, signage and other amenities. Transportation Actions These are projects and programs requiring a wide range of actions from changes to the road standards, right-of--way acquisition to various investment strategies, including interagency or public/private funding. Some depend upon City leadership and others defer to state or county agencies. These are probably the most complex from an administrative standpoint and will therefore require a significant management and coordination investment by the City. If the City were to form a Parking Authority, financing and operation of the proposed Parking Authority would involve participation and a series of decisions by the City, property owners, and businesses. Facilities Actions There are no other facilities identified in the Master Plan except those already listed under Chapter 5. INVESTMENT RESPONSIBII,ITIE5 Since a number of partnerships are necessary to implement the Master Plan, it is important for the City to identify who has primary and secondary responsibility for planning, design, construction, financing, operation and maintenance of the actions. Many of the necessary implementation actions are the primary responsibility of the City. 99 Winsd®w Master Pdan Mav 21 d99~ City of Bainbridge Island While new development can be expected to improve streets and sidewalks and to add to the network of open space in the community, the progression of these improvements is dependent upon the timing of individual development projects. This can lead to interim deficiencies and actual gaps, such as a sidewalk or trail that leads nowhere. Moreover, the present condition of streets and sidewalks within Winslow is not conducive to walking. Substantial improvements are needed, apart from any anticipated increase in population, just to ensure that Winslow is vibrant and livable. The City may need to step in and build a number of key facilities and require subsequent development to pay a portion of the cost. Key street and sidewalk linkages should also be targeted for construction or upgrading, perhaps with individual developers adding greater width of walking surface, decorative lighting, trees and furnishings. Developers also need to know exactly where any new rights-of-way or easements might be needed so that they can accurately determine building location and size. Therefore, even if funding for street improvements is not yet available, standards and rights-of-way should be set. In some instances, in order to ensure continuity and connectivity, the City will need to build new streets and sidewalks and require subsequent development to repay a portion of the cost. Actions which are not primarily the City's responsibility are described below. Washington State Department of Transportation (WSDOT) The Depa_rr_ment has primary responsibility for SI2 3Q5 improvements and possibly secondary responsibilities for other transportation actions identified in the Master Plan. Washington State Ferries (WSF) The WSF will have responsibility for ferry-related actions and primary responsibility for actions taken to mitigate impacts of ferry service. There will also likely be some City/WSF coordination necessary for implementation of some of the listed actions. Kitsap Transit This agency will presumably have primary responsibility for implementation of the loop bus service. The City or private projects may also be responsible for transit-related improvements such as bus stops. Bainbridge Island Parks District Parks, recreation spaces and trails will need to be built to implement the Master Plan.. It may be necessary to identify and secure parcels or trail easements through options now, essentially keeping them in reserve for future improvement as needs arise. Private Developers will participate in several of these actions in a number of roles, including mitigation, use of bonus provisions, fees (such as utilities fee, contributions for parking), dedications ar donations. Local Improvement Districts, Business Improvement Associations and a Parking Authority are other possible vehicles for private participation. These roles will to be considered thoroughly in the evaluation process so that the appropriate obligations and results can be defined and weighed. 100 Winslow Master Plan May 2l 1998 Parking Authority If the City determines a Parking Authority should be established, the Authority could be a City "agency" or a public ornon-profit corporation with any number of financing options. As such, it is treated here as having separate investment responsibility. 101 Implementation Action Strategy' Table 11 IM NTATI CITY PLAN LI ~Y Pg~ ATE gESF4NS~ ~I'SAP P~~ WSD4T! SIT W SF TRAM DIST• A TIQN R ue ~° code to ct, incorporate mobile 1 Amend zoning es to each drstn HSF8 distrrct. Incorporate Chang d establish home r~Ommendations an rovisions Inc°Tporate PAR a°d bonus p Revise the TDR provisions rovisions the Affordable H®using P Amend uidelines for LIMP. ' ~ Develop design g to change Distract Boundaries 2 Amend zoning maards ction ~dmance 3 Amend road e~asibility of a Planned A ~. Determine th ropriate. and adopt, if aPP Ordina~e• S Amend ConcwTenc rails p ten S ~eTrarvConstruction 1 Ravine 2 waterfront Trail if necessary) Rpw Acquisition (~ Desig~COnstr"ction g, Trails (2 NI5, 2 ~) RpW Acquisition Desig~Construction 4. WSP Trail ~ neighborhood Parks Land Acquisition^rt -re,._. X X X X X X X X X' X ~ X rovements in area defined by Streetsca a Im ..-' ~ pe improvements W inslow W ay, Perncliff Ave. and High l , Concentrate stree Grow Ave., School Road. School Rd. onions of Hi h 2 Add arkin to aths as ~}ans ortatc°n an s stem °f sidewalks and Develo edestri L X X X X X X X X J~ ,Vi~~=w Miter Plan Plan ores as outlined in Plan aef! ~n ~n the of meas status of Ericksen Ave. Z, Install traffic contr 3 Conduct study on ~. Transit'UpO ehicles Provide ct bus stops Cona s es for non-fe'n`d p~~je~ensive $' Detve P 100 P~~°g S C Chapter 1~~2$ ~tDedreation) 6 ~ Amend,k Y an) a d~ apter 1230 (5~~ ~,~.,~--~-' 5idewa Rested Intersection Fe~Way~5R 305 ,,.,,,...---~".. Fe Traffic B ass X X X X X X X prim" X I x _I03- aster ...--- Winslow 5IBILITY R~S~_,,._...r Ni.onitoring Progran' chapter 11' planning Department M~NIT~ on a bi- ain constant and Lurid evelopment potential will be tracked Lp,NU AvA1LABILITY d with red ment potential shall rem be added to the 1 of vacant land and lan redevelop es ernes may of determining prop The supp Y• Methodology annual basis • • led will be tracked until their status c ang De artrnent parcels so ident~f planning p list. DE~LOPMENT DENSITY ~~OR AREA RA'-'IO (FAR9 Residential Commercial • Mixed use planning Dep~ment ~ Location BpNUS ~pVIS10N oPMEi`1T RIGHTS ~p,NSFERABLE DgVEL Area ~ Location of TDR Sending Cost erciallresidential ment . Ratio used Area and whether for comin Planning Depart ~ Location of Receiving ppFORDABLB HOUSING ~ Number of units created Size ~ Sale pricelrental cost . Type of project Location pUgLIC AMENITIES ~ payment amount ~ S9uare footage comrnercial ",~ - ME1 Building permit Information planning~uilding permit Information PlanningBuilding per-m~t Infornat1On Plannin~uilding permit Information ~rIG trusted with funds ~jpl~ItTp e residential to be cons Sq°~e footag enitiestfacilities _ The public am RES HISTORIC S'CR~C~ structures .Update inventory lots with Kist°nc ~ Develaprnent on Use. of bonus er dwelling unit ercial parkin rovided p ft• of comin Parks ng F rovided per 1,~ sq• created ~ Park g F ubtic parking spaces used • N on-ferry Public parking sFaces N HO Number of units . ~ Tyke pricelRental cost Sal en S aye/pucks Ge acquiredldeveloped a s Sq• ft. of open F • , devcloPrnen ' d of acquis1noni ~etho • COSt . Source o{funds ~ Location aths ictewatks/Pedestria P aestrian Paths construct S Sq, ft. of sidcw ~ Cost of funds ~ Source ~ Location Ma 21 1998 .. STB~L_--~ ~S~ Planning Depart meat Plan~ntw D p wlChainber of Te Coerce Planning Dep~ment• Planning Dept. parks District public works Deft' ~105~ ME+.- T--I'i0' ~gldg• Pennrt Info• Flannin Faking Counts g(guilding Fern'it Flannin Inforrr-ation FlanningPerm~t Information Six Year CIF Mo~~ Bic cte Facilities constructed ft. of bicycle f acilities Sq• ~ Cost ~ Source of funds ~ Location R ~S ~ d gemcliff Avenues SPEED OF vEHIC adison, Grow an ~ Ericksen, M alt W ays Winslow and Wy ~ h School Road Hid Y IN~RSECTtONS a ~ricksen A venue .OS w1InCSE1ow W a jMadison P' ~ W inslow W Y alt W ay Madison Avenue~Y 5choolRoad ~ Madison Avenue~Agenue Wya~WaylGrow •s Clubgd. ~ School Rd.I5Portsm~ High alt way ~ F~ch (WY LOS A~ ~y SR 305 IN'I'ERSEC~ONS I5R 305 ~ W inslow W ay d 15R 305 1 h School R ' roo~Y~SR 305 • H g AVe.~ew B ~ Madison AND pEDEgTRIAN cROSSING TIME LOS Winslow WaY1SR 30 public works Deft. public works Deft. public w orks Deft' ,b - W5DOTIWSF public works Deft. WSDpTiWSF public works Deft' six-gear CTP Traffic Study Traffic Study Traffic Study Traffic gtudy M, a 21 1998 .._--- MONITORING High School Rd./SR 305 Dri.nkin ~= ercial) • Additional hookups (residential and comet uality monitoring • Water quality and water q • Improvements to water system c,.ri~tary Sewer • Additional hookups orted, Average annual flow will be tracked and rep along with residential capacity. • Improvements to sewer system RE5PON5IBILITY Finance public Works Finance/Public Works Finance Dept. public Works Finance~blic Works Kitsap County Health District acked on a bi-annual basis for three discharges to Eagle and the foot of Madison. Sarface Water uali Water Quality will be tested and tr ese include the ferry ternunal, the ravine at Winslow WaY~ Harbor. Th ' during the peak periods and then prior to any additional Air call uality Ar ferry terminal, test air q improvements or service to establish a baseline. Ferry-Related access during peak hours Number of trips to/from local condo, ferry' rior to our, number of vehicles held outside of holding area 15 minutes p • During AM Pew h ferry loading. walk-on, SOV, of assengers, by type of passenger, in Pew hours using ferry: • Number P cle, HOV, freight, bicy WSF WSF WSF WSF M.E~THOD Billing records Monthly well testing Six Year C~ Billing Records Annual DischRe ort to DOH Monitoring P Six Year CIP Testing Testing Traffic Study Traffic Study Origin/destination study -107- ~S?~NS~'ILITY Winslow Master Plan WSF s ortation to ~Ve at ferry terminal: '~+IONITORING carious modes of trap p iNSF Number of passengers using ~ pedestrian, bicycle, transit, auto ~ Origin/destination of ferry passengers nation study ~rig~destination study ,8 Winslow Master Plan May 21 1998 CHAPTER 12 IMPACTS AND MITIGATION A draft Master Plan/Draft Environmental Impact Statement (DEIS) was issued by the City on January 31, 1997. After public comments, the Plan was revised and a final draft Master Plan/Final Environmental Impact Statement (FEIS) was issued on December 10, 1997. These documents assessed the impacts and identified mitigation measures for three alternatives: the No Action, the Preferred Sanctuary Alternative and the Dispersed Alternative. After additional opportunity for public comment and further analysis by the City Council, a final version of the Preferred Alternative was approved. For ease of reference, the portion of the FEIS related to the Preferred Sanctuary Alternative (the final Master Plan) is contained in this Chapter. For the complete Environmental Impact Statement, see the December 10, 1997 Master Plan/FEIS. ASSUMPTIONS Certain assumptions were made in order to evaluate the alternatives. Land Use Fifty percent of the Island's population growth through the year 2012 (approximately 3,715 people) is targeted for the Winslow Study Area. The Master Plan anticipates approximately 1,500 new dwelling units to accommodate the new population. Of that, 40-50% is projected to occur in the Mixed Use Town Center and High School Road Districts. An average of approximately 10,000 square feet of office and 16,000 square feet of retail space will be constructed each year for a total of 160,000 square feet of office and 330,000 square feet of retail by the year 2012. Open Space The Primary Study Area requires approximately 3 acres of new neighborhood-oriented parks to serve the existing and projected future population that will live, work and shop in Winslow. Transportation Roadway Improvements --The construction of a right turn westbound lane for traffic onto SR 305 at the intersection of Winslow Way would be completed. Ferncliff Avenue from Winslow Way to High School Road would have sidewalk and bicycle lanes. These improvements are included in the analysis of all alternatives. Growth in Traffic -- Below is a summary of the assumptions and analysis of the growth in traffic used to develop the Master Plan. For a more detailed description of the assumptions and analysis, see the Winslow Sub Area Transportation Study, Transportation Appendix B. 109 ~nsl®-v Master d'dan Mav 2d d 99~ Trip Generation Growth in Traffic -Changes in land use dictate the number of new cars that will be placed on Winslow area roadways. A total of approximately 1,500 new dwelling units and 439,000 s.f. of new commercial space was assumed. Table 12shows the growth in p.m. peak hour auto trips by zone in Year 2012, due to increases in residential growth. Table 12 TRAFFIC GROWTH Auto Tri s Work Trips Non-Work Trips Work/Non-work Tri s Pedestrian/Transit Tri s Zone* Residential Units Inbound Outbound Inbound Outbound Total Inbound Outbound A 200 47 24 7 7 86 18 6 B 200 32 17 10 10 68 31 lI C 120 12 6 4 4 27 27 12 D 380 20 10 14 14 58 104 47 E 40 1 1 0 0 3 13 6 F 230 2 1 3 3 9 78 39 G 125 7 3 8 8 25 31 12 H 160 26 13 8 8 55 25 9 I 40 5 3 3 3 14 6 2 Total 1495 153 79 57 57 345 333 144 *See Figure 13 for location of these zones. The location of the zone affects the number of work or non-work trips made by automobile or made by foot, bicycle or transit. For example, a zone near the ferry terminal would likely have more pedestrian trips than a more remote zone. The percentage of trips made by foot was based on studies by Fruin (1971) and Bowman, Fruin and Zegeer (1989). To be conservative, no further reductions in pedestrian trips were assumed with the introduction of the Winslow circulating bus. Retail /Office Trips --Retail trips were also estimated by retail zone. The number of trips is based on the trip generation rates established by the Institute for Transportation Engineers (TI`E) Trip Generation Rates for specialty retail (TI`E Land Use 814). As per ITE specifications, a 45% passby adjustment was made, to reflect that existing trips to the area may also access the future retail constructed in the area. The generation rate used for retail is equivalent to approximately 2.68 trips per 1,000 sf of office space. 110 Winslow Master Plan Mav 2I I998 Table 13 RETAIL (OFFICE) TRAFFIC GROWTH ETAIL (Office) P ROJECTIONS Zone* s.f. (thousands) ITE PM Peak w/passby adj** In Out Internal External V 100 493 271 130 141 41 230 W 82 404 222 107 116 12 210 X 147 725 399 191 207 40 359 Y 40 197 108 52 56 12 96 Z 70 345 190 91 99 9 181. Total 439 2164 1190 571 619 114 1077 Note: Specialty Retail (ITE Land Use 814); *See Figure 13 for location of these zones. **Equivalent to 2.68 trips per 1,000 sf of office space. A total of 1,190 new p.m. peak hour trips were assumed to be added to the Winslow system. Of these, 114 were assumed to be new internal (within Winslow) auto trips, while the remainder were assumed to be from persons not living within Winslow (area retail serves all of Bainbridge Island). Traffic Assignment Model A peak hour model was developed to assess the impacts of the changes in land use. The model was used to assign new traffic, as projected in the trip generation estimate, to area roads. The spreadsheet-based model assigned future traffic based on existing turning movements, traffic volumes and travel patterns. The No Action, Sanctuary and Dispersed alternatives were modeled as described below: No Action -- Growth in traffic followed existing patterns, with increases in both internal and through trips (trips that travel through Winslow without stopping) based on increases in land use. Sanctuary Alternative.-- Through trips were reassigned to SR-305 to show the effects of the bypass route. Dispersed Alternative -- Trips were redistributed to the new intersection on SR-305, .assumed to be located at Knechtel Way. Through trips were reassigned on SR-305 bypass route. Ericksen Avenue was changed to a southbound one-way street south of Wyatt Way. Figures 2 through 5 of the Transportation Appendix B show the total turning movement counts for existing conditions and each alternative. 1.11 Winslow Master Plan May 21 1998 Figure 28 Auto Trips by Residential Zoning During P.M. Peak Hours .~~I ~ ?~ B -o c a Rd .~ U 55 H `~ s q 86 :, I ~n~! ~; f ''€a Ht~_*h S~huc~l Rol ... B > ~ fib ~ -~~~~ -v ' 3 58 w ~ ~; ~ D ~ xki?k~L?F ..:~»::'x''vf1~ai.'$..~. '3 Fs:•.'x ... fw3:~. .. € ti~' }' <SfT ~' ~i}' ~~ ~~ ~ K ~~~ ~i:~r.~.2s31 \~~. ~Vi~i,l~~~'a}' Eagle ~ OHO' ~d~ , ~!!~ d <, -- G 25 `~ ~' ~'•_ 9 _~~~#~>. ~~~ s 9G Legend ~~ -Auto Trips I3yrt>n~ I)r ~ "... 5 `~t1~:rlt r ~ ~ .... 14 ~' Ci ; ~~"inx Prnnt 1~ ay fT~ i~ ~ '1'~ i'C a ;~ yi ~'~ ,i^ ~~ y 112 Winslow Master Plan May 2l 1998 Figure 29 Auto Trips By Retail Zone During P.M. Peak Hours 113 Winslow Master Plan May 2l 1998 EVALUATION CRITERIA AND ANALYSIS Evaluation Criteria are the standards by which alternatives are evaluated. Each criterion is defined below and the acceptable standard is described. Roadway LOS The City of Bainbridge Island's 1994 Comprehensive Plan defines the roadway level of service (LOS) as a comparison of the roadway volume (the number of vehicles) during the p.m. peak hour to the capacity of the roadway (number of vehicles a road can carry). Level of Service E or better is considered to be acceptable for the Primary Study area of Winslow. See Appendix B for the volume/capacity ranges. Intersection LOS Intersection operating conditions were evaluated using the Highway Capacity Manual, Third Edition, updated 1994, and the 1995 Highway Capacity Software, for signalized and unsignalized intersections. The intersection and operating conditions are indicated by an LOS letter designation. LOS provides a measure of delay ranging from LOS A (free flowing, minimal delay) to LOS F (extreme congestion, long delays). For signalized intersections, average time of stop delay is estimated. For unsignalized intersections, total delay is estimated. The acceptable LOS established in the Transportation Element of the Comprehensive Plan is assumed. Additional information on LOS is provided in the Transportation Appendix B. IMPACTS Much of the Master Plan is a refinement and/or implementation of the Comprehensive Plan goals and policies for Winslow. Land Use District Boundary Shifts The shift in the Core District on the west side of lower Madison Avenue recognizes the existing uses (high density residential) and the need for continuity of development potential of this area. The boundary shift would bring these properties under the development regulations that apply to adjacent properties in the Central Core and thereby promote continuity of the streetscape. (This area includes approximately. 1.15 acres that were added to the Central Core as part of Ordinance 96-04, Technical Corrections to the Land Use Map of the Comprehensive Plan.) Because of existing development, these properties were not considered as having significant redevelopment potential during the 20 year Master Plan horizon or any associated impacts resulting from this change. Another boundary change in the Core District removes approximately 2.15 acres from the Gateway District along Winslow Way. Development intensity in the Core District is greater than what has been allowed in the Gateway District. Those properties affected by sensitive area overlays (e.g., "The Ravine") would still need to meet all applicable development regulations, however. The net change in development potential is approximately 46,000 square feet of development The proposed boundary change to the Gateway District adds the John Nelson Park site to the District. The site is currently included in the Semi Urban Residential District. The park site is designated as a park in the Master Plan. There would be no impact resulting from this change. 114 d6'insloev h2aster Pdan May 21 1995 The proposed boundary change in the Madison District adds approximately 4.5 acres of land currently outside the MUTC to the Madison District. The boundary change is proposed to bring these properties under the development regulations applying to adjacent properties on Madison Avenue and thereby promote continuity of the streetscape. The affected properties are currently developed as a church and public library. The net change in underlying development potential is approximately 160,000 square feet of commercial and 80,000 s.f. of residential. However, because of existing development, these properties were not considered as having redevelopment potential during the 20 year Master Plan horizon or any associated impacts resulting from this change. USFS Designation The proposal to change the zoning of approximately 27 acres along Ferncliff Avenue from Urban Residential to Urban Single Family (with a density of up to eight units per acres) results in a density increase of approximately 110 units. Traffic generated by this density of development was included in the modeling analysis of major roads in Winslow. No street dropped below LOS E in that analysis, with the pedestrian and transit use assumed in the Winslow Sub Area Transportation Plan, Appendix B, and the transportation improvements in the Transportation Sections. The character of development under USF8 zoning will be similar to that of UR zones, but of a higher density. All development would be single-family houses. Establish a Uniform Base FAR and Maximum FAR for Each District Under the 1994 Comprehensive Plan, the base density for each property within a dist_ri_ct is the existing zoning. (For example, within the Madison Avenue District, some properties have a base density of R8 and others a base density of R14, depending on what the existing zoning for each property was at the time the Comprehensive Plan was adopted.) The maximum density within the Mixed Used Town Center (except- on Ericksen Avenue south of Wyatt Way) is R28 (approximately equivalent to .8 FAR). Residential development within the two High School Road Districts is designated as R8, with no bonus other than the affordable housing provisions. Commercial development in each district was limited only by the applicable development standards (height, setbacks, parking requirements). The Gateway District and Ferry Terminal Districts do not have an existing base density. Any residential development requires the use of the bonus density provisions (an inadvertent result of the Comprehensive Plan policies). The Master Plan changes the method of calculating allowable buildable area for residential and commercial development to Floor Area Ratio (FAR). Previously, residential development was calculated by dwelling units per acre and commercial development was limited by the applicable development standards. The change to FAR from traditional .dwelling units per acre zoning should not significantly affect the overall projected dwelling units in the Primary Study Area over the planning horizon (600-750 dwelling units, which constitutes 40-50% of the approximate total of 1500 dwelling units targeted for the Winslow Study Area). While the method of calculating the allowable dwelling units for individual lots changes and has a theoretical potential to result in increased density, factors such as market demand, property owner choice, size of lots and development regulations would likely limit significant skewing of 115 Winslow Master Plan May 2l 1998 density. Under land use recommendations in the Comprehensive Plan, the theoretical buildout6 of Winslow is estimated at 3,200,000 square feet. By comparison, utilizing FAR provisions, _ development is estimated to be 3,300,000 square feet. Part of this increase would be felt in parts of the Madison Avenue, Ericksen Avenue and Ferry Terminal Districts where the existing base densities would be raised by the change to FAR. The Ordinance which implemented the Comprehensive Plan does contain a base and maximum commercial FAR for each district. The Master Plan retains the existing maximum FAR for each District, except High School Road District, for which the maximum FAR for mixed use projects has been increased from .6 to 1.0 FAR. The Master Plan proposes that all properties within the Gateway District be designated for a base .5 FAR for residential or mixed use development, with allowable bonuses up to 1.0 FAR. In addition, the Plan establishes a base .15 FAR for commercial development and provides for the use of the bonus provisions to increase to .3 FAR for commercial use. Properties within the Gateway will likely not achieve the full FAR due to environmental constraints. The Master Plan proposes that all properties within the Ferry Terminal District be designated for a .4 base FAR, with allowable bonuses up to 1.5 FAR, if existing surface commuter parking is placed under the building. If ferry-related parking is located underbuilding, than an additional 150 non-commuter ferry parking spaces could be included in the parking structure. The proposed land use designation would have an equivalent of approximately 8-20 units per acre using the base FAR and up to 50-60 units per acre with the bonus FAR, including locating existing commuter parking underbuilding. Retail use is limited to the area along Winslow Way, with no single use more than 2,500 sq. ft. This limitation is intended to retain and vitalize the retail core west of Winslow Way and to minimize the impact of development on the. roads. Retail in the Ferry Terminal District should complement the Core area retail. Office use is limited in order to minimize the impact of development on the roads and to encourage residential development. The character change of the greater terminal area would be significant when compared to the existing surface parking lots and undeveloped lands that currently dominate the Ferry Terminal District. Views that currently exist across the parking lots could be lost unless provided for in site plan review. Establishing a uniform base FAR for residential development for each District that is generally higher than the current base density and increasing the maximum FAR achievable through the Optional Bonus provisions in the Comprehensive Plan will likely result in a loss in potential use of TDRs, affordable housing and other bonus provisions that would have been required by the Comprehensive Plan. However, without the changes allowed by the Master Plan, development in the Primary Study Area might have occurred at the existing base density, without using the bonus provisions. This would. result in an increase in the likelihood that Winslow would not achieve the targeted 40-50% of the overall Island growth during the planning horizon. The impact on development potential resulting from the change to FAR has been modeled as part of the overall impact of development allowed under the Master Plan. 6 All properties developed to then highest potential allowed under current zoning. 116 ~i'inslow Master Plan May 21 199 Changes to TDR Provisions The TDR program would be expanded to allow an increase in commercial development using TDRs. For an additional three years, only agricultural land would be eligible as TDR Sending Areas. The Optional Bonus provision would increase the value of a TDR from agricultural land by allowing one development right for agricultural land to transfer as five development rights in the TDR Receiving Areas, if the owner of the agricultural land places an easement on the property that requires that the property remain available for agricultural use. The change to the Option Bonus provision and the ability to use TDRs to develop commercial uses in the MUTC and HSRD Districts should increase the likelihood that TDRs for agricultural land will be used. The increase in the Optional Bonus provisions will likely increase the use of TDRs by owners of agricultural land, but will also mean that fewer acres of agricultural land are preserved for each development right used in the Receiving Areas. (For example, if 1 development right in Sending Area equals 1 development right used in the Receiving Area, 10 development rights used in the Receiving Area would. preserve 25 acres of undeveloped agricultural property zoned R0.4. If 1 development right in the Sending Area equals 5 development rights in the Receiving Area (using the Optional Bonus provision) then 10 development rights used in the Receiving Area would preserve only 5 acres.) Change to Other Bonus Provisions Historic Structures A propei~y with a stLUc~ure included in a iocai, state or federal register of historic resources is eligible for a development bonus for preserving the historic resource on-site. This provision of the Plan provides an incentive for preserving an historic structure. Ericksen Avenue Overlay District The Comprehensive Plan did not apply the bonus provisions to the section of Ericksen Avenue south of Wyatt Way due to the historic resources located in that section. The exclusion from the bonus only applied to residential development, not commercial development. The Master Plan would apply the bonus provisions to this portion of Ericksen Avenue. The application of the bonus provisions may be offset by the new bonus for preserving historic structures. Housing Mobile Home Park The Master Plan establishes two mechanisms to preserve the Mobile Home Park located in the Central Core District: (1) the unused development potential from the parcel on which the pazk is located may be transferred to another pazcel within the MUTC and (2) a mechanism would be established to allow permanent preservation of the mobile homes to be used as an affordable housing bonus on another pazcel within the MUTC. The development potential of the Mobile Home Pazk site would be limited and transferred to another site. Preserving the Mobile Home Pazk as affordable units would be part of the bonus provision for the receiving pazcel, instead of purchasing TDRs, contributing money for public amenities/infrastructure or constructing affordable units on site. The overall development potential for the MUTC would remain the same. No adverse impacts aze expected from the two mechanisms. 117 Winslow Master Plan May 2l I998 Parks and Open Space Park Sites Several park sites ranging from pocket parks of approximately 10,000 square feet to larger parks of approximately 1 acre would be sited within Winslow. Each site would be programmed for passive daytime use. Park users are expected to come from adjacent neighborhoods. While specific sites have not been chosen, undeveloped land of suitable characteristics would be sought. If adequate undeveloped property is not found, negotiations could be undertaken with willing sellers of developed properties. No significant impacts have been identified with the concept of developing three passive parks within Winslow. East-West Trail This pedestrian trail would align with Knechtel Avenue and extend from Ericksen Avenue to Ferncliff Road. It would require a pedestrian overpass of SR 305. Right-of-way purchase would be required to traverse from Ferncliff Road to John Nelson Park. Up to 300 feet of the trail would need to cross "The Ravine," which is a designated environmentally sensitive area. Construction could cause displacement of habitat and be otherwise disruptive to wildlife. Steep slopes could also be impacted and would require erosion protection during and after construction. Afoot bridge could be constructed that reduces impact on the ravine side slopes. North-South and East-West Trails Completion of north-south and east-west trails could require potential acquisition of easements and/or development trade-offs. The trails would not reduce the amount of development that could occur on the affected properties. Waterfront Trail Completion of the Waterfront Trail to the vicinity of the Pub requires addition of a missing section from Waterfront Park to the foot of Madison Avenue. The preferred route to complete the trail has already been identified as part of a previously approved project along Shannon Drive. (See Figure 11.) Part of. the trail would require a bridge. The proposed alternative route would require obtaining easements from commercial properties fronting on lower Madison Avenue south of Bjune Drive. Part of the trail may require use of a boardwalk supported by piles where inadequate uplands exist. The trail would not reduce the amount of development that could occur on those abutting properties but would displace and impact up to 5,000 square feet of riparian habitat. Impacts and mitigation will be addressed as part of the permit ,approval process for completion of the trail. Streetscapes Gateways that act as entryways into Winslow would be located at (1) Wyatt Way and approximately Weaver Road, (2) High School Road and Sportsman's Club Road, (3) Madison Avenue and approximately New Brooklyn Road and (4) Ferncliff Road and approximately High School Road. These gateways would feature pavement texture changes, special landscape features and could also include public artwork. The improvements would provide visual clues to motorists to slow down because they are entering apedestrian-oriented area. The Gateways act to enhance the pedestrian experience in Winslow and to reduce the impact of increased vehicular traffic into Winslow. No adverse impacts are anticipated from these improvements. 1lR i3'inslow Master Plan May 21 1998 Transportation Roadway and Intersection LOS Level of Service for the major street segments and intersections under the Sanctuary Plan are shown in Tables 14 and Table 15 and travel time comparisons are shown in Table 16. Under the original Sanctuary Alternative, all roadway segments would not exceed LOS D, except for SR 305, between Madison Avenue and High School Road which would operate at LOS E. This section would operate at LOS E due in part to the proposed grade separation of SR 305 at Winslow Way. Ferry related vehicular traffic would no longer wait south of the signal at Winslow Way/SR 305, but would proceed through the intersection. Without grade separation of SR 305 at Winslow Way, this road segment would likely operate at a higher LOS. (See Intersection LOS discussion below.) Table 14 ROADWAY LOS Roadway Segment Existing No Sanctuary Action Madison Road between: High School/Wyatt D D D WyatdWinslow D F D High School Road between: Madison/Sportsman Club B B B Madison/SR 305 D E D SR 305/Ferncliff B D B Wyaee Way, west of Madison B D B Winslow Way between: Madison/Ericksen D E D Ericksen/SR 305 D D D SR 305/Ferncliff B D D Ferncliff Road between: Winslow/Wing Point A B B Sportsman Club between: New Brooklyn/High School A A A High SchooUFinch A A A Ericksen Ave. between: Winslow/Wyatt B B B SR 305 between: Madison and High School Road D D E High School/Winslow Way B D D Intersection LOS Table 15 shows the LOS at each of the study intersections. High School Road/SR 305 *The LOS for the intersection of High- School Road/SR 305 results from the volume of traffic moving eastbound on High School Road and turning left onto SR 305 exceeding the capacity of the intersection by 120%. To meet the projected volumes traveling eastbound and maintain LOS E, the eastbound approach of High School Road was modified by allowing left turns from either the left turn or through lanes onto SR 305 and by revising the signal timing. 119 Winslow Master Plan May 21 1998 Table 15 INTERSECTION LOS Intersections with either Signals or Stop Signs Existing Alt. 1 No Action Alt. 2 Sanctuary SR 305/High Schoot Road D */F */B SR 305/Madison Ave. A F E SR 305/Winslow Way E F **E-FB Madison Avenue/Winslow Way B F E Sportsman Club/High Schoot Road A A C Winslow Way/Ferncliff Road A A B Ericksen/ Winslow Way A A C Madison Ave./Wyatt Way C F E High School Road/Madison Ave. C F E Winslow Way/SR 305 Intersection **The initial analysis for the Sanctuary Alternative was based on the proposal for a full grade separation of SR 305 at the Winslow Way Intersection. With full grade separation, the intersection would operate at a LOS B. The Sanctuary Alternative has been revised. The Alternative is essentially the No Action Alternative, with modification as a result of adjusting the signal timing- of the intersection signal to address future needs, which include: (1) accommodating WSF's need to achieve a 35 minute headway for the ferries which requires a complete exiting of vehicles within 6 minutes of docking, (2) growth in Winslow, (3) transit and bicycle riders and (4) pedestrian use of the intersection. The existing intersection LOS is LOS E. Under the No Action Alternative, it is projected to operate at LOS F over the life of the Master Plan. The revised recommendation for the Sanctuary Alternative has not been separately modeled. It is likely that with adjustment of the signal timing, the pedestrian and vehicular LOS could be degraded as a result of the competing needs for east-west vehicular crossing, asix-minute ferry exiting for vehicles, and maintaining adequate pedestrian crossing time. If the Winslow Way/SR 305 intersection operates at LOS F, this could affect the operation of other intersections within Winslow. The Master Plan also allows for the widening of the south side of Olympic Way to approximately 78 feet in width in order to provide transit and bicycle lanes. A portion of the existing City Hall site might be utilized to expand the intersection. _ WSF could utilize holding lanes for exiting vehicles and release them through the intersection, so long as the holding area does not expand the right-of--way south of Harborview Drive or degrade the vehicular access for properties along Olympic Drive. This could minimize the degradation of the intersection since the release of vehicles into the intersection would be controlled. Depending on the location and extent of exit holding, it could result in providing additional impervious surfaces and removal of existing structures on the north side of Olympic Drive. The impact on the redevelopment of the properties along Olympic Way will depend on the location of the new development and the location of exit ,holding. Idling vehicles would increase air 120 6dinsdow Master Pdan Mav 2l I998 emissions on those properties. Some potential impacts are identified in Table 17, Washington State Ferry Identification of Potential Impacts and Mitigation Measures and will be developed further in a supplemental EIS or other appropriate SEPA review that identifies the impacts and mitigation of the project, at such time as Washington State Ferries is ready to proceed with this project. The northbound "cut and cover" grade separation of SR 305 for through vehicles would be considered as an alternative means of achieving the objectives of the Plan, including LOS. The northbound grade separation would result in improving the intersection LOS for vehicles and pedestrian crossing time, although it may not be to the extent achieved with the full grade separation of SR 305. The northbound grade separation would be built to eliminate some of the conflicting movements of local and ferry traffic and would allow north-bound ferry traffic to avoid the intersection altogether. The "cut and cover" underpass would require excavation to place the outbound lanes below Winslow Way. Depending on grades used to approach and depart the underpass, the excavation to the north could extend 800-1000 feet and add 2% to the existing grade. No environmentally sensitive areas would be disturbed. Any environmental impacts would be addressed as part of permit approval for the project. No new right-of-way would be required that is not already owned by WSDOT or the City. No restrictions would be placed on vehicles waiting to turn left or right on Winslow Way. Northbound grades north of Winslow Way may cause heavier vehicles, including transit, to lose speed, but not to the point that they could not maintain the speed limit in this section. If such vehicles were in front of exiting ferry traffic, it could cause a delay in ferry unloading and impact the 35 minute headway goal. Vehicles exiting from kiss and ride and commuter parking would need to wait until off-loading ferry vehicles and transit had cleared the exit. This could result in delays of up to 5 minutes. The north bound grade separation does remove vehicles from SR 305/Winslow Way intersection. The impact at SR 305/High School Road, SR 305/Winery-John Nelson Park and at other intersections of SR 305 would need to be addressed prior to approval of the project. SEE IMPACTS FOR THIItD FERRY UNDER WASHINGTON STATE FERRY RELATED SECTION. 121 Winslow Master Plan May 21 1998 Travel Time Table 16 shows travel times for the study scenarios. As traffics levels increase within Winslow, travel times increase on the Winslow Way/Madison Avenue/Wyatt Way route and the High School Road/Sportsman Club Road/Finch Road route. The Sanctuary alternative includes the bypass route and traffic calming measures within Winslow which achieve the desired result of slowing vehicular travel speed. Table 16 TRAVEL TIME Travel Time (in minutes) to Finch Existing No Sanctuary Road/ Action Wyatt from Winslow Way/SR 305 via: SR 305/High School Rd/Sportsman 5.7 7.9 7.2 Club/Finch Winslow Way/Madison Ave./Wyatt 3.4 7.6 5.7 Way SR 305/Madison Ave./New Brooklyn/ 6.2 S.S 5.5 Sportsman Club/Finch (Bypass) Shortest Route 3.4 7.6 5.5 Transportation Facilities Commuter By-Pass The commuter by-pass will add approximately 290 p.m. peak hour trips to the Sportsman Club Road/New Brooklyn Road corridor. This would not affect the LOS for these roads, which would remain at LOS A. The increase in traffic could present a safety problem at Woodward Middle School in the northwest quadrant of Sportsman Club Road and New Brooklyn Road. However, the bypass would essentially operate during the p.m. peak hours of traffic that generally do not coincide with school or park activities. Peak hour volumes will also increase at the intersection of New Brooklyn/Madison Avenue with SR 305. This increase will be handled by a signalized intersection and left turn pockets on SR 305. The addition of these elements will improve safety at this intersection, which currently operates without the benefit of a signal or left turn pockets and has the highest accident rate of any intersection in the study area. The Fire District has expressed concern about potential traffic congestion in front of the Fire Station on Madison Avenue adversely impacting emergency response time. The by-pass utilizes the existing Madison Avenue/SR 305 intersection. Other than relatively minor adjustments at intersections along this corridor no widening or re-alignment of affected roads would be necessary. Ericksen Avenue Currently, no actual connection between Ericksen Avenue and Hildebrand Lane exists. An informal connection exists through the parking lot of the North Sound Bank Building. This informal connection is used as a connection from Ericksen Avenue to Hildebrand Lane. Opening Ericksen Avenue as part of the Sanctuary Alternative was not separately modeled. For the model, new traffic was assigned to the Winslow Way-Madison comdor to supply a "worst 122 WWins[ow Master Plan Mav 21 1998 case" analysis of traffic growth. However, roadway volume and turning counts were collected at a variety of locations within the Winslow Study Area, including counts for northbound and southbound traffic on Ericksen Avenue. (See Appendix E.). The existing LOS for Ericksen Avenue is LOS B and for Madison Avenue it s LOS D. Based on the counts at Madison Avenue/Wyatt Way and Winslow Way/Ericksen Avenue, there is a likely distribution of approximately 62 trips traveling southbound and 72 trips northbound during a PM peak hour traveling along Ericksen Avenue north of Wyatt Way. Opening Ericksen Avenue will increase the traffic volume on Ericksen Avenue and at the High School Rd./SR 305 intersection. The character of the street could be altered. New City Hall Road (Access) The alignment for the new (road) access would occur on property acquired for the new City Hall or otherwise already in City ownership and would not require any additional displacements. As currently envisioned, traffic can enter and exit on Madison Avenue and exit only to Ericksen Avenue. This is intended to keep Ericksen Avenue .from being utilized for access to City Hall and to provide access to the public parking associated with the .new road. The new trips generated by the City Hall function and public parking do not cause Madison Avenue or Ericksen Avenue to. exceed LOS E. The addition of this road (access) could affect circulation patterns on Madison Avenue and Ericksen Avenue. Transit Loop Transit loop buses will add eight p.m. peak hour trips to Winslow Way, Madison Avenue, High School Road a:.d Ferncliff Avenue. These trips are offset by the prospect that some transit ciders on this route would not use their private vehicles for trips within the transit loop service area. None of the affected streets would operate at less than LOS E. Bus stop shelters may be added to this route in the future. Impacts associated with shelter locations would- need to be assessed at the time a commitment is made to add them as part of the service. Streetscape To define the pedestrian-oriented character of Winslow, the Plan establishes design standards for roads within the Study Area. These standards will help create an environment more supportive of walking, biking and the use of transit and de-emphasize free-flowing automobile circulation and provide for on-street parking for portions of High School Road. Improvements would initially be concentrated in the area defined by Grow Avenue, Winslow Way, Ferncliff Avenue and High School Road. The design standards do not affect the LOS. Some constnaction impacts will result from these improvements. These impacts can be addressed at the specific project proposal level. No major impacts are anticipated from the streetscape improvements. The Roadway and Intersection LOS assumes pedestrian and transit trips for residential and commercial development and a percentage of passby trips for retail uses. See Assumptions section of this Chapter and Transportation Appendix B for a more detailed discussion. Traffic Calming A number of traffic design features are proposed to increase pedestrian and bicycle use and to reduce auto speeds within Winslow. These include roadway design changes, such as narrowing 123 Winslow Master Plan May 21 1998 travel lanes, installation of all-way stops or roundabouts, sidewalks, crosswalks, additional street trees and bicycle lanes on designated streets. These changes are intended to increase pedestrian activity and bicycle use and to reduce the impact of vehicular traffic to and within Winslow and should not result in adverse impacts. The Fire District has expressed concern about potential impact of traffic calming measures on emergency response time. No additional traffic signals are planned. Traffic controls, such as stops signs or roadabouts would be located at • Ericksen Avenue/Winslow Way • Grow Avenue/Winslow Way • Ericksen Avenue/Wyatt Way • Ferncliff Avenue/Winslow Way • Wing Point Way/Ferncliff There would also be installation of crosswalks at • Madison and Ihland, Wallace Way, mid-block between Wyatt and Winslow Way • Grow Avenue between Winslow Way and Wyatt Way • Ericksen Avenue at Wallace Way • Two' on High School Road between Madison Avenue and SR 305 and one on High School Road between SR 305 and Ferncliff Avenue. Pedestrian Circulation An extensive pedestrian system of sidewalks and paths would be developed in the primary area with key linkages into the secondary study area to create a more pedestrian-oriented community where people are more likely to walk. (See Figures 10 and 21.) Bicycle Circulation A basic bicycle circulation system is incorporated into the roadway network to .service both commuters and recreation needs as shown on Figure 21 No significant impacts are expected from the proposed traffic calming design features or enhanced pedestrian and bicycle circulation proposals. These changes are intended to increase pedestrian activity and bicycle use and to reduce the impact of vehicular traffic to and within Winslow and should not result in adverse impacts. The Fire District has expressed concern about potential impact of traffic calming measures on emergency vehicles. Short Term Non-Ferry Parking With this alternative, 3-4 surface parking lots of approximately 20 cars each would be developed in the Core area (or a combination of several smaller parking lots), with a larger structured parking facility developed on the new City Hall site. Each of the surface lots would be approximately'h acre in size and would be located within 200 feet of Winslow Way. Parking is a permitted use on each of the optional sites under consideration and each site is adjacent to existing commercial uses. No significant adverse impacts have been identified with the sites under consideration. These sites would have to be monitored to assure that they are not utilized for ferry-related commuter parking. Construction impacts, if any, would be addressed as part of the permit process. If a larger parking facility is developed on the new City Hall site, any impacts and mitigation from the development of that structure would be determined as part of the permit process. 12~} i~i'inslow Master Plan Slav 21 1998 MITIGATION Land Use District Boundary Shifts Since the impact of District Boundary Shifts on development potential has been modeled as part of the overall impact of development allowed under the Master Plan, new development would be subject to mitigation fees for street improvements and improvements to increase pedestrian and bicycle use, such as sidewalks, trails, traffic calming measures, bicycle facilities, and for open space and special projects based on square footage of proposed development. See "Mitigation Options" under the Sanctuary Plan Alternative for specifics on mitigation for new development. The District Boundary Shifts otherwise do not change designation or protection of any environmentally sensitive areas, nor do they introduce new land uses into the Mixed-Use Town Center. Establish a Uniform Base FAR for each District and a Base Density Gateway Overlay District and Ferry Terminal Overlay District . The loss of the use or the affordable housing bonus provision could be offset in part by the use of FARs which promote a variety of housing types, including small, more affordable units. The loss of the use of the other bonus provisions could also be offset by an increase in the use of the bonus provisions as a result of the changes to the provisions contained in the Master Plan, such as allowing the use of the bonus provisions for commercial as well as residential development, and the specific changes to the TDR program to increase its viability. By establishing a base residential FAR in the Gateway District that is higher than the base commercial FAR, the likelihood that residential development would occur in the Gateway District increases. This will help further the goal of achieving 40-50% of the total Winslow allocation of future population to the MUTC. Also, properties in the Gateway District have access constraints due to location adjacent to SR 305 and the intersection of SR 305/Winslow Way. Residential uses would likely generate less traffic than commercial uses. The Master Plan allows for the transfer of development rights from the critical areas in the MUTC (such as the Ravine located in the Gateway District) to properties elsewhere within the District as a means of minimizing the impact of development on critical areas within the MUTC. In the Ferry Terminal District, the trade-offs to the loss of the potential use of the bonus provisions arc a significantly higher tax base, and_the accommodation of a substa~itial partiun of Winslow's targeted growth in an area that has immediate ferry access and is within walking distance of the retail center. , An additional trade-off is the furtherance. of the goal of the Comprehensive Plan to convert acres of surface parking to a new neighborhood that serves as a new entry point into the downtown, with underbuilding parking. Ten percent of new development is required to provide landscaped or naturally vegetated open space. The impact on development potential resulting from establishing a base and maximum FAR has been modeled as part of the overall impact of development allowed under the Master Plan. Projected growth in the Primary Study Area did not cause Level of Service to drop below LOS E, assuming (1) the projected level of development and pedestrian and transit trips contained in the Traffic Analysis set out in Tables 12 and 13 and Figures 28 and 29, and (2) the transportation 125 Winslow Master Plan May 21 1998 improvements identified in the Transportation Sections. The level of development and roadway and intersection LOS should be monitored as required in the Monitoring Chapter of the Master Plan. As such, development could be subject to mitigation fees for street improvements and improvements to increase pedestrian and bicycle use, such as sidewalks, trails, traffic calming measures, bicycle facilities, and for parks and open space and special projects. [The proposed mitigation fee system would be based on the number of new dwelling units and on square footage of proposed development (e.g., every 300 square foot increment of commercial development) and assessed as a percentage of the total cost associated with new development in the Six-Year Capital Facilities Program.] To the extent that the impacts and mitigation for future development have been identified in the Winslow Master Plan or implementing regulations and development are consistent with the goals of the Plan, the City should pursue streamlining the SEPA process, including utilizing planned actions, where appropriate. The streamlined process should focus primarily on the Primary Study Area. Change to Bonus Provisions in the MUTC to Apply to Ericksen Avenue South of Wyatt Way The Plan does allow the Bonus Provisions to apply to properties within the Ericksen Avenue District south of Wyatt Way. An incentive for retaining historic structures has been added to the bonus provisions. An FAR bonus would be created for preserving an historic structure on site. The Master Plan also requires the review of the existing development standards and design guidelines to ensure that the application of the bonus provision to lower Ericksen Avenue will be compatible with the historic structures and existing scale of development. Parks and Open Space East-West Trail Ravine Footbridge A footbridge of up to 300 feet in length could be constructed on the East-West Trail to avoid any significant impact on ravine slopes or vegetation. North-South and East=West Trails Use of landscaping or fencing and flexibility in placement of the trails could minimize the impact of a trail on adjacent properties where appropriate. Waterfront Trail To complete the trail, the mitigation measures identified during the permit approval process would be required. If the Waterfront trail is completed using the alternative route, the City could provide enhancements to riparian habitat along Eagle Harbor either at the mouth of the Ravine or further inland from the foot of Madison Avenue. 126 6Vinsdow Master Plan Mav 2l 1998 Transportation Roadway and Intersection LOS Winslow Way/SR 305 Intersection The Master Plan requires that • The design and function of the intersection should help create a "gateway" into Winslow and provide a pleasant visual experience for the pedestrian . • Pedestrian safety and circulation should be ensured by minimizing pedestrian waiting time to cross intersection segments and maximize pedestrian crossing time. Easdwest vehiculaz waiting time should also be minimized and acceptable LOS for vehicles and pedestrians should be maintained. • Any changes by WSF to optimize the time for exiting of vehicles from the ferry should occur within the existing right-of--way for Olympic Drive south of Hazborview Drive and should not result in any further degradation of vehiculaz access from properties along Olympic Drive. Landscaping and adequate pedestrian facilities would be appropriate. Some potential impacts are identified in Table 17 -Washington State Ferry Identification of Potential Impacts and Mitigation Measures and will be developed further in a supplemental EIS or other appropriate SEPA review that identifies the impacts and mitigation of the project, at such time as Washington State Ferries is ready to proceed with this project. Construction of either exit holding or a north bound grade sepazation would require permit approval. The location, design and functioning of the grade sepazation could be tazgeted to minimize the impact of the northbound grade sepazation. SEE MITIGATION FOR THIRD FERRY UNDER WASHINGTON STATE FERRY RELATED SECTION. Monitor the LOS of both the road segments and intersections in Winslow, particulazly the Winslow Way/SR 305 intersection. Winslow Way/SR 305lntersection Landscaping and adequate pedestrian facilities would be appropriate. Some potential impacts aze identified in Table 17 -Washington State Ferry Identification of Potential Impacts and Mitigation Measures and will be developed further in a supplemental EIS or other appropriate SEPA review that identifies the impacts and mitigation of the project, at such time as Washington State Ferries is ready to proceed with this project, including providing access for property owners along the east side of Olympic Drive. Construction of exit holding would require permit approval. Transportation Facilities Commuter Bypass The Plan requires the City to work with the Fire District to minimize any potential impact on emergency response time and to work with the School and Pazks District to minimize any potential impact on School or Pazk Activities at the Woodwazd Middle School location. 127 Winslow Master Plan May 2l 1998 Ericksen Avenue The impact of the opening of Ericksen Avenue on the High School Rd./SR 305 intersection is addressed by the baseline improvement contained in all of the alternatives--that the eastbound approach of High School Rd. to SR 305 is modified to allow left turns from either left turn or through lane onto SR 305 and the signal timing is revised. To minimize the impact of opening of Ericksen Avenue, the use of design features to calm traffic and make the street more pedestrian-friendly would be required. Traffic calming measures would include designing the connection in a nonlinear manner, stop signs, sidewalks, reduced vehicular speed and extending the existing landscaped median on upper Ericksen. New City Hall Access The exact circulation pattern for this access will be reviewed as part of the development of the new City Hall (e.g., direction of traffic, whether left turns or right turns allowed onto Madison or Ericksen Avenues). Traffic Calming • To minimize any impact on emergency vehicle response time, the Fire District will have the opportunity to review traffic calming measures before they are approved by the City for installation. Short Term Non-Commuter Parking New parking lots would have to comply with all applicable development standards, including surface water management, landscaping and circulation design. 128 Winslow Master Plan Mav 2I I998 WASHINGTON STATE FERRY -RELATED EVALUATION CRITERIA AND ANALYSIS Ferry and Terminal ®perations The model used by the WSF to analyze future demand, assumes Bremerton to Seattle vehicular and high speed passenger only ferries; Kingston to Edmonds vehicle ferry and the Kingston to Seattle high Speed passenger only ferry. Operational issues such as motorist control and compliance, release rates and emergency vehicle access would need to be addressed by WSF prior to the implementation of this concept. IMPACTS Third Ferry Washington State Ferry plans to assign a third ferry to the Bainbridge Island-Seattle route by the year 1999. This would involve the use of two ferries, each with a 218 vehicular and 2,500 passenger capacity and one ferry with a 160 vehicular and 2,000 passenger capacity. Adding a third ferry would result in seven peak hour ferry sailings instead of the existing five peak hour sailings. The WSF has stated that no environmental impact analysis of assigning the third ferry to Bainbridge Island is necessary because the state legislature approved the expenditure. The addition of a third ferry was determined 10 years ago by the State legislature, prior to GMA and prior to the adoption of any local plans under GMA. Adding a third ferry may initially improve LOS at SR 305 and Island intersections as demand catches up with new capacity. Although only one ferry will still arrive at the Bainbridge Terminal at a time, the effect of the third boat will be to place the Winslow transportation system at peak conditions for more frequent periods of time, particularly those Island roads used by ferry commuters and for pedestrian crossings, such as SR 305/Winslow Way; SR 305/High School Road and SR 305/Winery-John Nelson Park. This could affect access to both John Nelson Park and the Winery. The need fora 35 minute headway which requires asix-minute vehicle unloading time from the ferry could affect the LOS at SR 305/Winslow Way and SR 305/High School Road, depending on the solution used to address the six minute unloading time. SEE DISCUSSION ON WINSLOW WAY/SR 305 INTERSECTION UNDER THE TRANSPORTATION SECTION - INTERSECTION LOS FOR BOTH THE SANCTUARY AND DISPERSED ALTERNATIVES. WSF has described two possible scenarios for the operation of the third ferry: (1) one vessel will load and depart at a time or (2) there would be a "piggy back" approach in which one ferry would be loading simultaneously with the unloading of a second ferry. The second option has not yet been analyzed or modeled for potential impact on Winslow's transportation system and is not addressed as part of the Winslow Master Plan. Over the 20 year life of the Master Plan, both vehicular and passenger demand for the Bainbridge-Seattle route will increase. WSF projects that by the year 2012, vehicular traffic will increase from 1,870 to 2,536 vehicles during the peak hours and passenger traffic will increase from 5,070 to 8,600 passengers. 129 Winslow Master Plan May 2l 1998 The addition of the third boat to the Seattle-Winslow run could delay achieving a regional balance among west side terminals. If the third boat is added to the run prior to achieving the goals set for the Kingston and Bremerton routes, the shorter wait at Winslow could attract ridership and delay achieving equilibrium in the system. Marine Facilities A third ferry slip would serve both as a backup slip when maintenance is required on either of the other two slips and also as a tie-up slip for the third boat during off-peak runs. It is expected that impacts would occur from the dredging for the third slip and new access ramps. Some potential impacts are identified in Table 17 -Washington State Ferry Identification of Potential Impacts and Mitigation Measures and will be developed further in a supplemental EIS or other appropriate SEPA review that identifies the impacts and mitigation of the project, at such time as Washington State Ferries is ready to proceed with this project. Holding Area Expansion Originally, the Sanctuary and the Dispersed Alternatives included expansion of the holding area across Harborview Drive which would provide holding area for up to 480 vehicles. This expansion would have eliminated the existing access the Eagle Harbor Condominiums and to the WSF maintenance facility. No adequate alternative access was found that addressed the needs and goals of WSF and the City of Bainbridge Island, including potential impact on the Ravine, Waterfront Park and the Winslow Way/Bjune intersection. (See discussion below in the Dispersed Alternative of Local Access to Condominiums and WSF Maintenance Facility.) The Sanctuary Alternative was revised and under that alternative, vehicle holding area could expand up to Harborview Drive, the local access road for the condominiums and WSF maintenance yard. The existing holding area holds 210 vehicles. With the expansion of the holding area up to Harborview Drive Road, the holding area could hold 330 vehicles - a 57% expansion. When there are more than 330 vehicles, the remainder would be held on SR 305. The projected number of vehicles which would be held on SR 305 varies, depending on the assumptions used. The impacts to Winslow from waiting vehicles in excess of the holding area capacity would occur mainly during the am weekday peak hours, when the downtown Winslow businesses are generally not open and on Sunday and holidays during the p.m. The impact from expansion of the holding area expansion would include loss of wooded land that contains trees qualifying as "significant trees" under the City's Landscape Ordinance and adding more impervious surface and increasing runoff. The expansion area is close to, but outside of, wetlands in the Ravine. Some potential impacts are identified (for the larger expansion provided for in the Dispersed Alternative) in Table 17 -Washington State Ferry Identification of Potential Impacts and Mitigation Measures and will be developed further in a ~ WSF projects the need fora 480 vehicle holding area, which holds 2.2 ferry-loads of vehicles, assuming 218 vehicles per ferry (218 x 2,2 = 480). With a holding area capacity of 330 vehicles, 150 vehicles would be held on SR 305. However, WSF plans to use two ferries with a capacity of 218 vehicles and one ferry with a capacity for 160 vehicles; averaging 201 vehicles per ferry. With a holding area capacity of 330 vehicles, 110 vehicles would be held on SR 305 (201 x 2,2 =442). If a holding area for only 2 ferries was needed, there would be approximately 72 vehicles held on SR 305 (201 x 2 = 402; 402 - 330 = 72). 130 ~raslow hgaster Plana 1~at~ 2l I99~ Impacts and Mitigation Measures and will be developed further in a supplemental EIS or other appropriate SEPA review that identifies the impacts and mitigation of the project, at such time as Washington State Ferries is ready to proceed with this project.. Transit and Terminal Facilities A new passenger terminal is proposed over the water in a location at the base of the transfer span from the pedestrian loading ramps. The new terminal would facilitate efficient movement of passengers onto the vessel during loading. Anew ramp built to ADA standards would connect the new terminal back to the land, where kiss and ride and commuter parking functions exist as well as pedestrian links to Winslow. It is expected that impacts would occur from the overwater placement of the new overwater terminal and transit deck. Depending on the final placement of the new terminal and transit deck, views from properties adjacent to the terminal and from the Eagle Harbor Condominium could be affected. Some potential impacts are identified in Table 17 -Washington State Ferry Identification of Potential Impacts and Mitigation Measures and will be developed further in a supplemental EIS or other appropriate SEPA review that identifies the impacts and mitigation of the project, at such time as Washington State Ferries is ready to proceed with this project. Bicycle Access Bicycle access for ferry-bound riders would be provided along the south side of Olympic Drive on a designated lane to the ticketing booths and then onto a holding area close to the ferry slip. Bicycle access to the ferry through the existing surface parking lots would be discontinued. Bicycle parking can still be accessed from Winslow Way/Ferncliff. This could provide additional conflict with other vehicles at the Winslow Way/SR 305 intersection as bicyclists must ride west on Winslow Way and turn left onto Olympic Drive. Bicycles exiting the ferry can either proceed up Olympic Drive on a new designated bicycle lane or traverse the area currently occupied by commuter surface parking. Winslow Way/SR 305 Yntersection See Transportation Section: Intersection LOS MITIGATION Third Ferry The Master Plan Chapter on Monitoring requires monitoring of potential impacts through future study of (1) the LOS at key SR 305 intersections, (2) pedestrian crossing time at Winslow Way/SR 305 and (3) an update ofthe Origin/Destiny study conducted by WSF. 131 Winslow Master Plan May 21 1998 The Master Plan provides that if the third boat is assigned to the Bainbridge route, no long-term infrastructure improvements, such as the third slip or transit deck/new terminal, should be made to the Bainbridge terminal, until the following occur: • Re-examine the WSF long range plan for service to/from Kitsap County in light of the population distribution and employment patterns for Kitsap County. • A Kitsap County long range strategic transportation plan is completed by the local jurisdictions. The plan should (1) emphasize transportation improvements that support local comprehensive plans and (2) assess the most effective route to place the third boat in light of (a) the County-wide Planning Policies, (b) changes in population distribution and employment patterns for Kitsap County that result in changes in demand, (c) examination of change in land use patterns due to addition of third ferry and (d) cost-benefit to the overall system. • Parity is reconsidered, in relation to factors such as, crossing time plus frequency of service, total origin-destination trip time, service proportionate to the population distribution and different modes of travel (freight, tourist, commuter and occasional riders). • .Seattle ferry terminal capacity is considered, along with improvement to mass transit in King County. • Funding of all long-term improvements for other Kitsap routes is more clearly defined and implemented. These provisions would help assess how the addition of the third ferry added to the Bainbridge route would affect the balance of all of the west side terminals, prior to constructing the long term infrastructure improvements. (See July 16, 1997 Memo from Evelyn Klinckmann, Planning Commissioner, to the Planning Commission on Ferry TerminaUWinslow Master Plan for a more detailed discussion of the potential affects of the third ferry on the overall balance of the routes from the west side of Puget Sound. Any future actions by the WSF or the City to which Section 4(f) of the Federal Highway Transportation Act applies must meet the requirements of that Act.) To minimize the impact to pedestrian access to the Winery and John Nelson Park, a pedestrian bridge should be considered. Any future actions that would adversely affect John Nelson Park and are governed by Section 4(f) of the Federal Highway Transportation Act would require compliance with the requirements of the Act. Marine Facilities Some potential mitigation measures are identified in Table 17 -Washington State Ferry Identification of Potential Impacts and Mitigation Measures and will be developed further in a supplemental EIS or other appropriate SEPA review that identifies the impacts and mitigation of the project, at such time as Washington State Ferries is ready to proceed with this project. Because this element of the terminal development plan involves waters of the State, approval under the Shoreline Master Program is required, along with other applicable federal, state or local permits. Holding Area The expansion must comply with the City's ordinances, including the Environmentally Sensitive Areas ordinance. Stormwater runoff from the expansion area would need to be collected, treated and released at natural rates, in compliance with state and City regulations. Additional vehicles 132 Winsdow Master Plan Mav 2l 1998 in the holding area could result in an increase in air emissions and noise and light glaze to .- adjacent condominiums. Landscaping along Olympic Way would be appropriate. Some potential mitigation measures aze identified in Table 17 -Washington State Ferry Identification of Potential Impacts and Mitigation Measures and will be developed further in a supplemental EIS or other appropriate SEPA review that identifies the impacts and mitigation of the project, at such time as Washington State Ferries is ready to proceed with this project. Transit and Terminal Facilities To minimize impact over the short term, the Master Plan recommends that Kitsap Transit utilize existing transit site, with a queue jump or other mechanism to give transit priority onto Olympic Drive. The new transit deck terminal facility should be scaled to actual demand and be the most cost-effective in terms of the improvements to the overall Kitsap system. It is expected that impacts would occur from the overwater placement of the new overwater terminal and transit deck. Some potential mitigation measures are identified in Table 17, Washington State Ferry Identification of Potential Impacts and Mitigation Measures and will be developed further in a supplemental EIS or other appropriate SEPA review that identifies the impacts and mitigation of the project, at such time as Washington State Ferries is ready to proceed with this project. Because this element of the terminal development plan involves waters of the State, approval under the Shoreline Master Program is required, along with other applicable federal, state or local permits. Bicycle Access One of the major reasons the WSF proposes to eliminate the bicycle access through the terminal area is the new U.S. Coast Guard requirement to count all of the bicycle passengers. Since all bicycle boarding access will be from the covered area over the new generator, the WSF could analyze site plan options to meet the Coast Guard requirement that might allow more direct access from Ferncliff. Mitigation for removal of bicycle ferry access through the surface pazking lots could include provision of a bicycle lane on Winslow Way from Ferncliff to SR 305 to safely bring cyclists to the SR 305/Winslow Way intersection. 133 Ma 21 1998 ND NLITIpATIQN CTS A Master Ptan Table 17gEEATED IMpA ~instaw .~,Eggygy AE,TEgNp,TIVE STA GTON TE CTU A The holding Agy OF W AS p~FEggEU SAN ari5iOn local access traffic. StJ1VINi Area EX ize impacts t0 on SR 305 • j~.Olt~1i1 Veto minim rovided on SR 305 • N° ~bocview Dri acit olding to south of H trot over vehicles h limited 330 vehicles, with additionale ~ n ansion will be wSF does not ha e exp fora ro riatel yea. lan will SF goal of 480 vehicle holding 1. Description of Holding coviw ca acs to the lanes ad•aGent Ai~r°al"~e Does not mgt ices on SR 305. Gtion l pperatlonaL sanitary ox other serv with constcu 2 lternative C~teria will be added with this A surf ace Ravine. entaipacts ions 3 En~ronm 13,E sq' ft' °f imper" e adjacent to the _---~,,,,. esourCes ately sloF A Natural R Approxim located over steep Ravine. es will be ound travel lanes• ifrGant trees. water Slopes - Holding ran of inb numerous si Steep with shifting containin air emissions 8 entally wetland buffer n s ace, could increase ill be Enviconm Closer to 0 s , ft. of ° eak Periods which ool w wetlands ' atel 13,00 level near P Sensitive Areas roxim during P s Noise ' ficar-t Trees - Removes ides will be held on SR 305 ted closer to the condomin~om • s 5i ni loca condominium wa ately ~2 -150 veh olding area ear Ravine Green ause h eXistin • acts n Elements ApProxim bec than late im C ether in noise er awa li ht and ualit There will be an increase es will be firth 1 Gould result in Air Q oldie ran Altematlve becau than Ahern Noise, reduced h less ative 2, Althou x 2,2 Glare No impacts to pack' er ferry (218 ~ a l,i ht and ation u WSF p a~ ~ ~~se ~o ferries ~ of 330 Packstgecre k vehicles, ass capacity rout Par) loads of vet, holding ,a ~ roximately (W aterf ferry" on SR 305. 'Howe With a e app which holds 2.2 eld er ferry. there wou o-ding area, would he h 201 vehicles p was needed 480 vehicle h 150 vehicles averag+ng for only 2 ferries eed for a 0 vehicles, 160 vehicles; area then capacity of 33 achy for 1f a holding ects cap s W S~ pro,a holding area one ferry With a 201 x 2,2 = 442)• 480) W'~ e-d on SR 305 ( 72)• capacity of 218 vehicles and 402.330 110 veh'cles would be x 2 = 402; vehiclesc-es held on SR 305 (201 72 vehi 13~ aster Plan "- gol~in Area ~~ " Winslow M eac term imPrOVements standards' ater expansion of n No displacements d Ci overw m accordance with StaTQp ate as mitigation for aces. Residential be treated ' slopes and open sp lacement water will of the Ravine would be aPP Dis Storm e of a portion of holdin area' Revegetate disturbed steep 5, Miff ati°n purchas ansion mums. and for ro osed ex d holdin area' condone nity for dsca in aroun views fr°m provide lan ificant trees to shield slopeS• way, provides opP°~ or replant sign on disturbance °f steep south of Winslow maintain finical report Ravine greenwaY provide geotec Wining . reservation of rem uisition and P shorel'me• tial acA ace near poten een s newtre lacement ificant trees. Loss of some sign slopes. Local Access a 6. Si$ri~f'icant Cover of steep voidable of relocated toll plat Una and cross north roadway rade separated intersection. Adver,e Im acts on existing laneS~ egress al g b tunnel to g holdin ~rthbound, then egLeSs throng Tess. One-way ~gressade Separated n with new ing Local aces will created anage and Control traffic. 1, Description of If SR 305 ~s ~ efvious surf olice to m na1 Criteria of new .imp wires City P ueued vehicles. local access must AlternallVe 2250 sq. traffic- Reg 2, pperaMo Approximately aZa and exiting ferry Vehicles must cross 9 Vehicles using Tess. 'Hate conflicts with ferry operations. dater acts with toll pl C?utbound Local access confl~ sit busin mat on g would ehml A, Service Levels access must mix with Iran rade sep If there is a north bound g on SR 305. ress road. travel nor 2250 s , ft. with new in enm- Impacts roximatel 3, En~ro"m will be a J_____.- esourCes ervious s entaclly sensitive areas. A. Natural R Increase ~n im Water No impacts to environm entally oved. Environn~ reenwa w°uld be rem Ve etation. Sensitive 2250 s , ft. of the ieduction of existin Aieas A roximatel led b Greenwa Tutorial views will be afleC Ravine B Aesthetics ~ 13oldin Area s should not change over existing conditions. C, Other Elements uality near the Eagle Harbor condominium p'rr Q ' c near the Eagle Harbor condominiums will not change. uality Air q Noise levels created by traffi Noise acted. Li ht and late will not be im Li ht and Glare No impacts on Waterfront Park. parks/Recreation to ahlnr W aterfront 1Zesidenna- standards. ' Displacement ter will be treated in accordance with State and City eve etated. anon Stormwa 4, Mitig en spaces areas will be r Other mitigation measures Area expansion alternatives. Disturbed op idelines. Consider alternative to acts while meeting acceptable geometric. gu associated with the Holding The intersection will be designed to minimize imp se crate in ess lane. Some significant trees will be removed. 5, Significant Unavoidable 136 ine Facilities -- Third SUP Mar ,. _ _,.~„arv Alternatives ed with existing slips with dredging. '.North slip align ~, Description of ents. Meets all safer re uirem assengers. Ellternat-Ve uirements. location for p Z. Marne Saal Criteria is all WSF service level req ost efficient loading 3. pperat~on Mee zed at this slip. Provides the m Service 1-evels distance is minlmr in the event of a slip passenge1 Walking rations a existing maintains three vessel service reliabi rty tie up slip. Marine ~Pe reserves th _ passenger loading ,this location p vessels at the dock ~ - tie up slip 'This location allows two - two vessels at dock '..closure. 1 increasing mrbrdity • v,,ater Impacts9 ~,. of impervious surface- orari y 14,000 sq. d temp osed of at an open q, Environmental roximately disrupting sediments an7'his material will be disP A. Natural Resources 'Will add app constructed, acting juvenile salmon files will be uire 20?300 cu. yd• of dredging- 10 ft) imp . Water Concrete p water (- 10 ft) wrll be converted to This Alternative will req ~ sis. e in shallow habitat (- Sediment endin PSDDA ~` ft. of overwater coverag dis osal site 150 sq. 21,500 sq. ft. of intertidal d habitat. Approximately final • Habitat This AlternatV men and 10, e north of the tern' ne shoreline m° trees to th Fisheries and Mari dredging. h the existin subtidal habitat by the water and throe is Alternative will be visible from • acent to termrnal Th erty adl B Aesthetics uality. nal and potentially to the Prop N° affects on art q north of termi C ether Elements iniums otentially to the ptOperty pu Quality hi her at condom final and P Noise levels will be g mums north of existing term that ma ~ redevelo ed• Noise late would occur near condomi More light g is used. Y,ight and Glare the third slip g the third slip would depend, in part, on how . 9 The impacts o l 'Vinslow Master Plan Ma 21 1998 Marine Facilities -- Third Slip Sanctuary Alternatives adjacent to terminal that may be redeveloped. nd Site Moderate potential for contaminated soil disturbance. Superfu Storrr-water will be treated in accorda ossibleh State and City standar s• tnber of pilings, using highly 5. Mitigation where the nu Use vegetation for screening, p the structure. Miti ation for fisheries impacts in intertidus neaslaos ~ o ksudepade~en , or narrowing g reflective paint underneath the structures, g ential mitigation could include, off-site creation or enhancement of habitat Pot Removal of timber pll~inatedlsoils at app oved di posal sites. Disposal of any conta Monitor noise impacts. 5. Significant Unavoidable Dredging intertidal habitat. 138 M~ 21 1998 faster Pta~----"""~~' tiOn test°w - and Related Circula will be located over d°ck. ter, Terminal guilding~ • t Cen buses. The terminal building Transi achy to hold all fined elevated deck with partial cap Re tion ®f building is adjacent to transit. 1. Descrip Terminal rovides direct access from ative uirements bout site. Elevator p pitern Criteria ice re or less. Z. ~peTational Meets all sere eneral traffic throe bus of 9d seconds ~, service Levels Isolates transit from g the ferry to the e walking time fromsfer. ately 3~.p00 averag cle tran roxim provides an fox bic the site. APP to transit deck ervious surfaces on car deck building will increase imF 1 increase 1 Impacts terminal ents will temporari y 3 Environr"ren~ and relocated fill be created. sedim A Natural Resources The transit deck terminal building• sq. ft. of impervious surface sit deck and water cted f or the Iran files will be constru Concrete p file placement- . north and south during P ..~-.- slopes tO then sediment turbidity act steep teep Sl°p~` Transit deck `will imF will create 35,E existing dock which entally sensitive S water. gnvironm d terminal building W above the er off shore verage• 40 ft 1viLL ~ on to deep Areas Transit ce Veda er c° 21 ft (elevation uvenile salm sq, ft. of ° will be that may force J Fisheries d terminal buildinw Conditions swill • e dark shado s °utside of lower dock' On and off-ramp The elevated transit deck an d footing south. ize creation of extrem Iles an acent and will minim wires concrete p and the Properties adJ This AlternatrVe req area of Current the holding dock. switch will be visible from v fn to the fe there could be a The transit deck round slo es dO d vessels and remain level as the tween the transit an B Aesthetics °Ve faster be ~sengers would m ollution. ents thus, lowerin air C ether Elem Transi~fem p transit, uality vehicle drivers to Air Q 139 M~ 1998 Terminal Building, and Related Circulation Transit Center, act residents of the adjacent condominiums. Buses entering the transit center could imp Noise roaches. Li ht and glare will increase on elevated transit deck and app g standards. Light and Glare Storn-water will be treated in accordance with State and City the ~• Mitigation acts m nd lare impacts to adjacent residences and consider such imp Replant signific ns t centeor nd termgn 1 buildin aint underneath the structures desi n of the tra hi hl reflective p • heries impacts in intertidal areas could include using g y Mitigation for fis and creation and/or enhancement of off-site habitat. 'de eotechnical report for disturbance of steep slopes. Prove g where appropriate. Use of landscaping as screening, transit deck access would reduce noise levels at condominiums. Solid railing along ace. onversion of existing holding area west of transit deck to green sp rotential c Coverage of steep slopes. (, Significant pverw,ater coverage. Unavoidable Adverse - l40 Ma 21 1998 1, Description of Alternative 2• pperational Criteria A. Service Levels .----- :-'~' en al Impacts 3, Environm A, Natural Resources _,,,__ Water gnvironmentally Sen Areas ..-•--~"""""r B. Aesthetics C O~lements Air Qu~'ty Noise L~and__ G~ e ~• Mitigation Site Circulation ' Bl~ycles ess lane out along Olympic Drive. is Drive and Holding Area and egr Ol mp __ a in ress lane along Y arlcin area to ~enchff and into bic cle she ter. Bicycles on g out throw h clists. Additional bic cle route eats. In furore, WSF will need to count bicy efficiently uirem WSp can service level req in improved safety. Meets all WSF resulting wires that bicycles enter at one location. rovide separation between modes of travel, enter as proposed in this Alternative Bicycle lanes p clists.'rr+~s Alternative req clists rovided all bicY inslow manage and control bicy and unloading p a and acts on ferry loading east of SR 30~ and the W N o imp exation of W inslow W ay are required to use W inslow W Y nand op the northeast (~erncliff) This Alternat-Ve cOecd affect the desig tion since all b~cychsts from ~t,~aylSR 30~ inter m is larive. then turn. left onto Oly p ~_____--• ~-- There will be no impact t er resources. sensitive areas. thus c 1 re wire a wider paven~nt at the intersection, acts to environmentally No imp es wil q cle fan The addition °f the visual umva bicy more of a ne att cle use over other modes of travel. cle aths will encourage bicy land uses. Improving bicY P hboring Bicycle lanes will not increase noise to neig No li ht and fare iw u.,.~- None. voidable Sign-frcant 5, Una Impacts. tot Ma 21 1998 •instaw Master Ptan Site Circulation to ~Mr~w~rr .Wi--- ~ '~, W'ay Intersection t've Z AlternativPl n Sanctuary and two bicycle lanes' 2 in13 out) Tevent ' tion At grade with 5 traffic lanes fic signal modifications toe sec°tion to bef widened ~ ~'t 1• Deseflp Requires traf vessels. In of the inter5e of queues onto the unloading ,n and function and circulation Alternative approximately 78 f~=`'t' Thy d~~t pedestrian safety imize should help create a "gateway • waiting time and max edestrian waiting time should should ensure minimmeg Easdwest vehicular pedestrian crossing be minimized. ri ht_of-way south of could occu ehicular access from properties along Exit holding Ve and v Harborvlew Dve is not be degraded. Olympic Dn ctions to intersection improve bicycle safety. Conne 2, Goals to neighboring businesses. Maintains accessibility cles from traffic. Separates bicy RCW~ acquisition. Requires right-of-way ( _------'~'" Alterna 1 rage Separation Sanctuary Plan with r' aration of SR 305 at the North bound grade sep intersection of Winslow Way • ctions to intersection improve bicycle safety Conne aintains accessibility to neighboring businesses. IM Iles from traffic. „_,... separates bicy W acquisition. Requires the most R4 _`-~- a ~}2 _----~ intersects®~ --~-- .. way .._-----"'" t® ~VittSl®~' atiYe 2 Master Pta" Altern a aration ~S~ow Bite ~ircn,~t1On with Grade S P Sanctuary plan Alternative i Sanetua~J plan B• ction I.OS improves to I'p5 rade With Interse except that if the g I,ps E• ice levels, l l elo, exiting Meets all W5F SeN le exit lane of traffic p erational Existing intersection maintained at a sing hand back up 3. P service levels. could be alive. $eparation result in w to 1p n'p p veh.lmin• all WSF the intersection coon Altern ,~uld slo aintain Criteria Meets e than the N° A transit traff Fe empties vehicles Single lane to m bevels al modifications, edestrian l~ mph in A Service traffic sign eriod of tim ier~' Lps E for longer P in , the P onto eed must be f the signal tim gas a result of the Average sp ustment ° degraded that w nth adJ DS w ill be six-minute fern` f lo"`~ • arated intersectiO rade It is likely e and vehicular 1- crossing, adequate of grade Sep of at g west vehicular aintain could atively, design atiVeS as transit use crossing tim for east- the nerd to m Altern such altern eting needs well as of the intersection rade come vehicles, as radation Winslow could include with g exiting for e. Deg within d to site circulation lanes) • is necessary in tunnel to crossing o other intersections No advantages game Pedestrian erasion Tw ~ lane exiting affect the °P s due to separation- volumes of traffic. fewer delay Spp feet from contributes to move sufficient ately ong traffic e by approxim vehicles out Modal split an' ust merg t sufficient to sort Vehicles n' Distance's nO which impacts site conflicts. vessel exit. ontp ferry with°utback'n e~eTal. circulation in g rade doe. ated s not imPrOVe e traf f below g modate ant~cip Single lane exiting to accom es ate needed to facilitate Two lan unlo~-ding vessels. needs modification from how from si nal ttirr-'ng access of vehicles traffic • g traffic fr e merging with exit traffic must Intersection Increased fem' unloada a ens to 41ymPic Drly properties a ] _.-_---- ~~_ be mana ~~ l43 81tt 2~ 1998 Yinslow Master Plan Intersection •te Circulation to Winslow Way 51 Altcrn~tive 2 Al-` t native 1 Sanctuary Plan Environmental y~ A, Natutal act the steep slopes an .Resources Steep Slopes -This Alternative will imp d north and south of the intersection due to added Environmentally buffers locate Sensitive Areas la„es. reenway will be removed north of the Ravine Greenway portion of Ravine g intersection for added travel lane. Plan with Grade Separation Sanctuary -_.._.,,._-,. This Alternative will impact the steep~'his Steep Slopes - .slopes and buffers located south of the intersect~o . act steep slopes and the Ravine Altatedtnorth of mte section. loc reenway will be remaved north of the Portion of Ravine g intersection. avine north This Alternative is not int the exact designe Rd location of intersection. However, aration of SR of the cut and cover north bound grade sep 305 may result in impact to the Ravme- 144 1998 .'"" ~1i'~Sl®w t-ve 2 Master Plan ClrCUtatlOll t® _,~' A-.terna aration Tinslow site Ylan with Grade SeP Sanctum` Alternat1~_ ecrease Sanctuary Plan will d at the intersection will be better the traffic flO mitted. Air quality ImprOVing of ollution the ~°unt Alternatives. will decreasfic flow for all other C, Other at the intersection roving traf than the traffic flow HoweveT,'f rn'`F rnslow V,Iay, air .Elements Improving emitted. cross ~ filar to ollution w east west a acts sim uality amount of P decreases f1o olding is used, imp Air Q ferry traf tic, If exit h ases. could worsen• it closet to adjacent land h y other quality would occur. slig under build Alternative 3 wa will ~ acts to be R°ad y acts will be better thac- noise imF noise imp d uses will cause atives. ore lighting to ent lan Altern afire rn thus to adjac tunnel will Ceq lanes wa closer Se acated crossi tike other Road Y The grade . p vehicles closer t° the sig~it for than Noise worse. will be improve li ht a°d glee the road`vaY producing m°re g of the interClare could worsen. atives: with State and ex ansion tan g Altern ante v,]ith the p and hgh treated in accord Glare adjacent land uses ' will be Light and Stormwater d city City standards. aration north b°und ith State ~ of rade Sep m accordance `~' ~ ,, coon g Ravine. will be treated ~ Design and con,tru ize im acts on e of Storm`vater minirniZe ould nunim crossing tim • ti anon should lanes) s~dg d pedestrian ht and glare and t~) 5• ~t g standards. should address 3) lig access. Monitor (1) ~) air quality, ~ ent of of intersection ~rmize• edestrian tion, (2) and enhanCem d function time of interseC intersection, avine Design on Ravine and Tn crossing noise. onion of the R im acts 1 LGS and pedesirian noise• purcha$e of a F Monitor t) ht and glare and (~) 3) lig g,avine. air quality' t 145 May ZI 1998 i'inslow Master Plan Site Circulation to Winslow Way Intersection Alternative 1 Sanctuary Plan Provide landscaping and other features to make intersection more pedestrian friendly and more of a gateway to Winslow. Steepen slopes or construct walls to minimize impacts to Ravine greenway. Revegetate disturbed steep slopes and open spaces, where possible. Provide geotechnical report on disturbance of steep slopes. Disturbed open spaces will be vegetated. ~""'~ Requires the removal of significant trees. 6. Significant Unavoidable Adverse Impacts Alternative 2 Plan with Grade Separation Sanctuary Provide landscaping and other features to make intersection more pedestrian friendly and more of a gateway to Winslow. Steepen slopes or construct walls to minimize impacts to Ravine greenway. Revegetate disturbed steep slopes and open spaces, where possible. Provide geotechnical report on disturbance of steep slopes. Requires the removal of significant trees north and south of Winslow Way. the Ravine north of Winslow Way. t46