ORD NO. 2017-01 ADOPTING THE 2016 COMPREHENSIVE PLANCity of Bainbridge Island
2016 Comprehensive Plan
EXHIBIT A Adopted February 28, 2017
Ordinance No. 2017-01
EXHIBIT A
i
Bainbridge Island City Council
Val Tollefson, Mayor
Anne Blair, Mayor*
Kol Medina
Sarah Blossom
Ron Peltier
Wayne Roth
Michael Scott
Roger Townsend
Steve Bonkowski*
2016 Bainbridge Island Planning Commission
Mack Pearl, Chair
Bill Chester, Vice-Chair
Maradel Gale
Mike Killion
Mike Lewars
Lisa Macchio
Jon Quitslund
*Term ended prior to Planning Commission recommendation or City Council adoption
ACKNOWLEDGMENTS
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Contributing City Staff
Doug Schulze, ICMA-CM, City Manager
Morgan Smith, MPP, Deputy City Manager
Gary Christensen, AICP, Planning Director
Kathy Cook, Planning Director*
Kellie Stickney, MPA, Communications Manager
Jennifer Sutton, AICP, Senior Planner, Project Manager
Christy Carr, AICP, PWS, Senior Planner
Heather Beckmann Wright, Senior Planner
Joshua Machen, AICP, Planning Manager
Jane Rasely, Administrative Specialist
Barry Loveless, PE, Public Works Director
Chris Hammer, PE, PMP, Engineering Manager, Public Works
Cami Apfelbeck, MS, Water Resources Specialist, Public Works
Ellen Schroer, MPA, Finance Director
Gretchen Brown, GIS Specialist
Contributing Consultants
Joe Tovar, FAICP, Principal, Tovar Planning
EcoAdapt
Tim Flynn, LHG, CGWP, Principal, Aspect Consulting
Peter Bannister, PE, Aspect Consulting
Victor Salemann, PE, Principal, Transportation Solutions Inc.
Special Thanks to Citizen Advisory Committees and
Community Organizations and Outside Agencies that
Contributed Comments
Arts and Humanities Bainbridge, Association of Bainbridge Communities,
Bainbridge Community Foundation, Bainbridge Island Chamber of Commerce,
Bainbridge Island Downtown Association, Bainbridge Island Fire Department,
Bainbridge Island Metropolitan Parks and Recreation District, Bainbridge Island Land Trust,
Bainbridge Island Parks Foundation, Bainbridge Island Senior Community Center, EcoAdapt,
Environmental Technical Advisory Committee, Friends of the Farms, Historic Preservation Commission,
Helpline House, Housing Kitsap Public Health District, Housing Resources Bainbridge,
Island Volunteer Caregivers, Island Non-Motorized Transportation Advisory Committee,
Puget Sound Energy, Quality Bainbridge, Sound Food, Squeaky Wheels Bicycle Club,
Sustainable Bainbridge, Utilities Advisory Committee, Watershed Council, Zero Waste
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PLAN CHAPTERS PAGES
Introduction……………………………………………………………..IN-1 to IN-18
Land Use Element…………………………………………………….LU-1 to LU-33
Economic Element……………………………………………………EC-1 to EC-12
Environmental Element………………………………………………EN-1 to EN-20
Water Resources Element………………………………………….WR-1 to WR-15
Housing Element…………………………………………………..…HO-1 to HO-13
Transportation Element………………………………………………TR-1 to TR-20
Capital Facilities Element………………………………..…………..CF-1 to CF-14
Utilities Element…………………………………………………………..U-1 to U-10
Cultural Element………………………………………………………..CU-1 to CU-6
Human Services Element……………………………………………..HS-1 to HS-6
Glossary……………………………………………………………………G-1 to G-17
APPENDICES
A Economic Profile
B Housing Needs Assessment
C Island-wide Transportation Plan
D Winslow Master Plan
E Lynwood Center Special Planning Area Report & Final
Recommendations
TABLE OF CONTENTS
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LIST OF FIGURES
Introduction Chapter Figures
Fig. IN-1 Population age cohorts 2000 to 2019.............................................................Page IN-4
Fig. IN-2 Population by age cohort in 2016...................................................................Page IN-4
Fig. IN-3 Land Coverage Types....................................................................................Page IN-5
Fig. IN-4 Land Use Types.............................................................................................Page IN-5
Fig. IN-5 Comprehensive Plan Structure......................................................................Page IN-9
Fig. IN-6 Sustainable Community…………………………………………………………Page IN-14
Table IN-1 Population Capacity and Demand………………………………………...…Page IN-18
Table IN-2 Employment Capacity and Demand…………………………………………Page IN-18
Land Use Element Figures
Fig. LU-1 Typical conservation area..............................................................................Page LU-2
Fig. LU-2 Typical designated center..............................................................................Page LU-2
Fig. LU-3 Island-wide Land Use Concept.....................................................................Page LU-3
Fig. LU-4 Listening Session .........................................................................................Page LU-5
Fig. LU-5 Future Land Use Map...................................................................................Page LU-7
Fig. LU-6 State Route 305 Corridor.............................................................................Page LU-8
Fig. LU-7 Low Impact Development methods.............................................................Page LU-9
Fig. LU-8 Winslow Way buildings and uses...............................................................Page LU-11
Fig. LU-9 Winslow Residential, Commercial and Civic Uses…………………............Page LU-12
Fig. LU-10 Aerial of High School Road Area..............................................................Page LU-14
Fig. LU-11 High School Road Mid and Low Rise Buildings........................................Page LU-14
Fig. LU-12 Lynwood Center........................................................................................Page LU-16
Fig. LU-13 Rolling Bay Center....................................................................................Page LU-16
Fig. LU-14 Typical Views from the Road....................................................................Page LU-21
Fig. LU-15 Farmland...................................................................................................Page LU-23
Fig. LU-16 Fort Ward..................................................................................................Page LU-27
Water Resources Element Figures
Fig. WR-1. The Hydrologic Cycle.................................................................................Page WR-1
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Housing Element Figures
Fig. HO-1 Single family home......................................................................................Page HO-5
Fig. HO-2 Cottage housing..........................................................................................Page HO-5
Fig. HO-3 Accessory dwelling unit...............................................................................Page HO-5
Fig. HO-4 Duplex.........................................................................................................Page HO-5
Fig. HO-5 Row houses. ..............................................................................................Page HO-5
Fig. HO-6 Zero lot line…………………….………………………………………………….Page HO-5
Fig. HO-7 Garden apartment…………….…………………………………………………..Page HO-5
Fig. HO-8 Mixed use, mid-rise……………...………………………………………………..Page HO-5
Fig. HO-9 Micro units………………….…………………………...…………………………Page HO-5
Fig. HO-10 Live-aboard Unit………………….…………………...…………………………Page HO-6
Capital Facilities Element Tables
Table CF-1 City Land and Office Facility Inventory....................................................Page CF-8
Table CF-2 City Public Works Facilities Inventory......................................................Page CF-8
Table CF-3 City Undeveloped/Open Space Land Inventory......................................Page CF-9
Table CF-4 Group A & B Water Systems……............................................................Page CF-10
Table CF-5 Water Systems with over 100 Connections……………………...............Page CF-10
NOTE: All referenced documents below are hyperlinked.
CITY FUNCTIONAL PLANS ADOPTED BY REFERENCE
City General Sewer Plan
City Water System Plan
Island-wide Transportation Plan
SPECIAL PURPOSE DISTRICT FUNCTIONAL PLANS ADOPTED BY REFERENCE
Bainbridge Island Municipal Parks & Recreation District 2014 Comprehensive Plan
Bainbridge Island School District 2014-2020 Capital Facilities Plan
Bainbridge Island Fire Department 2013-2022 Strategic Plan
Kitsap Public Utility District 2011 Water System Plan
Kitsap County Sewer District #7
Washington State Ferries Long Range Plan
Kitsap Regional Library Vision 2020 Strategic Plan
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2016 COMPREHENSIVE PLAN INTRODUCTION
TABLE OF CONTENTS
BAINBRIDGE ISLAND HISTORY.………………………………………………………….……..1
BAINBRIDGE ISLAND TODAY………………………………..……………....………….…….…3
HISTORY OF PLANNING ON BAINBRIDGE ISLAND …………….....………………………..6
THE FUTURE – NAVIGATING BAINBRIDGE…………………………………………………...8
VISION – BAINBRIDGE 2036…………………………………...…………………….…………...9
GUIDING PRINCIPLES…………………….……………..…………..…………………………...11
WHAT A COMPREHENSIVE PLAN IS AND IS NOT…………………………………….……16
COMPREHENSIVE PLAN INTRODUCTION
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BAINBRIDGE ISLAND HISTORY
This historical overview provides a foundational perspective to aid community planning in
better understanding and preserving the rich and multifaceted history of Bainbridge Island.
Land
Bainbridge Island is split into two geologic areas, with the southern third composed of
sedimentary bedrock approximately thirteen to thirty million years ago. Lying on a seismic
fault line, its most prominent feature is the steep gradient at Bill Point, a backdrop for
Rockaway Beach. This fault runs from Eagle Harbor to Seattle. Together with other active
faults, a 9.0 plus earthquake involving the North American and Juan de Fuca Plates is a
valid disaster potential for Bainbridge Island. Fortunately, only three earthquakes over 6.0
have occurred since World War II: in 1949, 1965, and 2001.
Successive glacial periods left behind deep bodies of water and numerous islands from
Puget Sound to Alaska. Resulting deep water sheltered harbors and acidic topsoil
influenced human settlement. The primary concern for the Island’s southern third is limited
water supply caused by impenetrable bedrock. The northern two-thirds, with Eagle Harbor
as the dividing line, is composed primarily of sand, clay, and gravel deposits. While still
commercially extracted, their primary benefit is an easily accessible ground water source.
People
Suquamish Ancestors first inhabited Bainbridge Island and the Kitsap Peninsula around
13,000 years ago and continue to live in the area to the present day. The Suquamish
People occupied winter villages and seasonal camps throughout the island as they fished,
hunted, collected shellfish, and gathered plants and other vegetation resources. Several
areas on the island have religious significance to Tribal members and some areas near the
marine shoreline were burial sites. Many significant cultural resources have been
documented along the contemporary marine shoreline of Bainbridge Island. Inland portions
of the island have not been investigated as intensively as shoreline landforms but likely have
evidence of past Suquamish land use.
The “discovery” of the Island came in 1792 with the arrival of George Vancouver. The United
States showed little interest in the region until the Louisiana Purchase and the Lewis and
Clark expedition. In 1841 Captain Charles Wilkes entered Puget Sound to map the area. He
designated Bainbridge Island as an island rather than a peninsula and named it for the War
BAINBRIDGE ISLAND Past, Present and Future
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of 1812 commander, Commodore William Bainbridge. He also named Eagle Harbor, Bill
Point, Wing Point, Port Blakely, Port Madison and Point Monroe.
Non-native settlement of the Island began in 1853 when George Anson Meigs ventured into
Puget Sound to establish a lumber mill to serve the San Francisco market. He purchased an
existing mill near present day Kingston and relocated it to Port Madison. The treaty of Point
Elliot ceded any Suquamish claims to Bainbridge Island and Meigs laid claim to the northern
third of the Island through the US Patent Office. The Meigs Lumber and Shipbuilding
Company was born and soon the mill town of Port Madison had all the accoutrements of a
late 19th-century mill town.
Peaking in the 1870s, Port Madison declined slowly until ceasing operations in 1890.
Concurrent to its demise, the Port Blakely Mill, owned by Captain William Renton, was
ascending after relocating from Port Orchard in 1865. It reached its peak in 1890 as the
largest lumber mill in the world. Also at this time, the Hall brothers relocated their ship
building business from Port Ludlow to Port Blakely to become one of the best-known names
in the business.
Port Blakely’s success laid the foundation for additional industries and eventual reshaping of
the Island’s human geography. The mill and shipyard attracted immigrants from around the
globe notably from Scandinavia and Japan. The Hall brothers expanded their operation with
a move to Eagle Harbor in 1903. The Pacific Creosote Company was located across the
harbor near Bill Point. Port Blakely Mill closed in 1922 resulting in a refocus of commercial
activity to the Eagle Harbor area.
Commercial agriculture centered on strawberry farms developed by Japanese immigrants
who originally came to work at Port Blakely. The acidic soil proved ideal for the seasonal
cultivation of strawberries. Japanese families used their American born children as title
holders, since immigrants were not allowed to become citizens or own property. Large tracts
of wasted timberland were purchased, cleared of stumps and debris, and successfully
farmed for generations. A grower’s association was formed to aid marketing.
World War II abruptly altered Bainbridge Island’s economy. Executive Order 9066 ordered
West Coast Japanese relocated to internment camps for the war’s duration. This resulted in
a severe disruption of strawberry farming from which it never fully recovered. Following
exclusion of the Japanese-American community, many Filipinos managed the strawberry
farms and businesses.
Modern Development
Scheduled auto ferry service from the Island to Seattle commenced in 1937 and solidified
Winslow’s identity as the Island’s urban center. Both the middle school and high school were
located there. Prior to this, passenger only ferries, locally known as the, “mosquito fleet,”
had made scheduled stops at a number of small coastal communities around the Island. A
significant development in the initial postwar years was the completion of the Agate Pass
Bridge and State Highway 305 in 1950, directly linking the Island to the Kitsap Peninsula.
Postwar Bainbridge Island transitioned from rural to suburban with the advent of a
convenient commute to Seattle and the peninsula. Regional economic changes caused
increasing numbers of people to relocate here, especially during the 1960’s and 70’s.
Farming and local industries remained important, but were no longer the economic mainstay
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they were historically. A proposed major shopping center and housing development in the
late 1980’s precipitated a move by a group of Islanders to seek local control by becoming an
incorporated city.
Incorporation however, has done little to slow growth, especially with increasing population
pressure stemming from Puget Sound’s burgeoning technology industry. According to the
US Census Bureau, the median family income on Bainbridge Island (2009-2013) was
$95,481 compared to the whole of Washington State at $59,478. The average home value
on the Island (2009-2013) was $551,700 compared to the state average of $262,100.
The 2008 recession temporarily postponed a restructuring of Winslow’s downtown core. The
subsequent economic upturn has since seen its completion, but also fostered controversial
projects such as the shopping complex at State Highway 305 and High School Road.
History is a continuum and the preservation of historic buildings and resources by a
community is an ongoing autobiographical undertaking. The results of historic preservation
choices become a legacy for future generations to appreciate, learn from and live by.
BAINBRIDGE ISLAND TODAY
People
The population of the Island in 2015 was 23,850, which was a modest increase from the
2010 population of 23,025. Demographically Bainbridge Island is predominantly white
(91%) while the Hispanic, Asian and mixed race portions of the population are roughly 3%
each. 7.4% of the Island’s population is foreign-born.
Islanders are relatively well-educated with 66.6% of the adult population (25+ years of age)
having a bachelor’s degree or higher. With the majority of the population above 45 years of
age, the composition of the Bainbridge Island population is markedly different than that of
both Kitsap County and Washington State. The median age of Bainbridge Islanders in 2016
is 49 years old, which is nearly 10 years older than that of Kitsap County and 12 years older
than that of Washington State.
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Fig. IN-1 Population Age Cohorts 2000 to 2019
Source: 2000-2010 U.S. Census and Experian Census Area Projections & Estimates
Bainbridge Island’s population is relatively affluent. The trend line from the years 2000
through 2019 indicates relative increases in yearly household incomes above $100,000 and
corresponding decreases in the percentage of households earning below $100,000. More
detailed data about population demographics, including household incomes and housing
affordability, are presented in the Bainbridge Island Housing Needs Assessment and the
Bainbridge Island Economic Profile, which are Plan Appendices C and A, respectively.
Fig. IN-2 Population by Age Cohort in 2016
Island-wide Land Profiles
Almost 88% of the twenty-six square miles of the Island’s land coverage is either tree cover
or grass/scrublands. The developed portions of the Island constitute impervious surface
totaling about 11% of its land area.
25,000
20,00
0
65+
15,00
0 45-64
10,000 20-44
5,00
0 0-19
0
2000 2010 2019
(Projected)
65+ 0-19
45-64 20-44
65 years old +
45 to 64 years old
20 to 44 years old
0-19 years old
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Fig. IN-3 Land Coverage Types
The predominant land use on Bainbridge Island is residential (75%), with forest, agriculture,
parks/recreational lands totalling another 15%. The remaining 10% of the Island is
transportation (6%), Commercial/Industrial (2%) and Public Facilities (2%). See Fig. IN-4.
Fig. IN-4 Land Use Types
The protection and support of existing farms and the preservation of prime agricultural lands
and farms of local significance are important goals of the residents of Bainbridge Island.
Agricultural lands provide open space, habitat, groundwater recharge, local food production
with fewer transportation impacts and cultural value. Their protection can augment
sustainability goals.
Farming on the Island provides economic, social, aesthetic and nutritional benefit to the
community. Equally important, protection of agricultural lands will enhance the cultural and
economic diversity and help retain the Island’s rural character. Open space dedicated to
agriculture also conserves environmental resources.
TREE COVER 73%
GRASS/SCRUBLANDS 15%
IMPERVIOUS SURFACE 11%
OTHER COVERAGE 1%
RESIDENTIAL 75%
PARKS/RECREATION 7%
AGRICULTURE 6%
TRANSPORTATION 6%
COMMERCIAL/INDUSTRIAL 2%
PUBLIC FACILITIES 2%
FOREST 2%
Residential
Commercial/Industrial Public Facilities Forest
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Farm operations on the Island are unique. Small farms ranging in size from 1 acre to 40+
acres, are mostly dispersed throughout the Island with some clustering in a few locations.
The specialty, high-intensity, small farms will continue to be an important adjunct to farming
in the future.
The City currently owns sixty acres of public farmland managed under contract by a non-
profit organization. That organization also works with private landowners, seeking ways to
increase the amount of land used for food production, and to conserve the land for
agricultural uses over the long term. To preserve public farmland, the City should consider
designating its public farmland properties as Agricultural Resource Land (ARL) consistent
with WAC 365-190-050. Other non-profits are also involved in promoting agriculture on
Bainbridge.
Agriculture is a vulnerable enterprise in any rapidly growing area. As land values continue to
rise the economic viability of farms on Bainbridge Island depends on the farmers’ industry
and ingenuity and on public policies that provide incentives and tax relief.
HISTORY OF COMPREHENSIVE PLANNING ON BAINBRIDGE
The 2016 Update is the second major revision to the Comprehensive Plan. The first Plan
was officially adopted in 1994. Work on the first Plan began in 1990 when then Mayor Sam
Granato appointed members to the Comprehensive Plan Advisory Committee (CPAC). This
was soon after residents in the unincorporated area of Bainbridge (population of 12,000;
area of 17,700 acres) voted to annex into the City of Winslow (population of 3,000; area of
2,800 acres) and form the City of Bainbridge Island.
The timing for forming CPAC in 1990 was fortuitous, as the State of Washington that same
year passed the Growth Management Act. The very first section of the GMA reads:
The legislature finds that the uncoordinated and unplanned growth, together with a lack
of common goals expressing the public’s interest in the conservation and wise use of
our lands, pose a threat to the environment, sustainable economic development, and
the health, safety, and high quality of life enjoyed by residents of this state. It is in the
public interest that citizen, communities, local governments, and the private sector
cooperate and coordinate with one another in comprehensive land use planning.
RCW 36.70A.010
With the two parts of Bainbridge Island joined by annexation, CPAC was charged with
creating a plan for the entire island. Twenty staff members of CPAC and 130 citizens from
around the Island made a fresh start at planning for the Island as a whole. A 17-member
citizen participation committee was charged with obtaining broad community participation
and carried out a telephone survey and 16 focus groups.
The 1994 version of the comprehensive plan covered five elements (Land Use, Housing,
Water Resources, Transportation and Capital Facilities). Two more elements were later
added: the Cultural element in 1998 and the Economic element in 1999. Around 50
architects, engineers and other citizens contributed to a Winslow Design Workshop as part
of the 1994 planning. This eventually led to the adoption of the Winslow Master Plan
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2016 COMPREHENSIVE PLAN IN-7 INTRODUCTION
approved in May 1998. A sub-area master plan was adopted for Lynwood Center in 1997. A
number of amendments to the Growth Management Act and the Bainbridge Island
Comprehensive Plan have been adopted in the intervening years between 1994 and the
present.
A state-mandated update of the Comprehensive Plan began in 2000 and was completed in
2004. A steering committee was appointed consisting of three city council members and
three planning commissioners, who were supported by City staff. The update consisted of
three phases. Phase One produced a “Staff Review 2000”, which contained a review of
actions to implement the plan and recommendations for revising some of the goals and
policies. In addition, the “Community Values Survey Report” was published in July 2000.
This survey showed that community values and visions had not changed significantly since
1994. The most significant changes made in 2004 were the creation of the Environmental
Element (based on portions of the Land Use Element) and a Human Services Element.
‘Winslow Tomorrow’ was an ambitious planning process begun in 2004 that led to revision
of the Winslow Master Plan in 2006 and the ongoing modernization of Winslow’s
infrastructure. Another significant milestone in the City’s planning history was the issuance
in 2007 of the Final Report of the Mayor’s 2025 Growth Advisory Committee. That
document laid the groundwork for portions of the 2016 Comprehensive Plan update,
including the concept of designating several centers for future growth on the Island.
This brings us to the development of the 2016 Comprehensive Plan.
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THE FUTURE: NAVIGATING BAINBRIDGE
From 2014 through 2016, the City of Bainbridge Island
undertook the update of the Comprehensive Plan (the Plan).
This project titled “Navigate Bainbridge,” involved an extensive
public outreach program that engaged hundreds of citizens in
dozens of public meetings, workshops, open houses and public
hearings culminating in the adoption of the Plan by the City
Council.
The 2016 update of the Plan was prepared pursuant to the authority and requirements of the
Growth Management Act (GMA) which is codified in the Revised Code of Washington
(RCW) as Chapter 36.70A. The GMA requires that the Plan be reviewed and updated at
least every eight years which means the periodic update cycle for Bainbridge Island is 2016,
2024, 2032 and so on.
Among its many provisions, the GMA requires that the Plan must have sufficient land
capacity and urban services adequate to accommodate at least the next twenty years of
growth. This Plan provides for sufficient land and urban services to accommodate the City’s
growth allocation through the year 2036, however it also uses a longer time horizon where
appropriate. For example, policies in this Plan recognize that the life cycle of a sustainably
built environment is multi-decade while planning for natural systems and addressing climate
change requires a multi-generational perspective.
The GMA also requires that the Plan provide for sufficient capital facilities (e.g., roads,
sewer and water, parks, public buildings) to accommodate the City’s twenty-year allocations
of population and employment growth. This Plan does so. While the GMA does not
require a comprehensive plan to provide policy direction to a jurisdiction’s operating budget,
the Guiding Principles of the Bainbridge Island Plan explicitly state this Plan provides
direction to both the capital and operating budgets.
The Plan is organized as follows: it begins with a City-wide Vision that describes the
preferred future for Bainbridge Island in the year 2036. That is followed by eight Guiding
Principles and associated Guiding Policies that provide substantive direction to the ten
Elements (i.e., chapters) of the Plan. They also provide direction to the City’s functional
plans such as its parks, stormwater and utilities plans.
In addition, the Plan’s Vision, Guiding Principles and Policies, and Elements communicate
the City’s priorities to the other units of government responsible for providing services to the
Island community. This includes the Bainbridge Island Fire Department, Park and School
Districts, and the Washington State Department of Transportation, all of which prepare
functional and operating plans to provide their respective services and facilities to Island
residents. The relationship between the components of the Comprehensive Plan is
illustrated in Figure IN-5.
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2016 COMPREHENSIVE PLAN IN-9 INTRODUCTION
Bainbridge Island’s people reflect a range of ages, ethnicities, household sizes, livelihoods
and personal aspirations – we are 28,660 individuals who share a strong sense of
community and a commitment to environmental stewardship. We respect this legacy of the
generations that came before, beginning with the Island’s indigenous people, followed more
recently by European and Asian immigrants who built timber, maritime and agricultural
economies.
Bainbridge Island is home to a diverse mix of people including farmers, artists, students,
business professionals, service employees and retirees. We are an optimistic, forward-
looking and welcoming people - open to new ideas, industrious business people, new and
traditional cultures, and people of all ages and backgrounds. There is no word for exclusion
in Lushootseed, the language of the first peoples of Puget Sound.
Our success at balancing the inter-dependent goals of environmental stewardship,
economic development and the needs of our people is evident in the many ways we have
BAINBRIDGE ISLAND VISION 2036
The GMA requires that a
comprehensive plan include five
“mandatory” elements: Land Use,
Housing, Transportation, Capital
Facilities, and Utilities. The GMA
gives specific direction about
what information and local policy
decisions must be contained in
each of these mandatory
elements. This Plan includes all
the mandatory elements and sets
forth the City’s preferred policies
in each.
Cities are authorized to adopt
additional “optional” elements.
This Plan includes five optional
elements: Environmental, Water
Resources, Economic, Human
Services and Cultural.
The ten Elements in this Plan
each contain three distinct
components: a Vision Statement,
Goals and Policies, and a list of
prioritized Implementing Actions.
Terms that are defined in this
Plan’s glossary are italicized.
Fig. IN-5 Comprehensive Plan
Structure
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2016 COMPREHENSIVE PLAN IN-10 INTRODUCTION
accommodated growth, addressed the impacts of climate change and conserved our
environment.
Bainbridge Island’s water resources are climate resilient and are able to sustain all forms of
life on the Island. Aquifers are continuously monitored and managed to maintain our supply
of fresh water at a level that meets the high standards for drinking. Education on water
conservation has resulted in a significant reduction in the average water consumption per
household and low impact development techniques applied to all land uses and
redevelopment helps to recharge the Island’s aquifers.
Winslow, Lynwood Center and the Island’s other neighborhood centers have gracefully
evolved into compact, mixed-use, human-scaled and walkable places. They are the thriving
centers of civic life, cultural amenities, goods, services and a wide range of housing and
employment opportunities. These centers are pedestrian districts, linked to each other and
the region by a network of walkways, bicycle trails and transit that promote healthy lifestyles
and reduce the Island’s greenhouse gas emissions.
Bainbridge Island’s other taxing districts, Bainbridge Island Metropolitan Park & Recreation
District, Bainbridge Island School District, Bainbridge Island Fire District and Kitsap Regional
Library through Bainbridge Public Library all play significant roles in making this a healthy
community.
Affordable housing is available for much of the local service sector workforce. Improvements
in communication infrastructure have enabled more successful local enterprises, including
home-based business.
The Island is a national destination for visitors to experience artistic excellence and learn
about sustainability and resilient community development. Local employment opportunities
are diverse including small manufacturing, artisanal crafts, high tech, e-commerce, arts and
food. Small retailers are thriving by serving the needs of local residents as well as visitors.
A robust non-profit sector strengthens social capital while providing services and
employment opportunities.
Outside of the designated centers the predominant land use pattern is lower density with
lower building heights which minimizes the footprint of the built environment and maximizes
the protection of tree canopy, aquifers, surface waters and fish and wildlife habitat. The
Island’s broad conservation landscape of canopied woodlots, parks and saltwater shorelines
is dotted with working farms, historic structures and a housing stock that has become more
compact, energy-efficient and well-integrated into the landscape.
Agriculture is a thriving part of the Island’s economy. All City-owned agricultural land is
under cultivation and produces seasonal foods for local consumption. The number of farms
on private acreage has increased and is supplementing the local food supply. Capital
facilities planning has kept up with changes in the natural and built environments, meeting
the needs of a population that expects a high level of service. All residents have reliable
electric power, telecommunication services to meet their needs, potable water, solid waste
and recycling services, and storm water facilities that prevent flooding and erosion while
eliminating pollutants before the water enters Puget Sound.
The good will, imagination and pragmatism of our citizens foster an environment in which we
engage with, listen to, and learn from one another. Bainbridge Island functions as a caring
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community that provides human services where needed to maintain the well-being of all its
members, where every person feels connected to the community and where each individual
has opportunities.
Community cultural planning sets direction for integrating the arts, humanities and history
with urban design, economic development, education and other initiatives that nurture the
quality of life on Bainbridge Island.
Artistic creativity and humanistic inquiry advance other community goals such as economic
vitality, quality education, and community planning and design. Investments in the arts and
humanities are investments in the growth of the community, enriching the lives of its
residents and making Bainbridge Island a better place to live.
GUIDING PRINCIPLES
While the Vision describes a preferred future outcome for Bainbridge Island, the
Guiding Principles and associated Guiding Policies provide the policy direction needed to
navigate toward that desired future.
Guiding Principle #1
Preserve the special character of the Island, which includes downtown
Winslow’s small town atmosphere and function, historic buildings, extensive
forested areas, meadows, farms, marine views and access, and scenic and
winding roads supporting all forms of transportation.
Guiding Policy 1.1
Develop an island-wide conservation strategy to identify and apply effective methods to
preserve the natural and scenic qualities that make the Island a special place, including
better protection for the shoreline, trees, soils, native plants, and farms.
Guiding Policy 1.2
Accommodate new growth in designated centers that meet the Island’s identified needs
for housing, goods, services and jobs while respecting conservation and environmental
protection priorities.
Guiding Policy 1.3
The built environment represents an important element of the Island’s special character.
Improve the quality of new development through a review process that implements the
community vision and supports long-term goals for the preservation of the Island’s
special character.
Guiding Principle #2
Manage the water resources of the Island to protect, restore and maintain their
ecological and hydrological functions and to ensure clean and sufficient
groundwater for future generations.
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Guiding Policy 2.1
Manage the water resources of Bainbridge Island for the present and the future,
recognizing that the Island’s finite groundwater resources [aquifers] are the sole source of
our residents’ water supply and are critical perennial sources for our surface waters and
the ecosystems they support.
Guiding Policy 2.2
As part of long-range land use planning, consider the impacts of future development to
the quality and quantity of water that will be available to future Islanders and to the
natural environment. Maintain sustainable groundwater withdrawal, protect aquifer
recharge areas, guard against seawater intrusion and prevent adverse impacts to water
quality from surface pollution.
Guiding Policy 2.3
Preserve and protect the ecological functions and values of the Island’s aquatic
resources.
Guiding Policy 2.4
Anticipate and prepare for the consequences of climate change on our aquatic resources.
These changes include sea level rise, altered precipitation patterns, as well as any other
changes in climate and community response to climate in order to ensure ample quality,
quantity and seasonal integrity of surface water and groundwater for the Island’s people
and ecosystems.
Guiding Policy 2.5
Create a Bainbridge Island surface and groundwater management plan for the purpose of
maintaining the long-term health of our fresh water aquifers and surface waters.
Guiding Policy 2.6
Recognize the importance of our water resources to present and future generations of
Bainbridge Islanders, and apply the precautionary principle.
Guiding Policy 2.7
Recognize the water resource needs of farms, home gardens and domestic landscapes
and support planning and conservation practices that ensure the sustainable use of our
Island’s finite groundwater resources.
Guiding Principle #3
Foster diversity with a holistic approach to meeting the needs of the Island
and the human needs of its residents consistent with the stewardship of our
finite environmental resources.
Guiding Policy 3.1
Ensure a variety of housing choices to meet the needs of present and future residents in
all economic segments and promote plans, projects and proposals to create affordable
housing.
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Guiding Policy 3.2
Make budget decisions that adequately consider the well-being of all Island residents with
the goal of providing opportunities to be contributing members of the community.
Guiding Policy 3.3
Support, protect and enhance the value of the arts and humanities as essential to
education, quality of life, economic vitality, the broadening of mind and spirit, and as
treasure in trust for our descendants.
Guiding Principle #4
Consider the costs and benefits to Island residents and property owners in
making land use decisions.
Guiding Policy 4.1
Respect private property rights protected by the State and U.S. Constitutions.
Guiding Policy 4.2
Recognize that private property rights are not absolute but must be balanced with
necessary and reasonable regulation to protect the public health, safety and welfare.
Guiding Principle #5
The use of land on the Island should be based on the principle that the
Island’s environmental resources are finite and must be maintained at a
sustainable level.
Guiding Policy 5.1
Regulate all development on the Island consistent with the long-term health and carrying
capacity of its natural systems.
Guiding Policy 5.2
Recognize that the sustainable use of the Island’s finite land base is served by green
building practices.
Guiding Policy 5.3
Preserve and enhance the Island’s natural systems, natural beauty and environmental
quality.
Guiding Policy 5.4
Protect and enhance wildlife, fish resources and natural ecosystems on Bainbridge
Island.
Guiding Policy 5.5
Recognize and protect the Usual and Accustomed fishing areas of neighboring Tribes.
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Guiding Principle #6
Nurture Bainbridge Island as a sustainable community by meeting the needs
of the present without compromising the ability of future generations to meet
their own needs.
Guiding Policy 6.1
Promote environmental sustainability by supplementing the State’s mandated 20-year
plan horizon with a horizon of one hundred years in order to recognize the longer-term
life cycles of natural systems. Tailor green building practices and public infrastructure
investments to be in line with this longer-term perspective.
Guiding Policy 6.2
Promote an equitable social environment on the Island by addressing basic human needs
including affordable housing, personal health and safety, mobility and increased access
to human services, civic and cultural amenities.
Guiding Policy 6.3
Promote economic sustainability and work to provide economic opportunities for all
community residents.
Guiding Policy 6.4
Promote food production as part of the land use planning process.
Fig. IN-6 Sustainable Community
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Guiding Principle #7
Reduce greenhouse gas emissions and increase the Island’s climate
resilience.
Guiding Policy 7.1
Mitigation: Participate with state, regional and local partners to reduce greenhouse gas
emissions consistent with the 1990 benchmark and future year targets set forth in state
law, educate the public about climate change and incentivize Island activities including
land use patterns and building practices that reduce greenhouse gas emissions.
Guiding Policy 7.2
Adaptation: Minimize or ameliorate the impacts of climate change on our community and
our Island’s ecosystems through climate-informed policies, programs and development
regulations.
Guiding Policy 7.3
Evaluate the climate vulnerabilities and implications of City actions and identify policies
that alleviate those vulnerabilities. Consider the effects of shifting conditions (sea level
rise, changing rainfall patterns, increasing temperatures and more extreme weather
events) and the effects they cause (altered vegetation, changing water demands,
economic shifts).
Guiding Principle #8
Support the Island’s Guiding Principles and Policies through the City’s
organizational and operating budget decisions.
Guiding Policy 8.1
Promote good governance and an Island culture of citizenship, stewardship and civic
engagement.
Guiding Policy 8.2
Update each City Department’s work program annually, allocate sufficient time and
resources and provide needed policy direction to achieve consistency with and
implement the Comprehensive Plan in a manner that is transparent and consistent with
the community Vision.
Guiding Policy 8.3
Grow a diversified and vibrant local economy.
Guiding Policy 8.4
Nurture a healthy and attractive community including a focus on the quality of the built
environment through progressive development regulations and reviews.
Guiding Policy 8.5
Build reliable infrastructure and connected mobility that encourages physical activity such
as biking and walking while also respecting the Island’s scenic qualities.
Guiding Policy 8.6
Grow a green, well-planned, environmentally sustainable community.
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Guiding Policy 8.7
Plan for a safe city where citizens, City Officials, and Law Enforcement work together in
an environment of accountability and trust.
Guiding Policy 8.8
When implementing policies, consider longer-term, indirect or unintended consequences
of decisions.
WHAT A COMPREHENSIVE PLAN IS AND IS NOT
There is an important distinction between a comprehensive plan and a development
regulation. The former is a policy statement that provides direction. The latter is a control
on how land may be used, which is one of the ways in which a policy statement is
implemented.
The GMA definition of a comprehensive plan is:
"Comprehensive land use plan," "comprehensive plan," or "plan" means a generalized
coordinated land use policy statement…
RCW 36.70A.030(4)
Thus, the Bainbridge Island Comprehensive Plan is a “policy statement” that provides
important direction to a variety of City actions including but not limited to, the adoption of its
capital budget and its development regulations. However, the Plan is not a “land use control”
which means that it is not designed or intended to be applied directly to development
permits.
The GMA definition of development regulations is:
"Development regulations" or "regulation" means the controls placed on development or
land use activities by a . . . city, including, but not limited to, zoning ordinances, critical
areas ordinances, shoreline master programs, official controls, planned unit
development ordinances, subdivision ordinances, and binding site plan ordinances
together with any amendments thereto . . .”
RCW 36.70A.030(7)
The GMA also states:
“Each county and city that is required or chooses to plan under RCW 36.70A.040 shall
perform its activities and make capital budget decisions in conformity with its
comprehensive plan.”
RCW 36.70A.120
The “shall perform its activities” phrase suggests broader application of comprehensive plan
policies than simply codes and capital budgets. On Bainbridge Island, the City maintains a
number of functional plans, such as the City’s utility plans as well as programs it funds and
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administers through its budget. The City also coordinates with other units of local
government, e.g., the Bainbridge Island School, Fire, and Parks districts, each of which
maintains its own programs and functional or operational plans. These are inventoried in
the Plan’s Capital Facilities Element.
Types and Degrees of Policy Direction
The Elements in this Comprehensive Plan consist of Goals and Policies. Goals express the
high-rank order values that are most important to the Island community. They are
aspirational, frequently describing desired outcomes. The Policies listed under each Goal
identify strategies or specific actions to be taken to move the community in the direction of
fulfilling the Goal.
Depending on the issue and the Element, the Goals and Policies may provide direction to
the City Council, Planning Commission, Hearing Examiner and City Staff. Some of the
actions will take the form of land use or other development regulations; others will be capital
projects or programs; and still others may take the form of outreach, education, coordination
or partnership with citizens, organizations or other units of government.
The goal and policy statements sometimes use very directive verbs such as “maintain” or
“adopt.” In other cases, less directive verbs are used such as “consider” or “encourage.”
The more directive verbs convey a higher rank order of policy direction. Directive goal or
policy language may call for the updating of development regulations, however that does not
convert them into controls or conditions that can be directly applied to a permit decision.
A similar distinction can be made between the auxiliary verbs “should” and “shall.” Both
terms are used in the Comprehensive Plan and it is intended that both provide substantive
direction. The difference in meaning between “should” and “shall” is one of degree rather
than kind. As used in this Plan, the word “shall” imparts a higher order of substantive
direction than the word “should.” However as with the active verbs, the use of “shall”
remains substantive policy direction not a land use control within the GMA meaning and
definitions cited above.
How and when may the Comprehensive Plan be amended?
In addition to the eight-year cycle for the periodic review of the Comprehensive Plan, the
GMA also includes requirements regarding potential plan amendments in the intervening
years. Set forth at RCW 36.70A.130, these include:
A comprehensive plan may be amended no more than once in any calendar year.
The City’s comprehensive plan amendment process allows privately initiated
amendments every three years (BIMC 2.16.190).
All proposed plan amendments, including those initiated by private parties or by the
City, should be considered concurrently to determine the cumulative effect of the
proposals.
Procedures must be adopted for any interested person to suggest amendments to
either the Comprehensive Plan or development regulations.
A city must establish a means by which it will “docket” (i.e., compile and maintain a
list) of all suggested plan or development regulation amendments and consider
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whether or not to adopt them during the amendment process.
Public participation programs must be developed and followed for proposed
amendments to the Comprehensive Plan or development regulations.
VISION 2040: Puget Sound Regional Council
Puget Sound Regional Council (PSRC) is the metropolitan planning organization for
the greater Seattle area (Kitsap, Snohomish, King and Pierce counties). The
Bainbridge Island 2016 Comprehensive Plan advances the sustainable approach to
growth and future development that is the cornerstone of Vision 2040. Sustainability
is integrated throughout all Elements of the city’s comprehensive plan. We have
incorporated a systems approach to planning and decision -making that addresses
protection of the natural environment. The Plan commits to maintaining and restoring
ecosystems, reduce greenhouse gas emissions, promotes non-motorized
transportation, alternatives to single-occupancy vehicle travel, encourage compact
development and prioritizes the creation of new affordable housing. The Plan also
has established an affordable housing goals for this planning period. The plan
includes provisions that ensure that a healthy environment remains available for
future generations in our city.
The Plan has been updated based on residential and employment targets that align
with Vision 2040, as demonstrated through the population and employm ent capacity
analysis in the Kitsap County 2014 Buildable Lands Report. The City’s existing
residential and commercial zoning accommodates those target- see tables below.
Table IN-1: City of Bainbridge Island
Population Capacity and Demand
2036 Residential Population Forecast/Target 28,660
Population Capacity Under Existing Zoning 6,814
2010-2036 Allocated Population Growth 5,635
Net 20-Year Population Capacity (+ or -) +1,179
Population Capacity/Demand Ratio 1.21
Table IN-2: City of Bainbridge Island
Employment Capacity and Demand
Employment Capacity Under Existing Commercial
Zoning
2,941 jobs
2036 Employment Growth Forecast/Target 2,808 jobs
Net 20-Year Population Capacity (+ or -) +133 jobs
Employment Capacity/Demand Ratio 1.04
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TABLE OF CONTENTS
PAGE
INTRODUCTION ............................................................................................................ LU-1
LAND USE VISION ......................................................................................................... LU-2
ISLAND-WIDE LAND USE CONCEPT ............................................................................ LU-3
GOALS AND POLICIES .................................................................................................. LU-3
ISLAND-WIDE CONSERVATION AND DEVELOPMENT STRATEGY………………….LU-5
DESIGNATED CENTERS ........................................................................................... LU-8
WINSLOW TOWN CENTER .................................................................................. LU-11
HIGH SCHOOL ROAD AREA ................................................................................ LU-13
NEIGHBORHOOD CENTERS.................................................................................... LU-15
LYNWOOD CENTER ............................................................................................ LU-15
ISLAND CENTER .................................................................................................. LU-16
MILLER ROAD/BATTLE POINT DRIVE CONTRACT REZONE ............................. LU-16
ROLLING BAY ....................................................................................................... LU-16
STANDARDS FOR ALL NEIGHBORHOOD CENTERS ......................................... LU-17
BUSINESS/INDUSTRIAL ........................................................................................... LU-18
WATER-DEPENDENT INDUSTRIAL DISTRICT………………………………………...LU-19
ISLAND-WIDE CONSERVATION AREA .................................................................... LU-20
RESIDENTIAL DISTRICT………………...…… ………………………....LU-22
LOCAL FOOD PRODUCTION ................................................................................... LU-23
PURCHASE AND TRANSFER OF DEVELOPMENT RIGHTS PROGRAM ................. LU-24
PROPERTY RIGHTS………………………………………………………………………. LU-24
INTERGOVERNMENTAL COOPERATION AND COORDINATION…………....……. LU-24
HISTORIC PRESERVATION……………………………………………………….……... LU-25
CONTAMINATED SITES ……………………………………………...……………………LU-27
ESSENTIAL PUBLIC FACILITIES .............................................................................. LU-28
IMPLEMENTATION ...................................................................................................... LU-29
LAND USE ELEMENT
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2016 COMPREHENSIVE PLAN LU-1 LAND USE ELEMENT
The Land Use Element is one of the mandatory elements of the Comprehensive Plan under the
Growth Management Act (GMA). It addresses the general location and distribution of land
uses within the City and, in combination with other Plan Elements, guides the use of land on
Bainbridge Island. These other Elements include:
The Environment and Water Resources Elements that address the protection and
conservation of natural systems including the Island’s sole source aquifer, the quality
and quantity of water, habitat, vegetation and air.
The Housing Element that identifies strategies to increase the diversity of housing types
and the supply of affordable housing on the Island.
The Economic Element that encourages programs and policies to support economic
vitality and opportunity for Island residents.
The Transportation Element to provide mobility and safety for all users while respecting
neighborhood character and climate resilience.
The Capital Facilities and Utilities Elements to address the infrastructure needed to
serve the planned land uses.
Taken together, these Elements balance the Island’s highly held values of environmental
stewardship with the needs of its people for housing, health, safety, economic opportunity and
access to goods, services, recreation and cultural amenities. All of these Elements are guided
by the eight Guiding Principles set forth in the Introduction Chapter of this Comprehensive Plan.
These Principles emphasize the importance of shaping future growth and redevelopment in a
way that retains the Island’s character and quality of life that its residents so highly value.
Future growth on Bainbridge will be accommodated in a manner that is consistent with the
responsible stewardship of its finite natural resources and the requirements of the GMA. With
that overall goal in mind, this Comprehensive Plan goes beyond the GMA’s minimum
requirements. For example, it exceeds the GMA’s minimal requirement to address water
resources as a component of the Land Use Element by instead devoting an entire additional
Element to Water Resources. The GMA requires plans to be based on a twenty-year horizon,
but this plan uses a fifty-year/one hundred-year horizon to better account for the implications of
climate change and the much longer-term cycles of natural systems and public infrastructure
investments.
The Kitsap County 2014 Buildable Lands Report showed that the Island has sufficiently zoned
land in 2016 to accommodate the anticipated population and employment growth through the
year 2036. Therefore, any localized increase in density over current zoning should further one
or more of these public purposes:
1. Shift density from critical areas or farmland to Winslow or other designated centers.
2. Increase the range and supply of housing types and affordable housing.
3. Contribute to public infrastructure or public amenities in excess of what is needed to
mitigate the impacts of an individual project’s development.
4. Reduce greenhouse gas emissions.
5. Plan for the effects of climate change to avoid or ameliorate the impacts.
Another important component of the Plan’s implementation are benchmarks and targets against
LAND USE INTRODUCTION
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2016 COMPREHENSIVE PLAN LU-2 LAND USE ELEMENT
which to assess progress. For example, the Housing Element sets aspirational targets to
increase the diversity of housing types and supply of affordable housing and establish
benchmarks, a monitoring program and a schedule for progress reports. A monitoring program
must be created to track progress in achieving other aspects of the Plan’s vision and goals.
The environment, values and culture of our Island community have been protected, conserved
and enhanced by managing growth according to the Comprehensive Plan’s Guiding Principles,
Goals and Policies.
Fig. LU-1 Typical Island Designated Center
Fig. LU-2 Typical Island Conservation Area
LAND USE VISION 2036
Most of the preceding two decades of
growth have been attracted to the high
quality of life in the Island’s thriving
Designated Centers where cultural
amenities, employment and housing
opportunities abound and public
services, utilities and infrastructure are
efficiently provided.
These Designated Centers are
compact, human-scaled and pedestrian-
oriented, promoting a healthy lifestyle
and are linked to each other and the
region by a network of trails and transit.
(See Fig. LU-1.)
Outside of the Designated Centers,
almost 90% of the Island is a green and
open landscape. The residential land
use pattern in this Conservation Area
minimizes the footprint of the built
environment and embodies design
principles that protect the Island’s
aquifers, surface waters and fish and
wildlife habitat.
This broad landscape of canopied
woodlots, parks and saltwater shorelines
is dotted with working farms, historic
structures, freestanding residences and
conservation villages. (See Fig. LU-2.)
The evolving Designated Centers and
Conservation Areas on Bainbridge
Island embody the successful
implementation of the Island Land Use
Concept. (See Fig. LU-3.)
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2016 COMPREHENSIVE PLAN LU-3 LAND USE ELEMENT
GOAL LU-1
Plan for growth based on the growth targets established by the Kitsap Regional
Coordinating Council: 5,635 additional residents and 2,808 additional jobs from 2010-
2036 and at the same time promote and sustain high standards that will enhance the
quality of life and improve the environment of the Island.
Policy LU 1.1
The City accepts the Kitsap Regional Coordinating Council (KRCC) population allocation
and will continue to analyze the impacts of these allocations as the Comprehensive Plan is
implemented. With an allocation of 28,660, the Island must plan for an increase in population
of 5,635 persons and 2,808 jobs by the year 2036.
GOALS & POLICIES
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2016 COMPREHENSIVE PLAN LU-4 LAND USE ELEMENT
Policy LU 1.2
Outside of Winslow and the Designated Centers, the Island has a rural appearance with
forested areas, meadows, farms and winding, narrow, heavily vegetated roadways. These
characteristics represent an important part of the Island’s special character that is so highly
valued by its residents.
As important as preserving Island character is to its residents, of equal importance is the
protection of the Island’s environmentally sensitive areas. These outlying areas contain much
of the Island’s sensitive areas – the major recharge areas for the Island’s aquifers,
wetlands and streams that serve a variety of important functions. Much of the area serves as
fish and wildlife habitat. There is strong public support to encourage a pattern of development
that preserves and protects this portion of the Island.
GOAL LU-2
This Comprehensive Plan recognizes and affirms that as an Island, the city has natural
constraints based on the carrying capacity of its natural systems. The plan strives
to establish a development pattern that is consistent with the Goals of the community
and compatible with the Island’s natural systems.
Policy LU 2.1
Recognizing that the carrying capacity of the Island is not known, the citizens of Bainbridge
Island should strive to conserve and protect its natural systems within the parameters of
existing data. Revisions to the Plan should be made as new information becomes available.
The carrying capacity of Bainbridge Island is determined by many factors including the supply
of limited resources (particularly water), changes in patterns of consumption and technological
advances. This Plan acknowledges that with current information, the carrying capacity of the
Island is unknown. During the timeframe of this Plan, additional information on the carrying
capacity of the Island should be developed.
The plan takes a balanced and responsible approach to future development. As our
understanding of the Island’s capacity changes, the recommendations of this Plan should be
reconsidered to ensure they continue to represent a responsible path for the long-range
future of the Island.
Policy LU 2.2
Establish a public education program to foster the community’s understanding of the natural
systems on the Island and their carrying capacity.
Policy LU 2.3
This Plan recognizes that stewardship of the land is a responsibility of individual citizens and
the community as a whole. Through its status as an employer and landowner, the City sets an
example of environmental stewardship so that others will be encouraged to do so.
Policy LU 2.4
Develop a City program that recognizes and rewards stewardship so that others will be
encouraged to follow suit.
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2016 COMPREHENSIVE PLAN LU-5 LAND USE ELEMENT
Policy LU 2.5
Prepare a Bainbridge Island Climate Change Strategy and Water Conservation Plan.
Revisit with Environmental, Water Resource& Housing Element
GOAL LU-3
Develop a meaningful process for citizen participation that includes participation from all
segments of the Island community.
Fig. LU-4 Listening sessions with citizens helped kick off the 2016 Comprehensive Plan update.
ISLAND-WIDE CONSERVATION AND DEVELOPMENT STRATEGY
GOAL LU-4
As part of a long-term Island-wide Conservation and Development Strategy, focus
residential and commercial development in designated centers, increase a network of
conservation lands, maximize public access while protecting the shoreline, minimize
impacts from the SR 305 corridor and conserve the Island’s ecosystems and the green
and open character of its landscape.
Policy LU 4.1
Focus development and redevelopment on the Island over the next fifty years in designated
centers that have or will have urban levels of services and infrastructure while increasing
conservation, protection and restoration on the Island, including shorelines, especially where
there is interaction between the fresh and saltwater environments.
Policy LU 4.2
Adopt a multi-year work program to undertake the subarea planning for the designated centers
of Island Center, Rolling Bay, Sportsman Triangle and Day Road. The product will be Subarea
Plans for each of the designated centers that will be adopted as part of the Comprehensive
Plan.
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2016 COMPREHENSIVE PLAN LU-6 LAND USE ELEMENT
Policy LU 4.3
Updating the Winslow Master Plan is a high work program priority because the greatest
potential for achieving many of the City’s development priorities is focused there including
increasing the diversity of housing types and the supply of affordable housing while helping to
reduce the development pressures in the Island’s conservation areas.
Policy LU 4.4
Subarea planning for each designated center shall be informed by surface water and aquifer
data in the respective watershed and appropriate provision made to limit permitted uses or
require specific measures to protect the water resource.
Policy LU 4.5
Subarea planning for each designated center shall engage residents, landowners, businesses
and other stakeholders in envisioning the appropriate extent, scale, use mix and the desired and
required services and infrastructure to serve the selected use mix and intensity.
Policy LU 4.6
The Future Land Use Map in Fig. LU-5 establishes the future distribution, extent and location of
generalized land uses on the Island.
Policy LU 4.7
Continue to utilize the goals, policies and use regulations of the Shoreline Master Program to
protect the environmental quality of and public access to the Island’s saltwater shoreline.
Policy LU 4.8
The SR 305 corridor with its gateways at the Washington State Ferry landing in Winslow and
the Agate Pass Bridge, is a major regional facility managed by the Washington State
Department of Transportation. Actively work with the State and others to minimize the traffic
impacts of SR 305 on mobility, safety, air quality, noise and the visual character of Bainbridge
Island while also serving both the motorized and non-motorized needs of Island residents and
businesses.
Policy LU 4.9 Coordinate the City’s planning programs and development regulations
concerning open space preservation with the efforts of appropriate organizations to identify and
prioritize conservation and open space opportunities, and to acquire and administer
conservation easements.
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Fig. LU-5 Future Land Use Map
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2016 COMPREHENSIVE PLAN LU-8 LAND USE ELEMENT
.
Fig. LU-6 The scenic highway SR 305 corridor is a major part of the Island’s functional mobility and
visual character.
Policy LU 4.10
Lands shown on Fig. LU-3 as “Conservation Areas” are appropriate for residential, recreational,
agricultural, habitat and open space uses. The City will use a variety of conservation tools,
including public acquisition of certain properties, regulatory protection of critical areas and
innovative tools such as aquifer conservation zoning and conservation villages to minimize the
development footprint within these Conservation Areas.
Policy LU 4.11
To the greatest degree practical, prohibit clearcutting and grading of the natural landscape.
DESIGNATED CENTERS
GOAL LU-5
Focus Urban Development in Designated Centers
The Plan focuses residential, commercial, and industrial growth in Winslow and other
designated centers with urban services such as the Neighborhood Centers, and the industrial
centers at Day Road, and Sportsman Triangle. Collectively, Winslow, the Neighborhood
Centers, and the two industrial centers constitute Bainbridge Island’s designated centers.
This is a change from the 1994 and 2004 Plans both of which specified a numeric growth
strategy as follows: accommodate 50% of the population growth in Winslow through the year
2012 and accommodate 5% of population growth in the Neighborhood Centers. The balance
of the growth was to be absorbed throughout the remainder of the Island.
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2016 COMPREHENSIVE PLAN LU-9 LAND USE ELEMENT
Policy LU 5.1
Winslow is the urban core of the Island while the Neighborhood Centers are smaller-scale
mixed-use centers. In order to achieve the goals of the GMA this Plan:
Encourages development in areas where public facilities and services exist or can be
provided in an efficient and effective manner.
Provides a vibrant, pedestrian-oriented core.
Reduces sprawl.
Provides choice of housing location and lifestyle.
Maintains and protects environmentally sensitive and resource lands.
Encourages the retention of open space.
Maintains and enhances fish and wildlife habitat.
Policy LU 5.2
Increased density over and above the existing zoning in the Neighborhood Centers should
only occur through a shift in density from areas identified in the Island-wide Conservation
Strategy through PDRs, TDRs or other mechanisms and through the use of density bonuses
for affordable housing.
Policy LU 5.3
Encourage residential uses in a variety of forms and densities as part of the use mix in
Winslow and neighborhood centers. AFTER HOUSING ELEMENT
REVIEW AFTER HOUSING ELEMENT
Policy LU 5.4
Sustainable development and redevelopment will be focused in the designated centers
through a combination of intergovernmental and public-private partnerships, affordable
housing programs, “green” capital projects and low impact development standards.
Fig. LU-7 Low Impact Development methods mimic natural drainage processes
Policy LU 5.5
Implement a green building code.
Policy LU 5.6
Create mechanisms for retaining and preserving open space near designated centers.
Policy LU 5.7
Encourage the design of buildings in designated centers for a long life and adaptability to
successive uses over time.
Policy LU 5.8
Adopt development standards and program public improvements to encourage walkability
within each designated center and to the surrounding areas.
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Policy LU 5.9
Design and locate development to avoid or minimize potential conflicts with agricultural
activities and recognize right-to-farm regulations in developments located adjacent to
agricultural uses.
Policy LU 5.10
Improve transportation facilities between designated centers to reduce vehicle miles traveled
and greenhouse gas emissions.
Policy LU 5.11
Commercial and residential density within designated centers may be increased through the
use of:
Affordable housing.
TDRs (transferable development rights).
Contributions to public infrastructure and public amenities in excess of what is required
to mitigate the impacts of development.
Transfer of residential density within the MUTC and the High School Road Districts or
within neighborhood centers.
Preservation of on-site of historic structures eligible for inclusion on a local, state
or federal register of historic places.
Locating ferry-related parking under building.
GOAL LU-6
Ensure a development pattern that is true to the Vision for Bainbridge Island by reducing
the conversion of undeveloped land into sprawling development. Encourage
improvement of aging or underutilized developments over development of previously
undeveloped property.
Policy LU 6.1
Land use designations reflect the priority of Bainbridge Island to remain primarily residential and
agricultural with nonresidential development concentrated in the designated centers.
Policy LU 6.2
Promote dense residential and commercial development and encourage human activity within
Winslow, the heart of Bainbridge Island. In order to create a vibrant city center direct growth
where infrastructure exists, reduce reliance on the automobile, provide opportunities for
affordable housing and absorb growth that would otherwise be scattered in outlying areas. Plan
for adequate parking in Winslow to accommodate residents and visitors who drive downtown for
shopping, participation in local government, attendance at cultural events and centers, and to
use other resources in Winslow.
Policy LU 6.3
Island Center, Rolling Bay, and Lynwood Center offer housing and small-scale, commercial and
service activity outside of Winslow. These Neighborhood Centers are allowed to develop at
higher densities to reinforce their roles as centers.
ING, TRANSPORTATION, WATER RESOURCES ELEMENTS
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2016 COMPREHENSIVE PLAN LU-11 LAND USE ELEMENT
Policy LU 6.4
The industrial designated centers at Day Road and Sportsman Club are intended to augment
the Winslow, Lynwood, Island Center and Rolling Bay designated centers and allow a diverse
economy with business retention, growth and innovation on the Island.
Policy LU 6.5
Process applications for development approval on Bainbridge Island within the timelines
established in the City’s land development regulations in order to ensure affordability, fairness,
citizen notification and predictability in the land development process.
Policy LU 6.6
Accessory dwelling units are considered allowed uses in all residential zoning districts except R-
6 to reflect the policies in the Housing Element to provide for a variety of housing options,
especially affordable housing, in areas designated for residential development.
Policy LU 6.7
Water or wastewater infrastructure which may contribute to system capacity exceeding local
need, shall not be used to justify development counter to the City-wide land use policies.
Policy LU 6.8
Review and specify the authority and the role of the Design Review Board, Hearing Examiner,
Planning Commission and City Council in the land use development review and decision-
making process. Land use actions can be ministerial, quasi-judicial and legislative in nature. As
part of this review, consider a role for the Planning Commission and/or Design Review Board in
reviewing preliminary long subdivisions.
Winslow Town Center
The Winslow Master Plan (Appendix D) encourages development of a neighborhood that
contains a strong , 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 multifamily areas immediately adjacent to the downtown to single-family residential
neighborhoods.
Fig. LU-8 Winslow Way buildings and uses create human scale, pedestrian orientation and character
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2016 COMPREHENSIVE PLAN LU-12 LAND USE ELEMENT
GOAL LU-7
The Winslow mixed use and commercial districts are designed to strengthen the vitality
of downtown Winslow as a place for people to live, shop and work. The Winslow
Mixed Use Town Center (MUTC) is intended to have a strong residential component
to encourage a lively community during the day and at night. The high residential
density of Winslow requires the Central Core Overlay District to provide services and
products that meet the needs of residents as well as visitors.
Policy LU 7.1
The Island’s major center for new commercial development is the Mixed Use Town Center
(MUTC) and the other commercial districts in Winslow.
Development within the MUTC and High School Road Districts shall be consistent with the
Winslow Master Plan. The level of development is determined using Floor Area Ratio (FAR)
rather than dwelling 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.
Fig. LU-9 Winslow Residential, Commercial and Civic Uses are inter-connected
Policy LU 7.2
Phasing mechanisms and incentives should be developed to promote the timely and logical
progression of commercial and residential development.
Policy LU 7.3 Central Core Overlay District
The Central Core is the most densely developed district within the Mixed Use Town Center.
Within this Overlay District, residential uses are encouraged, but exclusive office and/or retail
uses are permitted. Mixed-use development within the Central Core Overlay District that
includes a residential component may be exempt from requirements to provide off -street
parking for the residential component of the project.
Policy LU 7.4 Ericksen Avenue Overlay District
The purpose of this Overlay District is to preserve the unique and historical features of the
neighborhood and to provide for a mix of residential and small-scale non-residential
development. Retail development is permitted only on the ground floor, while residential and
office development is permitted on the upper floors. Historic (pre-1920) single-family residential
structures on Ericksen may be converted to non-residential use, provided that the structure is
preserved. However, any additions to the structure must be added to the rear and must be
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2016 COMPREHENSIVE PLAN LU-13 LAND USE ELEMENT
compatible with the character of the original structure. New buildings shall employ traditional
building forms, roof shapes, and relationship of building to street to be compatible with the
historic structures on Ericksen Avenue.
Policy LU 7.5 Madison Avenue Overlay District
The purpose of this Overlay District is to provide for a mix of residential and small-scale non-
residential development. All retail and office development greater than one story above grade
shall include a residential component. Retail development is permitted only on the ground floor.
Policy LU 7.6 Gateway Overlay District
The corridor along SR 305 from Winslow Way to the parcel north of Vineyard Lane is the
gateway to Bainbridge Island, and new uses should enhance its role as the gateway while also
protecting the Winslow Ravine.
Policy LU 7.7 Ferry Terminal Overlay District
This District is intended to provide an attractive setting for ferry and associated transportation-
oriented uses, and to serve as the entry point for Winslow. This District is also a new mixed-
use neighborhood that complements the character and vitality of the Core District, serving both
neighborhood residents and commuters.
High School Road District
GOAL LU-8
The High School Road District is intended to provide mixed use and commercial
development in a pedestrian-friendly retail area.
Policy LU 8.1
The High School Road District includes a diversity of types of shopping and employment. A
variety of commercial uses are allowed which offer goods and services for the convenience of
Island residents.
Policy LU 8.2
Promote pedestrian-oriented mixed use and residential development to offer a variety of
housing types and sizes.
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2016 COMPREHENSIVE PLAN LU-14 LAND USE ELEMENT
Policy LU 8.3
Auto-oriented uses and drive-through
businesses that benefit from access to
SR 305 shall be limited to the yellow
dashed area shown in Fig. LU-10.
Policy LU 8.4
To visually screen development year-
round, properties with frontages along
SR 305 shall provide a vegetated buffer
along the highway that includes the
preservation and protection of existing
vegetation. Access to these properties
should not be directly from SR 305.
Policy LU 8.5
The properties designated on the
Land Use Map as High School Road
District II are each limited to no more than 14,400 square feet of retail use. Retail use between
5,000 and 14,400 square feet requires a conditional use permit. This portion of High School
Road 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.
Fig. LU-11 High School Road Area Mid and Low Rise Buildings
Policy LU 8.6
To ensure visual appeal and pedestrian and bicycle safety, the land development regulations
include design standards for:
Building height, bulk and placement.
Landscaping including screening of parking lots and development of pedestrian-
oriented streetscape with building and landscaping (including trees) located at the
street edge.
Lot coverage.
Fig. LU-10 High School Road Area
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2016 COMPREHENSIVE PLAN LU-15 LAND USE ELEMENT
Open space.
Road access and internal circulation including pedestrian connections, developing
more pedestrian crossings and requiring parking in the rear wherever possible.
Signage.
Additional transit stops on both sides of SR 305.
NEIGHBORHOOD CENTERS
The Neighborhood Centers provide Island-wide commercial and service activity outside
Winslow. These areas are to be developed at higher densities to reinforce their roles as
community centers. The neighborhood centers will help reduce traffic congestion by
providing an alternative to shopping in Winslow.
GOAL LU-9
Encourage the development of the Neighborhood Centers at Rolling Bay, Lynwood
Center, and Island Center as areas with small-scale commercial, mixed use and
residential development outside Winslow.
Policy LU 9.1
The Neighborhood Centers provide Island-wide small-scale commercial and service activity
and mixed-use development outside Winslow.
Policy LU 9.2
Orient development toward the pedestrian. Retail uses are encouraged on the ground-floor
to prevent blank walls with little visual interest for the pedestrian. Offices and/or residential
uses are encouraged above ground floor retail.
Policy LU 9.3
Allow development of Neighborhood Centers in areas designated on the Future Land Use
Map.
Lynwood Center
Policy LU 9.4
Any new development or expansion of existing development in Lynwood Center will be
required to connect to public sewer when available or meet other Health District
requirements when appropriate.
A subarea plan has been completed for Lynwood Center. Appendix E is the “Lynwood Center
Special Planning Area Report and Final Recommendations” adopted as a subarea plan in 1997.
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2016 COMPREHENSIVE PLAN LU-16 LAND USE ELEMENT
Fig. LU-12 Lynwood Center is a thriving mixed-use pedestrian neighborhood center
Island Center
Policy LU 9.5
The boundaries for Island Center are as shown on Fig. LU-5, the Future Land Use Map. Any
changes to the boundaries may be considered during the subarea planning process.
Contract Zone: Miller Road/Battle Point Drive
Policy LU 9.6
The 16.7-acre site on Miller Road is designated a contract zone to recognize the activities
currently occurring on-site under the provisions of an Unclassified Use Permit and to consider
some expansion of those activities.
Rolling Bay
Policy LU 9.7
The boundaries for Rolling Bay are as shown on Fig. LU-5, the Future Land Use Map. Any
changes to the boundaries may be considered during the subarea planning process.
Fig. LU-13 Rolling Bay Center is a cluster of primarily retail and civic uses
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2016 COMPREHENSIVE PLAN LU-17 LAND USE ELEMENT
Standards for all Neighborhood Centers
The following standards ensure that development will be designed to fit into the scale and
character of the existing centers and the adjacent residential neighborhoods. The City
developed design prototypes or illustrated design guidelines for each of the three
Neighborhood Centers to serve as a visual reference for the future development of the
community. These design guidelines can be crafted to recognize the distinct qualities of each
designated center.
Policy LU 9.81.6
The Neighborhood Centers achieve a mix of neighborhood-scale businesses, public uses and
housing which are compatible with the scale and intensity of the surrounding residential
neighborhood and which minimize the impact of noise, odor, lighting, fire safety and
transportation on the neighborhood.
Policy LU 9.9
Mixed use development is encouraged.
Policy LU 9.10
Proposed uses must consider the impact on water quality, stormwater runoff and
environmentally sensitive areas such as wetlands, streams and aquifer recharge areas.
Policy LU 9.11
The development regulations should include design standards for:
Building height, bulk, massing and articulation to promote a pedestrian scale.
Parking requirements including location of parking to the rear or side yards unless
otherwise provided for in a Subarea Plan.
Landscaping including parking lots and buffer areas between higher and lower intensity
uses and consideration of trees that allow solar access.
Lighting standards that prevent unnecessary glare and light trespass on neighboring
residential properties.
Noise level limits appropriate for mixed use development.
Location and screening of service areas such as dumpsters.
Open space.
Pedestrian linkages.
Policy LU 9.12
Encourage neighborhood participation in defining the design standards for each Neighborhood
Center.
Policy LU 9.13
Establish and implement a street tree plan and planting program for major roadways at the
Neighborhood Centers.
Policy LU 9.14
Develop a parking plan for each Neighborhood Center if appropriate.
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2016 COMPREHENSIVE PLAN LU-18 LAND USE ELEMENT
Policy LU 9.15
Consider opportunities for providing a neighborhood commons or meeting place with any
proposal for major redevelopment of an existing Neighborhood Center or as part of
development of a new Neighborhood Center to encourage the use of the Neighborhood
Center by surrounding residents.
Policy LU 9.16
To minimize visual and environmental impacts, encourage parking in the rear or side yards
or underground of multifamily, commercial and mixed use developments. Design parking
lots to be pedestrian-oriented and provide pedestrian and bicycle routes between the street,
parking area and main entrance. Consider solar access when planning size and type of trees
within a parking lot.
Policy LU 9.17
Infill within the boundaries of Neighborhood Centers through the transfer of development rights
from the Conservation Areas of the Island (See Fig. LU-3) or through an affordable housing
density bonus.
BUSINESS/INDUSTRIAL
GOAL LU-10
Provide appropriate Business/Industrial (B/I) zoned land to create opportunities for new
businesses and expansion of existing Island businesses for diversity of jobs and for
low-impact industrial activity that contributes to well-paying and new employment
opportunities, where traffic congestion, visual, and other impacts on the surrounding
neighborhood can be minimized.
Policy LU 10.1
The Business/Industrial (B/I) District is for light manufacturing development as well as other
uses that add to the diversity of economic activity on the Island.
Policy LU 10.2
New manufacturing businesses that plan to utilize toxic/hazardous substances must list these
substances and quantities projected for annual usage and demonstrate compliance with all
Federal, State and Kitsap Public Health District requirements for their handling. Development
proposals are evaluated using performance standards for the B/I district. Uses of certain
toxic/hazardous substances can disqualify the application from approval because of potential
environmental impact, however the City would consider factors such as quantity used,
adequacy of storage, containment, spill management and waste disposal plans in reviewing
such a proposal.
Policy 10.3
Coordinate with the Bainbridge Island Fire Department when reviewing development proposals
concerning hazardous materials.
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2016 COMPREHENSIVE PLAN LU-19 LAND USE ELEMENT
Policy LU 10.4
Applications for development approval within the B/I district must show that adequate water,
wastewater, transportation, fire and storm drainage services are available to serve the
development.
Policy LU 10.5
Ensure the adequate monitoring and enforcement of hazardous material regulations.
Policy LU 10.6
Performance standards for the B/I district address odor, lighting, noise, vibration, signage,
traffic volumes, ingress and egress, parking, delivery and loading areas, and pedestrian and
vehicle circulation, to create safe, efficient, compatible conditions among a variety of on-site
uses and to protect adjacent residential neighborhoods.
Policy LU 10.7
B/I uses must be visually screened year-round from adjacent non-industrial properties and
roadways, especially scenic highway SR 305. The visual screening could be achieved through a
combination of vegetation and building setback that would add depth to the buffer.
Policy LU 10.8
Discourage the inappropriate designation of isolated Business/Industrial Districts.
Policy LU 10.9
Isolated B/I activities are designated to reflect historical use and the designation shall not be
expanded.
WATER-DEPENDENT INDUSTRIAL DISTRICT
GOAL LU-11
Allow for the continuation of water-dependent, industrial uses on Bainbridge Island in
order to preserve elements of a working waterfront within the urban shoreline area.
Water-dependent uses require direct contact with the water and cannot exist at a non-
water location due to the intrinsic nature of the operation.
Policy LU 11.1
The Water-dependent Industrial District is intended primarily to provide for ship and boat
building and boat repair yards. Preference should be given to small, local, boat haul-out and
repair facilities, and water-oriented industry which serves boating needs.
Policy LU 11.2
Water-dependent industrial development shall not be located on sensitive and ecologically
valuable shorelines such as natural accretion shore forms, marshes, bogs, swamps, salt
marshes and tidal flats, and wildlife habitat areas, nor on shores inherently hazardous to such
development, such as flood and erosion prone areas and steep and unstable slopes.
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2016 COMPREHENSIVE PLAN LU-20 LAND USE ELEMENT
Policy LU 11.3
Industrial uses shall employ best management practices (BMPs) and best available facilities
practices and procedures concerning the various services and activities performed and their
impacts on the surrounding water quality.
Policy LU 11.4
Carefully consider regional and statewide needs for industrial facilities in reviewing new
proposals, as well as in allocating shorelines for such development. Coordinate such reviews
or allocations with port districts, adjacent counties and cities, and the State in order to
minimize new industrial development that would duplicate under-utilized facilities elsewhere
in the region, or result in unnecessary adverse impacts.
Policy LU 11.5
Encourage expansion or redevelopment of existing, legally established industrial areas,
facilities, and services with the possibility of incorporating mixed use development over the
addition or location of new or single-purpose industrial facilities.
Policy LU 11.6
Encourage or require the joint use of piers, cargo handling, storage, parking, and other
accessory facilities among private or public entities in waterfront industrial areas.
Policy LU 11.7
Require new or expanded industrial development to provide physical access to shorelines
when such public access does not cause significant interference with operations or hazards
to life and property. Require as much visual access to the shoreline as possible.
ISLAND-WIDE CONSERVATION AREA
GOAL LU-12
Conserve ecosystems and the Island’s green, natural, open character.
Policy LU 12.1
Preserve the conservation area outside designated centers through a land use pattern which
will enhance the character of the area – forested areas, meadows, farms, scenic and winding
roads that support all forms of transportation – and the valuable functions the conservation area
serves on the Island (i.e., aquifer recharge, fish and wildlife habitat, recreation).
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2016 COMPREHENSIVE PLAN LU-21 LAND USE ELEMENT
Fig. LU-14 Typical view s from the road on much of the Island is of green, leafy countryside
Policy LU 12.2
Protect open space, critical areas and agricultural uses through public and private initiatives such
as open space tax incentives, conservation villages, PUDs, transfer and purchase of
development rights, public land acquisition, greenways, conservation easements, landowner
compacts or limiting the amount of lot coverage.
Policy LU 12.3
Encourage the aggregation of nonconforming lots of record and undeveloped subdivisions and
short plats in order to achieve a development pattern that is consistent with goals of the Plan to
preserve open space, provide greenways through the Island, protect environmentally sensitive
areas and protect water resources.
Policy LU 12.4
Protect aquifer recharge functions throughout the Island, all of which is an aquifer recharge
area, through the application of critical areas development regulations, Shoreline Master
Program use regulations, low impact development regulations and the wellhead protection
regulations administered by the Kitsap Public Health District.
Policy LU 12.5
Establish appropriate procedures to monitor the effect of water drawdowns within and between
aquifers and adopt programs and development regulations to preclude groundwater
contamination and to encourage water conservation and enhanced aquifer recharge.
Policy LU 12.6
Work with Kitsap Public Health District to allow innovative solutions for on-site sewage
treatment including community septic and grey water systems.
Policy LU 12.7
Consider allowing a density bonus in exchange for dedicating a portion of property into
conservation as open space, farmland or public access. Priority should be given to conserving
these lands near more densely developed areas.
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2016 COMPREHENSIVE PLAN LU-22 LAND USE ELEMENT
GOAL LU-13
Adopt landscape design standards and identify and protect public vantage points, view
corridors and scenic vistas to support the Island’s sense of place, identity and
orientation.
Policy LU 13.1
Manage existing vegetated buffers to preserve the Island’s character and the forested view
from the road. Remove invasive species in order to keep the native vegetation healthy.
Policy LU 13.2
Design and site new development to cause the least visual and environmental impact on the
Island landscape. Encourage the retention of features that enhance the Island’s character
such as barns, fences, fruit and vegetable stands.
Policy LU 13.3
Map tree-covered hillsides and hilltops, particularly the ridgelines so valued by the community.
Adopt development regulations and programs to protect them for their visual and aesthetic
benefits as well as their functions as wildlife habitat and erosion and runoff retardation.
Policy LU 13.4
Properties with frontage along SR 305 will provide and maintain a vegetated buffer along the
highway, preserving and augmenting existing vegetation, providing a year-round visual screen
between development and the highway. Access to these properties from SR 305 is
discouraged, and must follow the Highway Access Management provisions of WAC 468-51
and WAC 468-52.
RESIDENTIAL DISTRICT
GOAL LU-14
Develop context-sensitive regulations for residential development in areas designated
R-2, R-1 or R-0.4, in order to limit clearing, soil disturbance, promote low impact
development and reconcile development and conservation.
Policy LU 14.1
The Residential District area is designated for less intensive residential development and a
variety of agricultural and forestry uses.
Policy LU 14.2
Encourage residential development that is compatible with the preservation of open space,
forestry, agricultural activities, and natural systems. Accessory farm buildings and uses are
allowable.
Policy LU 14.3
Maintain the natural and scenic qualities of the Island by limiting residential density.
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2016 COMPREHENSIVE PLAN LU-23 LAND USE ELEMENT
Policy LU 14.4
Permit home occupations that provide employment opportunities where they are compatible
with surrounding neighborhoods and the environment.
Policy LU 14.5
Consider subarea planning for neighborhoods that request it. Establish land use policies and
development standards through the development of subarea plans tailored to the individual
communities. Neighborhood participation in development of subarea plans should be
encouraged.
LOCAL FOOD PRODUCTION
GOAL LU-15
Promote food security and public health through support for local food production,
awareness of farming practices. Encourage locally-based food production, distribution
and choice through commercial and urban agriculture, community gardens, farmers’
markets, farm stands and food access initiatives.
Policy LU 15.1
Encourage community gardening and/or agriculture on public land where appropriate.
Fig. LU-15 Farmland - Agriculture is part of Bainbridge Island’s landscape, history, economy and culture
Policy LU 15.2
Encourage the development of neighborhood community gardens or small-scale commercial
agriculture where appropriate.
Policy LU 15.3
Promote interagency and intergovernmental cooperation and resource-sharing to expand
community gardening opportunities.
Policy LU 15.4
Promote the dedication of land for community gardens in new housing developments.
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2016 COMPREHENSIVE PLAN LU-24 LAND USE ELEMENT
Policy LU 15.5
Support the local farmers market and the connection between consumers and farmers.
PURCHASE AND TRANSFER OF DEVELOPMENT RIGHTS PROGRAM
GOAL LU-16
Prioritize program goals and establish and maintain a purchase and transfer of
development rights program, to allow transferring development rights from areas
intended for conservation and promoting development in areas suitable for denser
development.
Policy LU 16.1
Maintain and improve the City’s Purchase of Development Rights (PDR) and Transfer of
Development Rights (TDR) programs to enable transferring development rights from the
Conservation Areas of the Island into Designated Centers. See Fig. LU-3.
Policy LU 16.2
The City recognizes the need to take a proactive role in the purchase and transfer of
development rights and such a program should include:
1. Designating appropriate staff resources to promote the program;
2. Providing for the outright purchase of development rights by the City and
establishing a fund for banking development rights;
3. Creating a process that coordinates the purchase and transfer of
development rights; and
4. Initiating an outreach program to educate property owners and potential buyers
about the use of the Purchase and Transfer of Development Rights program.
5. Engage and involve community partners such as the BI Land Trust, in the
exploration and potential implementation of a density transfer program.
PROPERTY RIGHTS
GOAL LU-17
Strive to ensure that basic community values and aspirations are reflected in the City’s
planning program while recognizing the rights of individuals to use and develop private
property in a manner that is consistent with City regulations. Private property shall
not be taken for public use without just compensation having been made. The property
rights of landowners shall be protected from arbitrary and discriminatory actions.
INTERGOVERNMENTAL COOPERATION AND COORDINATION
GOAL LU-18
The citizens expect all government entities to cooperate and serve their constituents
in a fiscally sound manner.
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2016 COMPREHENSIVE PLAN LU-25 LAND USE ELEMENT
Policy LU 18.1
It is the policy of the City to cooperate and coordinate with all other governmental entities which
serve the people of Bainbridge Island.
HISTORIC PRESERVATION
GOAL LU-19
Maintain and support an Historic Preservation Program – A successful historic
preservation program requires on-going support of the community as well as the City
government and its designated department.
Policy LU 19.1
Maintain the City’s status as a Certified Local Government (CLG) thereby promoting
collaboration among City departments, boards and commissions.
Policy LU 19.2
The City and its Historic Preservation Commission (HPC) will regularly review the local historic
preservation ordinance and update where necessary to assure that it achieves the
Comprehensive Plan’s goals and policies.
Policy LU 19.3
Develop the City’s preferred method of project compliance review and reporting consistent
with state laws and local ordinances.
Policy LU 19.4
Coordinate with Tribes and other interested stakeholders to promote awareness, respect for
and celebration of the Island’s historic resources.
GOAL LU-20
Identification and Evaluation of Historic Resources – Historic property inventory and
context statements inform planning efforts by identifying areas where resources worthy
of preservation exist or are likely to occur.
Policy LU 20.1
Recognize historic resources listed on or eligible for the local registry as significant historic
properties.
Policy LU 20.2
Maintain an updated inventory of historic resources using the latest affordable technologies
available.
Policy LU 20.3
Support and expand the Local Historic Register program.
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2016 COMPREHENSIVE PLAN LU-26 LAND USE ELEMENT
Policy LU 20.4
Develop protocols for the consistent evaluation of historic resources on the Island.
Policy LU 20.5
Define and identify “iconic” structures and sites (those intended for permanent preservation)
which are deemed essential elements of the community’s character, history and identity.
GOAL LU-21
Preservation and Enhancement of Historic Resources – An effective historic
preservation program provides meaningful practical incentives and policies for property
owners and developers to preserve historic resources.
Policy LU 21.1
Encourage preservation of existing historic structures and sites as an important tool in
building a sustainable and unique community.
Policy LU 21.2
Encourage the preservation, rehabilitation and restoration of existing structures through the
adoption and implementation of the International Existing Building Code (IEBC).
Policy LU 21.3
Develop design guidelines for projects within or adjacent to significant historic properties
and/or neighborhoods to ensure compatible development.
Policy LU 21.4
Develop guidelines to ensure review of potential direct and indirect impacts to
significant historic properties when planning and/or permitting projects.
Policy LU 21.5
Identify and support practical owner/operator economic incentives and policies to encourage
the rehabilitation and preservation of significant historic resources.
Policy LU 21.6
Engage in cooperative efforts with owners to encourage the preservation of historic resources.
GOAL LU-22
Public Participation – Establishing a broad base of support from citizens and their city
government will strengthen the community’s commitment to historic preservation.
Policy LU 22.1
Support on-going education programs to increase awareness of the Island’s historic resources.
Policy LU 22.2
Support efforts to publicly recognize preservation efforts within the Island community.
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2016 COMPREHENSIVE PLAN LU-27 LAND USE ELEMENT
Policy LU 22.3
Collaborate with interested stakeholders to promote historic preservation on the Island.
Policy LU 22.4
Identify and give public access to an appropriate repository for curating historic preservation
records and documentation.
Policy LU 22.5
Maintain and enhance the unique character of Fort Ward Study Area to recognize the history
and natural landscape of the area and the sense of community that exists including an open
space system made up of wetlands, a neighborhood park, the historic marching fields,
unbuildable slopes and the Fort Ward Park.
Policy LU 22.6
Where possible, create tax incentives and encourage private purchase and renovation of
historic structures. Transfer density within the Fort Ward Study Area as incentives for the
preservation of historic structures.
Fig. LU-16 Ford Ward history and structures help create unique local character and identity
CONTAMINATED SITES
GOAL LU-23
Incorporate awareness of known contaminated sites such as former lumber treatment
facilities, former fueling stations and other pollutant-generating land uses into all water
resources management, land use planning and capital facility management in order to
remediate or clean-up sites as effectively as possible while preventing further impacts to
the environment.
Policy LU 23.1
Assemble and maintain an inventory of contaminated sites on the Island to track site location,
contaminant(s) of concern, cleanup status and potential to impact nearby surface or
groundwater.
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2016 COMPREHENSIVE PLAN LU-28 LAND USE ELEMENT
Policy LU 23.2
Collaborate with the U.S. Environmental Protection Agency, Washington State Department of
Ecology, Tribes and the Kitsap Public Health District to address contaminated site assessment
and cleanup efforts within the purview of those agencies to achieve remediation/cleanup as
quickly as reasonably possible.
Policy LU 23.3
Clean-up and remediate City-owned contaminated sites.
Policy LU 23.4
Consult the contaminated site inventory:
Prior to property acquisition and weigh the cost/benefit of acquiring such a property;
As part of development or redevelopment site plan review and take potential impacts into
consideration when making land use decisions;
As part of capital infrastructure construction or maintenance;
As part of emergency management preparedness and response.
ESSENTIAL PUBLIC FACILITIES
GOAL LU-24
Meet the needs of the community by providing essential public facilities and services
that are equitably distributed throughout the community; that are located and
designed to be safe and convenient to the people they serve; that provide
flexibility of use and maximum efficiency; and that are compatible with adjacent uses,
the environment, and preservation of public health and safety.
The GMA requires that all jurisdictions planning under the Act must provide a process for siting
essential public facilities such as airports, correctional facilities and sewage treatment plants.
These goals and policies are intended to guide the siting process and therefore, in accordance
with RCW 36.70A.200(2), they do not preclude the siting of essential public facilities. Site
specific consideration of a proposed essential public facility would occur during the
development application review process.
Policy LU 24.1
Develop a list of essential public facilities of a local nature that may potentially be sited on
Bainbridge Island and coordinate with the Kitsap Regional Coordinating Council in the
development of a list of state and countywide public facilities.
Policy LU 24.2
New essential public facilities shall not be located in designated resource lands and critical
areas.
GOAL LU-25
The process for siting essential public facilities is designed to create an environment
of cooperation and include adequate and early public review to promote trust
between government agencies and the community.
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2016 COMPREHENSIVE PLAN LU-29 LAND USE ELEMENT
Policy LU 25.1
When an essential public facility as defined in RCW 36.70A.200 is proposed for Bainbridge
Island, and is greater than 3,000 square feet, the City will create a Facility Analysis and Site
Evaluation Committee composed of citizens, City Staff, elected officials and appropriate
technical experts. The Committee should consider, at a minimum, the following in determining
a recommendation to City Council:
Analysis of the need for such facility;
The development of specific siting criteria for the proposed project;
Identification, analysis and ranking of potential sites;
Consistency with the goals and policies of the City’s Comprehensive Plan;
Identification of potential physical impacts including but not limited to those relating to
land use, the environment, transportation, utilities, noise, odor and public safety;
Identification of potential cumulative impacts including the likelihood of a related
development locating in proximity to the proposed essential public facility;
Identification of potential fiscal impacts to the local economy; and
Measures to minimize and/or mitigate such impacts.
Policy LU 25.2
Develop a community notification and communications plan that will ensure ongoing contact
with the community during the planning and construction phase of an essential public facility
project.
Identify of all departments that will play a role in the planning or construction of an essential
public facility. Identify other governmental regulatory requirements, strategies for coordinating
interdepartmental and interagency activities and strategies for responding to emergency or
problem situations and identify a conflict resolution process.
To implement the goals and policies in this Element, the City must take a number of actions
including adopting or amending development regulations, creating partnerships and educational
programs and staffing or other budgetary decisions. Listed following each action are several of
the Comprehensive Plan’s policies that support that action.
HIGH PRIORITY ACTIONS
LU Action #1 Complete a thorough review of all Bainbridge Island codes to ensure that
they implement and are consistent with the Comprehensive Plan.
Policy LU 4.9 Coordinate the City’s planning programs and development regulations
concerning open space preservation with the efforts of appropriate organizations to identify and
prioritize conservation and open space opportunities, and to acquire and administer
conservation easements.
Policy LU 5.7 Encourage the design of buildings in designated centers for a long life and
adaptability to successive uses over time.
LAND USE IMPLEMENTATION
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Policy LU 5.8 Adopt development standards and program public improvements to encourage
walkability within each designated center and to the surrounding areas.
Policy LU 6.8 Review and specify the authority and the role of the Design Review Board,
Hearing Examiner, Planning Commission and City Council in the land use development review
and decision-making process. Land use actions can be ministerial, quasi-judicial and legislative
in nature. As part of this review, consider a role for the Planning Commission and/or Design
Review Board in reviewing preliminary long subdivisions.
LU Action #2 Review and update the Lynwood Center Subarea Plan.
Policy LU 9.4 Any new development or expansion of existing development in Lynwood
Center will be required to connect to public sewer when available or meet other Health
District requirements when appropriate.
A subarea plan has been completed for Lynwood Center. Appendix E is the “Lynwood Center
Special Planning Area Report and Final Recommendations” adopted as a subarea plan in 1997.
LU Action #3 Amend the City’s development code to implement green building codes.
Utilize lessons learned from communities of comparable environmental and socio-
economic characteristics to implement green building codes which address issues such
as site sustainability, water use efficiency, energy use efficiency, indoor environmental
quality, and the impact on the atmosphere, materials and resources by buildings.
Policy LU 5.5 Implement a green building code.
LU Action #4 Encourage development of adequate parking to support Winslow facilities
and services.
Policy LU 6.2 Promote dense residential and commercial development and encourage human
activity within Winslow, the heart of Bainbridge Island. In order to create a vibrant city center
direct growth where infrastructure exists, reduce reliance on the automobile, provide
opportunities for affordable housing and absorb growth that would otherwise be scattered in
outlying areas. Plan for adequate parking in Winslow to accommodate residents and visitors
who drive downtown for shopping, participation in local government, attendance at cultural
events and centers, and to use other resources in Winslow.
LU Action #5 Adopt a multi-year planning work program for adopting the subarea plans
for Island Center, Rolling Bay, Sportsman Triangle and Day Road.
GOAL LU-4 As part of a long-term Island-wide Conservation and Development Strategy, focus
residential and commercial development in designated centers, increase a network of
conservation lands, maximize public access while protecting the shoreline, minimize impacts
from the SR 305 corridor and conserve the Island’s ecosystems and the green and open
character of its landscape.
Policy LU 4.2 Adopt a multi-year work program to undertake the subarea planning for the
designated centers of Island Center, Rolling Bay, Sportsman Triangle and Day Road. The
product will be Subarea Plans for each of the designated centers that will be adopted as part of
the Comprehensive Plan.
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Policy LU 4.5 Subarea planning for each designated center shall engage residents,
landowners, businesses and other stakeholders in envisioning the appropriate extent, scale, use
mix and the desired and required services and infrastructure to serve the selected use mix and
intensity.
GOAL LU-6 Ensure a development pattern that is true to the Vision for Bainbridge Island by
reducing the conversion of undeveloped land into sprawling development. Encourage
improvement of aging or underutilized developments over development of previously
undeveloped property.
Policy LU 6.3 Island Center, Rolling Bay, and Lynwood Center offer housing and small-scale,
commercial and service activity outside of Winslow. These Neighborhood Centers are allowed
to develop at higher densities to reinforce their roles as centers.
GOAL LU-9 Encourage the development of the Neighborhood Centers at Rolling Bay,
Lynwood Center, and Island Center as areas with small-scale commercial, mixed use and
residential development outside Winslow.
GOAL EC-6 As the city’s designated centers evolve, balance their functions as places of
commerce and employment with their roles helping to meet housing needs and provide focal
points for civic engagement and cultural enrichment.
LU Action #6 Update the Winslow Mixed Use Town Center Master Plan in order to
facilitate progress on the Housing Priorities that can best be accommodated in an area
with an existing urban character, urban facilities, services and multi-modal
transportation options.
GOAL LU-4 As part of a long-term Island-wide Conservation and Development Strategy, focus
residential and commercial development in designated centers, increase a network of
conservation lands, maximize public access while protecting the shoreline, minimize impacts
from the SR 305 corridor and conserve the Island’s ecosystems and the green and open
character of its landscape.
Policy LU 4.3 Updating the Winslow Master Plan is a high work program priority because the
greatest potential for achieving many of the City’s development priorities is focused there,
including increasing the diversity of housing types and the supply of affordable housing while
helping to reduce the development pressures in the Island’s conservation areas
GOAL LU-5 Focus Urban Development in Designated Centers.
Policy LU 5.3 Encourage residential uses in a variety of forms and densities as part of the use
mix in Winslow and neighborhood centers.
GOAL LU-7 The Winslow mixed use and commercial districts are designed to strengthen the
vitality of downtown Winslow as a place for people to live, shop and work. The Winslow
Mixed Use Town Center (MUTC) is intended to have a strong residential component to
encourage a lively community during the day and at night. The high residential density of
Winslow requires the Central Core Overlay District to provide services and products that meet
the needs of residents as well as visitors.
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2016 COMPREHENSIVE PLAN LU-32 LAND USE ELEMENT
GOAL LU-8 The High School Road District is intended to provide mixed use and commercial
development in a pedestrian-friendly retail area.
GOAL EC-5 Provide a variety of affordable housing choices so that more people who work on
Bainbridge Island can live here.
LU Action #7 Consider development of a new Conservation Village land use regulation to
incentivize creation of a new housing pattern that consolidates and dedicates open
space.
Policy LU 4.10 Lands shown on Fig. LU-3 as “Conservation Areas” are appropriate for
residential, recreational, agricultural, habitat and open space uses. The City will use a variety
of conservation tools including public acquisition of certain properties, regulatory protection of
critical areas and innovative tools such as aquifer conservation zoning and conservation villages
to minimize the development footprint within these Conservation Areas.
Policy HO 3.1 Encourage innovative zoning regulations that increase the variety of housing
types and choices suitable to a range of household sizes and incomes in a way that is compatible
with character of existing neighborhoods.
LU Action #8 Identify discrete sections of the Land Use Code and land use approval
process, that can be enhanced to improve the quality of development, eliminate
confusion, and reduce redundancy and delays in the permitting process.
Policy LU 6.8 Review and specify the authority and the role of the Design Review Board,
Hearing Examiner, Planning Commission and City Council in the land use development review
and decision-making process. Land use actions can be ministerial, quasi-judicial and legislative
in nature. As part of this review, consider a role for the Planning Commission and/or Design
Review Board in reviewing preliminary long subdivisions.
LU Action #9 Create more efficient and effective review processes, including the roles
and best practices and procedures for the Planning Commission, Design Review Board
and Hearing Examiner.
Policy LU 6.5 Process applications for development approval on Bainbridge Island within the
timelines established in the City’s land development regulations in order to ensure affordability,
fairness, citizen notification and predictability in the land development process.
Action #10 Evaluate the reasons why the City’s PDR and TDR programs have not been
successful and explore ways to make them functional to meet City objectives.
Policy LU 17.1 Maintain and improve the City’s Purchase of Development Rights (PDR) and
Transfer of Development Rights (TDR) programs to enable transferring development rights from
the Conservation Areas of the Island into designated centers. See Fig. LU-3.
MEDIUM PRIORITY ACTIONS
LU Action #11 (Policy LU 2.5)
Prepare a Bainbridge Island Climate Change Strategy and Water Conservation Plan.
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OTHER PRIORITY ACTIONS
LU Action #12 Review and update design standards and guidelines for the neighborhood
centers.
Policy LU 5.4 Sustainable development and redevelopment will be focused in the designated
centers through a combination of intergovernmental and public-private partnerships, affordable
housing programs, “green” capital projects and low impact development standards.
Policy LU 5.6 Create mechanisms for retaining and preserving open space in the vicinity of
designated centers.
Policy LU 5.7 Encourage the design of buildings in designated centers for a long life and
adaptability to successive uses over time.
Policy LU 8.6 To ensure visual appeal and pedestrian and bicycle safety, the land development
regulations include design standards for:
Building height, bulk and placement.
Landscaping, including screening of parking lots, and development of pedestrian-
oriented streetscape with building and landscaping (including trees) located at the
street edge.
Lot coverage.
Open space.
Road access and internal circulation including pedestrian connections developing more
pedestrian crossings and requiring parking in the rear wherever possible.
Signage.
Additional transit stops on both sides of SR 305.
Policy LU 9.2 Orient development toward the pedestrian. Retail uses are encouraged on the
ground-floor to prevent blank walls with little visual interest for the pedestrian. Offices and/or
residential uses are encouraged above ground floor retail.
Policy LU 9.16 To minimize visual and environmental impacts, encourage parking in the rear
or side yards of multifamily, commercial and mixed use developments. Design parking lots =
to be pedestrian-oriented and provide pedestrian and bicycle routes between the street, parking
area and main entrance. Integrate trees in a parking lot to allow solar access.
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2016 COMPREHENSIVE PLAN ECONOMIC ELEMENT
TABLE OF CONTENTS
PAGE
ECONOMIC ELEMENT INTRODUCTION ...................................................................... EC-1
ECONOMIC VISION ………………………………………………………...………………… EC-1
GOALS AND POLICIES ................................................................................................. EC-2
DIVERSIFIED ECONOMY……………………………………………………………………EC-2
INFRASTRUCTURE .................................................................................................... EC-3
SUSTAINABILITY ........................................................................................................ EC-3
CIVIC LIFE ................................................................................................................... EC-4
JOBS/HOUSING BALANCE ........................................................................................ EC-5
DEVELOPMENT IN DESIGNATED CENTERS ............................................................ EC-5
PUBLIC/PRIVATE PARTNERSHIPS ........................................................................... EC-6
RETAIL AND SERVICES ............................................................................................. EC-7
SERVICES SECTOR ................................................................................................... EC-8
BUILDING, DESIGN AND CONSTRUCTION SECTOR ............................................... EC-8
TOURISM .................................................................................................................... EC-9
ARTS ........................................................................................................................... EC-9
HOME-BASED BUSINESSES ................................................................................... EC-10
AGRICULTURE ......................................................................................................... EC-10
BUSINESS/INDUSTRIAL ........................................................................................... EC-11
IMPLEMENTATION ……… ………………………………......……………………………...EC-11
ECONOMIC ELEMENT
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The future economy of Bainbridge Island is linked to the community’s vision and strategy for
dealing with future needs. A healthy, resilient economy, based on our collective future vision of
the Island, is a tool for accomplishing larger community goals and creating a robust future.
“The vision a community has of itself is important to its economy. Each community plays
a crucial role in creating for itself an environment that is attractive to and nurturing of
new and existing businesses. A vital economy requires adequate public facilities (water,
sewer, roads, schools, parks, libraries, emergency services and utilities). A community
that does all that AND preserves its natural features will have an edge when it comes to
improving its economy.”
Washington State Department of Commerce
The Growth Management Act (GMA) addresses the concerns of “uncoordinated and unplanned
growth that potentially pose a threat to the environment, sustainable economic development,
and the health, safety and high quality of life enjoyed by residents.” An important part of a
healthy economy is the quality of the environment.
The Economic Element of the Comprehensive Plan is intended to guide the climate for
enterprise and commercial exchange on Bainbridge Island and reinforce the overall vision and
values of the Comprehensive Plan adopted in 1994, and subsequently updated in 2004 and
2016: to steward a sustainable community; to protect the quality of its environment: the water,
air and land; and to encourage traditional resource based activities such as agriculture.
Bainbridge Island has developed in a manner that is consistent with stewardship of our Island’s
finite natural resources and the needs of a diverse population. Affordable housing is available
for much of the local service sector workforce and improvements in communications
infrastructure have enabled more successful local enterprises, including home-based business.
The economy of Bainbridge Island reaps advantages from proximity to the Seattle area and the
Kitsap Peninsula. The Island is a destination for visitors interested in learning about
sustainability and resilient community development. Local employment opportunities are
diverse, including small manufacturing, artisanal crafts, high tech, e-commerce, arts, and food.
Small retailers are thriving by serving the needs of local residents as well as visitors.
Agriculture is a thriving part of the Island’s economy: City-owned agricultural lands are being
sustainably cultivated and producing seasonal foods for local consumption. The number of
farms on private acreage has increased and is supplementing the local food supply. To enhance
the viability of local farms, affordable housing for farmworkers has been appropriately built on
City owned farmland.
Innovative and flexible city programs encourage the real estate market to adapt to trends that
favor conservation, efficient use of land and resources, and homes of modest size and price.
Islanders recognize that a sense of community as well as economic value is achieved by
ECONOMIC ELEMENT INTRODUCTION
ECONOMIC VISION 2036
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2016 COMPREHENSIVE PLAN EC-2 ECONOMIC ELEMENT
neighborly acts. A robust non-profit sector strengthens social capital, provides services and
employment opportunities.
DIVERSIFIED ECONOMY
GOAL EC-1
Promote economic vitality, growth and stability.
Bainbridge Island has the opportunity to create a robust, resilient and durable economy by
demonstrating early leadership and acknowledging the changes that will affect our economy.
Planning for these changes and taking actions that support and encourage a local economy will
help reduce community vulnerability to issues such as aging demographics, housing availability,
transportation constraints, and climate change.
By providing enterprises that both serve and employ local residents, Bainbridge Island will be
better able to withstand fluctuations in the larger regional economy. In addition, people who live
and work in their community are available to invest time and money in their families,
organizations, and community life. A key to a healthy, stable and vital economy is to create and
undertake business opportunities that anticipate and respond to conditions that affect our
community. This would include identifying emerging needs and markets so that Bainbridge
Island businesses benefit from being on the leading edge of change.
Policy EC 1.1
Develop and maintain regulations that provide support for our community’s businesses.
Policy EC 1.2
The city should embrace diverse and innovative business opportunities compatible with
community values and develop programs to make Bainbridge Island an attractive location for
those businesses.
Bainbridge Island is affected by regional, national, international and global environmental and
economic trends and changes in the physical environment. While we cannot control global
economic or environmental conditions we can support the local economy by providing policy
direction and land use infrastructure to allow for and encourage robust economic activities that
are prepared for and responsive to change.
Policy EC 1.3
Coordinate with local business groups to track commercial activity, identify trends and assess
the economic health of the Island. Create an Economic Development Strategy to identify
creative and appropriate ways for the City to encourage and stimulate business activity.
Policy EC 1.4
Support entrepreneurism by providing adequate land use designations in keeping with the
character of the Island, while avoiding investment in sectors, activities, or infrastructure that will
not remain viable in the foreseeable future.
GOALS & POLICIES
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2016 COMPREHENSIVE PLAN EC-3 ECONOMIC ELEMENT
Policy EC 1.5
In order to provide opportunities for business enterprise, adequate space must be
provided for efficient use of existing developed areas near public transportation (e.g.
ferry, bus service) and for growth that recognizes and protects the Island’s valued
natural amenities, its limits of land and water and the quality of its residential
neighborhoods.
Policy EC 1.6
Coordinate with the business community and others to monitor the Island’s business climate
and make appropriate adjustments to the economic vitality strategy
INFRASTRUCTURE
GOAL EC-2
Provide sufficient and resilient infrastructure that is supportive of a healthy economy and
environment, particularly telecommunications and electrical reliability.
Policy EC 2.1
Identify long-term infrastructure needs that support economic sustainability and are designed to
withstand future conditions.
Policy EC 2.2
Support infrastructure enhancement to accommodate new information technology and
changing conditions.
Policy EC 2.3
Implement infrastructure and technology improvements around designated centers to provide
enhanced service and to retain and attract business.
Policy EC 2.4
Utilize Local Improvement Districts to spur infrastructure development.
Policy EC 2.5
Consider the development of a downtown parking structure, possibly through a public/private
partnership.
SUSTAINABILITY
GOAL EC-3
Promote business practices that protect the Island’s natural beauty, and environmental
health, and support long-term business success.
Environmental protection is a value expressed in the guiding principles that are the foundation of
the comprehensive plan. A quality environment incorporates and enhances financial, natural,
and social economic capital of the community.
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2016 COMPREHENSIVE PLAN EC-4 ECONOMIC ELEMENT
Policy EC 3.1
Encourage the use of green building materials and techniques in all types of construction,
as well as design approaches that are responsive to changing conditions.
Policy EC 3.2
Help businesses find markets for surplus materials, by-products and waste.
Policy EC 3.3
Encourage local enterprises to participate in programs such as the Kitsap County Waste
Wise and Green Community Initiative, which recognize and assist business efforts to
protect the environment.
Policy EC 3.4
Encourage public sector solid waste reduction, reuse and recycling.
Policy EC 3.5
Encourage existing and new businesses to become part of a linked cooperative whereby
the by-products and waste of one enterprise become the raw materials of another.
Policy EC 3.6
Create opportunities to foster green technology and industries, such as energy, waste and
information technology, which have the potential to create local, family wage jobs in our
community at the same time we are protecting our natural beauty, environmental and economic
health.
CIVIC LIFE
GOAL EC-4
Encourage a broad range of civic activities and organizations.
Non-profit organizations are a source of employment and other economic benefits for Islanders
and utilize many local commercial and service providers. Volunteers also provide significant
contributions to the local economy and provide valuable human resources to the community.
Policy EC 4.1
Support the non-profit sector of human and social service providers.
Policy EC 4.2
Encourage and recognize individuals, organizations, and businesses that volunteer time and
skills to the community.
Policy EC 4.3
Encourage local business groups, educational institutions, and other entities to provide
continuing education and skills development.
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2016 COMPREHENSIVE PLAN EC-5 ECONOMIC ELEMENT
Policy EC 4.4
Promote Bainbridge Island as a family-friendly community with high quality schools, recreational
opportunities and a safe, clean environment.
JOBS/HOUSING BALANCE
GOAL EC-5
Provide a variety of affordable housing choices so that more people who work on
Bainbridge Island can live here.
The Housing Element of the comprehensive plan provides several options for the
development of affordable housing on the Island.
Policy EC 5.1
Continue to monitor the progress in implementing the Housing Element and evaluate new ways
of providing affordable housing.
Policy EC 5.2
In concert with the Housing Element’s Goals and Policies, pursue a housing strategy that seeks
to accommodate a wide variety of housing options, both in design and affordability, to meet the
demands of the full range of the population including service sector employees, retirees,
students, artists, farmers and craftspeople.
DEVELOPMENT IN DESIGNATED CENTERS
GOAL EC-6
As the city’s designated centers evolve, balance their functions as places of commerce
and employment with their roles helping to meet housing needs and provide focal points
for civic engagement and cultural enrichment.
Policy EC 6.1
Enhance the existing designated centers to help the Island economy prosper and provide a high
quality of life, creating ancillary benefits such as decreasing pollution (including greenhouse gas
emissions), protecting open space, and creating local family wage jobs.
Policy EC 6.2
Utilize urban design strategies and approaches to ensure that changes to the built environment
are at a locally appropriate scale and enhance the Island’s unique attributes, in recognition of
the economic value of “sense of place.”
Policy EC 6.3
Develop urban design strategies to ensure that the built environment is appropriate for present
and future conditions, including the impacts of climate change.
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2016 COMPREHENSIVE PLAN EC-6 ECONOMIC ELEMENT
Policy EC 6.4
Ensure the efficient flow of people, goods, services, and information in and throughout the
Island with infrastructure investments, particularly within and connecting to designated centers,
to anticipate the needs of the Island’s businesses.
Policy EC 6.5
Promote emerging business sectors such as artisanal and small-scale producers, including craft
food and beverages, as well as low-impact, specialty manufacturing, including software,
electronics and green technology.
Policy EC 6.6
Preserve and enhance activities that feature Bainbridge Island’s history of maritime, agricultural
and artistic enterprises.
Policy EC 6.7
Monitor parking requirements in the designated centers and revise them as needed to
encourage business development, while reasonably accommodating parking demand. This
should be done in concert with efforts to increase use of multi-modal transportation options,
reduce dependence on automobiles and improve our local environment.
PUBLIC/PRIVATE PARTNERSHIPS
GOAL EC-7
Partner with local businesses and business associations on programs and projects to
diversify and grow the City’s economic make-up, reduce sales leakage, attract spending
by visitors, enhance local employment, and increase municipal tax revenues to support
local services.
Policy EC 7.1
Leverage technology assets, such as existing fiber connections, to support technology- based
businesses and potentially to pursue new revenue streams.
Policy EC 7.2
Focus “buy local” community marketing on consumer spending segments in which there is
significant “leakage” and also a strong possibility of recapturing spending.
Policy EC 7.3
Support and enhance social, cultural, artistic, nature based recreational and other learning
activities for residents, workers and visitors.
Policy EC 7.4
Integrate programs and activities related to economic prosperity with objectives related
to environmental sustainability, social and political equity, climate change adaptation and
cultural engagement.
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Policy EC 7.5
Continue to support and enhance the arts/culture sector and the visitors that arts and cultural
events attract.
Policy EC 7.6
Support and enhance the role of the craft food and beverage industry as attractions for
residents and visitors alike.
Policy EC 7.7
Support and enhance recreational, nature-based, and other outdoor events that attract visitors.
Policy EC 7.8
Support and make Bainbridge Island a model community for climate change preparedness and
sustainability practices that ensure long-term business viability while attracting and protecting
visitors, businesses and residents.
Policy EC 7.9
Support and enhance our waterfront, including docks and maritime services that attract visitors
and residents.
Policy EC 7.10
Provide an efficient, timely and predictable regulatory environment within the framework of a
strong customer service approach.
Policy EC 7.11
Encourage the private, public, and non- profit sectors to incorporate environmental and social
responsibility into their practices.
RETAIL AND SERVICES
GOAL EC-8
Maintain and enhance Winslow as the commercial hub of Bainbridge Island. Position
the Neighborhood Centers to provide the opportunities for smaller-scale commercial
and service activity.
Policy EC 8.1
Reinforce Winslow as the mixed-use center for commerce and exchange by fully
implementing the Winslow Master Plan.
Policy EC 8.2
Develop Neighborhood Centers at higher residential densities, as recommended in the Land
Use Element, in order to attract a variety of small-scale retail and service providers.
Policy EC 8.3
Promote locally-owned and independent businesses with standards that foster unique
development.
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SERVICES SECTOR
GOAL EC-9
Grow a healthy service sector to increase employment opportunities, enhance local
revenues, and meet emerging needs of the Island’s changing demographics.
Policy EC 9.1
Increase availability of housing to enable service sector employees to live on the Island.
Policy EC 9.2
Increase access to transportation options that better enable service sector employees who live
off-Island to work on-Island.
Policy EC 9.3
Promote an emerging professional services sector that recognizes the Island’s linkage to the
Seattle job market for managerial jobs and information-based industries.
Policy EC 9.4
Promote on-Island access to healthcare facilities and medical services, particularly those
addressing the needs of the Island’s increasing older population.
BUILDING DESIGN AND CONSTRUCTION SECTOR
GOAL EC-10
Support building design and construction industries to increase employment
opportunities, enhance local revenues, and help ensure a built environment that
responds to and reflects the Island’s Vision and Guiding Principles.
The professions and trades involved in design, construction, furnishing, renovation and
marketing of commercial and residential real estate constitute a large and very important sector
of the Island’s economy. Productivity and profits within that sector are crucial factors in the
stability and well-being of the entire community. Good development, in a community such as
ours, must work within limits and be compatible with the goals of environmental conservation.
Policy EC 10.1
Make the City’s development permit and code enforcement action process timely, fair and
predictable.
Policy EC 10.2
Partner with Island architects, landscape architects, builders and related construction
professionals to draft development standards and practices that incorporate green building
practices and context-sensitive design.
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TOURISM
GOAL EC-11
Tourism is a key sector of the Island’s economy and needs to be supported. Bainbridge
Island provides unique opportunities for visitors to experience internationally recognized
gardens, cultural centers, parks, and recreational events.
Policy EC 11.1
Improve pedestrian links between the ferry terminal, downtown Winslow, and the harbor.
Encourage visitors on foot and bicycle and support public transit and shuttle services.
Policy EC 11.2
The predominant focus of downtown Winslow is to serve the commercial and social needs of
Island residents. A lively, pedestrian-oriented town center that provides a mix of commercial and
residential uses creates a potential tourist destination.
Policy EC 11.3
Support the Island as a visitor destination by preserving and enhancing the unique qualities of
our community.
Policy EC 11.4
Encourage multiple-day stays and participation in selected Island events and destinations by
off-Island visitors.
Policy EC 11.5
Encourage bed and breakfasts and other creative tourist accommodations.
Policy EC 11.6
Monitor the Island’s short-term rentals to gauge their impact on the community.
ARTS
GOAL EC-12
Continue to promote the arts as a significant component of the Bainbridge Island
economy.
Policy EC 12.1
Encourage and support the creative and economic contribution of the arts by implementing the
goals and policies of the Cultural Element.
Policy EC 12.2
Promote the arts community within the region as an economic asset of the Island.
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HOME-BASED BUSINESSES
GOAL EC-13
Foster home-based businesses as a key to a present and future vital economy.
Nearly half of all businesses licensed on Bainbridge Island are reported as home-
based. Bainbridge Island allows home-based businesses in all zones, and 16.3% of the
Island workforce works from home. Home-based businesses are divided into two
categories: minor and major home occupations.
Policy EC 13.1
Apply performance standards to limit impacts of home-based businesses in residential
neighborhoods. Home-based business that do not meet performance standards may qualify
as a major home occupation and will require a conditional use permit.
Policy EC 13.2
Support home-based businesses through business licensing and other City programs.
AGRICULTURE
GOAL EC-14
Recognize that farming is a part of the Island’s heritage and contributes to the island’s
economy.
The Environmental and Land Use Elements contains several goals and policies
intended to sustain and enhance agriculture.
Policy EC 14.1
Support the market for Island-grown agriculture products by:
Recognizing and supporting the Bainbridge Island Farmers’ Market, including
permanently dedicating space for the market and enhancing the market area.
Allowing and promoting roadside stands that sell Island-grown products.
Promoting and supporting Community Supported Agriculture (CSA).
Encouraging the development of value-added processing facilities that can be shared by
many farmers.
Encouraging food crops to be planted on public land.
Policy EC 14.2
Support a program that helps working farms through educational, historic, farm stay and tourist
visits.
Policy EC 14.3
Support working farms through the creation and sale of locally-constituted, high-grade compost
to maintain the fertility of Island soils.
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BUSINESS/INDUSTRIAL
GOAL EC-15
The Business/Industrial (B/I) land use designation should provide space for job creating
enterprises. Island based businesses provide the possibility of living and working in the
community. It is the purpose of the B/I land use designations to provide opportunities for
light industrial and other non-retail activities. The City should be prepared to respond to
a changing marketplace and the business opportunities perceived by its citizens, when
those opportunities require pre- existing infrastructure and well-designed
accommodations in order to flourish.
Policy EC 15.1
Promote manufacturing and business/industrial employment as an important source of family
wage jobs on Bainbridge Island.
Policy EC 15.2
New Business/Industrial (B/I) land use designations will be considered based on the following:
Proximity to existing B/I.
The total amount of and expected need for B/I-zoned land.
Compliance with all policies in the Land Use Element.
Reasonable proximity to SR 305.
Availability of public sewer and water, or whether permitted uses might safely use wells
and septic systems or other alternative systems that are approved by the Kitsap Public
Health District.
Consideration of pollution and aquifer recharge concerns.
Adjacency to non-residential land uses.
Minimal impact to residential land uses, neighborhoods and open space/conservancy
and agriculture areas.
Policy EC 15.3
Conform Business/Industrial development to all Business/Industrial performance standards, the
requirements of Site Plan and Design Review, and applicable design guidelines.
To implement the goals and policies in this Element, the City must take a number of actions,
including adopting or amending regulations, creating partnerships and educational programs,
and staffing or other budgetary decisions. Listed following each action are several of the
comprehensive plans policies that support that action.
HIGH PRIORITY ACTIONS
EC Action #1 Adopt and maintain an Economic Development Strategy to coordinate
public and private efforts to grow and sustain a healthy economy on the Island
ECONOMIC IMPLEMENTATION
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Policy EC 1.3
Coordinate with local business groups to track commercial activity, identify trends and assess
the economic health of the Island. Create an Economic Development Strategy to identify
creative and appropriate ways for the City to encourage and stimulate business activity.
Policy EC 1.6
Coordinate with the business community and others to monitor the Island’s business climate
and make appropriate adjustments to the economic vitality strategy.
EC Action #2 Continue efforts to promote and support agriculture as a component of
the Island’s economy, landscape and culture.
Policy EC 14.1
Support the market for Island-grown agriculture products by:
Recognizing and supporting the Bainbridge Island Farmers’ Market, including
permanently dedicating space for the market and enhancing the market area.
Allowing and promoting roadside stands that sell Island-grown products.
Promoting and supporting Community Supported Agriculture (CSA).
Encouraging the development of value-added processing facilities that can be shared by
many farmers.
Encouraging food crops to be planted on public land.
EC Action #3 Assure that adequate parking is available to support businesses.
Policy EC 6.7
Monitor parking requirements in the designated centers and revise them as needed to
encourage business development, while reasonably accommodating parking demand. This
should be done in concert with efforts to increase use of multi-modal transportation options,
reduce dependence on automobiles and improve our local environment.
EC Action #4 Identify capital projects and streetscape standards to implement Policy EC
11.1, to improve non-motorized facility links between the ferry terminal, downtown
Winslow, and the harbor.
Policy EC 11.1
Improve pedestrian links between the ferry terminal, downtown Winslow, and the harbor.
Encourage visitors on foot and bicycle and support public transit and shuttles.
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TABLE OF CONTENTS
PAGE
INTRODUCTION ................................................................................................................ EN-1
VISION……………………………………………………………………………………..………. EN-2
GOALS AND POLICIES .................................................................................................... EN-2
ENVIRONMENT ............................................................................................................. EN-2
FISH AND WILDLIFE ..................................................................................................... EN-5
FREQUENTLY FLOODED AREAS ................................................................................ EN-6
SEA LEVEL RISE ........................................................................................................... EN-7
GEOLOGICALLY HAZARDOUS AREAS ....................................................................... EN-7
AIR QUALITY ................................................................................................................. EN-9
NOISE .......................................................................................................................... EN-10
GREENHOUSE GASES ....................................................................................... EN-10
DARK SKIES .......................................................................................................... EN-11
INVASIVE SPECIES .................................................................................................... EN-11
AGRICULTURAL LANDS ............................................................................................. EN-12
FOREST LANDS .......................................................................................................... EN-14
FORESTS AND TREES ............................................................................................... EN-15
MINING ........................................................................................................................ EN-16
ENVIRONMENTAL ELEMENT IMPLEMENTATION ....................................................... EN-16
ENVIRONMENTAL ELEMENT
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This element addresses the natural environment of Bainbridge Island. The Environmental
Element includes goals and policies for all lands considered critical areas under the Growth
Management Act (GMA), such as wetlands, streams, aquifer recharge areas, fish and wildlife
habitat, frequently flooded areas and geologically hazardous areas.
This element also addresses natural resources such as forests, agricultural lands and mineral
resources and provides goals and policies concerning air quality and the retention and
development of the trails and open space systems.
Preserving and protecting the environmental resources and natural amenities of the Island is an
important component for the vision of our city. Bainbridge Island contains interconnected
forests, meadows, wetlands and stream systems, and saltwater shorelines, all of which provide
wildlife habitat and scenic value, and some of which are protected as public parkland. The
Island also contains agricultural lands and land areas that are sensitive due to geological
conditions, slope and/or soil types.
As our Island grows and develops continued protection of varied open space areas and
environmentally sensitive landscape is necessary to maintain the quality of life that is currently
enjoyed on Bainbridge Island. Additionally, the unpredictable cumulative impacts of climate
change in our region justify appeals to the precautionary principle. Climate change may require
that the areas we protect and approaches we use to achieve our goals and policies will change.
Citizens of Bainbridge Island enjoy and value the Island’s natural environment. The public
parklands, open spaces, and other natural areas contribute to the quality of life on the Island.
Support for preservation of environmentally sensitive areas and agricultural lands is high. The
community is supportive of providing pedestrian and bicycle trails and increased public access
to shorelines.
Understanding the functions of the Island’s valuable natural systems and what types of activities
may impact these functions now and in the future as conditions change, is key to protecting
these lands and natural resource areas. Retaining the viability and ecological functions of our
natural systems and protecting those areas that are sensitive to development is paramount to
maintaining a healthy natural environment and a high quality of life.
The goals and policies of the Environmental Element attempt to guide future action such that
the quality of the Island’s natural environment is protected and maintained and when possible,
restored and improved. Future actions will incorporate the best available science as required by
RCW 36.70A.172.
ENVIRONMENTAL INTRODUCTION
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It is well understood that the integrity of our environment – the foundation of our quality of life –
sets limits on the growth of our population and our economic life. We have faced some
distressing events within the changing natural order and have survived as a stronger
community.
A culture of stewardship has preserved and even improved the varied landscapes, forests and
views that contribute so much to the sense of place that is valued here. Monitoring and
regulation of the impacts of human activities on the Island’s natural resources has been
successful in maintaining their resilience. Public policies and many initiatives of citizens and
businesses have been proactive in response to the anticipated effects of climate change, such
as sea level rise, adapting where necessary and mitigating impacts to the extent possible.
ENVIRONMENT
GOAL EN-1
Preserve and enhance Bainbridge Island’s natural systems, natural beauty and
environmental quality.
Policy EN 1.1
A primary goal of the Comprehensive Plan is protecting the Island’s natural environment; land
use decisions implement this goal.
Policy EN 1.2
Taking into account the present and future need to reduce the potential for personal injury, loss of
life, or property damage due to flooding, erosion, landslides, seismic events, climate change or
soil subsidence, properties adjoining or adjacent to critical areas must be developed in
observance of the following principles in descending order:
Avoid the impact if possible.
Minimize or limit the degree or magnitude of the action and its implementation by using
appropriate technology to avoid or reduce impacts.
Reduce or eliminate the impact over time by preservation and maintenance operations
during the life of the action.
Rectify by repair, rehabilitation or restoration of the affected environment.
Compensate for unavoidable impacts by replacing, enhancing or providing substitute
resources or environments.
Critical areas are identified in order to flag concerns during the review process and to make
applicants aware of potential hazards or areas where development may be constrained.
ENVIRONMENTAL VISION 2036
GOALS & POLICIES
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Compatible development will be allowed which avoids designated critical areas, minimizes the
impact or mitigates potential problems through engineering, siting or design. Proposals will be
examined on a case-by-case basis to allow for creative solutions and to assure that the special
combinations of factors in a particular case are addressed.
Policy EN 1.3
Protect and enhance the natural systems and environmental quality of Bainbridge Island by
continuing to build cooperative relationships between the City, citizens, landowners and other
public, non-profit and private organizations.
Policy EN 1.4
Maintain and enhance natural systems and protect wildlife, fish resources and open spaces
through land use plans and development patterns including tree retention and planting.
Policy EN 1.5
Create and maintain overlay maps that show the location of agricultural lands, critical aquifer
recharge areas, geologically hazardous areas, floodplains, streams, wetlands and fish and
wildlife habitat. Integrate the maps from the
Bainbridge Island Climate Impact Assessment
(2016).
Policy EN 1.6
Use the City’s Shoreline Master Program to address and protect marine fish and marine
shoreline habitat.
Policy EN 1.7
To protect the Island’s ecosystems, discourage the use of neonicotinoid pesticides.
Policy EN 1.8
Consider the potential impacts of climate change and its impacts in all decisions related to
natural systems and environmental quality.
GOAL EN-2
Encourage sustainability in City Government operations.
Policy EN 2.1
In managing City government operations, take reasonable steps to reduce impacts to the
environment and ecosystems upon which we depend. This includes recognizing and preparing
for the impacts of climate change.
Policy EN 2.2
Seek to minimize the quantity and toxicity of materials used and waste generated for City
facilities and operations through reduction, reuse and recycling. Use products made from
recycled materials when available.
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Policy EN 2.3
Use new technologies to reduce environmental impacts such as solar panels, electric and hybrid
vehicles, high-efficiency lights and heating systems.
Policy EN 2.4
Utilize integrated pest management practices.
Goal EN-3
Consider the impact on critical areas whenever land is subdivided.
Policy EN 3.1
Design lots to protect natural systems and avoid or minimize impact to critical areas. In order to
protect critical areas, the full density permitted under the zoning ordinance might not be
achieved.
Policy EN 3.2
Use Transfer of Development Rights (TDRs) and Purchase of Development Rights (PDRs) to
protect critical areas.
Policy EN 3.3
Include in any lot created by subdivision of land sufficient area to accommodate a building site
outside of a critical area and its buffers.
Goal EN-4
Encourage sustainable development that maintains diversity of healthy, functioning
ecosystems that are essential for maintaining our quality of life and economic viability
into the future.
Policy EN 4.1
Employ conservation design methods and principles such as low impact development
techniques for managing storm and waste water, green building materials, high-efficiency
heating and lighting systems.
Policy EN 4.2
Create a program with effective mechanisms intended to offset development impacts to the
Island’s ecosystems.
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FISH AND WILDLIFE
GOAL EN-5
Protect and enhance wildlife, fish resources and ecosystems.
Policy EN 5.1
The protection and enhancement of fish and wildlife habitat, especially during offspring rearing
season, and wildlife corridors, including Tribal Usual and Accustomed fishing areas, are integral
components of the land use planning process.
Policy EN 5.2
The identification of fish and wildlife habitat is based on a current evaluation of the species of
wildlife on the Island and the habitat requirements of these species now and in the future.
Policy EN 5.3
The protection and enhancement of mature trees, and fish and wildlife habitat are important
criteria used when evaluating the preservation of open space as part of development techniques
such as clustering, flexible lot design subdivisions and transfer of development rights (TDRs).
Policy EN 5.4
Protect fish and wildlife habitat and limit fragmentation of habitat that physically and genetically
isolates fish and wildlife populations by identifying an interconnected system of corridors that will
provide continuous links east to west and north to south connecting larger tracts that are
important habitat.
Policy EN 5.5
Identify and classify streams and stream reaches which have an anadromous fish presence.
Policy EN 5.6
Protect wetlands and riparian areas.
Policy EN 5.7
Undertake appropriate, adequate and timely actions to protect and recover state priority
species, species listed under the federal Endangered Species Act, local species of concern and
their habitats located within the City to 1) avoid local extirpation of such species from the lands
or fresh waters or nearshore of the City and 2) contribute to the protection and recovery of such
species throughout the greater region in cooperation with federal, state and other local
agencies.
Policy EN 5.8
Work closely with Tribes, the Park District, local conservation organizations and the Washington
State Department of Fish and Wildlife (the agency with expertise to “preserve, protect, and
perpetuate” wildlife resources of the state) in matters involving wildlife including identifying
“priority fish and wildlife habitat.”
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Policy EN 5.9
Develop in coordination with the Department of Fish and Wildlife, the Bainbridge Island
Metropolitan Park and Recreation District and the Bainbridge Island Land Trust a program to
educate the citizens of the Island, particularly those citizens who reside adjacent to priority
wildlife habitat, on ways to utilize private property in a manner that will help protect and enhance
wildlife habitat.
Policy EN 5.10
Consider climate change and its impacts in all decisions related to wildlife, fish resources and
natural systems.
FREQUENTLY FLOODED AREAS
Regulation of frequently flooded areas is important for property and habitat protection.
Floodplains are valuable natural resource areas that play a major role in the function of
ecosystems. Floods are a natural process where rising water inundates otherwise dry land.
Floodplains provide storage for floodwaters which reduces downstream erosion and improves
downstream water quality. Floodplains allow infiltration for aquifer recharge and provide
important habitat necessary for the survival of many invertebrate, fish and wildlife species. Flood
courses can change naturally over time. As impervious development covers more land surface
and encroaches on floodplains, damage increases to both the built and natural environments.
The Federal Emergency Management Agency (FEMA) has designated frequently flooded areas
as areas that have a 1% or greater chance of flooding in any given year. Also known as the
100-year flood, this level was chosen to manage flooding as a compromise between an
economic use of the land and an understanding of the natural benef its of flooding. Frequently
flooded areas are Critical Areas.
GOAL EN-6
Protect the natural functions of frequently flooded areas.
Policy EN 6.1
Minimize public and private losses due to flood conditions by limiting development in frequently
flooded areas as shown on the Flood Insurance Rate Maps. Educate property owners and
residents in proximity to frequently flooded areas about vulnerability over time.
Frequently flooded areas can and do migrate over time. Increased development may affect the
level of occurrence and location of frequently flooded areas. The Flood Insurance Rate Maps
adopted by the City were originally produced in 1975 and updated in 1977, and need to be kept
current.
Policy EN 6.2
Limit the alteration of natural floodplains, stream channels and natural protective barriers that
help accommodate, dissipate, or channel floodwaters.
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Policy EN 6.3
Emphasize nonstructural methods such as setbacks and vegetation, to prevent or minimize
flood damage.
Policy EN 6.4
Locate public facilities such as sewer and water lines outside of frequently flooded areas and
with consideration of future sea level rise in order to minimize damage to both the public facility
and the natural environment. Public facilities may be located within frequently flooded areas
only if no environmentally preferable alternative exists to mitigate environmental concerns.
Additional development is not encouraged in frequently flooded areas.
SEA LEVEL RISE
GOAL EN-7
Anticipate and prepare for the consequences of sea level rise.
Sea level rise may happen as the result of natural or human activity such as geologic subduction
or climate change. Here in the Puget Sound we experience the effects of both the geologic and
climatological forces. Cumulative sea level rise has serious implications for the shorelines and
lowland areas of the Island such as beach and bluff erosion and loss of intertidal zones. These
areas serve such purposes as nursery habitat, feeding grounds for fish and fowl, stormwater
collection and water filtration.
Policy EN 7.1
Consider the implications of sea level rise in all relevant decision-making by using regional sea
level rise projections and shoreline instability maps (as provided by the WA Department of
Ecology and utilized and interpreted with the Bainbridge Island Climate Impact Assessment).
Policy EN 7.2
Coordinate with Tribal, Federal, State and local agencies to address issues related to sea level
rise.
GEOLOGICALLY HAZARDOUS AREAS
GOAL EN-8
Protect landslide hazard areas and erosion hazard areas from the impacts of use and
development for the protection of public safety, property and the environment.
Policy EN 8.1
Avoid land uses on landslide hazard and erosion hazard areas. If the hazard caused by
development can be mitigated, then design land use to prevent damage to persons or property
and environmental degradation and to preserve and enhance existing vegetation to the
maximum extent possible.
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Policy EN 8.2
As the degree of slope increases, decrease development intensity, site coverage, and vegetation
removal to mitigate problems of drainage, erosion, siltation and landslides.
Policy EN 8.3
In order to protect landslide and erosion hazard areas from damage during construction and
from intrusion following construction, an analysis by a geotechnical engineer and a certified
arborist may be required.
Policy EN 8.4
Construct roads, driveways and utility corridors to preserve the integrity of the existing land
forms, drainage ways, and natural systems minimizing impact to the landslide and erosion
hazard areas. Utilize common access drives and utility corridors where feasible.
Policy EN 8.5
Allow clearing, grading or filling on sloped areas containing landslide hazard and erosion hazard
areas only when other alternatives are not feasible and when it will not destabilize those areas.
Such activity is limited to the dry period of the year.
Policy EN 8.6
Any alteration of a landslide hazard area or erosion hazard area may not increase the rate of
surface water discharge or sedimentation and may not decrease slope stability on adjacent
property. Landscape the altered area to provide erosion control.
GOAL EN-9
Identify and map areas that are at risk due to seismic activity and regulate activities in
these areas for public safety and property protection.
Policy EN 9.1
Consider the best available science in mapping these high-risk areas and in regulating and
permitting land use activities in areas that have a heightened risk from earthquakes such as
liquefaction areas and fault rupture zones, tsunami or other geological hazards.
Policy EN 9.2
Consider tsunami hazards in regulating land use activities on Bainbridge Island.
Policy EN 9.3
Consider seismic activity and the potential for earthquake-induced landslides in the
determination of geologically hazardous areas. Areas that are stable under normal conditions
can become landslides during earthquake events.
Policy EN 9.4
Provide information and educational opportunities to the citizens of Bainbridge Island on the
hazards posed by seismic events.
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AIR QUALITY
GOAL EN-10
Protect and promote clean air.
These policies address the need for clean air to protect the Island’s residents and ecosystems,
under current and future climatological conditions. For example, increasing regional air
temperatures are increasing air pollution components such as ground level ozone and smog.
Policy EN 10.1
Promote land use patterns and transportation policies that ensure that the Island’s contribution
to regional air quality is consistent with or better than State and Federal standards.
Policy EN 10.2
Encourage the retention of existing trees and vegetation and the planting of new trees and
vegetation that provides natural filtration of suspended particulate matter, removes carbon
dioxide and improves air quality.
Policy EN 10.3
Evaluate the impacts and consequences of new development both during and subsequent to
construction on air quality as a part of the environmental review process and require mitigation
when appropriate.
Policy EN 10.4
Cooperate with the Puget Sound Clean Air Agency in providing information to the community
about available and innovative emission controls for residential, commercial, vehicular and light
industrial use.
Policy EN 10.5
Ensure beneficial indoor air quality in all renovations and new construction of City-owned
facilities and promote design choices that enhance beneficial indoor air quality in private
construction.
Policy EN 10.6
Reduce the quantity of airborne particulates through regulations for dust abatement of
construction sites and street sweeping programs in areas with concentrations of both vehicular
and pedestrian traffic.
Policy EN 10.7
Maintain nuisance regulations to minimize offensive odors generated by commercial or
industrial uses in proximity to residential uses.
Policy EN 10.8
Encourage the retrofit or replacement of non-certified wood stoves with certified appliances.
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2016 COMPREHENSIVE PLAN EN-10 ENVIRONMENTAL ELEMENT
Policy EN 10.9
Transportation and energy production diminish air quality when power is produced with fossil fuel
combustion. Maintain and improve Island air quality, by promoting the development of carbon
free infrastructure.
NOISE
GOAL EN-11
Promote the reduction of invasive noise impacts.
Policy EN 11.1
Review the effectiveness of current noise standards and modify these standards as necessary
to ensure acceptable noise levels.
Policy EN 11.2
Promote actions such as equipment modifications and operational requirements that reduce
noise from transportation modes, construction sites, industrial uses and commercial business
establishments.
Policy EN 11.3
Work with the Federal Aviation Administration to design flight paths and schedules that minimize
the airplane noise over Bainbridge Island.
GREENHOUSE GASES
GOAL EN-12
Reduce greenhouse gas emissions through compliance with federal, state and regional
policies while developing local strategies to reduce emissions further.
Policy EN 12.1
Support and implement climate pledges and commitments undertaken by the City and other
multi-jurisdictional efforts to reduce greenhouse gas emissions, address climate change, sea-
level rise, ocean acidification and other impacts of changing global conditions.
Policy EN 12.2
Facilitate the improvement and convenience of low carbon mass transit and increased car-
sharing, cycling, walking and the development of alternative vehicle infrastructure (e.g.,
charging stations) to reduce greenhouse gas emissions.
Policy EN 12.3
Strive for reduced greenhouse gas emissions by, among other actions, integrating climate
change into the city planning process, including land use and transportation planning and
management, and making climate change considerations and meeting greenhouse gas
emission reduction goals a component of city decision making.
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Policy EN 12.4
Establish benchmarks, metrics and targets for reduction of greenhouse gas emissions, assess
current conditions and progress in reducing greenhouse gas emissions from municipal,
commercial, residential and transportation-related land uses, projects and programs.
Policy EN 12.5
Support the development of a public education program which informs all citizens on the
methods and progress for meeting the Island’s greenhouse gas emission goals and ways
citizens can assist in reaching the reduction goals.
Policy EN 12.6
Promote energy conservation measures by all government entities including:
Retrofitting offices, shops and garages with high-efficiency lighting;
Converting vehicles to hybrid fuel vehicles as replacement or new vehicles are acquired;
Converting traffic signals and lighting to the most energy efficient and spectrum
appropriate technology available; and
Adopting incentive programs and design standards that encourage the employment of
renewable energy sources and energy efficient appliances on the Island.
Policy EN 12.7
Promote the installation of residential solar panels and the adoption of other energy saving
technologies such as LED lights, heat pumps and insulation.
DARK SKIES
Goal EN-13
Preserve and enhance the view of the dark sky by controlling glare and light trespass.
Policy EN 13.1
Enforce development regulations that provide standards for appropriate lighting practices and
systems that will curtail the degradation of the nighttime visual environment.
INVASIVE SPECIES
Goal EN-14
Collaborate with the Kitsap County Noxious Weed Board and other relevant agencies and
organizations to develop and maintain a plan to remove and control invasive plant and
animal species, as well as prepare for vulnerability to future invasive plant and animal
species resulting from climate change and international commerce.
Policy EN 14.1
Coordinate with public agencies and nonprofit organizations to control and where feasible,
eradicate invasive plant species from public lands.
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Policy EN 14.2
Improve public outreach to encourage residents to control and where feasible, eradicate
invasive plant species on private property.
Policy EN 14.3
Tree clearing permits may require a surety bond for larger-scale tree clearing to cover the costs
of invasive species removal in the eventuality that land is not properly managed and results in
invasive weed infestation.
AGRICULTURAL LANDS
GOAL EN-15
Conserve and protect the Island’s existing agricultural uses and increase the acreage of
permanently protected and productive farmland by using preservation methods
including incentive-based programs.
Policy EN 15.1
Provide owners of farms the option of participating in the transfer of development rights
(TDRs)/purchase of development rights (PDRs) program.
Policy EN 15.2
Inventory land currently used and/or potentially available for agriculture, including community
gardens.
Policy EN 15.3
Where land that had historically been used for agriculture is being subdivided for residential
development, a portion should be reserved for agricultural use or community gardens. Existing
traditional agricultural lands should be included in the open space of clustered development.
Policy EN 15.4
Develop a procedure to allow public and private property owners to designate their properties
Agricultural Resource Land, consistent with WAC 365-190-050.
Policy EN 15.5
Utilize the Floor Area Ratio (FAR) Farmland/Agriculture fund for viable farmland preservation
projects.
Policy EN 15.6
Prioritize food production on public farmland to address long-term food security for Island
residents.
Policy EN 15.7
Encourage the use of native and/or regionally produced edible plants for use in required
landscape and roadside vegetation buffers.
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Policy EN 15.8
Ensure protection of the Island’s aquifers and streams by promoting agricultural uses that are
not water intensive, and agriculture practices that protect water quality.
Policy EN 15.9
Work with the Conservation District and nonprofits to encourage farming that accounts for
changing Island conditions with regard to hydrology, temperature and other climatologically
influenced factors. Promote crops and commodities that are adapted to future conditions and do
not rely on chemical amendments that may adversely impact future water availability.
Policy EN 15.10
Improve public information and creating new programs to promote agriculture while advocating
for farming practices that protect water quality and quantity.
GOAL EN-16
Minimize conflict between agricultural and non-agricultural uses.
Policy EN 16.1
Design and locate development adjacent to areas designated or registered as agricultural land to
avoid or minimize potential conflicts with agricultural activities.
Policy EN 16.2
Require notification on all plats, development permits and building permits of the existence of
any registered agricultural lands within 300 feet of the development.
Policy EN 16.3
Maintain the Right to Farm Ordinance.
Policy EN 16.4
Cooperate with the Kitsap Conservation District to promote use of Best Management Practices.
GOAL EN-17
Encourage and support farming as an economically viable option for land use and as a
means to providing diversity of lifestyle.
Policy EN 17.1
Encourage small-scale farming.
Policy EN 17.2
Work with the Kitsap County Assessor’s office to educate the farming community about the
availability of the Tax Reduction Program.
Policy EN 17.3
Elevate and encourage public appreciation and awareness of farms by allowing tours of farms
and farming facilities.
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Policy EN 17.4
Permit the production, processing and marketing of farm products from Island farms.
Policy EN 17.5
Support the Farmers’ Market and promote the sale of local farm products in other locations.
Policy EN 17.6
Minimize the parking requirements for agricultural uses (i.e., number of parking spaces, paved
parking and landscaping requirements), due to the seasonal nature of the marketing of farm
products.
Policy EN 17.7
Support agricultural tourism that ensures compatibility with surrounding uses.
Policy EN 17.8
Consider establishing a Citizen Advisory Group on Agriculture comprised of citizens
representing farmers, non-profit organizations involved with local agriculture and businesses
with an interest in local farm produce.
FOREST LANDS
Few large tracts of second-growth timber remain on the Island and some of these could be
converted to other uses in the near future. As of August 2015, there were approximately 529.34
acres classified as timberlands by the Kitsap County Tax Assessor. Forty-six parcels are
classified as Forest Land including the 42-acre Port Madison watershed. These forest lands,
together with tracts that are protected by conservancy agreements and other privately owned
forested acres that may not be classified as timberlands, have immeasurable value within the
Island-wide conservation strategy.
GOAL EN-18
Encourage the retention of forest land and multiple-aged forests since healthy forests
provide many ecological benefits to all forms of life on the Island and help mitigate
climate change.
Policy EN 18.1
Encourage stewardship of forests, to promote forest health, provide for selective harvest of
merchantable timber and protect critical areas. Department of Natural Resources and City
regulations apply when converting forest land to agricultural, residential or other uses.
Policy EN 18.2
When acreage classified as timberlands or forest land is being converted to residential or
agricultural use promote protection of the most valuable trees and forested area and compact
development to limit the extent of clearing and soil disturbance.
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FORESTS & TREES
GOAL EN-19
Retain, conserve and improve portions of the community forests where people live, work
and learn through public education and through management and protection measures
that will help to conserve these resources.
The community forests on Bainbridge Island are comprised of the street tree system in the
urban center, trees in parks and on other public lands, and trees and forested areas on private
properties throughout the Island. Bainbridge Island’s urban and rural forests have historically
been a resource for logging but more recently have become a source of community identity and
civic pride. Trees and forested areas are essential to the Island’s conservation strategy. It is
recognized that in addition to biological benefits a community forest provides a significant return
by creating appealing streets and neighborhoods with resulting higher property values in the
built environment. In addition, trees and forests provide buffering and screening between
differing land uses, reduce surface water runoff, improve air and water quality, help maintain soil
and slope stability, provide wildlife habitat, reduce energy consumption by providing shade and
functioning as windbreaks, and sequester carbon dioxide.
Policy EN 19.1
Encourage protection, restoration and maintenance of existing vegetation that has
environmental, wildlife habitat and aesthetic qualities including tree groves, significant tree
stands, forested hillsides and vegetation associated with wetlands, stream corridors, riparian
areas, steep slopes and areas subject to erosion.
Policy EN 19.2
Utilize various tools to understand and monitor existing conditions and changes of Island-wide
tree cover, significant tree groves and significant individual trees over time. Undertake periodic
tree inventories to assess canopy cover and health of forested areas and significant trees.
Policy EN 19.3
In pre-application conferences and as part of the review of development applications, encourage
property owners to maximize the preservation of trees and to maintain and enhance the
cohesive quality of tree groves through appropriate site design and construction methods as well
as open space dedication of areas that contain these resources.
Incentives such as a building height bonus could be used to encourage tree preservation
greater than the preservation required by code during site design. Update Guidelines for
Commercial and Mixed Use Projects including Guidelines for Lynwood Center, Island Center
and Rolling Bay to incorporate tree preservation practices and policies.
Policy EN 19.4
Implement a community-wide program to educate Island residents about the functions and
values of trees.
Policy EN 19.5
Consider partnering with other organizations and re-establishing a Community Forestry
Commission.
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2016 COMPREHENSIVE PLAN EN-16 ENVIRONMENTAL ELEMENT
Policy EN 19.6
Encourage Best Management Practices to protect and enhance community forests.
Policy EN 19.7
Encourage activities that enhance the community’s awareness of the value of trees and the
community forest.
Policy EN 19.8
Develop street tree programs for the commercial and mixed-use zones, and the more densely
developed residential zones.
MINING
GOAL EN-20
Manage the remaining mining operations on the Island.
Bainbridge Island has had a history of mining, predominantly sand and gravel. While multiple
sites have been reclaimed there are still two active mining operations on the Island. One
operation functions as a recycling/mulching facility and another as a sand mining operation.
Policy EN-20.1
Rigorously control the excavation of sand and gravel and other minerals.
To implement the goals and policies in this Element, the City must take a number of actions,
including adopting or amending regulations, creating outreach and educational programs, and
staffing or other budgetary decisions. Listed following each action are several of the
comprehensive plans policies that support that action.
HIGH PRIORITY ACTIONS
EN Action #1 When updating the City’s Critical Areas Ordinance, integrate the
precautionary principle and mitigation sequencing to protect and preserve natural
resources
Policy EN 1.2 Taking into account the present and future need to reduce the potential for
personal injury, loss of life or property damage due to flooding, erosion, landslides, seismic
events, climate change or soil subsidence, properties adjoining or adjacent to critical areas must
be developed in observance of the following principles in descending order:
Avoid the impact if possible.
Minimize or limit the degree or magnitude of the action and its implementation by using
appropriate technology to avoid or reduce impacts.
ENVIRONMENTAL IMPLEMENTATION
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2016 COMPREHENSIVE PLAN EN-17 ENVIRONMENTAL ELEMENT
Reduce or eliminate the impact over time by preservation and maintenance operations
during the life of the action.
Rectify by repair, rehabilitation or restoration of the affected environment.
Compensate for unavoidable impacts by replacing, enhancing or providing substitute
resources or environments.
Critical areas are identified in order to flag concerns during the review process and to make
applicants aware of potential hazards or areas where development may be constrained.
Compatible development will be allowed which avoids designated critical areas, minimizes the
impact, or mitigates potential problems through engineering, siting, or design. Proposals will be
examined on a case-by-case basis to allow for creative solutions and to assure that the special
combinations of factors in a particular case are addressed.
Policy EN 5.7 Undertake appropriate, adequate and timely actions to protect and recover state
priority species, species listed under the federal Endangered Species Act, local species of
concern and their habitats located within the City to 1) avoid local extirpation of such species
from the lands or fresh waters or nearshore and 2) contribute to the protection and recovery of
such species throughout the greater region in cooperation with federal, state and other local
agencies.
Policy EN 6.1 Minimize public and private losses due to flood conditions by limiting
development in frequently flooded areas as shown on the Flood Insurance Rate Maps. Educate
property owners and residents in proximity to frequently flooded areas about vulnerability over
time.
Frequently flooded areas can and do migrate over time. Increased development may affect the
level of occurrence and location of frequently flooded areas. City Flood Insurance Rate Maps
originally produced in 1975 and updated in 1977, and need to be kept current.
Policy EN 8.1 Avoid land uses on landslide hazard and erosion hazard areas. If the hazard
caused by development can be mitigated, then design land use to prevent damage to persons
or property and environmental degradation and to preserve and enhance existing vegetation to
the maximum extent possible.
EN Action #2 Integrate sustainability and conservation into regulations.
Goal EN-4 Encourage sustainable development that maintains diversity of healthy, functioning
ecosystems that are essential for maintaining our quality of life and economic viability into the
future.
Policy EN 4.1 Employ conservation design methods and principles such as low impact
development techniques for managing storm and waste water, green building materials, high-
efficiency heating and lighting systems.
EN Action #3 Consider climate change in all relevant City decisions, including capital
projects, budgeting, staffing, and program creation.
GOAL EN-2 Encourage sustainability in City Government operations.
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2016 COMPREHENSIVE PLAN EN-18 ENVIRONMENTAL ELEMENT
Policy EN 1.8 Consider the potential impacts of climate changes and its impacts in all decisions
related to natural systems and environmental quality.
Policy EN 2.1 In managing City government operations, take reasonable steps to reduce
impacts to the environment and ecosystems upon which we depend. This includes recognizing
and preparing for the impacts of climate change.
Policy EN 6.4 Locate public facilities such as sewer and water lines outside of frequently
flooded areas and with consideration of future sea level rise, in order to minimize damage to
both the public facility and the natural environment. Public facilities may be located within
frequently flooded areas only if no environmentally preferable alternative exists to mitigate
environmental concerns. Additional development is not encouraged in frequently flooded areas.
Policy EN 10.10 Transportation and energy production diminish air quality when power is
produced with fossil fuel combustion. Maintain and improve Island air quality by promoting the
development of carbon free infrastructure.
EN Action #4 Consider creating a new “Agricultural Resource Land” (ARL) designation
consistent with WAC 365-190-050, and consider designating City-owned farmland ARL.
Policy EN 15.2 Inventory land currently used and/or potentially available for agriculture,
including community gardens.
Policy EN 15.4 Develop a procedure to allow public and private property owners to
designate their properties Agricultural Resource Land, consistent with WAC 365-190-050.
Policy EN 15.6 Prioritize food production on public farmland to address long-term food security
for Island residents.
Policy EN 15.8 Ensure protection of the Island’s aquifers and streams by promoting agricultural
uses that are not water intensive and agriculture practices that protect water quality.
Policy EN 17.7 Support agricultural tourism that ensures compatibility with surrounding uses.
Policy EN 17.8 Consider establishing a Citizen Advisory Group on Agriculture comprised of
citizens representing farmers, non-profit organizations involved with local agriculture and
businesses with an interest in local farm produce.
EN Action #5 Incorporate low impact development principles, goals, and approaches
into all land use and development codes.
NOTE: SAME ACTION IN WATER RESOURCES ELEMENT
EN Action #6 Review and update BIMC 16.22 Vegetation Management and other City tree
regulations and programs.
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2016 COMPREHENSIVE PLAN EN-19 ENVIRONMENTAL ELEMENT
Policy EN 18.2 When acreage classified as timberlands or forest land is being converted to
residential or agricultural use promote protection of the most valuable trees and forested area
and compact development to limit the extent of clearing and soil disturbance.
Policy EN 19.8 Develop street tree programs for the commercial and mixed-use zones and the
more densely developed residential zones.
EN Action #7 Evaluate the reasons why the City’s PDR and TDR programs have not
been successful and explore ways to make them functional to meet City objectives.
NOTE: SAME ACTION IN LAND USE ELEMENT
Policy EN 3.2 Use Transfer of Development Rights (TDRs) and Purchase of Development
Rights (PDRs) to protect critical areas.
Policy EN 5.3 The protection and enhancement of mature trees, and fish and wildlife habitat are
important criteria used when evaluating the preservation of open space as part of development
techniques such as clustering, flexible lot design subdivisions and transfer of development rights
(TDRs).
Policy EN 15.1 Provide owners of farms the option of participating in the (TDRs)/(PDRs)
program.
MEDIUM PRIORITY ACTIONS
EN Action #8 Improve City outreach programs to educate the public about how they can
protect and enhance natural resources and respond to climate change.
Policy EN 1.3 Protect and enhance the natural systems and environmental quality of
Bainbridge Island by continuing to build cooperative relationships between the City, citizens,
landowners, and other public, non-profit and private organizations.
Policy EN 5.9 Develop in coordination with the Department of Fish and Wildlife, the Bainbridge
Island Metropolitan Park and Recreation District and the Bainbridge Island Land Trust a
program to educate the citizens of the Island, particularly those citizens who reside adjacent to
priority wildlife habitat, on ways to utilize private property in a manner that will help protect and
enhance wildlife habitat.
Policy EN 19.4
Implement a community-wide program to educate Island residents about the functions and
values of trees.
EN Action #9 Coordinate with other agencies to promote safe and sustainable pest and
weed management.
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2016 COMPREHENSIVE PLAN EN-20 ENVIRONMENTAL ELEMENT
Goal EN-14 Collaborate with the Kitsap County Noxious Weed Board and other relevant
agencies and organizations to develop and maintain a plan to remove and control invasive plant
and animal species, as well as prepare for vulnerability to future invasive plant and animal
species resulting from climate change and international commerce.
Policy EN 1.7 To protect the island’s ecosystems, discourage the use of neonicotinoid
pesticides.
Policy EN 14.1 Coordinate with public agencies and nonprofit organizations to control, and
where feasible, eradicate invasive plant species from public lands.
Policy EN 14.2 Improve public outreach to encourage residents control and where feasible,
eradicate invasive plant species on private property.
OTHER ACTIONS
EN Action #10 Coordinate with organizations and governments at all levels to prepare
for and respond to climate change.
GOAL EN-12
GOAL EN-12 Reduce greenhouse gas emissions through compliance with federal, state and
regional policies while developing local strategies to reduce emissions further.
Policy EN 7.1 Consider the implications of sea level rise in all relevant decision-making by
using regional sea level rise projections and shoreline instability maps (as provided by the WA
Department of Ecology and utilized and interpreted with the Bainbridge Island Climate Impact
Assessment).
Policy EN 10.1 Promote land use patterns and transportation policies that ensure that the
Island’s contribution to regional air quality is consistent with or better than State and Federal
standards.
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2016 COMPREHENSIVE PLAN WATER RESOURCES ELEMENT
TABLE OF CONTENTS
PAGE
INTRODUCTION ............................................................................................................ WR-1
VISION .......................................................................................................................... WR-4
GOALS AND POLICIES ................................................................................................ WR-4
GENERAL WATER RESOURCES ............................................................................ WR-4
GROUNDW ATER PROTECTION AND MANAGEMENT ........................................... WR-5
SURFACE WATER PROTECTION AND MANAGEMENT ......................................... WR-7
STORMWATER PROTECTION AND MANAGEMENT .............................................. WR-9
RESIDENTIAL ON-SITE SEWAGE SYSTEMS ....................................................... WR-10
PUBLIC EDUCATION AND OUTREACH ................................................................ WR-12
IMPLEMENTATION ..................................................................................................... WR-13
WATER RESOURCES ELEMENT
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2016 COMPREHENSIVE PLAN WR-1 WATER RESOURCES ELEMENT
Bainbridge Island is solely dependent on groundwater for its drinking water and requires a
holistic perspective to understand the interdependence among the Island’s three primary
water resources: groundwater, surface water and stormwater. Although these waters are
typically regulated and managed independently, they are in nature, intimately connected.
Precipitation that is not evaporated or taken up by plants will follow one of three paths. It may
infiltrate into the ground where it is called groundwater. It may drain directly into streams and
harbors where it is called surface water or it may be captured by manmade infrastructure such
as street drains, ditches or detention/retention ponds where it is called stormwater.
Groundwater may be pumped from wells to provide drinking water or irrigation or seep out of the
ground into streams, springs and harbors where it is again called surface water. Likewise,
stormwater may discharge into a nearby stream or harbor and become surface water or infiltrate
into the ground and become groundwater. (see Fig.WR-1)
Fig. WR-1 The Hydrologic Cycle
WATER RESOURCES INTRODUCTION
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2016 COMPREHENSIVE PLAN WR-2 WATER RESOURCES ELEMENT
In order to successfully protect and manage any one of these waters one must protect and
manage all three. To address these interrelationships, a separate Water Resources Element
has been developed as follows:
General water resources management policies
Groundwater protection and management policies
Surface water protection and management policies
Stormwater protection and management policies
Residential on-site sewage system policies
Contaminated sites policies
Public education and outreach policies
Land Use Connection
In the development of policies related to the management of our Island water resources, it is
important to understand the links between water resources quality and quantity and land use.
Most water quality and habitat integrity impacts are caused by the way land was or is used.
Developed land allows for rapid runoff and inundation of natural conveyance systems
such as wetlands and streams. Rapid runoff can cause damage through flooding, erosion
and water-borne contamination.
In addition, households create sewage that needs disposal either by a wastewater treatment
plant or by residential on-site sewage systems. Wastewater treatment plants are reasonably
effective at cleaning wastewater but do not at present provide complete removal of nitrogen nor
treat for contaminants of emerging concerns that include but are not limited to, byproducts of
medications, recreational drugs, health and beauty products and caffeine.
Residential on-site sewage systems can fail and cause contaminants to enter the surface
water and/or groundwater. Even functioning systems, depending upon density and proximity to
surface water and groundwater, can contribute to accumulations of nitrogen and contaminants of
emerging concern in these waters.
Use of fertilizers, pesticides and other chemicals for cropland, lawns and gardens, and vehicle
and household cleaning and maintenance as well as improper pet and livestock waste
management can add significant contamination to surface water, stormwater and groundwater.
Commercial and industrial uses, past and present, leave behind pollutants in our soils. In
particular, historic land uses such as large row crop agriculture, lumber, petroleum and others
have left behind legacy pollutants in sediments both on upland properties and in the sediments
along the bottoms of our streams, harbors and nearshore areas.
Without proper coordination of the regulations that will implement policy statements,
conflicting signals may be given when dealing with water resources issues. For example, a
surface water problem may be resolved by efficiently collecting and removing all water from the
area whereas a groundwater recharge issue may require that the water be kept on-site to
allow for infiltration.
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2016 COMPREHENSIVE PLAN WR-3 WATER RESOURCES ELEMENT
Another conflict arises when infiltration of stormwater competes for space with on-site sewage
system drain fields. There are physical limitations to the rates of infiltration and absorption
based on soil types which may make it impossible to have both of those facilities on the same
site. Where development occurs in important aquifer recharge areas, special consideration is
needed to preserve the volume of recharge available to the aquifer and to protect the
groundwater from contamination. A key component of water resources protection and adaptive
management is adequate monitoring in order to assess impacts of current land use and the
effectiveness of applied management actions.
The overriding theme that runs through all of the policies and goals in this element is the
preservation and protection of water quality, water quantity, and ecological and hydrologic
function.
Climate change
The 2016 Bainbridge Island Climate Impact Assessment, which is referenced in this
Comprehensive Plan, establishes that a primary concern of climate change is the impact on
water resources, especially for an island location like Bainbridge Island that relies solely on an
aquifer system for its drinking water. Climate change projections indicate that over the coming
decades sea level may rise up to four feet in the Puget Sound region, the ocean will become
more acidic and climatic conditions are likely to become warmer. This will result in more intense
rain events during the wet season with longer, drier summers, though overall annual volume of
rainfall under current models is expected to remain approximately the same.
Ocean acidification will likely impact aquatic species survival and assemblages in our marine
areas and sea level rise will likely impact habitat and built infrastructure in our nearshore areas
including homes, businesses and public facilities such as roads and sewer facilities.
Wetter conditions during the wintertime will increase water availability but may cause flooding or
diminish water quality. More intense and frequent storms or heavier rainfall events can cause
stormwater inundation and localized flooding, chronic flooding, non-infiltrated run-off, erosion
and landslides. Increased intensity of rainfall may also diminish aquifer recharge rates as
saturated soils are less able to absorb large amounts of water falling over short periods of time.
Warmer, drier conditions in the summertime will increase evaporation rates and water demand
by plants, wildlife and people, and may diminish water quality. Dry conditions decrease water
availability resulting in reduced stream flow and diminished aquifer recharge. Warmer and drier
conditions can also reduce water quality, both by increasing in-stream temperatures and by
concentrating contaminants in smaller volumes of water.
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2016 COMPREHENSIVE PLAN WR-4 WATER RESOURCES ELEMENT
Bainbridge Island’s water resources (precipitation on the surface and in the ground) are climate
resilient and demand and quantity are adequate for all forms of life on the Island. Aquifers are
continuously monitored and maintained above the early warning level. The water quality for
most of the consumed water is monitored to ensure quality fully meets the standards for drinking
water.
Education on water conservation results in a significant reduction in the average water
consumption per household. The Bainbridge Island groundwater model is regularly updated
with new data and results from model runs are used to maintain long-term sustainability of the
Island’s water resources. Low impact development techniques are applied to all land uses and
redevelopment.
GENERAL WATER RESOURCES
GOAL WR-1
Manage the water resources of the Island in ways that preserve, protect, maintain, and
where possible restore and enhance their ecological and hydrologic function.
Degradation of water resources is not allowed.
The long-term sustainability of the Island’s water resources is maintained, taking into
account future climatic conditions and their effects on the water cycle.
New development and population growth are managed so that water resources remain
adequate and affordable for the indefinite future.
Groundwater, surface water and stormwater monitoring, data assessment and reporting are
current and available including future projections of availability, quality and need.
Use current and future technology to maintain and protect water resources.
Policy WR 1.1
Study future climate and demand scenarios to accurately plan for future water resource
conditions.
Policy WR 1.2
Groundwater, surface water and stormwater are resources that shall be protected and managed
to preserve water quality and quantity, and to retain natural ecological and hydrologic function.
WATER RESOURCES VISION 2036
GOALS & POLICIES
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2016 COMPREHENSIVE PLAN WR-5 WATER RESOURCES ELEMENT
Policy WR 1.3
The City will provide sustainable water resource planning, protection, management and
monitoring in coordination with government agencies at all levels, drinking water purveyors,
Tribes, non-profit organizations, and other stakeholders.
Policy WR 1.4
Apply the policies in this element together with the protective measures set by the City’s
Shoreline Management Master Program, Critical Areas Ordinance and any other environmental
or water resources management ordinance established by the City and in compliance with
county, State, and federal laws and regulations.
Policy WR 1.5
Identify the areas of the Island that are the most vulnerable to pollution from concentrations of
fecal coliforms and nitrates (for example, septic fields, agricultural activities, or fertilizers), and
monitor those areas to determine if and when preventative or restorative measures are
warranted.
GROUNDWATER PROTECTION AND MANAGEMENT
GOAL WR-2
Protect the quality and quantity of groundwater on the Island to ensure clean and
sufficient groundwater for future generations.
Policy WR 2.1
Recognize that the Island functions as an aquifer recharge area. Low impact development
techniques are essential for maintaining aquifer recharge.
Development, if any in areas with high aquifer recharge should be limited to low impact uses
and less intense development. Low impact uses include development for buildings, roads or
parking that has a reduced area of impact on the land. Low impact uses do not depend on
regular applications of fertilizers or pesticides.
Low impact development is an environmentally-friendly approach to site development and
stormwater management emphasizing the integration of site design and planning techniques
that conserve and protect the natural systems and hydrologic functions of a site.
Policy WR 2.2
Identify and assess areas of high aquifer recharge as part of a land use application. Minimize
the effect of development on these areas.
Policy WR 2.3
To promote efficient use of groundwater resources, encourage the expansion of existing water
systems rather than encouraging shallow or individual residential wells.
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2016 COMPREHENSIVE PLAN WR-6 WATER RESOURCES ELEMENT
Policy WR 2.4
Assess the impacts of proposed activities and development on the flow of springs and streams
and levels of wetlands that are either sustained by groundwater discharge or contribute
recharge to groundwater, and require an assessment of anticipated hydrologic impacts.
Activities or development may be restricted if the report indicates any adverse impacts.
Policy WR 2.5
In cooperation with the appropriate regulatory agencies (e.g., Washington State Department of
Health and the Kitsap Public Health District) institute new wellhead protection procedures.
Policy WR 2.6
Reduce the use of pesticides and herbicides by encouraging integrated pest management
techniques and less toxic alternatives.
Policy WR 2.7
Establish a stakeholder group to develop an Island-wide groundwater management plan and
work with Kitsap Public Utility District to update the Kitsap County Coordinated Water System
Plan.
Policy WR 2.8
Develop an incentive based program to encourage exempt well owners to regularly monitor and
report the quality of their well water and identify leaks using tools such as flow meters
Policy WR 2.9
Recognizing that the Island aquifer system is a Sole Source Aquifer as designated by EPA,
consider creation and application of one or more aquifer conservation zones for appropriate
areas of the Island and institute an added level of development and re-development permit
review to prevent or mitigate potential pollutant-generating activities or activities that could affect
stormwater runoff and aquifer recharge associated with a proposed land use. The Island’s
aquifers are protected through critical area regulations and Revised Code of Washington (RCW)
36.70A.550.
Policy WR 2.10
Retard seawater intrusion into our groundwater through the development and application of a
comprehensive seawater intrusion prevention program.
Policy WR 2.11
Develop a water conservation program for all water uses on the Island.
Policy WR 2.12
Encourage water re-use and reclamation to serve as a supplementary source for high-water
users such as industry, parks, schools and golf courses as approved by the Washington State
Department of Health.
Policy WR 2.13
Require the retention of native landscapes to promote water quality and to reduce the need for
irrigation.
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2016 COMPREHENSIVE PLAN WR-7 WATER RESOURCES ELEMENT
Policy WR 2.14
Develop a program that incentivizes and facilitates innovative methods for homeowners and
business owners to use stormwater and grey water as approved by the Washington State
Department of Health and the Kitsap Public Health District.
Policy WR 2.15
Maintain a comprehensive program of groundwater data gathering, analysis, and reporting
including modeling, hydrogeologic and geologic studies, and monitoring of static water levels,
water use, water quality, surface water flows and acquisition of other data as necessary.
Policy WR 2.16
Develop and maintain a publicly-available system to report groundwater levels on a timely basis.
SURFACE WATER PROTECTION AND MANAGEMENT
GOAL WR-3
Achieve no net loss of ecological functions and processes necessary to sustain aquatic
resources including loss that may result from cumulative impacts over time.
Over recent decades awareness has grown of the importance of preserving and protecting
aquatic resources. Aquatic resources have a number of important ecological functions,
processes and values. These functions vary but include providing water quality protection, flood
plain control, shoreline stabilization, contributions to groundwater and stream flows, and wildlife
and fisheries habitat. Aquatic resources also have values as natural areas providing aesthetic,
recreational and educational opportunities that should be preserved for future generations.
Policy WR 3.1
Development in regulated aquatic critical areas or their associated water quality buffers shall not
be allowed unless application of development regulations would deny any reasonable use of
property. In such cases, minimize the allowed use and associated impacts, to maximize
environmental protection.
Policy WR 3.2
Require that vegetated buffers be maintained between proposed development and the aquatic
resource in order to protect the functions and values of such systems. Restore degraded
buffers to enhance their function. Allow reductions in vegetated buffers only in areas where such
reductions, if consistently applied, would not result in significant cumulative impacts to aquatic
resources and fish and wildlife habitat.
Policy WR 3.3
Require that buffers be retained in their natural condition wherever possible while allowing for
appropriate maintenance. Where buffer disturbance has occurred, require re-vegetation with
appropriate species, with a preference for native species, to restore the buffers’ protective
values.
Vegetated buffers facilitate infiltration and maintenance of stable water temperatures, provide
the biological functions of flood storage, water quality protection and groundwater recharge,
reduce amount and velocity of run-off, and provide for wildlife habitat.
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2016 COMPREHENSIVE PLAN WR-8 WATER RESOURCES ELEMENT
Policy WR 3.4
Ensure that development activities are conducted so that aquatic resources and natural
drainage systems are maintained and water quality and quantity are protected.
Policy WR 3.5
Prior to any clearing, grading or construction on a site, all wetlands, streams and buffer areas
are to be specifically identified and accurately located in the field in order to protect these areas
during development.
Policy WR 3.6
Herbicides and pesticides approved for use near aquatic resources may only be used in aquatic
resource areas and buffers when applied by licensed applicators.
Policy WR 3.7
Prohibit access to aquatic critical areas by farm animals. Require a farm management plan for
agricultural activities within proximity of aquatic resources addressing water quality and other
natural resource protection.
Policy WR 3.8
Require mitigation to compensate for unavoidable impacts to aquatic critical areas. Mitigation
should be designed to achieve no net loss in functions and processes of aquatic resources.
Policy WR 3.9
Promote watershed-based mitigation to meet federal regulations, improve mitigation success
and better preserve the ecological function of the island’s watersheds.
Policy WR 3.10
Work with state and local health departments to evaluate the merits of new technologies such
as grey water capture, package treatment plants and composting toilets as alternatives to septic
and sewer systems.
Policy WR 3.11
Consider the impacts of climate change and ocean acidification when developing regulations or
approving capital projects related to aquatic resources including marine nearshore, wetlands,
streams, lakes, creeks, associated vegetated areas and frequently flooded areas.
Policy WR 3.12
Stream relocation will only be allowed where relocation would result in improved stream
ecosystem function.
Policy WR 3.13
Degraded channels and banks should be rehabilitated by various methods (e.g., culvert
replacement, volunteer efforts, public programs or as offsetting mitigation for new development)
to restore the natural function of the riparian habitat for fish and wildlife.
Policy WR 3.14
Protect, preserve and enhance fish and wildlife habitat and adjacent riparian areas to ensure
sustainable populations of resident aquatic life.
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2016 COMPREHENSIVE PLAN WR-9 WATER RESOURCES ELEMENT
Policy WR 3.15
Require the construction of public facilities to avoid encroachment into and disturbances of
aquatic resources.
Policy WR 3.16
Ensure a comprehensive program of surface water inventory, data gathering and analysis. The
program shall include monitoring and assessment of physical, chemical and biological health of
surface water ecosystems to include streams, ephemeral streams, lakes, wetlands and marine
waters. This may include water, flow, sediment, habitat, pollutants, submerged aquatic
vegetation, fish and shellfish tissue, aquatic species diversity and other ecosystem health
indicators.
Policy WR 3.17
Support a community-wide program to educate Island residents about alternatives to using and
disposing of herbicides, pesticides, and other household chemicals, to reduce impacts to marine
shoreline areas, wetlands, streams, and other environmentally sensitive areas.
Policy WR 3.18
Promote and support volunteer or community-driven restoration projects.
STORMWATER PROTECTION AND MANAGEMENT
GOAL WR-4
Rather than capture and carry stormwater away as a waste stream, protect it from
pollutants and retain it on site to replenish aquifers and maintain wetlands and natural
stream flows, preserving or mimicking the natural water cycle to the maximum extent
practicable.
Policy WR 4.1
Comply with all requirements of the City’s National Pollutant Discharge Elimination System
Phase II Municipal Stormwater Permit (NPDES Permit).
Policy WR 4.2
Provide ongoing opportunities for the public to participate in the decision-making process
involving the development, implementation and update of the City’s Stormwater Management
Program through advisory councils, public hearings, and watershed committees.
Policy WR 4.3
Improve and maintain an education and outreach program designed to reduce or eliminate
behaviors and practices that cause or contribute to adverse stormwater impacts and encourage
the public to participate in stewardship activities.
Policy WR 4.4
Identify and eliminate sources of pollutants to the City’s stormwater drainage system through
proactive field screening techniques such as effluent monitoring, system inspections and
cleaning, and commercial and industrial business inspection, and through the enforcement of
the City’s Illicit Discharge Detection and Elimination ordinance.
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2016 COMPREHENSIVE PLAN WR-10 WATER RESOURCES ELEMENT
Policy WR 4.5
Ensure development of and adherence to required public and private stormwater pollution
prevention plans for public facilities, construction sites and commercial and industrial land use.
Encourage the use of such plans where not specifically required.
Policy WR 4.6
Ensure development of and adherence to erosion and sediment control plans on all construction
and development sites of any size.
Policy WR 4.7
Develop and actively enforce a strong low impact development (LID) ordinance to require any
and all LID methods and practices for new development and redevelopment to the maximum
extent practicable and reasonable.
Policy WR 4.8
Prioritize LID-based retrofit of public and private stormwater drainage systems and built assets
through the inventory, management and fiscal planning process.
Policy WR 4.9
Incentivize LID retrofit of current built environment.
Policy WR 4.10
Use watershed and basin plans to reduce stormwater impacts and non-point source pollution.
Policy WR 4.11
Comply with all requirements specifically identified by the City’s permit for any Total Maximum
Daily Load (TMDL) in which the City is a stakeholder.
Policy WR 4.12
Conduct effectiveness monitoring and assessments to continue to adaptively manage
stormwater to ensure optimal protection.
RESIDENTIAL ON-SITE SEWAGE SYSTEMS
GOAL WR-5
Ensure that sewage is collected, treated and disposed of properly to prevent public
health hazards and pollution of groundwater, Island surface water and the waters of
Puget Sound.
Policy WR 5.1
Regulations and procedures of the Washington State Department of Health and the Kitsap
Public Health District apply to all on-site disposal systems. Coordinate with these agencies to
assure regular inspection, maintenance and repair of all sanitary sewer and on-site systems
located on the Island.
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2016 COMPREHENSIVE PLAN WR-11 WATER RESOURCES ELEMENT
Policy WR 5.2
Request notification of all waivers or variances of Kitsap Public Health District requirements
such as modification of setbacks, vertical separation, minimum lot size, reserve drainfield, etc.,
prior to issuance and subsequent modifications by the Kitsap Public Health District of an
approved Building Site Application.
Policy WR 5.3
Allow alternative systems such as sand filters, aerobic treatment, composting toilets and living-
systems when approved by the Kitsap Public Health District.
Policy WR 5.4
Require coordination between the on-site septic and storm drainage disposal systems designs
to ensure the proper functioning of both systems.
Policy WR 5.5
Assist the Kitsap Public Health District in developing a program to require proper maintenance
of all on-site waste disposal systems in order to reduce public health hazards and pollution.
This program shall include periodic system inspection and pumping when necessary.
Policy WR 5.6
Work with the Kitsap Public Health District on a collaborative program to fund and pursue grants
or low-cost loans for low and moderate-income households to repair failed septic systems.
Incentivize maintenance, repair and replacement of systems for any income level.
Policy WR 5.7
Allow on-site waste disposal systems serving more than one household only with assurance of
proper design, operation, management and approval from the Kitsap Public Health District.
Policy WR 5.8
Provide the service of operation and maintenance management for approved large on-site
sanitary sewer systems or community sanitary sewer systems in coordination with the Kitsap
Public Health District.
Policy WR 5.9
Support the Kitsap Public Health District in maintaining and improving a public education
program to foster proper construction, operation and maintenance of on-site septic systems.
Policy WR 5.10
Support the Kitsap Public Health District in developing and maintaining an ongoing inventory of
existing on-site disposal systems to provide needed information for future studies.
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2016 COMPREHENSIVE PLAN WR-12 WATER RESOURCES ELEMENT
PUBLIC EDUCATION AND OUTREACH
GOAL WR-6
The City, in concert with federal, state and local governments, public water purveyors,
watershed councils, non-profits, citizens and other appropriate entities will continue to
improve and implement comprehensive public education and outreach program to
promote protection and management of all water resources.
Policy WR 6.1
Educate and inform the public about:
The purpose and importance of aquatic environments, their vulnerabilities and observed
status and trends in ecological health and function;
Expected climate change impacts and how these will affect the Island’s water resources
and their beneficial uses;
The characteristics of the aquifer system, the Island’s dependency upon it and its
vulnerability to contamination (including seawater intrusion) and depletion;
The Environmental Protection Agency’s Sole Source Aquifer Designation Program and
what this designation means for the Island’s aquifer system;
Wellhead protection and the critical importance of restricted chemical use or storage
within the protection area around wells;
Critical aquifer recharge areas (or other special conservation areas) and the purpose
they serve to the aquifer system;
How to report spills or illicit dumping of hazardous waste or other pollutants and how to
access information about location and status of contaminated sites;
How to find information about their well and how to properly maintain it;
Methods to identify wastewater indoors and outdoors and practices to conserve water
such as native landscaping, xeriscaping and water use reduction or reuse;
Resources for streamside and shoreline landowners;
Water resources protection best management practices for commercial, industrial,
residential, agricultural and other land uses to prevent or reduce pollution. These
practices include but are not limited to, septic system maintenance, pet and livestock
waste management, landscaping and gardening, farm plans, appropriate methods for
use, storage and disposal of hazardous materials and other chemicals, on-site drainage
system maintenance and automotive care.
Policy WR 6.2
Promote opportunities for citizen stewardship and involvement.
Policy WR 6.3
Provide LID technical guidance and workshops to businesses and contractors working on the
Island.
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2016 COMPREHENSIVE PLAN WR-13 WATER RESOURCES ELEMENT
To implement the goals and policies in this Element, the City must take a number of actions,
including adopting or amending regulations, creating outreach and educational programs, and
staffing or other budgetary decisions. Listed following each action are several of the
comprehensive plans policies that support that action.
HIGH PRIORITY ACTIONS
WR Action #1 Adopt aquifer conservation zoning regulations and innovative permit
review processes designed to protect the Island’s surface and ground waters.
Policy WR 1.4
Apply the policies in this Element together with the protection measures set by the City’s
Shoreline Master Program, Critical Areas Ordinance and any other environmental or water
resources management ordinance adopted by the City and in compliance with county, State,
and federal laws and regulations.
Policy WR 2.1
Recognize that the Island functions as an aquifer recharge area. Low impact development
techniques are essential for maintaining aquifer recharge.
Policy WR 2.9
Recognizing that the Island aquifer system is a Sole Source Aquifer as designated by EPA,
consider creation and application of one or more aquifer conservation zones for appropriate
areas of the Island and institute an added level of development and re-development permit
review to prevent or mitigate potential pollutant-generating activities or activities that could affect
stormwater runoff and aquifer recharge associated with a proposed land use. The Island’s
aquifers are protected through critical area regulations and Revised Code of Washington (RCW)
36.70A.550.
Policy WR 4.7
Develop and actively enforce a strong Low Impact Development (LID) ordinance to require any
and all LID methods and practices for new development and redevelopment to the maximum
extent practicable and reasonable.
Policy LU 12.4
Protect aquifer recharge functions throughout the Island, all of which is an aquifer recharge
area, through the application of critical areas regulations, Shoreline Master Program use
regulations, low impact development regulations, and the wellhead protection regulations
administered by the Kitsap Health District.
WR Action #2 Adopt an Island-wide Groundwater Management Plan. Take the actions
necessary- capital improvements, code changes, etc.- to capture, clean and re-infiltrate
as much stormwater as reasonably possible.
WATER RESOURCES IMPLEMENTATION
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2016 COMPREHENSIVE PLAN WR-14 WATER RESOURCES ELEMENT
Policy WR 2.7
Establish a stakeholder group to develop an Island-wide groundwater management plan and
work with Kitsap Public Utility District to update the Kitsap County Coordinated Water System
Plan.
WR Action #3 Incorporate Low Impact Development principles, goals and approaches
into all land use and development codes.
NOTE: Same Action in Environmental Element
WR Action #4 Apply adaptive management to assure that land use on the Island will
continue to be adequately served by the available water resources.
Policy WR 3.16
Ensure a comprehensive program of surface water inventory, data gathering and analysis. The
program shall include monitoring and assessment of physical, chemical and biological health of
surface water ecosystems to include streams, ephemeral streams, lakes, wetlands and marine
waters. This may include water, flow, sediment, habitat, pollutants, submerged aquatic
vegetation, fish and shellfish tissue, aquatic species diversity and other ecosystem health
indicators.
Policy WR 4.12
Conduct effectiveness monitoring and assessments to continue to adaptively manage
stormwater to ensure optimal protection.
MEDIUM PRIORITY ACTIONS
WR Action #5 Launch a program of public education about how individual actions can
help protect the quality and quantity of the Island’s surface and groundwaters.
Policy WR 2.11
Develop a water conservation program for all water uses on the Island.
Policy WR 2.13
Develop a program that incentivizes and facilitates innovative methods for homeowners and
business owners to use stormwater and grey water as approved by the Washington State
Department of Health and the Kitsap Public Health District.
Policy WR 3.17
Support a community-wide program to educate Island residents about alternatives to using and
disposing of herbicides, pesticides, and other household chemicals, to reduce impacts to marine
shoreline areas, wetlands, streams, and other environmentally sensitive areas.
Policy WR 3.18
Promote and support volunteer or community-driven restoration projects.
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2016 COMPREHENSIVE PLAN WR-15 WATER RESOURCES ELEMENT
Policy WR 6.2
Promote opportunities for citizen stewardship and involvement.
WR Action #6 Consider adopting seawater intrusion regulations in coordination with
Kitsap County.
Policy WR 2.10
Retard seawater intrusion into our groundwater through the development and application of a
comprehensive seawater intrusion prevention program.
OTHER PRIORITY ACTIONS
WR Action #7 Work with other jurisdictions and the environmental and development
communities to promote programs and projects to protect the Island’s surface and
ground waters.
Policy WR 2.5
The City, in cooperation with the appropriate regulatory agencies (e.g., Washington State
Department of Health and the Kitsap Public Health District) will institute new wellhead protection
measures.
Policy WR 3.10
Work with state and local health departments to evaluate the merits of new technologies such
as greywater capture, package treatment plants and composting toilets, as alternatives t o septic
and sewer systems.
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2016 COMPREHENSIVE PLAN HOUSING ELEMENT
TABLE OF CONTENTS
PAGE
INTRODUCTION……………………………………………………………………………....HO- 1
BAINBRIDGE ISLAND SNAPSHOT: PEOPLE AND HOUSING……………………..…HO-1
GMA GOAL AND REQUIREMENTS FOR HOUSING……………….……………………HO-1
HOUSING NEEDS……………………………………………………………………………..HO-2
HOUSING ELEMENT VISION ………………………………………………………..........HO-3
GOALS AND POLICIES……………………………………………..……………………….HO-3
IMPLEMENTATION………………...………………………………………...………………HO-10
HOUSING ELEMENT
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2016 COMPREHENSIVE PLAN HO-1 HOUSING ELEMENT
Decent and safe housing is a basic human need increasingly unavailable to many Americans,
including many Bainbridge Island residents and workers. The Washington State Growth
Management Act (GMA) provides direction for cities to address these needs in the Housing
Element of the Comprehensive Plan. Many of the Plan’s Guiding Principles and Policies carry
this direction forward to be addressed in various Elements, including Housing.
The City’s Housing Needs Assessment (HNA) documents current housing conditions on the
Island and identifies trends and specific needs. The HNA is Appendix B to this Plan and
adopted as a part of this Element. Many of the statistics below are excerpted from the HNA or
the City’s Economic Profile (Appendix A).
BAINBRIDGE ISLAND SNAPSHOT: PEOPLE AND HOUSING
Bainbridge Island’s 2015 population of 23,390 is predominantly white (91%), well-educated and
relatively affluent. The median household income ($92,558) is 1.5 times the Kitsap County
average. Almost 60% of residents have occupations with relatively high incomes. For
example, the median wage for financial analysts, lawyers and marketing managers ranges
between $100,457 and $122,618. Another third of Island residents work in the service sector,
such as retail clerks, waiters and bank tellers have median wages between $27,703 and
$30,972.
Over the past decade the population has experienced shifts in the age cohorts. Between 2000
and 2010 the Island’s senior population (60+ years old) increased from 17% to 26%. The
“young adult” cohort (between 18 and 34 years old) has declined from 15% of the Island’s
population in 1990 to less than 10% in 2016.
Bainbridge Island’s housing stock is predominantly detached single-family homes (80% of all
units) in a very low-density land use pattern that occupies about 90% of the Island’s land area.
The average single-family home price is just under $700,000.
Multi-family units that constitute 16% of the housing stock are now concentrated in Winslow and
Lynwood Center. While the designated centers total about 10% of the Island’s land area, a
significant portion of that area is occupied by commercial uses with no residential component.
Rental apartments make up less than 7% of total housing units on the Island. Very few rental
units have been built on the Island in the last decade which partly accounts for a vacancy rate of
1.5%, well below the 5% rate typical of well-functioning rental markets
GMA GOAL AND REQUIREMENTS FOR HOUSING
The GMA recognizes the importance of planning for adequate housing by requiring it as an
element in Comprehensive Plans. Housing is addressed in one of the 14 major goals:
“Housing. Encourage the availability of affordable housing to all economic segments of
the population of this state, promote a variety of densities and housing types, and
encourage preservation of existing housing stock.”
RCW 36.70A.020(4)
HOUSING ELEMENT INTRODUCTION
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2016 COMPREHENSIVE PLAN HO-2 HOUSING ELEMENT
The requirements for a housing element mandated by the GMA include:
“A housing element recognizing the vitality and character of established neighborhoods
that: a) includes an inventory and analysis of existing and projected housing needs; b)
includes a statement of goals, policies, and objectives for the preservation,
improvement, and development of housing; c) identifies sufficient land for housing, and
group homes and foster care facilities; and d) makes adequate provisions for existing
and projected needs of all economic segments of the community.”
RCW 36.70A.070(2)
HOUSING NEEDS
The Housing Needs Assessment for Bainbridge Island
includes an inventory of the amount, location and condition
of the Island’s housing stock and demographic and
economic information about its population. It also includes
an in-depth analysis of affordable housing needs on
Bainbridge Island.
Almost 34% of individuals and families at all income levels
who live in owner-occupied housing units are cost burdened
meaning they spend over 30% of their income on housing. Almost 40% of individuals and
families at all income levels who live in renter-occupied housing units are cost burdened. The
majority (around 28%) of these residents have an annual income between zero and $34,999.
This means that as of 2012, 569 renters on the Island that have an income of $34,999 or less
are housing cost burdened. This is concerning as lower income cost burdened households are
more likely to have to choose between housing costs and other necessities.
The HNA analysis of Workforce Housing Affordability indicates that there is a gap in housing
affordable for the Island’s workforce in service professions (e.g., restaurant workers, bank
tellers, retail clerks, school bus drivers). Many of these workers are obliged therefore to
commute from less-expensive off-Island housing, which increases their transportation costs,
congestion on SR 305 and greenhouse gas emissions.
Bainbridge Island’s jobs/housing balance is 0.59 jobs for every housing unit, making it a
“bedroom community.” The Puget Sound Regional Council suggests that housing-rich
neighborhoods add employment in order to increase economic opportunities for current
residents.
Market forces alone will not address the urgent housing needs facing Bainbridge Island. In the
face of daunting circumstances, the City aspires to an ambitious Vision of its future and commits
to an innovative, aggressive and multi-faceted housing strategy. The City’s success in
achieving the housing Vision will also depend upon achieving the policy objectives identified in
the Land Use, Transportation, Economic and Environmental Elements of this Plan.
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2016 COMPREHENSIVE PLAN HO-3 HOUSING ELEMENT
Bainbridge Island in the year 2036 provides a broad diversity of housing. The broadest variety of
housing types including rental homes, exists within the compact, walkable, transit-served,
mixed-use designated centers. These include small detached homes on small lots, attached
and detached accessory dwelling units, cottage housing, common-wall duplexes, triplexes and
row houses, and stacked units on the upper floors of mixed-use, mid-rise buildings.
The residential land use pattern outside of designated centers remains at much lower densities
and constitutes almost 90% of the Island’s area. Houses built in the previous twenty years in
the vicinity of designated centers and elsewhere in the Open Space Residential zones are
compact, energy-efficient and well-integrated in their landscape. Typical housing types in these
areas include detached houses on lots of various sizes, attached and detached accessory
dwelling units and conservation villages.
Some combination of appropriately zoned land, regulatory incentives, financial subsidies and
innovative planning techniques will be necessary to make adequate provisions for the needs of
all segments of the population, but particularly middle and lower income persons.
GOAL HO-1
Make steady progress toward the following aspirational targets for increasing the
diversity of housing types and the supply of affordable housing.
Policy HO 1.1
Decrease to 20% or less the number of cost burdened families living in rental housing (down
from 40%).
Policy HO 1.2
Decrease to 18% or less the number of cost burdened families owning homes (down from 34%).
Policy HO 1.3
Increase rental housing units to at least 11% of total housing units (up from 7%).
Policy HO 1.4
Increase the Island’s percentage of multifamily homes to 18% or more of all homes (up from
16%).
Policy HO 1.5
Increase the number of senior housing units to 600 or more (up from 344.)
HOUSING VISION 2036
GOALS & POLICIES
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2016 COMPREHENSIVE PLAN HO-4 HOUSING ELEMENT
Policy HO 1.6
Change today’s 89/11% housing split between the Mixed Use Town Center and Neighborhood
Centers to 80/20% by 2036.
Policy HO 1.7
Achieve a jobs-housing balance of .8 (up from 0.59).
GOAL HO-2
Beginning in 2019, prepare biennial reports on the status of housing on Bainbridge
Island. The report shall describe progress toward achieving the targets set forth in
Policies HO 1.1 through HO 1.7.
Policy HO 2.1
The Housing report shall address the following aspects of housing:
1. Housing trends in general both regionally and on Bainbridge Island.
2. The number and location of housing types constructed or active applications in the
permit process in the preceding two years.
3. An evaluation of the effectiveness of the City’s measures and identification of additional
or revised measures or targets.
4. The vacancy rate for rental apartments.
5. The number of cost burdened and extremely cost burdened households.
6. The status of efforts to address housing needs at the regional level.
7. The housing availability for special needs or difficult to serve populations.
8. The condition of the local housing market and the number of new housing units publicly
and privately funded.
9. The use of density bonuses and the number of for-purchase affordable housing units
provided in new developments.
10. A description of the various initiatives supporting affordable housing including activities
of community non-profit organizations and local and regional entities.
11. Programs of housing repair and renovation that improve accessibility.
12. An analysis of how property taxes impact housing affordability.
13. If insufficient progress is made toward meeting the targets in Policies HO 1.1 through
HO 1.7, determine what actions are not working and make adjustments.
Policy HO 2.2
Make the Biennial Housing Reports available to the public in various ways such as notice in the
local newspaper, on the City’s web page and on local media outlets. This Biennial Housing
Report will be part of a comprehensive update of the Housing Needs Assessment in order to
inform the next state-mandated update of the Comprehensive Plan in 2024.
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2016 COMPREHENSIVE PLAN HO-5 HOUSING ELEMENT
GOAL HO-3
Promote and maintain a variety of housing types to meet the needs of present and future
Bainbridge Island residents at all economic segments in a way that is compatible w ith
the character of the Island and encourages more socio-economic diversity. Partner with
community non-profit organizations and local and regional private and public entities in
carrying out the following policies.
Policy HO 3.1
Encourage innovative zoning regulations that increase the variety of housing types and choices
suitable to a range of household sizes and incomes in a way that is compatible with the
character of existing neighborhoods. Examples of innovative approaches are cottage housing
development, conservation villages, stacked or common-wall housing, tiny houses and
accessory dwelling units.
Housing types are illustrated in: Figs. HO-1 through HO-3 (detached housing); Figs. HO-4
through HO-6 (attached housing); and Figs. HO-7 through HO-9 (stacked housing).
Fig. HO-1 Single-family Home Fig. HO-2 Cottage Housing Fig. HO-3 Tiny House/ADU
Fig. HO-4 Duplex Fig. HO-5 Row House Fig. HO-6 Zero Lot Line
Fig. HO-7 Garden Apartment Fig. HO-8 Mixed-use, Mid-rise Fig. HO-9 Micro Units
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2016 COMPREHENSIVE PLAN HO-6 HOUSING ELEMENT
Fig. HO-10 Live-aboard Unit
Policy HO 3.2
Recognize that the City shares a housing and employment market as well as a transportation
network with the larger region. Therefore, the City should work with the Kitsap Regional
Coordinating Council and other regional entities to develop an equitable and effective county-
wide planning policies and other strategies to locate, finance and build affordable housing.
Policy HO 3.3
Designate the appropriate staff or organizational entity to assist and advise the community,
landowners and private and public entities about options for affordable housing, financing
strategies and funding sources.
Policy HO 3.4
Partner with non-profit housing organizations, churches, the development community, local
lending institutions, elected officials and the community at large to assist in meeting affordable
housing goals and implementing strategies.
Policy HO 3.5
Support the efforts of community non-profit housing organizations and local and regional public
and private entities in developing and managing affordable housing on Bainbridge Island.
Policy HO 3.6
Develop standards to encourage development of small to mid-size single-family housing units.
These provisions may include a framework to permit small-unit housing development such as
tiny houses, micro units and cottage housing.
Policy HO 3.7
Expand opportunities for infill in the residential neighborhoods of the Winslow Master Plan study
area and the Neighborhood Centers. Allow the creation of small lots (e.g., in the 3,000 square
foot range) as well as smaller footprint homes (e.g., under 1,200 square feet).
GOAL HO-4
Increase the supply of permanently affordable multifamily housing each year through the
year 2036 with goals based on data provided by the Housing Needs Assessment and the
City’s housing reports.
Policy HO 4.1
Encourage new multifamily housing in a variety of sizes and forms in designated centers.
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2016 COMPREHENSIVE PLAN HO-7 HOUSING ELEMENT
Policy HO 4.2
Increase the efficiency of the review process and revise development standards for the High
School Road and Ferry Terminal districts and other portions of the Winslow Area Master Plan to
encourage the transformation of these areas from auto-oriented, low-rise, homogeneous
commercial land use districts into walkable, transit-served, mid-rise, mixed-use areas with
affordable housing.
.
Policy HO 4.3
Partner with non-profit or for-profit housing sectors to create new multifamily housing in
designated centers including a significant percentage of affordable housing through the joint or
exclusive use of surplus publicly owned property or air space.
Policy HO 4.4
Partner with the for-profit sector to create affordable housing through the targeted use of the
multifamily property tax exemptions in designated centers.
Policy HO 4.5
Remove barriers to the creation of new multifamily housing, particularly affordable housing
through a variety of actions such as the adoption of regulations that “right-size” parking
requirements, reduce certain impact fees and encourage the use of parking management
programs to enable the more efficient use of parking.
Policy HO 4.6
Allow accessory dwelling units in all residential zones, except at Point Monroe, the Sandspit (R-
6). Review and revise regulations as appropriate to create reasonable flexibility regarding
development standards including lot coverage, setbacks, parking requirements and Health
District requirements for water and sewage.
Policy HO 4.7
Encourage agencies whose mission is to develop affordable housing to create new subsidized
multifamily rental housing by aggressively pursuing Kitsap County Community Development
Block Grant Funds, state funds, donations from private individuals and organizations, public
revenue sources and other available funding.
Policy HO 4.8
Evaluate the efficacy of existing regulations in facilitating the provision of assisted and
independent living senior housing and take action to amend development regulations as
needed.
GOAL HO-5
Maintain the existing stock of affordable and rent-assisted housing, in partnership with
community non-profit organizations and local and regional public and private entities.
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2016 COMPREHENSIVE PLAN HO-8 HOUSING ELEMENT
Policy HO 5.1
Develop a continuing strategy to maintain the Rural Development Agency and HUD subsidies
on existing rent-assisted housing. The primary strategy shall be to support Housing Kitsap and
non-profit organizations such as Housing Resources Bainbridge to purchase the units through
the provisions of the 1990 Housing Act.
Policy HO 5.2
In the event of the potential loss of privately-owned subsidized housing, work with the
appropriate public agencies and local non-profits to pursue the preservation of the subsidized
units or relocation assistance for the residents.
Policy HO 5.3
Support water-based (live-aboard) housing as a viable component of the present and future
housing stock of Bainbridge Island, subject to applicable environmental protection,
seaworthiness, sanitation and safety standards, and authorized moorage.
GOAL HO-6
Facilitate the provision of a diverse affordable housing stock in all geographic areas of
the community.
Policy HO 6.1
Encourage housing created by agencies such as a community land trust.
Policy HO 6.2
In order to provide for permanently affordable housing pursue effective strategies to reduce the
land cost component of affordable housing which may include alternative land use zoning,
density bonuses and other incentives.
Policy HO 6.3
Maintain an innovative housing program and clarify or adopt new flexible permit processes in all
designated centers to promote an increase in the supply, diversity and access to housing
including affordable housing.
Policy HO 6.4
Create a new conservation villages permit process to apply outside of designated centers to
increase housing choices including affordable housing and requiring green building practices
while better conserving open space.
Policy HO 6.5
Develop regulations and provide incentives to construct affordable housing for farm workers on
or near farmlands.
Policy HO 6.6
Consider the merits of programs and regulations pioneered by other communities to discourage
the land, energy and natural resource consumptive pattern of large single-family homes. Adopt
amendments to City programs and development regulations as appropriate.
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2016 COMPREHENSIVE PLAN HO-9 HOUSING ELEMENT
Policy HO 6.7
Support the development of livable neighborhoods.
GOAL HO-7
Promote and facilitate the provision of rental and for-purchase housing that is affordable
to income-qualified households with a variety of income levels.
Policy HO 7.1
Exempt from City impact fees and other administrative development fees housing developments
where all units are limited to residents in specified income groups.
Policy HO 7.2
All income-qualified rental housing units created as a result of the policies of this Housing
Element shall remain affordable to income-qualified households for a period of not less than 50
years from the time of first occupancy.
Policy HO 7.3
Explore measures and the merits of source-of-income discrimination controls.
GOAL HO-8
Facilitate the siting and development of housing opportunities for special needs
populations.
Policy HO 8.1
Support the services of community non-profit organizations and local and regional public or
private entities in providing shelter for temporarily homeless singles and families with children,
adolescents and victims of domestic violence on Bainbridge Island.
Policy HO 8.2
Support the development of programs to meet the housing needs of the developmentally,
physically and emotionally disabled within the community.
Policy HO 8.3
Support programs that provide assistance to low-income, elderly and disabled persons to repair,
rehabilitate or retrofit homes to be more accessible and safe.
GOAL HO-9
Explore the use of the City’s bonding capacity and pursue other resources to support the
creation of affordable housing.
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2016 COMPREHENSIVE PLAN HO-10 HOUSING ELEMENT
Policy HO 9.1
The City recognizes the need to provide financing assistance for affordable housing.
Accordingly, the City will actively pursue public and private funds that may include but are not
limited to, real estate excise tax, grants and other available resources.
Policy HO 9.2
The City in partnership with local agencies producing affordable housing, may issue a General
Obligation Bond to increase the production of housing affordable to households at or below 80%
of median income for Kitsap County.
Policy HO 9.3
Consider the issuance of Limited Tax General Obligation Bonds (also called councilmanic
bonds or non-voted debt) to support the development of housing affordable to households at or
below 80% of median income for Kitsap County.
Policy HO 9.4
Increase City support of the Housing Trust Fund and explore new sources of funding for the
development and preservation of affordable housing.
Policy HO 9.5
Consider the options for making City-owned land or air-space available through long-term
leases or other mechanisms for the purpose of creating income-qualified housing and support
other public entities that wish to use publicly-owned land for this purpose. Take into
consideration however, the full range of uses that City-owned properties may serve over the
long-term.
To implement the goals and policies in this Element, the City must take a number of actions,
including adopting or amending regulations, creating partnerships and educational programs,
and staffing or other budgetary decisions. Listed following each action are several of the plan’s
goals and policies that support that action.
HIGH PRIORITY ACTIONS
HO Action #1 Set targets for increasing the supply of moderately priced and affordable
housing, measure progress, and if insufficient progress is being made toward meeting
the housing targets, determine what actions are not working and make appropriate
adjustments.
GOAL HO-1
Make steady progress toward the following aspirational targets for increasing the diversity of
housing types and the supply of affordable housing.
HOUSING IMPLEMENTATION
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2016 COMPREHENSIVE PLAN HO-11 HOUSING ELEMENT
GOAL HO-2
Beginning in 2019, prepare biennial reports on the status of housing on Bainbridge Island. The
report shall describe progress toward achieving the targets set forth in Policies HO 1.1 through
HO 1.7.
HO Action #2 Amend the City’s development code to facilitate an increase in the
diversity of housing types and supply of affordable housing.
Policy HO 3.6
Develop standards to encourage development of small to mid-size single-family housing units.
These provisions may include a framework to permit small-unit housing development such as
tiny houses, micro units and cottage housing.
Policy HO 4.2
Increase the efficiency of the review process and revise development standards for the High
School Road and Ferry Terminal districts and other portions of the Winslow Area Master Plan to
encourage the transformation of these areas from auto-oriented, low-rise, homogeneous
commercial land use districts into walkable, transit-served, mid-rise, mixed-use neighborhood
with affordable housing.
Policy HO 6.3
Maintain an innovative housing program and clarify or adopt new flexible permit processes in all
designated centers to promote an increase in the supply, diversity, and access to housing,
including affordable housing.
Policy HO 6.4
Create a new conservation villages permit processes to apply outside of designated centers to
increase housing choices, including affordable housing and requiring green building practices,
while better conserving open space.
HO Action #3 Partner with other jurisdictions, the development community, and non-
profit organizations to increase the diversity of housing types and supply of affordable
housing.
Policy HO 3.4
Partner with non-profit housing organizations, churches, the development community, local
lending institutions, elected officials and the community at large to assist in meeting affordable
housing goals and implementing strategies.
.
Policy HO 4.3
Partner with non-profit or for-profit housing sector to create new multifamily housing in
designated centers including a percentage of affordable housing, through the joint or exclusive
use of surplus publicly owned property or air space.
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Policy HO 4.4
Partner with the for-profit sector to create affordable housing through the targeted use of the
multifamily property tax exemptions in designated centers.
Policy HO 9.5
Consider the options for making City- owned land or air-space available through long-term
leases or other mechanisms for the purpose of creating income-qualified housing and support
other public entities that wish to use publicly-owned land for this purpose. Take into
consideration however, the full range of uses that City-owned properties may serve over the
long-term.
HO Action #4 Consider actions that can be taken to reduce financial barriers that inhibit
the desired increase in diverse and affordable housing.
Policy HO 5.2
In the event of the potential loss of privately-owned subsidized housing, work with the
appropriate public agencies and local non-profits to pursue the preservation of the subsidized
units or relocation assistance for the residents.
Policy HO 7.1
Exempt from City impact fees and other administrative development fees housing developments
where all units are limited to residents in specified income groups.
Policy HO 9.2
The City in partnership with local agencies producing affordable housing, may issue a General
Obligation Bond to increase the production of housing affordable to households at or below 80%
of median income for Kitsap County.
Policy HO 9.3
Consider the issuance of Limited Tax General Obligation Bonds (also called councilmanic
bonds or non-voted debt) to support the development of housing affordable to households at or
below 80% of median income for Kitsap County.
HO Action #5 Create a short-term (60-90 days) citizen affordable housing task force to
consider the revised Housing Element and provide specific recommendation for near-
term action.
Policy HO 3.3
Designate the appropriate staff or organizational entity to assist and advise the community,
landowners and private and public entities about options for affordable housing, financing
strategies and funding sources.
HO Action #6 Review and revise City regulations related to permissible live-aboard
capacity in City marinas.
Policy HO 5.3
Support Water-based (live-aboard) housing as a viable component of the present and future
housing stock of Bainbridge Island, subject to applicable environmental protection,
seaworthiness, sanitation and safety standards, and authorized moorage.
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MEDIUM PRIORITY ACTIONS
HO Action #7 Focus additional city and other financial resources to help increase the
supply of affordable housing.
Policy HO 9.4
Increase City support of the Housing Trust Fund and explore new sources of funding for the
development and preservation of affordable housing.
Policy HO 7.1
Exempt from City impact fees and other administrative development fees housing developments
where all units are limited to applicants of specified income groups.
HO Action #8 Look for ways to reduce the cost of multifamily housing, particularly
affordable housing.
Policy HO 4.5
Remove barriers to the creation of new multi-family housing, particularly affordable housing
through a variety of actions such as the adoption of regulations that “right-size” parking
requirements, reduce certain impact fees, and the encourage the use of parking management
programs to enable the more efficient use of parking.
OTHER PRIORITY ACTIONS
HO Action #9 Identify ways to achieve local results with and through regional actions.
Policy HO 3.2
Recognize that the City shares a housing and employment market, as well as a transportation
network, with the larger region. Therefore, the City should work with the Kitsap Regional
Coordinating Council and other regional entities to develop equitable and effective county-wide
planning policies and other strategies to locate, finance and build affordable housing.
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TABLE OF CONTENTS
PAGE
INTRODUCTION ............................................................................................................... TR-1
TRANSPORTATION VISION ............................................................................................. TR-2
TRANSPORTATION ISSUES……………………………………………………………………..TR-3
GOALS AND POLICIES .................................................................................................... TR-6
MULTIMODAL ............................................................................................................... TR-6
NON-MOTORIZED SYSTEM ........................................................................................ TR-7
FERRY SERVICE ........................................................................................................TR-10
BUS SERVICE .............................................................................................................TR-10
TRANSPORTATION DEMAND MANAGEMENT ..........................................................TR-11
OPERATION AND MOBILITY ...................................................................................... TR-12
STATE ROUTE (SR) 305 .............................................................................................TR-13
NEIGHBORHOODS .....................................................................................................TR-14
SAFETY AND MAINTENANCE ....................................................................................TR-15
PARKING .....................................................................................................................TR-16
COMMUNITY CHARACTER ........................................................................................TR-17
ENVIRONMENT ........................................................................................................... TR-17
COMMUNITY INVOLVEMENT ..................................................................................... TR-18
REGIONAL COORDINATION ...................................................................................... TR-18
TRANSPORTATION FINANCING ................................................................................ TR-19
TRANSPORTATION IMPLEMENTATION ........................................................................ TR-20
TRANSPORTATION ELEMENT
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Purpose and Structure of the Transportation Element
The Growth Management Act requires that a Transportation Element be consistent with and
implement the Land Use Element and that it contain a number of specific sub-elements. The
primary focus of this Element is to set forth a Transportation Vision, Goals and Policies
consistent with the rest of the Comprehensive Plan and to provide direction to implementing
actions. Other GMA requirements, including a detailed inventory of transportation facilities,
identification of needs, projects to meet those needs, and financing for those projects, are
contained in the Island-wide Transportation Plan (IWTP, Appendix C of the Comprehensive
Plan). The IWTP is a functional plan, technical rather than policy in nature, and provides the
primary means for carrying out the policy direction of the Transportation Element. The IWTP is
hereby adopted by reference.
The Comprehensive Plan’s Guiding Principles emphasize the important relationship between
the Island’s transportation system and community character, livability, public health, safety,
economic vitality and environmental quality. Implementation of the Transportation Element plays
a large role in the sustainability of Bainbridge Island’s economy and environment and the quality
of life of its residents.
Existing Conditions and Challenges
The ferry to Seattle and the Agate Pass Bridge are the only two public options for travel to or
from the Island. Many Islanders commute to work off-island by ferry or bridge. Likewise, many
on-Island workers commute from off-island. Lengthy commute times by ferry or being stuck in
traffic on SR 305 mean spending hours away from family, friends, and activities. Speeding and
cut-through traffic makes neighborhood streets feel unsafe. During commute hours, SR 305
creates a wall across the Island. Reliable and efficient transportation on and off island is
important to balance jobs and housing and maintaining the quality of life for Island residents.
Poor quality or non-existent bicycle and pedestrian facilities can be a deterrent to residents
walking or bicycling for transportation, connecting to transit, traveling to schools and parks, as
well as for recreational purposes. Non-motorized facility networks provide options for active
modes of transportation allowing residents to make healthy lifestyle choices. Walkability and
bikeablity are desirable characteristics of neighborhoods. An increasing number of Island
residents are choosing to walk and bike to goods and services in the urban developed area of
the Island and to work.
How people choose to travel is a key element of both environmental sustainability and quality of
life. Motorized transportation is a significant contributor to climate change, as it accounts for a
high percentage of greenhouse gas emissions. This Comprehensive Plan focuses growth in
TRANSPORTATION INTRODUCTION
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designated centers such as Winslow, Lynwood, Rolling Bay, and Island Center. The High
School Road shopping area is designed to be automobile-oriented while the Winslow Master
Plan for downtown stresses designing for pedestrian and bicycle modes of transportation.
With good planning and implementation of mixed use and higher densities within these
designated centers, development can lead to a more sustainable growth pattern and preserve
community character. Investments in infrastructure for active transportation modes and access
to transit reduce dependence on the automobile, which in turn reduces the Island’s greenhouse
gas emissions and improves the quality of life for Island residents.
Transportation infrastructure and associated drainage have direct impacts on the environment.
Stormwater runoff can contribute to water pollution, flooding, and water temperature elevation.
The road network right-of-way presents many opportunities to incorporate sustainable
stormwater practices to provide positive contributions to environmental sustainability.
Balancing Community Interests
One of the challenges of improving a transportation system is finding the right balance between
sometimes competing community interests. For example, it may be best to construct a
sidewalk/separated pathway on one side of the roadway rather than on both sides to reduce
impacts to vegetation. Evaluating the trade-offs and weighing the importance among competing
community goals is an important function of the City of Bainbridge Island.
The City uses the community values in the Comprehensive Plan when developing project
objectives. The City of Bainbridge is committed to the principles of context sensitive solutions.
Public Works staff strive to facilitate public engagement when developing capital projects to
evolve and refine the community’s values as they relate to each project.
Bainbridge Island has a safe, dependable, properly maintained, and fiscally responsible,
multimodal transportation system. The system provides good facilities for non-motorized users
and pedestrians and good access to transit, consistent with and supporting the other Elements
of the Comprehensive Plan. The transportation system improves mobility and safety for all users
while respecting the character of neighborhoods and maintaining a climate resilient
environment. The system is regionally coordinated, adequately financed, and community
supported.
TRANSPORTATION VISION 2036
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As population grows on the Island and in Kitsap County, more demand is placed on the Island’s
roadway network and the regional SR 305 Corridor. As traffic volumes and
vehicular-related congestion increases, so do conflicts with bikes/pedestrians
and the need grows for transportation improvements to accommodate all modes
of transportation and a wider range of users. We need to consider how future
growth will affect the community, and how to preserve the character and livability
of Bainbridge Island. The following list identifies and briefly describes the community’s
transportation issues.
A. Limited Transportation Choices – Given the relative lack of non-motorized infrastructure
in many parts of the Island, and limited transportation services, many Islanders are dependent
on individual automobile travel as their only practical and safe transportation option. In order to
meet the needs of a growing population and maintain or improve quality of life on the Island, we
need to provide better transportation options to improve mobility for all ages and abilities.
B. Roadway Congestion – Traffic on Island roadways, particularly on SR 305 and within
Winslow, can result in a variety of issues such as making it difficult to “get around” by
automobile, traffic “spilling over” into adjacent neighborhoods, and making it more difficult for
transit and non-motorized users to get to their destinations in a timely manner. Congestion
related to ferry loading and unloading creates surges on Island roadways every 45 to 50
minutes. In the afternoon hours, impacts from ferry activities can snarl area traffic and cause
traffic delays. In addition to ferry traffic, the SR 305 Corridor has experienced increasing
congestion due to commuters traveling on and off island across the Agate Pass Bridge.
Congestion and increased travel times are experienced during commute hours along the SR
305 Corridor.
C. SR 305 Traffic Congestion – Concern surrounds the future of the SR 305 Corridor. While
the existing configuration of two lanes is adequate during off-peak hours, peak hour traffic
coupled with surges from exiting ferry activities have resulted in high levels of congestion at
multiple locations. This affects Island residents and off-Island commuters using the corridor and
increases the difficulty of cross-Island travel, resulting in higher volumes of traffic on local
streets when drivers try to avoid SR 305 congestion. Access to SR 305 is becoming increasingly
difficult at the north end of the Island.
D. School Related Congestion – Congestion related to schools has become more
problematic, such as intersections on New Brooklyn and Sportsman Club Roads. Youth are
routinely being driven to and from school and not taking the school bus, walking, or bicycling to
home or to after-school activities, causing additional demands on the transportation system.
E. Greater Winslow Area Traffic Congestion – Residential and economic growth on
Bainbridge Island, particularly in the Winslow subarea, has resulted in more vehicles on the
street system. Intersections are increasingly congested, in particular during commute and
TRANSPORTATION ISSUES
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school drop off and pick up times, but also in general. These impacts are felt on streets
adjacent to major corridors. Residents of these streets feel that the impacts of high traffic
volumes and travel speeds need to be controlled to maintain the quality of the neighborhoods.
F. Motor Vehicle Speeds and Speed Limits – Excessive vehicular speeds put the traveling
public at greater risk especially for walkers, wheel chair users, and bicyclists. Many Island roads
lack shoulder facilities or separate bicycle and pedestrian infrastructure. Speeding vehicles
discourage many people who want to walk, use a wheelchair, or ride a bicycle for transportation
or recreation in many areas on the Island.
G. Non-Motorized Travel – Non-motorized modes of transportation are important to many
Islanders and the need for improved non-motorized infrastructure has consistently ranked high
in community surveys. While significant improvements have been made, many parts of the
Island infrastructure are not adequate to serve the needs of users of all ages and abilities. As a
result, many people remain dependent on cars as the only practical and safe means of travel.
Many people do not feel safe walking and biking outside of the urban center of Winslow.
H. Transit Service – Ferry Service is vital to many residents who work in Seattle and to the
local and regional economy. As automobile capacity and parking space at the ferry terminal are
limited, non-motorized facilities with connectivity to the ferry and transit service are important to
many Islanders for sustainably accommodating population growth. WSF forecasts significant
growth of non-motorized trips in the coming decade.
Kitsap Transit provides bus service connecting many areas of the Island to the ferry and
Winslow. Kitsap Transit is working to expand service during non-peak hours and to inter-Island
locations, and many in the community would like to see this service maintained and expanded.
This service has provided valuable mobility to the community, especially for older people, those
with disabilities and younger populations.
I. Transportation Network Connectivity – Bainbridge Island’s roadway system has few
roadways that contribute to the development of a “network”. Many parts of the Island have only
a single way to access the area, such as the Beans Bight, West Port Madison or Agatewood
areas. The South end of the Island has limited connectivity to the rest of the Island. Mobility,
emergency access, emissions and circulation can all be improved with better roadway
connections. Alternative modes of travel are a high priority for many Islanders. Expanding the
Island’s network of both on-street and off-street non-motorized facilities is needed to provide
neighborhood, inter-island and regional connectivity.
J. Climate change – Transportation is both a cause of climate change and provides
opportunities to mitigate the effects of climate change. Creating a transit plan that reduces
emission of greenhouse gases and increases our community’s resilience to the effects of
climate change is a priority. These criteria should be used to evaluate all transportation
solutions and proposed projects.
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K. Roadway Intersection Congestion – At locations other than SR 305, intersections may
limit capacity as the Island population grows. Islanders are increasingly concerned about
relieving intersection capacity at school locations and during commute times in Winslow.
Intersection congestion can also lead to delay for non-motorized users, in particular bicyclists
where riders share the road with vehicles.
L. Livability – Providing convenient active transportation choices provides for better public
health and improved lifestyles both in the urban center of Winslow and outlying areas of the
Island. Bikeable and walkable communities are increasingly desirable and important to many
Island residents. These aspects of the community are attractive to visitors as well and are an
important element to creating a vibrant downtown business community.
M. Community Character - There is a desire to retain the feel of the Island’s existing road
system. Outside of Winslow and other designated neighborhood centers, the scenic roadways,
open drainage ditches, and winding roads provide a more rural flavor that many consider
important elements of the Island’s character. However, these elements need to be balanced
with the community’s desire for safe roads that provide mobility options for all ages and abilities
of Island residents without requiring a vehicle.
N. Stormwater –Stormwater management is an important environmental concern. As
stormwater regulations evolve, the cost of roadway construction has increased.
O. Regional coordination – The 2016 update of the Island-wide Transportation Plan (IWTP)
and the Comprehensive Plan Transportation Element creates an opportunity to coordinate with
WSDOT (WSF, Olympic Region), KRCC, Kitsap Transit, and neighboring jurisdictions to ensure
a more integrated transportation system.
P. Financing – Solutions to many of the Island’s transportation issues will cost money, a lot of
money. Considering how best to pay for these improvements and who should pay (City, State,
Federal) are key issues to this Plan. The scale of investment must be commensurate with the
scale of the problems we are trying to solve.
Relationship of the Transportation Element to the Island Wide Transportation Plan (IWTP)
The primary purpose of the Transportation Element is to support and implement the Island’s
Vision and Guiding Principles as well as the Goals and Policies set forth in the other Plan
Elements. The “Island Wide Land Use Concept,” described in Figure LU-3 of the Land Use
Element, calls for compact, walkable, mixed use centers within a much larger less dense
landscape of open spaces, wildlife habitat, forested areas, agricultural, residential and
recreational lands. The transportation improvements and programs called for in the Plan are
essential to meeting the objectives for both the centers and the surrounding conservation
landscape.
The GMA’s transportation requirements are met either in this Transportation Element or in the
IWTP. The Transportation Element provides consistency with other Plan Elements and over-
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arching policy direction, whereas the IWTP provides the technical support for those policy
choices and a detailed guide for implementing and funding all transportation programs, projects
and services.
Transportation Element Utilization
The Transportation Element is a tool for the City to aid in decision-making in all aspects of
transportation planning, scheduling and budgeting. The Transportation Element will guide the
City in making decisions regarding public expenditures, improvements, and developments. City
staff will use the Transportation Element to establish budgets and plan improvement projects.
The Transportation Element will also be used to ensure consistency between land use actions
and the City’s transportation plans and policies.
Other agencies, such as the State Department of Transportation, KRCC, Kitsap Transit, and
Kitsap County, will use the Transportation Element to coordinate their actions with Bainbridge
Island to address regional transportation issues and projects. Developers and businesses may
also use the Transportation Element to assess project feasibility, make investment decisions
and develop individual projects. Transportation providers should consult the Transportation
Element to coordinate their services with transportation facility design and operation, and the
general public can use the Transportation Element to become better informed about the City’s
transportation plans.
Transportation issues are among the top concerns for Bainbridge Island residents since Island
roadways serve two equally important purposes. Not only do the roadways provide mobility,
they also enhance the character of the Island. Much of the concern over transportation is related
to the future of State Route 305, which serves not only Bainbridge Island, but also functions as
a regional facility connecting Seattle and the Island ferry terminal with the Kitsap and Olympic
Peninsulas.
MULTIMODAL
GOAL TR-1
Encourage the development of an integrated multimodal transportation system that
provides a range of safe transportation alternatives and increases the through movement
of people, maximizing use of non-motorized and public transit.
Policy TR 1.1
In accordance with complete streets practices and guidelines, new or rebuilt streets shall, as
much as is practical, address the use of the right-of-way by all users.
GOALS & POLICIES
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Policy TR 1.2
The City will coordinate with the City police department, the Kitsap Public Health District, the
school, park and fire districts, and other civic groups to develop and sponsor outreach
programs. The programs are intended to inform specific segments of the community, including
but not limited to, motor-vehicle drivers, school-age children, non-motorized commuters,
cyclists, recreational users, private property owners with or adjoining non-motorized facilities,
and the general public.
The following public education programs should be provided to Island citizens:
pedestrians and non-motorized vehicle safety
rights and responsibilities of non-motorized facility users
rights and responsibilities of property owners
Bicycle and pedestrian advocacy organizations are good resources of information on skill
development and safety education for bicyclists and pedestrians.
Policy TR 1.3
Encourage and support the establishment of ride sharing and ride hailing services.
Policy TR 1.4
Promote the coordination of a walking and non-motorized map which identifies areas of interest
for all Island constituents and tourists.
NON-MOTORIZED SYSTEM
GOAL TR-2
Provide a non-motorized transportation system that is a planned and
coordinated network of shoulders, sidewalks, trails, footpaths,
bikeways and multi- purpose trails that connect neighborhoods with
parks, schools, the shoreline, the ferry terminal and commercial
areas.
Policy TR 2.1
Provide a non-motorized transportation system that effectively serves the needs of people of all
ages and abilities who walk, bike, or ride horses, or use wheel chairs; encourages non-
motorized travel; and provides continuous networks of safe, efficient and attractive shoulders,
sidewalks, pathways (footpaths), and multi-purpose trails throughout the Island that are also
connecting to regional systems.
Provide safe and appropriately scaled non-motorized access that connects designated centers,
the ferry terminal, services such as a doctors’ offices, schools, parks, recreation areas,
shorelines (including road-ends), and transit connections including to ferry and bus services.
The non-motorized system should maximize mobility, provide safety, efficiency and comfort for
pedestrians, bicyclists, and equestrians, respect property owners’ rights, protect the natural
environment and complement the character of neighborhoods.
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The non-motorized system should allow for students at all Bainbridge Island schools of all ages
to safely bike to and from school.
Policy TR 2.2
Trails should provide for both passive and active pursuits including recreation and nature study,
exercise, shopping, and commuting to work and schools. Coordinate with the Park District as
the primary provider of the community’s recreational trails.
Policy TR 2.3
Provide networks of pedestrian facilities within one mile and bicycle facilities
within two miles of schools. The City and the School District should coordinate
efforts to develop non-motorized facilities. Each school should coordinate with
neighboring property owners to provide access to the school. Separated
facilities are preferred near schools and especially for elementary schools.
Policy TR 2.4
Provide a network of sidewalk facilities adjacent to roadways in designated
centers with the Winslow area given priority. Sidewalks shall be of sufficient width
to accommodate expected pedestrian use, including safe crossings with adequate
overhead or embedded lighting. Where possible, separate sidewalks from the
roadway with a street tree planting strip and buffer. Designs should accommodate
users of all abilities, meeting ADA requirements.
Policy TR 2.5
Provide a network of shoulder facilities along the Island’s arterial roadways and collector streets,
creating an integrated network that serves cyclists as well as pedestrians in locations without
sidewalks.
Policy TR 2.6
Develop a trail system to serve non-motorized users across the Island. As envisioned, the
network will include the Waterfront Trail in Winslow, the Sound to Olympics Trail (STO, a
regional trail connecting the Ferry Terminal to the Agate Pass Bridge), intra-island multi-use
trails, unopened City rights-of-way, shoreline trails, and connecting pathways within
neighborhoods. The goal is to provide walkability within neighborhoods and Island-wide
connectivity for both pedestrians and cyclists.
Multi-use trails accommodate users of all ages and abilities. Such trails provide an
alternative to the shoulder network along arterial streets and connect with other
non-motorized facilities to form an integrated non-motorized system.
Policy TR 2.7
Develop and regularly update design standards for non-motorized facilities that provide safe and
efficient access, encourage use and mobility and are appropriate to the location and needs in
the immediate area. Standards for shoulders, sidewalks, pathways and multi-use trails are to
provide low levels of stress/high levels of service for non-motorized users. Include appropriate
amenties such as benches and short term and long term bicycle parking in the construction of
non-motorized facilities. Parking lots and garages serving public, commercial, and multifamily
residential buildings should be required to provide convenient bicycle parking and storage
facilities.
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2016 COMPREHENSIVE PLAN TR-9 TRANSPORTATION ELEMENT
Policy TR 2.8
Promote the safe use of non-motorized facilities through effective transportation improvements,
maintenance operations and enforcement.
Provide safety enhancement in annual capital improvement programs and individual
transportation improvement projects where applicable and needed to meet safety standards.
Strongly encourage the Washington State Department of Transportation to accommodate non-
motorized permeability and safety enhancements on SR 305.
Routinely evaluate facilities and roadway maintenance operation programs and resource levels
to ensure adequate maintenance and preservation of the City’s growing inventory of non-
motorized facilities. Provide a high level of service (LOS) to meet safety standards, maintain
low user stresses and encourage active transportation.
Coordinate with the Police Department and the Washington State Patrol to provide officer
training and consistent enforcement of traffic laws, including speed limits, for both motorized
and non-motorized users.
Policy TR 2.9
Improve the safe use of non-motorized roadway facilities by all users and encourage active
modes of transportation through continuous community education. Coordinate with the City
Departments, Schools, the Park District, the Fire District and other civic groups to develop and
sponsor outreach programs. Programs should inform specific segments of the community
including but not limited to motor-vehicle drivers, school age children, non-motorized
commuters, recreational users, private property owners fronting non-motorized facilities and the
general public.
Maintain and update guide maps that effectively identify the location of non-motorized routes
and facilities and provide signage for public non-motorized facilities, such as trails, in order to
clearly designate routes and access points.
Policy TR 2.10
The City supports the Federal, State, and Regional goals of doubling walking and cycling by
2036, the 20-year planning period of the City’s comprehensive plan. The City will maintain an
advisory committee to advise the City Council and staff, and to advocate for transportation
planning, public non-motorized projects, private development projects, and education and
outreach, as directed by the City Council. The committee should represent a broad range of
interests including pedestrians, cyclists, and equestrians.
Policy TR 2.11
Secure easements and other land dedication for non-motorized facilities through development
and redevelopment mitigation and conditions, donation, tax incentives, and direct acquisition.
Coordinate these efforts with the Park District when parkland and recreational trails are
involved.
Policy TR 2.12
Incorporate non-motorized improvements during the planning and design phase of
transportation improvement projects. All development projects that reach design thresholds set
in the IWTP, shall be reviewed for compliance with the Transportation Element’s non-motorized
goals and policies, adopted plans, and standards.
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FERRY SERVICE
GOAL TR-3
Coordinate with Washington State Ferries (WSF) and other ferry service providers to
ensure that ferries meet local service and commuter needs, are integrated with all travel
modes and provide equitable regional service.
Policy TR 3.1
Advocate for ferry services to and from Bainbridge Island in order to optimize the use of each
ferry service, balance peak hour travel times and provide ferry capacity in proximity to users’
origin and destination.
Policy TR 3.2
Support the ferry system efforts to maximize the convenience of pedestrian, bicycle, transit and
HOV use on ferry runs through providing priority status and improvements to discourage single
occupancy vehicle (SOV) use.
Policy TR 3.3
Advocate for increased service options for foot ferry passengers such as water taxi and passenger
ferry service to and from various areas of the Puget Sound region.
Policy TR 3.4
Support WSF and other providers to create and incorporate best practices into ferry services
that reduce greenhouse gas emissions and vulnerability of ferry transit from climate change.
Policy TR 3.5
Promote bicycle and pedestrian safety improvements near the ferry terminal.
Policy TR 3.6
Promote safe and efficient pickup and drop off from the ferry terminal. Promote safe and
efficient taxi and public transportation services from the ferry terminal.
BUS SERVICE
GOAL TR-4
Encourage the use of public transit and encourage transit agencies to operate and
maintain local and regional transit service and facilities that reduce the need for single-
occupant vehicles and support the needs of transit-dependent users.
Policy TR 4.1
Encourage a transit LOS standard that identifies deficiencies and the program improvement
needs defined in the Kitsap Transit Plan.
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Policy TR 4.2
Support actions from Metro, Sound Transit, Kitsap Transit or other appropriate agencies that:
Improve public transit from the Seattle ferry terminal directly to popular destinations in
Seattle metropolitan area as well as Sea-Tac Airport.
Promote the availability of public transit service to ferry commuters and for special
events.
Maintain bus schedules to meet ferry arrival and departure times and improve service
throughout the day and during evening hours.
Provide information on the ferries and at the ferry terminals regarding transit options.
Increase bus service on the Island to seven days a week.
Policy TR 4.3
Encourage park-and-ride use of multiple-use lots such as those located at churches or other
locations and promote the use of those lots to Island residents. Encourage park-and-ride lots to
include areas, preferably covered, for bicycle parking.
Policy TR 4.4
Support the expansion of Island transit services that target: Ferry commuters
Non-ferry commuters, including Island employees
Connection of High School Road and Winslow Way
Non-commuter travel to other Kitsap County service and employment areas
Intra-Island connection to Neighborhood Centers and residential areas
Transit dependent access, including addressing the access needs of all ages and
abilities.
Policy TR 4.5
Optimize public transit for access, including accommodation for bikes and assistive devices,
availability and increased visibility of bus service and bus stops.
Policy TR 4.6
Improve local air quality by encouraging Kitsap Transit to modify its fleet to meet the highest
possible emission standards.
TRANSPORTATION DEMAND MANAGEMENT
GOAL 5
Encourage greater efficiency of the integrated multimodal transportation system that
provides a range of transportation alternatives and increases the through movement of
people.
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2016 COMPREHENSIVE PLAN TR-12 TRANSPORTATION ELEMENT
Policy TR 5.1
Use fee structure, space allocation, and other programs to discourage Single Occupancy
Vehicle (SOV) parking.
Policy TR 5.2
Develop parking and other programs that encourage High Occupancy Vehicle (HOV) use,
including carpool and vanpool parking.
Policy TR 5.3
Encourage schools, the private sector and the public sector to adopt programs that reduce SOV
use including telecommuting, promotion of ridesharing, walking, biking and reliance on buses.
Policy TR 5.4
The development of projects to improve the transportation system and reduce SOV traffic shall
include enhancements for cyclists and pedestrians.
Policy TR 5.5
Support the Washington Department of Transportation and Kitsap Transit with the development
and implementation of demand management strategies for SR 305 to encourage alternate
modes of transportation.
OPERATION AND MOBILITY
GOAL TR-6
Improve the operation and mobility of the Island’s transportation system through the
identification and implementation of system improvements that maintain Level of Service
(LOS) standards and meet the transportation vision.
Policy TR 6.1
Construct, modify, and maintain roads to: 1) meet safety needs of all users, motorized and non-
motorized, 2) provide for transit and non-motorized users (including bicyclists, pedestrians,
wheelchair users and equestrians as appropriate), 3) correct LOS deficiencies, and 4) improve
connectivity and emergency response times.
Set street design guidelines which establish street widths, reflecting the desired vehicle speeds,
accommodating bicycle, pedestrian, wheelchair, equestrian, and transit uses, and providing for
emergency vehicle access and also considering community character.
Policy TR 6.2
Set appropriate roadway classifications that reflect existing and projected vehicle usage, traffic
operations, including non-motorized and transit uses, and considers adjacent land uses and
community character.
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2016 COMPREHENSIVE PLAN TR-13 TRANSPORTATION ELEMENT
Policy TR 6.3
Establish Level of Service standards for Bainbridge Island that measure the performance of the
existing transportation system for motorized vehicles, bicycles, and pedestrians. Providing a
level of service for all modes is important for a viable transportation system. Transportation
networks should provide for all modes of transportation as a system.
Policy TR 6.4
Enforce the City’s concurrency ordinance and monitor the expected transportation impact of
proposed development on the available capacity of the roadway system. Early in the
development review process, ensure that there are adequate transportation facilities or that
improvements are planned, scheduled and funded for completion within six (6) years.
Policy TR 6.5
Develop access management programs to control the location and number of curb cuts. Control
the location and spacing of commercial driveway entrances and the design of parking lots to
avoid congestion near intersections, line of sight obstructions and confusing circulation patterns.
Design to prevent pedestrian and vehicular accidents.
Policy TR 6.6
Designate truck corridors to allow the efficient movement of goods and freight within the
transportation system.
Policy TR 6.7
Identify and support measures that will improve vehicular and non-motorized connectivity across
SR 305.
Policy TR 6.8
Secure easements or other land dedication for transportation facilities through development
mitigation, donation, tax incentives/exemption programs, or direct acquisition.
Policy TR 6.9
If the adopted LOS standard cannot be maintained due to funding shortfalls or other events, the
City shall evaluate and revise the adopted LOS standard, restrict land use development as
required, or institute other actions consistent with LOS reassessment strategy.
STATE ROUTE (SR) 305
GOAL TR-7
Coordinate with WSDOT to ensure that state facility improvements meet the goals of the
Bainbridge Island Transportation Vision and Comprehensive Plan and minimize impacts
to the local transportation system.
Policy TR 7.1
Adopt the Level of Service standard for SR 305, as established by WSDOT in the State
Highway Plan.
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2016 COMPREHENSIVE PLAN TR-14 TRANSPORTATION ELEMENT
Policy TR 7.2
Develop a master plan for the SR 305 corridor as a green and scenic highway balancing the
objectives of maintaining the treed character, and providing safe visibility. Incorporate best
practices into highway improvements that reduce greenhouse gas emissions and transit
vulnerabilities from climate change.
Policy TR 7.3
All proposed improvements to SR 305 shall include provisions to improve permeability for island
residents, reduce neighborhood cut through traffic and improve access to and from North-end
neighborhoods.
Policy TR 7.4
Support planning efforts for the eventual replacement/refurbishment of the Agate Pass Bridge
including potential capacity improvements for transit and non-motorized modes. Oppose
proposals to construct any other bridges to Bainbridge Island.
Policy TR 7.5
Support the construction of spot improvements for SR 305 to reduce congestion, increase
permeability across the corridor and improve safety for through traffic, local traffic, non-
motorized and transit users.
Policy TR 7.6
Support the construction of the STO and its branch trails.
Policy TR 7.7
Encourage the development of park-and-ride lots near commuters' points of origin throughout
Kitsap County in order to minimize traffic impacts along SR 305.
Policy TR 7.8
Promote improvements to off-island State facilities that will mitigate on-Island congestion of
SR 305.
NEIGHBORHOODS
GOAL TR-8
Consider the special needs of neighborhood safety, pedestrian and bicycle facilities,
transit use and facilities and traffic flow in the development of transportation
improvements that affect neighborhoods.
Policy TR 8.1
Protect residential neighborhoods from the impacts of cut-through motor vehicle traffic by
providing appropriate connecting routes and applying appropriate traffic-calming measures to
control vehicle volumes while maintaining emergency vehicle response times.
Policy TR 8.2
Support the character of neighborhoods by providing neighborhood programs and projects for
place making, traffic calming, greenways, appropriate street width, lighting for safety, curb cuts,
and pedestrian and bicycle facilities as consistent with the Comprehensive Plan.
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2016 COMPREHENSIVE PLAN TR-15 TRANSPORTATION ELEMENT
Policy TR 8.3
Develop a circulation and access management plan for neighborhoods and neighborhood
centers so that as properties develop, vehicular and non-motorized connectivity and
circulation are maintained.
Policy TR 8.4
Complete and protect the Winslow Waterfront Trail.
Policy TR 8.5
Consider closing or restricting streets to motorized traffic and devote those streets to non-
motorized and other neighborhood uses.
Policy TR 8.6
Consider re-striping or re-designing appropriate streets to make half of the street available for
one-way motorized traffic and the other half of the street available for two-way non-motorized
transport and other appropriate neighborhood uses.
SAFETY AND MAINTENANCE
GOAL TR-9
Support the safe use of the transportation system by maintaining the roadway s ystem
and including necessary safety enhancements in transportation improvement projects.
Policy TR 9.1
Include transportation projects and adequate operation and maintenance funding to ensure that
the vehicular and non-motorized transportation system infrastructure is maintained in a safe and
usable condition.
Policy TR 9.2
Conduct periodic traffic studies in areas of the Island’s roadway network that have experienced
significant traffic changes due to development to ensure that appropriate traffic control devices
are employed for the safety of the traveling public. Consider opportunities to improve the non-
motorized infrastructure as a means to increase mobility options for cyclists and walkers.
Policy TR 9.3
Periodically evaluate roadside conditions of the City’s secondary arterial network and higher
volume collectors to evaluate the condition of existing roadways and prioritize repairs and
improvements to ensure the safety of the traveling public.
Policy TR 9.4
Provide street lighting, including safety features designed for sidewalks, to address safety
issues. Light design and placement should minimize glare and light spillage and maximize
visibility of pedestrians and bicyclists.
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2016 COMPREHENSIVE PLAN TR-16 TRANSPORTATION ELEMENT
PARKING
GOAL TR-10
The availability of public parking is an asset to commercial districts and a benefit to
island residents and visitors. Parking is a vital element of the designated centers.
Policy TR 10.1
Provide adequate parking in designated centers. Development of street frontages in urban
commercial areas should maximize on-street parking to the extent practical. Development
projects in urban residential areas should consider on-street parking rather than off-street
parking.
Policy TR 10.2
Preserve on-street parking in the mixed-use commercial districts of Winslow and designated
centers. City projects in commercial districts should maximize parking to the extent practical
within the existing rights of way. Note that “Complete Streets” projects must also balance other
functions such as non-motorized uses. Seek opportunities to expand public parking.
Policy TR 10.3
The City should look to maximize public parking on City-owned properties in addition to
maintaining convenient parking for visitors and staff at City facilities.
Policy TR 10.4
Prioritize parking in the mixed-use districts of Winslow for short-term use. Continue to manage
City public parking in Winslow so that commuter parking for ferry commuters is not practical and
short-term parking is prioritized for the Waterfront Park, Senior Center, and patrons of
downtown businesses.
Policy TR 10.5
Support parking programs for customers in retail and service areas and employees of local
businesses in the mixed-use districts of Winslow.
Work with business owners to limit employee parking to off-street facilities to optimize available,
convenient parking for patrons. Continue to manage City public parking to maximize close-in
parking for patrons of local businesses and assist in providing some daily off-site parking for
employees at walkable outlying locations.
Policy TR 10.6
Encourage bicycle parking in the designated neighborhood centers and at public facilities.
Provide bicycle parking at locations convenient to businesses providing goods and services
and for employees who commute to work by bicycle. Provide bicycle storage at transit facilities.
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2016 COMPREHENSIVE PLAN TR-17 TRANSPORTATION ELEMENT
COMMUNITY CHARACTER
GOAL TR-11
Develop transportation improvements that respect the Island’s natural and historic
character and are consistent with both the short and long-term vision of the
Comprehensive Plan.
Policy TR 11.1
Protect the Island's unique scenic resources along corridors including SR 305 and secondary
arterials corridors outside designated centers; require broad greenbelts and trees to screen
parking and unwanted views and buffer noises between the roadway and development. Develop
a program for local designation of scenic roads.
Policy TR 11.2
Manage the appearance and safety of winding roadways in areas outside designated centers
through the provision for and retention of appropriate roadside vegetation and trees, and
following of the natural topography whenever possible. Retain the scenic character of SR 305
by minimizing the placement of signs, discouraging new access points, and planting and
maintaining vegetation.
Policy TR 11.3
Create safe, attractive, and functional pedestrian and bicycle circulation within Winslow and
designated neighborhood centers through the design and implementation of Complete Streets
to enhance community character.
Policy TR 11.4
Minimize the use of street lighting outside of Winslow, except to address safety.
ENVIRONMENT
GOAL TR-12
Develop, operate, and maintain a transportation system that respects and protects the
natural environment including the quality of the Island’s air, water and natural habitats.
Policy TR 12.1
Avoid impacts of road construction on environmentally sensitive areas; minimize damaging
runoff and pollution from road use and maintenance; implement programs that encourage the
planting of low-maintenance, vegetated groundcover and trees along roadways.
Policy TR 12.2
Develop transportation plans and programs that reduce travel demand, improve traffic flow and
consider the impact to air quality including reducing greenhouse gas emissions. Support
County, regional and state air quality goals and requirements.
Policy TR 12.3
Avoid transportation impacts to identified wildlife corridor crossings so that adequate linkages
for animal movement between habitat areas are maintained.
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2016 COMPREHENSIVE PLAN TR-18 TRANSPORTATION ELEMENT
COMMUNITY INVOLVEMENT
GOAL TR-13
Ensure involvement and input from the citizens at all stages of significant transportation
projects and decision-making that affect Bainbridge Island.
Policy TR 13.1
Provide citizen opportunities for reviewing transportation plans and documents to give an
opportunity for public comment and ensure consistency with the community vision.
Policy TR 13.2
In the design process for transportation projects, use the principles and practices of context
sensitive solutions to refine the goals of the Comprehensive Plan and the IWTP in keeping with
the context of the site.
Policy TR 13.3
Insist on early and full City participation in regional transportation decisions affecting the Island.
Such participation should include City and community representation in the decision-making
process and public meetings on the Island.
REGIONAL COORDINATION
GOAL TR-14
Coordinate with local, regional, state, public and private organizations to promote
regional transportation improvements and services that are compatible with the
community’s vision as expressed in the Comprehensive Plan.
Policy TR 14.1
Work to ensure that the transportation system is planned and operated in coordination with
adjoining jurisdictions by participating in regional coordinating functions with the Kitsap County,
Kitsap Transit, Washington State Ferries, KRCC, Puget Sound Regional Council (PSRC), the
Suquamish Tribe, the Washington State Department of Transportation and other appropriate
public transportation agencies and user groups.
Policy TR 14.2
Support the PSRC long term planning efforts and studies that describe and identify the impacts
of regional traffic on the Island’s transportation system.
Policy 14.3
Coordinate planning and implementation with Kitsap County, Kitsap Transit, Washington
Department of Transportation, KRCC, the Suquamish Tribe, PSRC and other planning /
advocacy groups to further non-motorized goals. This includes trails and access to transit in
Kitsap County, the Olympic Peninsula and the greater Puget Sound region.
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2016 COMPREHENSIVE PLAN TR-19 TRANSPORTATION ELEMENT
TRANSPORTATION FINANCING
GOAL TR-15
Prepare and periodically update a fiscally responsible, cost-effective transportation
financing plan that optimizes the use of City funds and leverages other funding sources.
Policy TR 15.1
Pursue joint funding opportunities with the School District, Park and Recreation District,
Washington State Department of Transportation and other agencies to meet high priority needs.
Joint projects with multiple agency participation is an efficient way to leverage limited funds of
each participant and enhance grant applications.
Policy TR 15.2
Require all new and expanded development to maintain the adopted Transportation LOS
standards. The pro-rated cost of any improvements needed to maintain the adopted LOS shall
be the responsibility of developers.
Policy TR 15.3
Require new and expanded developments to construct, or upgrade unimproved and/or under
improved roadways, or participate in the funding of roadways that conform to City standards.
Policy TR 15.4
Aggressively seek available County, State and Federal money to fund projects that help meet
the Island’s transportation objectives.
Policy TR 15.5
Ensure that the Island's transportation improvement plan accounts for forecasted population
and employment growth and has revenue sources sufficient to build and maintain it.
Policy TR 15.6
Mandate the maintenance and repair of the existing transportation system as a high priority
when making funding allocation decisions.
Policy TR 15.7
Periodically update traffic impact fees to mitigate the impacts of future development.
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2016 COMPREHENSIVE PLAN TR-20 TRANSPORTATION ELEMENT
To implement the goals and policies in this Element, the City must take a number of actions,
including adopting or amending regulations, creating partnerships and educational programs,
and staffing or other budgetary decisions. Listed following each action are several of the many
comprehensive plans policies that support that action.
HIGH PRIORITY ACTIONS
TR Action #1 Accelerate accomplishment of the Goals of the Transportation Element by
considering a General Obligation Bond to finance the build-out of needed transportation
infrastructure over the next five years.
GOAL TR-15 Prepare and periodically update a fiscally responsible, cost-effective
transportation financing plan that optimizes the use of City funds and leverages other funding
sources.
TR Action #2 Work with Kitsap Transit and Island business owners to maximize parking
and non-motorized opportunities for employees and customers in commercial districts.
GOAL TR- 10
The availability of public parking is an asset to commercial districts and a benefit to island
residents and visitors. Parking is a vital element of the designated centers.
TR Action #3 Substantially increase the quality and quantity of bike lanes connecting
neighborhood centers to Winslow and the Ferry Terminal.
GOAL TR-2: Provide a non-motorized transportation system that is a planned and coordinated
network of shoulders, sidewalks, trails, footpaths, bikeways and multi- purpose trails that
connect neighborhoods with parks, schools, the shoreline, the ferry terminal and commercial
areas.
Policy TR 3.5
Promote bicycle and pedestrian safety improvements near the ferry terminal.
TRANSPORTATION IMPLEMENTATION
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2016 COMPREHENSIVE PLAN CAPITAL FACILITIES ELEMENT
TABLE OF CONTENTS
PAGE
INTRODUCTION……………………………………………………………………….…..........CF-1
CAPITAL FACILITIES VISION…………………………………………………….…………...CF-3
GOALS AND POLICIES…………………………………………………………………………CF-3
CAPITAL FACILITIES INVENTORY…………………...………………………………………CF-7
CITY FUNCTIONAL PLANS ADOPTED BY REFERENCE………………………………….CF-12
SPECIAL PURPOSE DISTRICT PLANS ADOPTED BY REFERENCE….………….….....CF-12
SIX-YEAR CAPITAL IMPROVEMENT PLAN…………………………………………….......CF-13
CAPITAL FACILITIES IMPLEMENTATION………………………………………………......CF-13
CAPITAL FACILITIES ELEMENT
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2016 COMPREHENSIVE PLAN CF-1 CAPITAL FACILITIES ELEMENT
What Are Capital Facilities and Why Do We Need to Plan for Them?
Capital facilities are all around us. They are the public facilities we all use on a daily basis. They
are our public streets and sidewalks, our City park and agriculture properties, our public
buildings such as City Hall, the library, fire and police stations, our public water systems that
bring us pure drinking water, and the sanitary sewer systems that collect our wastewater for
treatment and safe disposal. Even if you don’t reside within the City, you use capital facilities
every time you drive, eat, shop, work, or play here.
While a Capital Facilities Plan (CFP) does not cover routine maintenance, it does include
renovation and major repair or reconstruction of damaged or deteriorating facilities. Capital
facilities do not usually include furniture and equipment. However, a capital project may include
the furniture and equipment clearly associated with a newly constructed or renovated facility.
The planning period for a Capital Improvement Plan (CIP) is six years. Expenditures proposed
for years one and two of the program are incorporated into the City’s Biennial Budget as the
Capital Budget.
The CIP process is an important ongoing part of the City’s overall management process. New
information, grant-making and evolving priorities require continual review. Each time the review
is carried out, it must be done comprehensively.
All of these facilities should be planned for years in advance to assure they will be available and
adequate to serve all who need or desire to utilize them. Such planning involves determining not
only where facilities will be needed, but when, and not only how much they will cost, but how
they will be paid for. It is important to note that the CFP is a planning document that includes
timeline estimates based on changing dynamics related to growth projections, project
schedules, or other assumptions.
Capital Facilities Plans are required under State law to identify capital facility deficiencies
needed to serve our existing population, plan for capital facility improvements to meet the needs
of our future population, and ensure that local governments have the fiscal capacity to afford to
construct and maintain those capital facilities.
The Capital Facilities Plan includes summary details of the major capital projects of the City and
a financial capacity analysis. As the general purpose government on Bainbridge Island, the City
is required to analyze and integrate the capital facilities plans from special purpose districts
(Schools, Parks, Fire, etc) into its Capital Facilities Plan. The City and the special purpose
districts shall work together to integrate their capital planning efforts to provide a more even tax
impact and to prioritize their projects while still providing quality facilities and services for the
CAPITAL FACILITIES INTRODUCTION
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2016 COMPREHENSIVE PLAN CF-2 CAPITAL FACILITIES ELEMENT
citizens they serve. This is consistent with Guiding Principle #8 and its supporting policies 8.1,
8.2, 8.4, 8.5, 8.6
Growth Management Act Requires a Capital Facilities Plan
This Capital Facilities Element update has been developed in accordance with the RCW
36.70A.070, the Growth Management Act (GMA), and WAC 365-196, the Procedural Criteria.
This Capital Facilities Plan, and other City plans adopted by reference, support the Land Use,
Housing, and Economic Elements by utilizing the same 2036 population and employment
forecasts.
This Capital Facilities Plan is the product of many separate but coordinated planning documents
and planning bodies. Each special purpose district (Schools, Parks, Fire, etc.) has its own
Capital Facility Plan, Strategic Plan, and/or budget. In this Capital Facilities Plan, the City
adopts these special purpose district planning documents by reference. The City’s adopted
functional plans are adopted by reference in this Capital Facilities Element, including an Island-
wide Transportation Plan, Water System Plan, a Sewer System Plan, a Storm and Surface
Water Management Program, and a Pavement Management System Plan – each operational
plan providing an inventory of existing facilities, an analysis of deficiencies and future demand,
and recommendations for capital improvements.
The GMA requires that the Capital Facilities Element contain a six-year financing plan, known
as a Capital Improvement Plan (CIP) that identifies the type and location of expanded or new
capital facilities and the sources of funding that will be used to pay for them.
Relationship of Capital Facilities Plan to the Budget
The Capital Facilities Plan and the City's budget serve different but related purposes. The
budget authorizes the amount to be spent during the coming biennium; whereas the Capital
Facilities Plan identifies needed capital facilities over a six-year period. A requirement of the
Capital Facilities Plan is that it show how the needed facilities will be paid for during at least a
six-year period (Capital Improvement Plan). Because State law requires that no money can be
spent on capital projects which are not shown in the Capital Facilities Plan, it is important that
the budget authorize spending only on capital facilities in the Plan.
Concurrency and Levels of Service (LOS)
The Growth Management Act requires jurisdictions to have capital facilities in place and readily
available when new development occurs. This concept is known as concurrency. Specifically,
this means that:
1. All public facilities needed to serve new development and/or a growing service area
population must be in place at the time of initial need. If the facilities are not in place, a
financial commitment must have been made to provide the facilities within six years of
the time of the initial need; and
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2016 COMPREHENSIVE PLAN CF-3 CAPITAL FACILITIES ELEMENT
2. Such facilities must be of sufficient capacity to serve the service area population and/or
new development without decreasing service levels below locally established minimum
standards, known as level of service.
3. In the allocation of funds for capital facilities, choices will be made. The CFP may
facilitate some forms of development while constraining other forms.
Levels of service (LOS) are usually quantifiable measures of the amount and/or quality of public
facilities or services that are provided to the community and are usually expressed as a ratio of
amount of service to a selected demand unit. For example, sewer LOS is expressed as 100
gallons per capita per day, public school LOS may be expressed as the number of square feet
available per student or as the number of students per classroom. Police or Fire protection may
be expressed as the average response time for emergency calls. Factors that influence local
standards are citizen and City Council recommendations, national standards, federal and state
mandates, and the standards of neighboring jurisdictions.
Capital facilities planning has kept up with changes in the natural and built environments,
meeting the needs of a population that expects a high level of service. The City’s Capital
Improvement Plans were coordinated with the strategic plans and budgets of the special
purpose districts (e. g., Schools, Parks and Fire).
Planning and budgeting for facilities has been concurrent with subarea planning for the
designated centers, and to a large extent, recent population growth and commerce have been
concentrated in and near those centers. Planning and budgeting has kept pace with
maintenance and expansion of recreational facilities and public lands preserved for agriculture
or conservation.
Over the past twenty years, Capital Improvement Plans have responded to anticipated impacts
of climate change and sea level rise. New construction and retrofits have made public buildings
energy efficient and models of low impact design.
GOAL CF-1
The Capital Facilities Element and Capital Improvement Plan (CIP) provides the public
facilities needed to support orderly compact urban growth, protect and support public
and private investments, maximize use of existing facilities, promote economic
development and redevelopment, increase public well-being and safety, and implement
the Comprehensive Plan.
CAPITAL FACILITIES VISION 2036
GOALS & POLICIES
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2016 COMPREHENSIVE PLAN CF-4 CAPITAL FACILITIES ELEMENT
Policy CF 1.1
Biennially review, update and amend a six-year CIP that:
Is subject to review and adoption by the City Council.
Is consistent with the Comprehensive Plan, functional plans and adopted capital and
operating budgets.
Defines the scope and location of capital projects or equipment;
States why each project is needed and its relationship to established levels of service.
Includes costs of property acquisition, if any, project construction costs, timing, funding
sources, and projected operations and maintenance impacts.
Policy CF 1.2
Coordinate with other capital facilities service providers to keep each entity current, maximize
cost savings, and schedule and upgrade facilities efficiently. In general, it is the policy of the City
to transfer parklands to the Park District whenever desirable and practical.
Policy CF 1.3
Evaluate and prioritize proposed capital improvement projects using the following long-term
financial strategy principles and guidelines:
Preserve and maintain physical infrastructure.
Use an asset management approach to the City’s capital facilities.
Use unexpected one-time revenues for one-time costs or reserves.
Pursue innovative approaches.
Maintain capacity to respond to emerging community needs.
Address unfunded mandates.
Selectively recover costs.
Recognize the connection between the operating and capital budgets.
Utilize partnerships wherever possible.
Remain committed to City goals over the long run.
Anticipate and respond to the impacts of climate change, including sea level rise.
Policy CF 1.4
Ensure that capital improvement projects are:
Financially feasible.
Consistent with planned growth patterns provided in the Comprehensive Plan
Consistent with State and Federal law.
Compatible with plans of state agencies.
Sustainable within the operating budget.
Policy CF 1.5
Give priority consideration to projects that:
Are required to comply with State or Federal law.
Implement the Comprehensive Plan.
Are needed to meet concurrency requirements for growth management.
Are already initiated and to be completed in subsequent phases.
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2016 COMPREHENSIVE PLAN CF-5 CAPITAL FACILITIES ELEMENT
Renovate existing facilities to remove deficiencies or allow their full use, and preserve
the community’s prior investment or reduce maintenance and operating costs.
Replace worn-out or obsolete facilities.
Are substantially funded through grants or other outside funding.
Address public hazards.
Policy CF 1.6
Adopt each update of the Capital Facilities Plan as part of the Comprehensive Plan.
Policy CF 1.7
Recognize that the year in which a project is carried out, or the exact amounts of expenditures
by year for individual facilities, may vary from amounts stated in the Capital Facilities Plan due
to:
Unanticipated revenues or revenues that become available to the City with conditions
about when they may be used,
Change in the timing of a facility to serve new development that occurs in an earlier or
later year than had been anticipated in the Capital Facilities Plan,
The nature of the Capital Facilities Plan as a multi-year planning document. The first
year or years of the Plan are consistent with the budget adopted for that financial period.
Projections for remaining years in the Plan may be changed before being adopted into a
future budget.
GOAL CF-2
Provide the capital facilities needed to direct and serve future development and
redevelopment.
Policy CF 2.1
When planning for public facilities, consider expected future land use activity.
Policy CF 2.2
Capital facilities planning is an essential component of subarea planning and promoting
development in designated centers.
Policy CF 2.3
Require new development to fund the capital facilities needed to serve the development.
GOAL CF-3
Prudently manage fiscal resources to provide needed capital facilities.
Policy CF 3.1
Ensure a balanced approach to allocating financial resources among:
Maintaining existing facilities and eliminating existing capital facility deficiencies, and
Providing new or expanding facilities to serve development and encourage
redevelopment.
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2016 COMPREHENSIVE PLAN CF-6 CAPITAL FACILITIES ELEMENT
Policy CF 3.2
Use the CIP to integrate all of the community’s capital project resources (grants, bonds, city
funds, donations, impact fees, and any other available funding).
Policy CF 3.3
Allow developers who install infrastructure with excess capacity to use latecomer’s agreements
wherever reasonable.
Policy CF 3.4
Assess the additional operations and maintenance costs associated with acquisition or
development of new capital facilities. If accommodating these costs places a financial burden on
the operating budget, consider adjusting the capital plans.
Policy CF 3.5
Achieve more efficient use of capital funds through joint use of facilities and services by utilizing
measures such as interlocal agreements, regional authorities, and negotiated use of privately
and publicly owned land.
Policy CF 3.6
Consider potential new revenue sources for funding capital facilities, such as:
Growth-induced tax revenues.
Additional voter-approved revenue.
Impact Fees.
Benefit Districts.
Local Improvement Districts.
Policy CF 3.7
Choose among the following available contingency strategies should the City be faced with
capital facility funding shortfalls:
Increase general revenues, rates, or user fees; change funding source(s).
Decrease level of service standards in the Comprehensive Plan and reprioritize projects
to focus on those related to concurrency.
Change project scope to decrease the cost of selected facilities or delay construction.
Decrease the demand for the public services or facilities by placing a moratorium on
development, developing only in served areas until funding is available, or changing
project timing and/or phasing.
Use Local Improvement Districts; or surplus City-owned assets.
Policy CF 3.8
Secure grants or private funds, when available, to finance capital facility projects when
consistent with the Comprehensive Plan.
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2016 COMPREHENSIVE PLAN CF-7 CAPITAL FACILITIES ELEMENT
GOAL CF-4
Public facilities constructed on Bainbridge Island meet appropriate safety, construction,
energy conservation, durability and sustainability standards.
Policy CF 4.1
Adhere to the City’s Engineering Development and Design Standards when constructing utility
and transportation related facilities.
Policy CF 4.2
Regularly update the Engineering Development and Design Standards, and ensure that the
Standards are consistent with the Comprehensive Plan.
Policy CF 4.3
Apply value engineering approaches on major projects in order to use resources efficiently and
meet community needs.
Policy CF 4.4
Require public facilities to incorporate energy generation when and where possible.
The following is the City's capital facilities property inventory. The inventory is organized by
category and includes a current inventory of facilities, a narrative providing a general
background of the planning activities and some discussion of future plans, and a discussion of
level of service (LOS), if applicable. Inventories of public roads, water utility, and sewer utility
infrastructure are found in the following functional plans (hyperlinked):
Island-wide Transportation Plan
City General Sewer Plan
City Water System Plan
City Offices, Facilities, and Undeveloped Land
City offices are located at several sites due to space constraints at City Hall. Additional City
buildings and facilities provide a variety of functions, including public works operations and
house cultural and social services.
CAPITAL FACILITIES INVENTORY
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2016 COMPREHENSIVE PLAN CF-8 CAPITAL FACILITIES ELEMENT
Table CF-1: City Land and Office Facility Inventory
Building and Location Land Area Building Area
Owned
or
Leased
Uses
City Hall
280 Madison Ave. N 1.92 Ac 24,107 Sq Ft Owned Administration, Finance,
Planning, & Engineering
Police Station
625 Winslow Way E 0.82 Ac 7,000 Sq Ft Owned Police
Municipal Court
10255 NE Valley Rd. NA 2,289 Sq Ft Leased Municipal Court
Subtotal Staff Office
Space 2.74 Ac 33,396 Sq Ft
Bainbridge Island
Commons
223 Bjune Ave.
0.38 Ac 4,975 Sq Ft Owned Social Services & Public
Meetings
Bainbridge Performing Arts
(land only)
200 Madison Ave N
2.45 Ac NA Owned Land leased to BPA for $1/yr
through May 2081
Public Works Facility
7305 NE Hidden Cove Rd 12.62 Ac 22,712 Sq Ft Owned O&M Offices, Shop,
Covered Equipment Storage
Public Works Facility
7305 NE Hidden Cove Rd
Included
Above 1,524 Sq Ft Owned Covered Storage
Public Works Facility
7305 NE Hidden Cove Rd
Included
Above NA Owned Fueling Facility
Land with City-owned
utilities 15.42 Ac NA Owned Wells, pump stations, etc.
Total 34.68 Ac 67,007 Sq Ft
Table CF-2: City Public Works Facilities Inventory
Facility Floor Area Function
Portable office trailers (3) 2,520 Sq Ft* Storage, safety & future parks buildings
Steel shop building 2,400 Sq Ft Storage - holds telemetry
PW Facility - W ood Building 100 Sq Ft Wellhouse
PW Facility - Shop 7,776 Sq Ft* Mechanics Shop/Equipment Maintenance
PW Facility - Covered Equipment Storage 11,520 Sq Ft* Covered Equipment Storage
PW Facility - Office Trailer 1,792 Sq Ft* O & M Office
Fueling Facility
Vehicle Fueling inside covered equipment
storage building
Total 26,108 Sq Ft
*These facilities are also counted in the main office inventory above.
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2016 COMPREHENSIVE PLAN CF-9 CAPITAL FACILITIES ELEMENT
Table CF-3: City Undeveloped/Open Space Land Inventory
Location / Description Land Area
Owned
or
Leased
Uses
High School Rd. near Madison 1.42 Ac Owned Proposed surplus property
Head of the Bay Wellhead 31.82 Ac Owned Wellhead protection
Head of the Bay 2.00 Ac Owned Proposed surplus property
Head of the Bay 6.00 Ac Owned Proposed surplus property
Suzuki Property 13.83 Ac Owned Potential Surplus property
Johnson Farm 14.51 Ac Owned Agricultural/Open space
Suyematsu Farm 15.00 Ac Owned Agricultural land
Lovgreen Pit 15.54 Ac Owned Land Reclamation/Spoils
Disposal
Vincent Road Landfill 34.15 Ac Owned Public Works Facility
Manitou Beach Property *1.36 Ac Owned Transferring to Park District
M & E Tree Farm 13.00 Ac Owned Open space/Agricultural
Morales Property 4.74 Ac Owned Agricultural land
Crawford Property 2.30 Ac Owned Agricultural land
Ft. Ward Wetlands – 8 lots 2.63 Ac Owned Open space
Lot Next to Parade Ground Ave. 0.04 Ac Owned Adjacent to Right-of-way
Lost Valley 13.57 Ac Owned Open space
Waypoint Park 1.03 Ac Owned Open space
Waterfront Park 5.76 Ac Owned Shoreline park
Strawberry Plant 4.20 Ac Owned Shoreline restoration and park
Bentryn Property 11.50 Ac Owned Agricultural land
Pritchard Park 27.18 Ac Owned Transferring to Park District
(except Point area)
Misc. unimproved land 2.24 Ac Owned No use specified
Total 223.82 Acres
City Open Space/Park Land
(including transfer to BIMPRD) 83.24 Acres
*Not including tidelands
Parks & Trails
Most of the parks and recreational trails on Bainbridge Island are owned and managed by the
Bainbridge Island Metropolitan Park and Recreation District. The City has a few parks which
are generally maintained (with the exception of Waterfront Park) by the Park District under
contract to the City. During the past 10-15 years, the City has acquired or helped the Park
District acquire a large amount of open space and park lands. A number of these parcels are
being transferred to the Park District based on Resolution Number 2011-16. The City adopts by
reference the 2014-2020 Bainbridge Island Park and Recreation District Comprehensive Plan
(and any subsequent update), which establishes levels of service for park and recreation
facilities for the Island.
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2016 COMPREHENSIVE PLAN CF-10 CAPITAL FACILITIES ELEMENT
Transportation Facilities (Roads, Bike Lanes, Sidewalks, Trails)
Of the many types of capital facilities that are constructed, operated and maintained by the City,
the most familiar to citizens are the transportation facilities. Where there are facility needs that
involve SR305 or the ferries, the Washington State Department of Transportation (WSDOT) is
responsible for planning and improvements. For non-motorized and other desired facilities, the
City may elect to plan and implement additional improvements. This may be accomplished by
participating/funding elements in WSDOT projects or by undertaking City projects and obtaining
the necessary permits and approvals from WSDOT. Kitsap Transit pays for facilities that support
transit service.
A complete inventory of the Island's transportation facilities is contained in the Island-wide
Transportation Plan.
Drinking Water
Domestic drinking water is supplied by the City of Bainbridge Island, Kitsap County P.U.D. No.
1, numerous smaller public water systems (2 or more hookups), and over 1,000 private single-
dwelling wells. The levels of service for water systems on Bainbridge Island are the minimum
design standards and performance specifications provided in the 2005 Kitsap County
Coordinated Water System Plan. Fire flow requirements are regularly updated by the City, in
coordination with the Bainbridge Island Fire Department, most recently adopted by Ordinance
2016-13 and are tiered based on zoning and type of construction. Residences can satisfy
deficiencies by installing individual sprinkler systems. Levels of service for the City water
system are identified in the City Water System Plan Update.
The Kitsap Public Health District records indicate approximately 170 water systems on the
Island that have 2 or more households connected. The number of Group A & B systems are
listed below and following is a summary of systems with more than 100 connections.
Table CF-4: Group A & B Water Systems
Group A systems (15 or more connections) 39
Group B systems (under 15 connections) 145
Table CF-5: Water Systems with over 100 Connections (2016)
System # Connections Capacity Storage
(ERU) (MGD) Volumes (gal)
PUD #1 Island Utility (Eagledale) 197 455 0.43 400,000
PUD #1 North Island 1767 2,028 0.365 825,105
PUD #1 Fletcher Bay 102 Unspecified Unspecified 0
Meadowmeer (MWSA) 306 335 .45 225,000
PUD #1 South Bainbridge 1,241 1,416 0.90 807,000
Winslow (City) 2,428 Unspecified Unspecified 2,800,000
Total 6,041 Unspecified Unspecified 5,107105
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Most existing water systems were established under state and local guidelines and generally
provide high quality water at an adequate pressure and flow rate for residential use. However,
because of the number of systems on the Island, there are systems that may not be in
compliance with Department of Health water quality requirements and may not meet minimum
requirements of pressure and reliability. It is also likely that most of the smaller systems have
poor or nonexistent fire protection designed into their systems due to the cost of providing large
diameter pipes and storage tanks.
Winslow Water System
The Winslow Water System is owned and operated by the City of Bainbridge Island under the
direction and control of the Department of Public Works. It serves an area similar to the historic
Winslow city limits plus Fletcher Bay and Rockaway Beach. The system gets all of its water
from the eleven wells owned by the City. Water is pumped into the distribution system both
directly from the well pumps and by booster pump stations. A detailed inventory and capacity
analysis is provided in the City of Bainbridge Island Water System Plan, which was accepted by
the City Council in 2016.
Sanitary Sewage Disposal
The City of Bainbridge Island provides for the collection, treatment, and disposal of effluent in
the Winslow service area. The Kitsap County Sewer District #7 treatment plant north of Fort
Ward Park serving customers within the District's service area in Fort Ward and the City’s sewer
service areas in the Emerald Heights, Point White, North Pleasant Beach, and Rockaway Beach
neighborhoods and Blakely School. All other residents not within the service areas of the above
districts rely upon on-site septic systems that require approval from the Kitsap Public Health
District.
Levels of service for wastewater treatment systems are typically expressed as the number of
gallons of flow per capita per day and the level of treatment provided by the treatment plant.
The current and proposed level of service for the Winslow service area follow the Department of
Ecology guidelines of 100 gallons per capita per day (flow) and secondary treatment. In areas
not served by treatment plants, on-site septic systems must be built to Kitsap Public Health
District standards that consider combinations of lot size, soil type, infiltration capacity, depth to
hardpan, and proximity to surface water among others.
The Winslow sanitary sewer system consists of two separate parts: the collection system, and
the treatment plant. The City completed the update to the General Sewer Plan in 2015. The
updated plan documents the inventory of the existing system and needs for new facilities and
replacement or upgrading existing facilities during the coming decade.
Storm and Surface Water Management
In the Winslow urban area and a few smaller areas, stormwater is managed by a combination of
piped collectors, roadside ditches and natural stream channels. All other watersheds and sub-
basins on the Island are drained by natural streams and roadside ditches only. The existing
natural drainage system consists of wetlands, streams, springs, ditches, and culverts under
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2016 COMPREHENSIVE PLAN CF-12 CAPITAL FACILITIES ELEMENT
roadways. Storm and surface water is managed by the City as a utility. Ongoing surface and
stormwater system evaluations are used to identify future capital projects. In addition, the City
places priority on the improvement and restoration of stream channels, particularly undersized
or perched culverts, for the improvement of fish passage and fish habitat.
In planning for future capital facilities, several factors have to be considered. Many are unique to
the type of facility being planned. The process used to determine the location of a new water
line is very different from the process used to determine the location of a new bike lane. Many
sources of financing can only be used for certain types of projects. Therefore, this Capital
Facilities Element and Plan is actually the product of many separate but coordinated functional
planning documents, each focusing on a specific type of facility. These plans utilize the same
year 2036 population forecast that the Land Use Element of this Comprehensive Plan
accommodates. These functional plans are therefore adopted by referenced. They are listed
(and hyperlinked) below.
Island-wide Transportation Plan
City General Sewer Plan
City Water System Plan
In addition to planning for capital facilities and projects such as public buildings, bike lanes and
sewer infrastructure, the GMA requires that jurisdictions plan public capital projects, such as for
parks, fire and schools. The City has several special districts that serve the entire Island (e.g.
B.I. Fire Department) and some that serve certain geographical areas, but not the entire Island
(e.g. Kitsap County Sewer District 7). The City coordinates with these other special districts to
ensure that they are using the same land use designations and population forecasts. These
special district plans are therefore adopted by reference. They are listed (and hyperlinked)
below.
Bainbridge Island Municipal Parks & Recreation District 2014 Comprehensive Plan
Bainbridge Island School District 2014-2020 Capital Facilities Plan
Bainbridge Island Fire Department 2013-2022 Strategic Plan
Kitsap Public Utility District 2011 Water System Plan
Kitsap County Sewer District #7
Washington State Ferries Long Range Plan
Kitsap Regional Library Vision 2020 Strategic Plan
CITY FUNCTIONAL PLANS ADOPTED BY REFERENCE
SPECIAL PURPOSE DISTRICT PLANS ADOPTED BY REFERENCE
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The Six-Year Financial Capacity Analysis and Capital Improvement Plan (CIP) for the City of
Bainbridge Island is updated each year as part of the City’s biennial budget process. This CIP
list shows the anticipated expense and timing of each project and contains a project description,
if available and level of service (LOS) deficiency analysis. The CIP lists for the special districts
on Bainbridge Island are adopted by reference. The City conducts a financial capacity analysis
in order to evaluate the City’s ability to fund capital expenditures along with general operations.
The financial capacity analysis is integrated into the CIP.
Funding for the projects needed to meet LOS standards will come from a combination of local,
State, and federal sources. The Wyatt Way Reconstruction project will be funded with significant
support from a State grant. In the next six years, given the past history of federal grant funding,
it can be reasonably anticipated that grant funding can be secured for the Sportsman’s
Club/New Brooklyn Intersection Improvement project. In summary, the City is well positioned to
address projects to maintain LOS standards over the next six years, well before the 20-year
planning horizon of this Comprehensive Plan.
To implement the goals and policies in this Element, the City must take a number of actions,
including adopting or amending regulations, creating partnerships and educational programs,
and staffing or other budgetary decisions. Listed following each action are several of the
comprehensive plans policies that support that action.
HIGH PRIORITY ACTIONS
CFE Action #1 Implement the priorities in the Capital Facilities Element through the
adopted Capital Improvement Program
GOAL CF-1 The Capital Facilities Element and Capital Improvement Plan (CIP) provide the
public facilities needed to promote orderly compact urban growth, protect investments,
maximize use of existing facilities, encourage economic development and redevelopment,
promote private investment, increase public wellbeing and safety, and implement the
Comprehensive Plan.
Policy CF 1.1
Biennially review, update and amend a six-year Capital Improvement Program that:
Is subject to review and adoption by the City Council.
Is consistent with the Comprehensive Plan, functional plans and adopted capital and
operating budgets.
Defines the scope and location of capital projects or equipment;
States why each project is needed and its relationship to established levels of service.
SIX-YEAR CAPITAL IMPROVEMENT PLAN
CAPITAL FACILITIES IMPLEMENTATION
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2016 COMPREHENSIVE PLAN CF-14 CAPITAL FACILITIES ELEMENT
Includes costs for property acquisition, if any, project construction costs, timing, funding
sources, and projected operations and maintenance impacts.
CFE Action #2 Coordinate the City’s plans and capital investment programs with those
of other jurisdictions responsible for providing and maintaining capital facilities on the
Island.
Policy CF 1.2 Coordinate with other capital facilities service providers to keep each other
current, maximize cost savings, and schedule and upgrade facilities efficiently. In general, it is
the policy of the City to transfer parklands to the Park District whenever desirable and practical.
GOAL CF-2 As growth occurs, provide the capital facilities needed to direct and serve future
development and redevelopment.
MEDIUM PRIORITY ACTIONS
CFE Action #3 During the review of the Land Use Code, identify and adopt amendments
that will facilitate achieving the objectives of both the City and the utility service
providers.
GOAL CF-4 Public facilities constructed on Bainbridge Island meet appropriate safety,
construction, durability and sustainability standards.
Policy CF 4.2 Regularly update the Engineering Development and Design Standards, and
ensure that the Standards are consistent with the Comprehensive Plan.
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2016 COMPREHENSIVE PLAN UTILITIES ELEMENT
TABLE OF CONTENTS
PAGE
INTRODUCTION…………………………………………………………………………...….…..U-1
UTILITIES ELEMENT VISION………………………………………………………………..….U-1
GOALS AND POLICIES… ......................................................................................... ……U-2
POTABLE WATER ....................................................................................................... U-3
PUBLIC SEWER……………………………………………………………………………….U-4
STORM AND SURFACE WATER……………………………………………………………U-5
ELECTRICAL ............................................................................................................... U-6
SOLID WASTE DISPOSAL, RECYCLING AND COMPOSTING .................................. U-7
TELECOMMUNICATION ............................................................................................. U-8
IMPLEMENTATION .......................................................................................................... U-9
UTILITIES ELEMENT
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2016 COMPREHENSIVE PLAN U-1 UTILITIES ELEMENT
The Growth Management Act requires all comprehensive plans to include a utilities element
consisting of the general location, proposed location, and capacity of all existing and proposed
utilities, including but not limited to electrical lines, telecommunication lines, drinking water and
sewer lines (RCW 36.70A.070(4)). On Bainbridge Island, these utilities are provided by a
combination of the City of Bainbridge Island, State regulated utilities, federally licensed
communications companies and a municipally franchised cable television company.
The City of Bainbridge Island provides some sewer and water services. Other public and
privately held water and sewer purveyors on the Island also provide services to residents of the
City. Private households provide for a large percentage of the City’s utility infrastructure with
individual and on-site wells and septic systems.
A private corporation based on the Island provides solid waste disposal and recycling services
to residents and businesses and is regulated by the Washington Utilities and Transportation
Commission (WUTC).
Regional telecommunication and electric utilities serve the City of Bainbridge Island. The electric
and telecommunication utilities are regulated by the WUTC.
The City of Bainbridge Island has ensured that all residents have reliable electric power,
telecommunications services to meet their needs, potable water, solid waste and recycling
services, and stormwater facilities that prevent flooding and erosion, maximize infiltration and
eliminate pollutants before the water enters Puget Sound.
Coordinated water and sewer systems serve the more densely populated areas. Some private
homes rely on septic systems, but most are served by water purveyors that cover broad areas
of the Island. The City, working with other water purveyors, coordinates a monitoring program to
ensure that the quantity and quality of potable water are sustained at safe levels for present and
future generations.
Water use is managed to encourage conservation and limit consumption. Sewer systems
provide for the reuse of treated water to recharge aquifers, for irrigation and to reduce outflow
into Puget Sound. Tertiary treatment has been implemented to improve water quality in Puget
Sound.
Materials in the waste stream continue to decline, while composting and recycling are standard
practices on the Island. A Bainbridge Island moderate-risk waste facility encourages the proper
disposal of materials such as paints, solvents and cleaners. A state-of-the-art
telecommunication network has increased cooperation among neighbors and across the Island;
it has facilitated ride-sharing and reduced dependence on private automobiles for commuting
and daily errands. Alternate ecological and innovative energy sources now supply much of the
Island’s electricity, and geo-thermal heating systems have proven their effectiveness in reducing
demand for electric power.
UTILITIES INTRODUCTION
UTILITIES VISION 2036
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2016 COMPREHENSIVE PLAN U-2 UTILITIES ELEMENT
GOAL U-1
Ensure that reliable utility services are available to all Bainbridge Island residents.
GOAL U-2
Ensure that the utility services are comparable in terms of cost, quality, and technology
to services available in similar jurisdictions in the Puget Sound region.
GOAL U-3
Ensure that utility services are adequate to meet current demands, and that utility
providers plan for future demands.
GOAL U-4
Ensure that the provision of utility services is environmentally responsible and
sustainable, and encourage utility services that are carbon neutral and do not contribute
to climate change.
GOAL U-5
Ensure that new or major renovations to existing utility facilities are designed to
minimize adverse impacts on residents and the environment.
GOAL U-6
Ensure that permits and approvals for utility facilities are processed in a fair, timely
manner and in accord with development regulations and this Plan.
GOAL U-7
Ensure that all utility providers give timely public notice and solicit community input on
the siting of proposed facilities and on any other substantive projects before seeking
City approval.
GOAL U-8
Cooperate with other jurisdictions and utility providers in planning and implementing
utility facility additions, improvements, maintenance, and emergency response, so that
such activities are coordinated for maximum efficiency and public benefit.
GOAL U-9
Ensure that sufficient city resources are provided to implement the above goals by
adopting systems and processes for meaningful and timely review of utility services, and
by assigning to the Utility Advisory Committee (UAC) or other city organization the
responsibility for advising the City Council on matters regarding all utility services on
Bainbridge Island.
GOALS & POLICIES
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2016 COMPREHENSIVE PLAN U-3 UTILITIES ELEMENT
POTABLE WATER
Currently, potable water is provided to citizens of Bainbridge Island by the City, Kitsap County
Public Utility District, private for-profit water companies, not-for-profit companies or homeowner
associations, and private wells. All water providers must comply with a variety of federal and
state laws and regulations.
GOAL U-10
Ensure that city-managed and to the extent possible, non-city managed utility services,
are sufficient, cost effective, reliable, and that safe water utility service is provided.
GOAL U-11
Require utilities to operate in a manner that preserves and protects the water resources
of the Island.
Policy U 11.1
Map public water systems service areas and evaluate modifications to their system boundaries
based on maintaining sufficient and sustainable capacity to meet the present and future needs
of the service area.
Policy U 11.2
As an approved Satellite System Management Area (SMA), the City may elect to provide water
system management services to other utility providers.
Policy U 11.3
Encourage new development in previously unserved water service areas to connect to existing
public water systems. The City, at its discretion, may require new water systems be dedicated to
the City.
Policy U 11.4
Require engineering specifications for new public water systems and expansions or
improvements to existing public water systems that are to be located within the City’s rights-of-
way to meet standards set forth by the City.
Policy U 11.5
Adopt standards that differentiate between urban and non-urban density fire flow requirements.
A differential policy is needed to promote cost effective water system upgrades by the many
small water systems on the Island.
Policy U 11.6
Encourage and support water utilities to enter into cooperative activities, such as jointly
managed operations, shared storage, and construction of interties, to manage water resources
and systems more efficiently, economically, and safely.
Policy U 11.7
Encourage and facilitate consolidation of water systems, with particular emphasis on mergers of
contiguous and small systems, to manage water resources and systems more efficiently,
economically, and safely.
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Policy U 11.8
Conduct a study of consolidation of water systems owned by the City and Kitsap Public Utility
District. Pursue long-term consolidation of larger water systems.
Policy U 11.9
Implement conservation measures through education and regulation with emphasis on limiting
and reducing demand.
PUBLIC SEWER
Currently, there are two public sewer systems on Bainbridge Island. One, owned by the City of
Bainbridge Island, serves the Winslow area and the Rockaway Beach, Pleasant Beach, and
Lynwood areas (“the Southend System.”) The other, owned by Kitsap County Sewer District #7,
serves the Fort Ward area.
The service area for the Winslow Public Sewer System is designated in the City’s General
Sewer Plan. Treatment for this part of the system occurs at the Winslow Wastewater Treatment
Plant. The sewer service area for the Southend System is also designated in the City’s General
Sewer Plan. Treatment for this system occurs at the Kitsap County Sewer District #7 treatment
plant pursuant to an interlocal agreement.
GOAL U-12
Ensure that adequate, cost effective, and reliable sewer service is provided to those
areas of Bainbridge Island served by public sewer systems and designated in the
General Sewer Plan for future public sewers.
Policy U 12.1
Emergency service or other minor modifications to sewer service areas may be allowed with
approval by the City Council via resolution so long as there is sufficient sewer facility capacity,
and, with regard to the Southend System, sewage quality meets the standard outlined in the
interlocal agreement with Kitsap County Sewer District #7.
Policy U 12.2
Within public sewer system service areas, new construction should provide for eventual
connection to public sewer systems.
Policy U 12.3
Sewer connections will not be required where septic systems are fully functional and
maintained, except as provided by law.
Policy U 12.4
In planning and establishing a service area for a new public sewer facility, or major expansion of
an existing public sewer facility, service area boundaries will be evaluated taking the following
into consideration:
a. Areas that have an environmental need for sewer due to 1) a group of documented failing
septic systems; or 2) proximity to sensitive bodies of water that are unsuitable for on-site
septic systems according to the Kitsap County Health District.
b. Areas used or planned for development that serve a public need, such as a public school.
c. Areas designated for commercial and mixed use.
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d. Areas designated for residential use at densities of four units to the acre (R4) or greater.
e. Areas planned for an increase in density through a special planning area process.
Policy U 12.5
When utilities plan, renovate, or build treatment facilities, require utilities to consider
constructing facilities that facilitate the re-use of treated wastewater for irrigation, recharge, and
other non-potable uses. Require that facilities be consistent with health and safety
considerations and consider financial impacts to ratepayers and taxpayers.
Policy U 12.6
Improve the quality and reduce the quantity of effluent discharged to Puget Sound.
Policy U 12.7
Investigate the development of tertiary sewer and sewer greywater systems.
Policy U 12.8
Study cooperation (such as shared operations) or consolidation of sewer systems owned by the
City and Kitsap County Sewer District #7.
STORM AND SURFACE WATER
The City of Bainbridge Island operates a storm and surface water utility for the purposes stated
in BIMC Section 13.24.010.
GOAL U-13
Manage stormwater runoff to protect life, property and habitat from flooding and erosion;
to channel runoff to minimize impacts to daily activities; to protect the quality of
groundwater, surface water, and the waters of Puget Sound; and to provide recharge of
groundwater where appropriate.
Policy U 13.1
Maintain a comprehensive storm drainage plan that identifies problems, proposes solutions,
provides a strategy for implementation and funding, and establishes design and development
guidelines.
Policy U 13.2
Require new development to provide both on-site and off-site improvements necessary to avoid
adverse water quality and quantity impacts.
Policy U 13.3
Use low impact development standards wherein infiltration of stormwater is preferred over
surface discharge to downstream systems, so as to encourage the return of uncontaminated
precipitation to the soil at natural rates near where it falls through the use of detention ponds,
grassy swales, and infiltration facilities.
Policy U 13.4
Design and construct stormwater systems that provide for removal of pollutants and sediment
through bio-filtration or other means.
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Policy U 13.5
Minimize disruption and/or degradation of natural drainage systems, minimize impervious areas
by restricting site coverage, and encourage site permeability by retaining natural vegetation and
buffers, and specifying use of permeable materials.
Policy U 13.6
Manage surface water in a manner which prevents pollutants from industrial, commercial, and
agricultural land uses from entering ground or surface waters.
Policy U 13.7
Consider a program of retrofitting existing roads with water quality and quantity stormwater
system improvements in order to minimize pollution from runoff from roadways to natural
drainage systems and the waters of Puget Sound.
ELECTRICAL
The City is currently served by Puget Sound Energy (PSE), which provides electricity generation
sources, transmission, distribution and maintenance of electrical facilities throughout the island.
PSE is regulated by the Washington Utilities and Transportation Commission (WUTC.) It is the
commission’s responsibility to ensure regulated companies provide safe and reliable service to
customers at reasonable rates, while allowing them the opportunity to earn a fair profit.
GOAL U-14
Ensure adequate, cost effective, reliable, and environmentally responsible electric
service to the citizens of Bainbridge Island.
Policy U 14.1
Develop a plan together with the electric service provider to undertake energy efficiency
improvements and other alterations of electric utility facilities to provide capacity for future
growth.
Policy U 14.2
Encourage the conservation of electrical energy, especially during periods of peak usage, and
encourage energy saving building code strategies, local renewable energy, and other cost
effective approaches to meeting the island’s energy needs, including distributed energy
systems.
Policy U 14.3
Encourage the electric service provider to improve reliability, with particular attention to adding
transmission redundancy and mitigating impacts on service from storms or other natural events.
Policy U 14.4
Encourage undergrounding new and existing electric transmission and distribution power lines,
and develop a long-term strategy for future undergrounding, to include maximizing opportunities
with new construction, and prioritizing the work that affects the greatest number of households
and businesses.
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2016 COMPREHENSIVE PLAN U-7 UTILITIES ELEMENT
Policy U 14.5
Encourage the electric service provider and electricity users to use carbon neutral electricity
generation, local electricity generation, and innovative technologies such as solar power that are
reliable, cost effective, preserve resources, provide minimal environmental impact, and do not
contribute to global warming.
Policy U 14.6
Periodically undertake comparative evaluations of electric service reliability, cost, and
environmental impact, customer service and customer support and evaluate opportunities to
provide improved and less costly electrical service from alternative service providers.
Policy U 14.7
New taxpayer-funded buildings shall use carbon-neutral energy for heating, cooling, and
operational use to the maximum extent practical within site specific and existing technology
limitations.
Policy U 14.8
Encourage new development to integrate environmentally responsible and innovative energy
systems.
Policy U 14.9
Explore ways to obtain 100% green electricity including investing in new renewable energy
projects.
SOLID WASTE DISPOSAL, RECYCLING AND COMPOSTING
Currently, Bainbridge Disposal, Inc., a private corporation based on the Island, is the exclusive
provider of solid waste disposal and recycling services to City. Bainbridge Disposal is regulated
by the Washington Utilities and Transportation Commission (WUTC), which is charged with
ensuring the utility provides reliable, safe and economical service.
GOAL U-15
Ensure adequate, cost effective, reliable, and environmentally responsible solid waste,
recycling and composting service to the citizens of Bainbridge Island.
Policy U 15.1
Seek a method to provide on-island collection site for moderate risk waste or household
hazardous waste including oil based paints, stains, adhesives, aerosols, paint thinner, corrosive
cleaners, yard chemicals, and pool/spa chemicals and a means for transferring these
substances in a timely manner to the Kitsap County site.
Policy U 15.2
Support non-governmental organizations that provide outreach and education to citizens to
ensure that the populace is informed about the latest waste reduction, composting, recycling
and hazardous waste practices.
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Policy U 15.3
In addition to WUTC regulation, the City should perform periodic reviews to ensure that
Bainbridge Disposal is providing safe, reliable, cost effective and responsive solid waste,
compost and recycling collection. Evaluate opportunities to provide improved and cost effective
services from alternative providers.
Policy U 15.4
Coordinate with Bainbridge Disposal and the County to improve access to updated information
on solid waste, recycling and composting collection and disposal services. Increase visibility
and outreach for special events for hard-to-recycle materials such as hazardous waste or
polystyrene foam.
Policy U 15.5
Consider methods to reduce the amount of solid waste disposed, e.g. material bans,
composting or compaction, or by the conversion of solid waste to energy, e.g. using a
biodigester.
TELECOMMUNICATION
Telecommunication is the technology of communication at a distance by electronic transmission
of alphanumeric, audio, video and other data over wired and wireless delivery systems. On
Bainbridge Island, telecommunication utilities provide telephone, television, and internet
services.
Telephone utilities are regulated by the WUTC. The Federal Communications Commission
(FCC) regulates wireless service providers.
Comcast and CenturyLink are the largest telecommunication service providers on Bainbridge
Island. KPUD provides a public wi-fi service in Winslow.
GOAL U-16
Ensure adequate, cost effective, reliable, and environmentally responsible
telecommunication service to the citizens of Bainbridge Island.
Policy U 16.1
Encourage shared use of facilities and the use of existing utility corridors, public rights-of-way
and city owned properties.
Policy U 16.2
Require the placement of cellular and/or wireless communication facilities in a manner that
minimizes the adverse impacts on adjacent and surrounding land uses.
Policy U16.3
Encourage major telecommunication utility providers to work with the City to identify potential
sites for infrastructure and facility expansion to address future growth and development and
meet the demands for additional utility service.
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2016 COMPREHENSIVE PLAN U-9 UTILITIES ELEMENT
Policy U 16.4
Encourage all providers to serve all parts of the City equally.
Policy U 16.5
The City expects all providers to evaluate the capacity of their facilities regularly to ensure that
new facilities are installed in a timely basis to meet new and future demand. Providers are
expected to provide facilities to accommodate growth within the City.
Policy U 16.6
Pursue internet and cellular service of the highest standards for governmental and educational
institutions, business and commerce and personal use.
Policy U 16.7
Require new development to have underground conduits suitable for existing and foreseeable
new utilities such as cable and broadband.
Policy U 16.8
Ensure that emergency communication services are universally available to assist residents in
emergencies.
Policy U 16.9
In addition to WUTC regulation, the City should perform periodic reviews to ensure that various
telecommunication providers are providing safe reliable, cost effective, and responsive
telecommunication services. During such reviews, the City should evaluate opportunities to
obtain improved and cost effective services from alternative providers.
Policy U 16.10
Conduct a study to support the creation of an Island-wide high-speed internet service.
To implement the goals and policies in this Element, the City must take a number of actions,
including adopting or amending regulations, creating partnerships and educational programs,
and staffing or other budgetary decisions. Listed following each action are several of the
comprehensive plan policies that support that action.
HIGH PRIORITY ACTIONS
U Action #1 Develop a process for periodic review of Island utility services.
Goal U-9 Ensure that sufficient city resources are provided to implement the above goals by
adopting systems and processes for meaningful and timely review of utility services, and by
assigning to the Utility Advisory Committee (UAC) or other city organization the responsibility for
advising the City Council on matters regarding all utility services on Bainbridge Island.
U Action #2 Support the development of sewer tertiary treatment and sewer greywater
systems.
UTILITIES IMPLEMENTATION
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2016 COMPREHENSIVE PLAN U-10 UTILITIES ELEMENT
Policy U 12.6
Improve the quality and reduce the quantity of effluent discharged to Puget Sound.
U Action #3 Facilitate cooperation among or consolidation of water systems.
Policy U 11.6
Encourage and support water utilities to enter into cooperative activities, such as jointly managed
operations, shared storage, and construction of interties, to manage water resources and systems
more efficiently, economically, and safely.
U Action #4 Continue the investigation of the creation of an Island-wide high-speed
internet service.
Policy U 16.10
Conduct a study to support the creation of an Island-wide high-speed internet service.
MEDIUM PRIORITY ACTIONS
U Action #5 Proactively encourage, study, and facilitate consolidation of water systems
to manage water resources and systems more efficiently, economically and safely.
Policy U 11.7
Encourage and facilitate consolidation of water systems, with particular emphasis on mergers of
contiguous and small systems, to manage water resources and systems more efficiently,
economically, and safely.
Policy U 11.8
Conduct a study of consolidation of water systems owned by the City and Kitsap Public Utility
District. Pursue long-term consolidation of larger water systems.
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2016 COMPREHENSIVE PLAN CULTURAL ELEMENT
TABLE OF CONTENTS
PAGE
INTRODUCTION .......................................................................................................................... CU-1
CULTURAL ELEMENT VISION 2036…………………………………………………...........CU-2
GOALS AND POLICIES .................................................................................................... …….CU-2
FINANCIAL RESOURCES ........................................................................................... CU-2
CULTURAL ACTIVITY AND ECONOMIC VITALITY .................................................... CU-3
HISTORY AND HERITAGE ......................................................................................... CU-4
THE HUMANITIES ....................................................................................................... CU-4
PUBLIC ART AND COMMUNITY DESIGN…………………………………………….…..CU-5
IMPLEMENTATION………………………………………………………………………...…...CU-6
CULTURAL ELEMENT
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2016 COMPREHENSIVE PLAN CU-1 CULTURAL ELEMENT
INTRODUCTION
Bainbridge Island is home to thriving cultural institutions, and to
many artists, writers, musicians, and craftspeople, serving a local
and regional public and many tourists. The forms of art and
culture that we celebrate are as diverse as our population; they
are embedded in our history and our economy. Although a
Cultural Element is not required in Comprehensive Plans under
the Growth Management Act, ours was added in 1998 to
recognize the contributions of cultural institutions and many
dedicated individuals to our quality of life.
There are specific and compelling reasons for including a
Cultural Element in the Comprehensive Plan. Arts and
humanities include visual, performing, and literary arts,
museums, historical sites and landmarks, and many other
cultural institutions. The arts and humanities are mechanisms for
developing larger community values that are rooted in the
interests of citizens such as economic vitality, quality education,
and community planning and design and are unto themselves a
valuable element of the Island’s rich character. Support for the
arts and humanities is an investment in the community.
The economic identity and vibrancy of Bainbridge Island is based
upon its unique cultural values. These values have been
historically developed and shaped by generations of Island
residents. Invention, creativity, diversity and generosity of spirit
and expression have led to the development of Island
organizations, events, programs and individual pursuits allowing
the community to flourish, enhancing its quality of life.
This Cultural Element continues to recognize that the arts and
humanities significantly contribute to the City’s identity, sense of
place, and economy.
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2016 COMPREHENSIVE PLAN CU-2 CULTURAL ELEMENT
Arts and humanities are an integral part of the community fabric. They contribute to the
economic vitality, community character, livability, and quality of life of Bainbridge Island.
The City includes funding for the arts and humanities in its biennial budget. This funding also
supports local artists. Public art displays on City-owned property provide professional
development opportunities for artists. A variety of housing alternatives are available to artists to
enable them to live and work in the community.
Education programs to enhance understanding and appreciation for the history and heritage of
Bainbridge Island are conducted for residents and visitors. The City’s Historic Preservation
program has preserved historic and cultural resources and farmland. The traditional cultures of
the area, kept alive by our Suquamish neighbors and other Tribes, provide diversity and a living
connection to our Island’s Indigenous past. Bainbridge Island is recognized nationally as a
center of artistic excellence.
FINANCIAL RESOURCES
GOAL CUL-1
Support, protect and enhance the value of the arts and humanities as essential to
education, quality of life, economic vitality, broadening of mind and as treasure in trust
for our descendants.
Policy CUL 1.1
Support the coordination of marketing strategies with arts, business and tourism organizations
to promote cultural events.
Policy CUL 1.2
Provide financial support for the arts and humanities through the City’s biennial budget process.
Policy CUL 1.3
Employ a variety of technologies to market cultural events to residents and for off-Island visitors.
Policy CUL 1.4
Maintain cooperative working relationships with the Island’s cultural institutions.
Policy CUL 1.5
Support the emergence of cultural spaces Island-wide especially in designated centers where
they are accessible to a broad range of people encouraging both informal and planned
gatherings and recreation.
CULTURAL VISION 2036
GOALS & POLICIES
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2016 COMPREHENSIVE PLAN CU-3 CULTURAL ELEMENT
Policy CUL 1.6
Encourage partnerships between the public, private and nonprofit sectors to engage in creative
placemaking projects.
Policy CUL 1.7
Make creative placemaking a part of subarea planning and redevelopment projects.
CULTURAL ACTIVITY AND ECONOMIC VITALITY
GOAL CUL-2
Preserve and promote the distinctive character, history, traditional cultures and
institutions of Bainbridge Island and take advantage of the Island’s cultural stature within
the dynamic economy of the Puget Sound region.
Policy CUL 2.1
Promote Bainbridge Island’s “Sense of Place” by supporting an ongoing public dialogue about
preservation, sustainability, hospitality and the influence of the arts, history and culture.
Policy CUL 2.2
Support artistic, historic and cultural events, institutions and places for sharing the Island’s
unique built and natural character with residents and visitors.
Policy CUL 2.3
Cultivate partnerships among the arts and humanities, economic development and tourism
sectors.
Policy CUL 2.4
Encourage local support for a creative and economic environment that enables individual artists
to live and work in the community.
Policy CUL 2.5
Develop tools to increase the amount of affordable work and living space for artists.
Policy CUL 2.6
Foster a climate that enhances the Island’s national reputation as a center of artistic excellence.
Policy CUL 2.7
Partner with the Suquamish Tribe and others to plan events that celebrate and promote
awareness of the region’s indigenous cultures.
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2016 COMPREHENSIVE PLAN CU-4 CULTURAL ELEMENT
HISTORY AND HERITAGE
GOAL CUL-3
Preserve places where the Island’s history can be experienced, interpreted, and shared
with the general public, in order to deepen an understanding of our heritage and the
relationship of the past to our present and future.
Policy CUL 3.1
Promote a sense of respect and appreciation for history and heritage among Island residents by
supporting organizations that provide community education programs, school curriculum and
oral history programs.
Policy CUL 3.2
Support the City’s Historic Preservation program to identify and preserve historic and cultural
resources, including historic farms and heritage trees.
Policy CUL 3.3
Support adequate space to collect, preserve and interpret the Island’s history.
Policy CUL 3.4
Protect and develop cultural and historic aspects of City-owned property.
Policy CUL 3.5
Recognize the probability of discovering new Native American cultural resources throughout the
Island.
Policy CUL 3.6
Work with local tribes and others to promote knowledge and understanding of Northwest
indigenous cultures, including attention to local school curricula.
THE HUMANITIES
The Humanities foster a spirit of community where the richness of human experience is
explored and nurtured through ongoing analysis and exchange of ideas about the relation to
self, others and the natural world.
GOAL CUL-4
Promote understanding of humanistic inquiry as a foundation for civil society, enjoyment
of the arts and lifelong learning.
Policy CUL 4.1
Support community institutions such as libraries and museums which nurture creative thought
and expression and exchanges of ideas between Island residents with community discussions.
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2016 COMPREHENSIVE PLAN CU-5 CULTURAL ELEMENT
Policy CUL 4.2
Foster public dialogue to acknowledge and appreciate different ways of living, thinking, believing
and behaving in society.
Policy CUL 4.3
Encourage and participate in community forums and workshops on issues related to cultural
diversity.
PUBLIC ART AND COMMUNITY DESIGN
GOAL CUL-5
Create a stimulating visual environment by promoting public art and providing
stewardship for the City’s public art portfolio.
Policy CUL 5.1
Manage the City’s Public Art Works Program to provide opportunities for new projects and
ensure financial sustainability.
Policy CUL 5.2
Promote the inclusion of quality art in projects built by both private developers and public
agencies.
Policy CUL 5.3
Include public art in appropriate City capital projects.
Policy CUL 5.4
Maintain the artistic aesthetic of Bainbridge Island through inclusion of support for inspiring
public spaces.
Policy CUL 5.5
Ensure financial support of the required preservation of installed public art.
Policy CUL 5.6
Promote public art in new commercial developments.
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2016 COMPREHENSIVE PLAN CU-6 CULTURAL ELEMENT
To implement the goals and policies of this Element, the City must take or continue a number of
actions. Listed following each action are policies that support that action.
HIGH PRIORITY ACTIONS
CU Action #1 Consider work and living space for artists when modifying housing
regulations or commercial use regulations.
Policy CUL 2.4
Encourage local support for a creative and economic environment that enables individual artists
to live and work in the community.
CULTURAL IMPLEMENTATION
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2016 COMPREHENSIVE PLAN HUMAN SERVICES ELEMENT
TABLE OF CONTENTS
PAGE
INTRODUCTION ............................................................................................................. HS-1
HUMAN SERVICES ELEMENT VISION.......................................................................... HS-1
GOALS AND POLICIES ................................................................................................. HS-2
FINANCIAL RESOURCES ............................................................................................ HS-2
CONTINUUM OF SERVICES ....................................................................................... HS-2
HOUSING AND HUMAN SERVICES ............................................................................ HS-3
ECONOMIC HEALTH AND HUMAN SERVICES .......................................................... HS-4
PUBLIC AWARENESS AND ACCEPTANCE ................................................................ HS-4
HUMAN SERVICES IMPLEMENTATION ....................................................................... HS-5
HUMAN SERVICES ELEMENT
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2016 COMPREHENSIVE PLAN HS-1 HUMAN SERVICES ELEMENT
Putting a “human face” on the Comprehensive Plan is the motivation for the Human Services
Element. As a community, we plan for growth in terms of land use, roads, natural resources
and infrastructure. It is important to remember the very essence of our community – the people.
The Human Services Element focuses on the needs of the individuals who comprise our
community. The availability of and access to human services is important to all people
regardless of income, family structure, age or cultural background. The purpose of the Human
Services Element is to provide policy direction for City actions supporting services relating to the
human services needs of the residents of the City of Bainbridge Island.
The Human Services Element supports a delivery system that is comprehensive and flexible
enough to meet the needs of the citizenry now and in the future. City support benefits from
regular assessments of community needs. A Community Needs Assessment was
commissioned in 2016. Updated periodically, the needs assessment will help identify
demographic trends, emerging problems in the community and inform coordinate appropriate
levels of City funding.
Human services are defined as those services that assist people in meeting the essential life
needs of food, clothing, shelter and access to health care. Further, human services:
Help provide people with the tools to achieve economic, social and emotional stability to
the best of their ability.
Offer activities and services that promote healthy development of the individual, prevent
problems and support positive outcomes.
Support quality of life programs that enhance the health and well-being of the individual
and the community.
Bainbridge Island continues to support a variety of human service agencies, each with a distinct
mission, responding to the basic needs of our diverse population. Cooperation and coordination
among human services providers, including the taxing districts, has strengthened the delivery
system and improved services.
Bainbridge Island remains a caring community that treats those in need with dignity and respect
and has the means to maintain the wellbeing of all its members. No one is excluded and each
individual has opportunities to contribute. Diversity (of income and other resources, of origin
and life experience, of age and state of health) is a valued community characteristic.
Neighborhood networks, providing help in ordinary and emergency circumstances, add specific
value to a generally shared sense of place and sense of community; friendliness is the
foundation for human services.
HUMAN SERVICES INTRODUCTION
HUMAN SERVICES VISION 2036
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2016 COMPREHENSIVE PLAN HS-2 HUMAN SERVICES ELEMENT
Most Islanders prefer to age in place, continuing to enjoy the community’s arts and cultural
activities, parks and other outdoor resources. The City’s efforts to provide affordable housing
that meet the needs of a multi-generational community have been successful.
FINANCIAL RESOURCES
GOAL HS-1
City support for human services organizations that serve Bainbridge Island residents
shall be considered as part of the City’s biennial budget process.
Policy HS 1.1
Update the Bainbridge Island Community Needs Assessment periodically to help identify
emerging areas of concern and assist human service organizations to respond to current needs.
Policy HS 1.2
Consider information from the Community Needs Assessment in the review process for funding
requests for City human service funds.
Policy HS 1.3
Evaluate requests for City human service funding using a fair and transparent process that
includes public participation.
Policy HS 1.4
Support increasing emergency preparedness among all segments of the population to help
coordinate governmental response and recovery efforts that seek to minimize the adversity of a
major emergency or disaster.
CONTINUUM OF SERVICES
GOAL HS-2
Support a range of human services programs.
Policy HS 2.1
Support programs that meet the basic needs of survival such as food, clothing, shelter and
access to emergency health care.
Policy HS 2.2
Support programs that meet the critical needs of vulnerable populations, particularly those most
at risk of homelessness.
GOALS & POLICIES
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2016 COMPREHENSIVE PLAN HS-3 HUMAN SERVICES ELEMENT
Policy HS 2.3
Support preventative and early intervention programs, emphasizing programs (e.g., job training
and parenting classes) that address the health, safety and well-being of vulnerable community
members.
Policy HS 2.4
Support programs that provide needed services for families, e.g., child or adult day care, respite
care for caregivers and mental health services.
Policy HS 2.5
Support programs designed to allow people who need assistance to remain in their homes or
maintain their independence as long as possible.
Policy HS 2.6
Work with partner agencies and nonprofits to support programs that assist veterans, low-income
elderly and residents with qualifying disabilities.
Policy HS 2.7
Support programs that address strengthening family relationships and healthy child
development to help prevent child abuse, sexual assault, domestic violence and substance
abuse.
Policy HS 2.8
Work in partnership with state, county and community agencies to prevent violence including
that associated with substance abuse, mental illness and the reckless use of firearms.
HOUSING AND HUMAN SERVICES
GOAL HS-3
Recognize the interrelationship between housing and human services. The human
services sector not only provides support services for those living in affordable housing
but also enables people at risk or in crisis situations to remain in their existing housing.
The Human Services Element complements the Housing Element, which deals primarily with
the development, retention and construction of affordable housing.
Policy HS 3.1
Support emergency rental assistance subsidies.
Policy HS 3.2
Promote the creation of a mix of housing alternatives and services for people at different levels
of independence.
Policy HS 3.3
Consider ways to minimize regulatory barriers to special needs housing.
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2016 COMPREHENSIVE PLAN HS-4 HUMAN SERVICES ELEMENT
ECONOMIC HEALTH AND HUMAN SERVICES
GOAL HS-4
Recognize the interrelationship between economic health of the community and human
services.
The Human Services Element complements the Economic Element which promotes business
retention and expansion of the City’s economy in the broadest sense. Human services
organizations contribute to the community’s economic well-being by supporting individuals’
efforts to be productive members of the community. This support has many forms including but
not limited to child care, job skills training, human health and transportation vouchers.
Policy HS 4.1
The City shall serve as a model employer and an example to the larger community in
addressing its employees’ human service needs.
Policy HS 4.2
Encourage local business organizations to create jobs that reflect good business practices (e.g.,
job training, employee benefits, family wages).
Policy HS 4.3
Encourage businesses that actively support human services for workers and their families (e.g.,
provide on-site child care, transportation subsidies, flexible work hours).
Policy HS 4.4
Promote access to jobs, especially for lower-income people, youth workers and people with
disabilities, when involved with planning local and regional transportation systems.
PUBLIC AWARENESS AND ACCEPTANCE
GOAL HS-5
Increase public awareness of the range and importance of human services available to
the citizens of Bainbridge Island.
Policy HS 5.1
Support efforts to publicize the findings of the Community Needs Assessment and stimulate
public discussion on the basic human needs and the services that are available, or could be
developed, in response to them.
Policy HS 5.2
Periodically update the Community Needs Assessment.
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2016 COMPREHENSIVE PLAN HS-5 HUMAN SERVICES ELEMENT
To implement the goals and policies of this Element, the City must take or continue a number of
actions. Listed following each action are policies that support that action.
HIGH PRIORITY ACTIONS
HS Action #1 The City Council shall consider human service funding through the
biennial budget process.
GOAL HS-1 FINANCIAL RESOURCES
City support for human services organizations that serve Bainbridge Island residents shall be
considered as part of the City’s biennial budget process.
Policy HS 1.4
Support increasing emergency preparedness among all segments of the population to help
coordinate governmental response and recovery efforts that seek to minimize the adversity of a
major emergency or disaster.
HS Action #2 Periodically update the Community Needs Assessment. Use the results to
inform City funding decisions and promote community discussion about human service
needs to increase empathy and understanding.
Policy HS 1.1
Update the Bainbridge Island Community Needs Assessment periodically to help identify
emerging areas or concern and assist human service organizations to respond to current needs.
Policy HS 1.2
Consider information from the Community Needs Assessment in the review process for funding
requests for City human service funds.
Policy HS 5.1
Support efforts to publicize the findings of the Community Needs Assessment and stimulate
public discussion on the basic human needs and the services that are available, or could be
developed, in response to them.
MEDIUM PRIORITY ACTIONS
HS Action #3 Amend the City’s development code and create public/private partnerships
to increase the diversity of housing types and supply of affordable housing.
NOTE: Same Action in Housing Element.
HUMAN SERVICES IMPLEMENTATION
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2016 COMPREHENSIVE PLAN HS-6 HUMAN SERVICES ELEMENT
GOAL HS-3 HOUSING AND HUMAN SERVICES
Recognize the interrelationship between housing and human services. The human services
sector not only provides support services for those living in affordable housing, but also enables
people at risk or in crisis situations to remain in their existing housing.
Policy HS 3.2
Promote the creation of a mix of housing alternatives and services for people at different levels
of independence.
Policy HS 3.3
Consider ways to minimize regulatory barriers to special needs housing.
HS Action #4 Adopt and maintain and Economic Development Strategy to coordinate
public and private efforts to grow and sustain a healthy economy on the Island.
NOTE: Same Action in Economic Element.
Policy HS 4.2
Encourage local business organizations to create jobs that reflect good business practices (e.g.,
job training, employee benefits, family wages).
Policy HS 4.4
Promote access to jobs, especially for lower-income people, youth workers and people with
disabilities, when involved with planning local and regional transportation systems.
2/28/17
2016 COMPREHENSIVE PLAN G-1 GLOSSARY
Accessory Dwelling Unit: Separate living quarters contained within or detached from a single-
family residence on a single lot.
Adaptive management: A structured, iterative process of robust decision making in the face of
uncertainty, with an aim to reducing uncertainty over time via system monitoring. In this way,
decision making simultaneously meets one or more resource management objectives and
accrues information needed to improve future management.
Affordable Housing:
Affordable Housing is housing affordable to all economic segments of the population of this
state. This is a goal of the state Growth Management Act. RCW 36.70A.020(4). When
residential housing for rental or private individual ownership is occupied by low-income
households, it is considered affordable if it requires payment of monthly housing costs, including
utilities other than telephone, of no more than thirty percent of the family's income. WAC 365-
200-030(1).
Agriculture: NOTE DEFINITION FROM BIMC 18.36.030
Agriculture, Crop means all forms of crop-related activities, such as growing crops and
processing island-grown crops as part of a farm. Examples include grain and vegetable
farms, horticulture, greenhouses, orchards, and tree nurseries. Crop agriculture does not
include accessory major or minor agricultural retail or accessory agricultural tourism.
Incidental vegetable gardening and landscaping are accessory uses to residential land use
and are not defined as agriculture.
Agriculture, Animal means all forms of activities involving the breeding, care, and/or
sheltering of large or small livestock or poultry for sale or use, or for the sale or use of their
products or by-products, and/or the processing of those products or by-products as part of a
farm. Animal agriculture does not include a commercial feedlot. For purposes of this
definition, a commercial feedlot is a primary use of land in which more than 20 large
livestock or more than 40 small livestock (a) are regularly confined for more than 12 hours
each day, on average, in an enclosed structure or an area that is not normally used as a
grazing area or for growing crops, and (b) are generally fed within that structure or area by
mechanical means or by hand (rather than by grazing) for purposes of fattening for sale or
slaughter. Occasional confinement of large or small livestock for more than 12 hours each
day or periodic hand or mechanical feeding during bad weather does not establish a
commercial feedlot. Incidental keeping of common pets is an accessory use to residential
land use and is not defined as animal agriculture.
Aquatic Resources: Marine nearshore, wetlands, streams, lakes, creeks and associated
vegetated areas.
Aquifer: A body of soil or rock that contains sufficient saturated material to conduct
groundwater and yield usable quantities of groundwater to springs and wells.
Aquifer Conservation Zoning Regulations: Land use controls designed to protect the functions
and values of Bainbridge Island’s aquifers. These regulations may include one or more aquifer
conservation zones as defined in RCW 36.70A.550, special protection areas as authorized in
GLOSSARY
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2016 COMPREHENSIVE PLAN G-2 GLOSSARY
WAC 173-200-090, the City’s critical area regulations, the use regulations and standards of the
City’s Shoreline Master Program, the well-head protection requirements of Class A and B water
systems, and the requirements or best management practices of future City enactments such as
low impact development regulations or the standards and best management practices required by
a Groundwater Management Plan.
Aquifer Recharge Area: The geological formations in which an aquifer is replenished by the
downward percolation of water. Critical recharging areas have the potential to affect potable
water where an essential source of drinking water is vulnerable to contamination.
Arterial: A major thoroughfare used mainly for through traffic rather than access to nearby
property. Arterials generally have greater traffic carrying capacity than collector or local streets
and are designed for continuously moving traffic.
Assisted Housing: Multifamily rental housing that receives governmental assistance and is
subject to use restrictions
Average Daily Traffic (ADT): The average number of vehicles passing a point during a 24-hour
period.
Base Density: The maximum number of units within an area that can be built under the existing
zoning without the use of Transferable Development Rights (TDRs) or a density bonus.
Best Available Science: Current scientific information used in the process to designate,
protect, or restore critical areas that is derived from a valid scientific process.
Bicycle Access: An improvement designed to facilitate the use of bicycles, including bicycle
trails, bicycle lanes and pedestrian/bicycle trails or pathways.
Bicycle Lane: This facility provides a separate lane for bicycle use. It is a clearly marked lane
of travel on the side of a street or roadway, separated from the automobile by painted strips,
curbs or buttons.
Bond and Levy Financing: Local governments can raise revenues by selling tax-exempt
municipal bonds or by increasing property taxes through property tax levies. Bonds require a 60
percent voter approval; levies require a simple majority. The City can issue a limited amount of
debt without voter approval. This is called limited general obligation or councilmanic debt.
Voter approved bonds are retired with property tax revenues.
Capital Facilities Plan: A collection of planning and budget policies and documents working in
concert to ensure capital projects are identified and prioritized in a manner that meets the needs
of a growing population and promotes a safe and healthy community.
Capital Facility: A structure, improvement, piece of equipment or other major asset, including
land that has a useful life of at least 10 years. Capital facilities are provided by, and for public
purposes and services. For the purposes of the Capital Facilities Element, capital facilities are
government offices and facilities; fire and emergency medical services, parks, sewer, water, and
storm water utilities, library, and schools.
Capital Improvement: A project to create, expand, or modify a capital facility. The project may
include design, permitting, environmental analysis, land acquisition, construction, landscaping,
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2016 COMPREHENSIVE PLAN G-3 GLOSSARY
site improvements, initial furnishings and equipment. The project cost must exceed $25,000
and have a useful life of at least 5 years.
Capital Improvement Program (CIP): A six-year plan for future capital expenditures that
identifies capital projects packaging, timelines, and funding. The CIP is updated and adopted
annually or biennially, along with the City’s operating budget.
Carbon sequestration: A term used to describe both natural and deliberate processes by
which CO2 is either removed from the atmosphere or diverted from emission sources and stored
in the ocean, terrestrial environments (vegetation, soils, and sediment), and geologic
formations.
Carrying Capacity: The level of land use or human activity that can be permanently
accommodated without an irreversible change in the quality of air, water, land, or plant and
animal habitats. In human settlements, this term also refers to the upper limits beyond which
the quality of life, community character, or human health, welfare, and safety will be impaired.
Climate resilience: The capacity for a socio-ecological system to absorb stresses and maintain
function in the face of external stresses imposed upon it by climate change.
Climate Change: Changes in average weather conditions that persist over multiple decades or
longer. Climate change encompasses both increases and decreases in temperature, as well as
shifts in precipitation, changing risk of certain types of severe weather events, and changes to
other features of the climate system. (See www.climate.gov)
Cluster Development: A development design technique that concentrates buildings in specific
areas on a site to allow the remaining land to be used for recreation, common open space, and
preservation of environmentally sensitive areas. Cluster development allows the reduction of lot
sizes below the zoning ordinance's minimum requirements if the remaining land is preserved as
permanent open space.
Co-housing: a type of residential community characterized by either attached or detached
single-family dwelling units which may or may not be located on separate lots, and includes a
common building, which may contain a large dining room, kitchen, lounges, meeting rooms,
recreation and laundry facilities, storage, guest rooms, library, workshops, and/or childcare, to
serve only the co-housing community.
Collector: Roads that collect traffic from local access streets and convey it onto the arterial
system.
Commercial Use: An occupation, employment or other enterprise that provides goods or
services for compensation.
Community Development Block Grant (CDBG) Program: A federal funding program which
provides annual funding for eligible local governments for housing and community development
programs targeted primarily to low-income persons and neighborhoods.
Community Land Trust (CLT): A model of homeownership where a developer (usually an
affordable housing agency or nonprofit) sells a home to an income-qualified resident, but retains
ownership of the land. The homeowner earns equity in the home, but not the land.
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2016 COMPREHENSIVE PLAN G-4 GLOSSARY
Commute Trip Reduction (CTR): Washington State legislation passed in 1992 requiring
specified large employers in certain counties to reduce vehicle occupancy according to a
specified time frame.
Comprehensive Plan: A generalized coordinated land use policy statement of the governing
body of a county or city that is adopted pursuant to this chapter (RCW 36.70A).
Concurrency Requirement: A program to ensure that those public facilities and services
necessary to support development shall be adequate to serve the development at the time the
development is available for occupancy and use without decreasing current service levels below
locally established minimum standards. (Under the GMA, only transportation facilities and
services must satisfy the concurrency requirement.)
Conservation Area: The portion of Bainbridge Island that lies outside of the designated centers.
See Figure LU-3 – Island-wide Land Use Concept.
Conservation Easement: A legal agreement that the property owner enters into to restrict uses
of the land for purposes of natural resources or open space conservation. The easement is
recorded on a property deed, runs with the land, and is legally binding on all present and future
owners of the property.
Conservation Villages: A development form that concentrates housing on a relatively small
portion of the total site, with the larger portion of the site left untouched as dedicated
conservation easement. The housing may take the form of common wall structures and/or
detached units placed close by one another, situated to minimize the cost of running roads
and serving utilities and maximizing the retention of scenic views, open space, natural
contours, and vegetation. The techniques used to concentrate buildings may include
reduction in lot sizes, building setback and/or bulk requirements. An increase in density may
be considered only if appropriate limitations are placed on building footprint, bulk, shape,
location, orientation, or other site or building design details.
Context Sensitive Design: Site, landscaping, architectural, or engineering design that is
compatible with a development’s setting, the contours of the land and natural systems on-site
and immediately off-site, and that is compatible with the character, location and configuration of
improvements and uses on adjacent properties.
Contract Rezone District: A Contract Zoning District is a distinct area for which a special
zoning designation is developed which reflects uses and/or conditions that are unique to that
area, and which would affect future development of the land.
Cottage Housing: A grouping of small, single family dwelling units clustered around a common
area and developed with a coherent plan for the entire site. Cottage units typically have a
shared common area and coordinated design and may allow densities that are somewhat
higher than typical in single-family neighborhoods. Cottage housing offers a degree of privacy
and some of the benefits of single-family housing combined with the lower cost and
maintenance of attached housing. The clustered arrangement can contribute to a sense of
community.
Cottage Industry: An activity undertaken for gain or profit and carried on in a dwelling or
building accessory to the dwelling. See Home Occupation.
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2016 COMPREHENSIVE PLAN G-5 GLOSSARY
Countywide Planning Policies: A series of policies intended to guide the development of city
and county comprehensive plans, including, but not limited to, the allocation of population and
employment targets to cities. The GMA gives counties the authority to adopt County-wide
Planning Policies.
Craft Food and Beverage: Small-scale, locally-produced food and beverage products.
Critical Areas: Aquifer recharge areas, fish and wildlife habitats, frequently flooded areas,
geologically hazardous areas, wetlands and streams.
Critical Habitat: Identified by Washington State Department of Wildlife, Ecology and Fisheries
or other source recognized by the City as habitat necessary for survival of endangered,
threatened, rare, sensitive, monitor species or identified by Bainbridge Island as species of local
significance.
Density: The number of dwelling units allowed in a lot area.
Density Bonus: Additional density provided to a developer to achieve certain policy objectives,
such as the construction of affordable housing units. (The developer is allowed to build a
certain amount {a percentage} above the base density in exchange for the provision of a certain
number of affordable units.)
Designated Centers: Those areas of the Island where the majority of the development and
redevelopment should be located over the next fifty years. These include Winslow, Lynwood
Center, Island Center, Rolling Bay, Day Road and Sportsman Triangle. See Fig. LU-3 Land
Use Concept.
Development Regulation: The controls placed on development or land use activities by a
county or city, including, but not limited to, zoning ordinances, critical areas ordinances,
shoreline master programs, official controls, planned unit development ordinances, subdivision
ordinances, and binding site plan ordinances together with any amendments thereto.
Development Standards: Requirements or standards imposed on development by regulation or
ordinance under land use and environmental planning legislation.
Dwelling Unit: A building or portion of a building that provides independent living facilities with
provision for sleeping, eating and sanitation. The existence of a food preparation area within a
room or rooms is evidence of the existence of a dwelling unit.
Economic capital:
Financial capital is any economic resource measured in terms of money used by
entrepreneurs and businesses to buy what they need to make their products or to provide their
services to the sector of the economy upon which their operation is based, i.e., retail,
corporate, investment banking, etc.
Natural capital consists of indispensable resources and benefits, essential for human survival
and economic activity, provided by the ecosystem. Natural capital is commonly divided into (1)
renewable resources (agricultural crops, vegetation, wildlife) and (2) non-renewable resources
(fossil fuels and mineral deposits.)
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2016 COMPREHENSIVE PLAN G-6 GLOSSARY
Social capital is a form of economic capital in which social networks are central, transactions
are marked by reciprocity, trust and cooperation, and market agents produce goods and
services not only for themselves, but for a common good. The term generally refers to (1)
resources, and the value of those resources, both tangible (public spaces, private property)
and the intangible (people), (2) the relationships among these resources, and (3) the impact
that these relationships have on the resources in each relationship, and on larger groups.
Endangered Species: A species or subspecies of bird, mammal, fish, amphibian, reptile or
invertebrate for which the prospects of survival and reproduction are in immediate jeopardy from
one or more causes, including loss of habitat, change in habitat, over-exploitation, predation,
competition or disease.
Environmentally Sensitive Areas or ESAs: Critical areas and their protective buffers and
natural resource lands.
Erosion Hazard Area: A landform or soil type subject to being worn away by the action of
water, wind, freeze-thaw or ice and classified in accordance with the U.S.D.A. Soil Conservation
Service, U.S. Geological Survey or Department of Ecology Coastal Zone Atlas.
Essential Public Facility: Any facility meeting the definition of Essential Public Facility set
forth in RCW 36.70A.200(1), now or as hereafter amended, any facility identified on the
statewide list maintained by the Office of Financial Management.
Fair Share Housing: A quantification of each jurisdiction's "share" of middle and low-income
housing needs in a region or county, and a plan for how each jurisdiction will satisfy its
obligation to provide for its share of the need.
Farm: Land primarily used for agriculture.
Fish and Wildlife Habitat: A seasonal range or habitat element with which a given species has
a primary association, and which, if altered, may reduce the likelihood that the species will
maintain and reproduce over the long-term. These include areas of relative density or species
richness, breeding habitat, winter range, and movement corridors. These also include habitats
of limited availability or high vulnerability to alteration, such as cliffs, streams and wetlands.
Flexible Lot Design Subdivision Process: This process permits development flexibility that will
encourage a more creative approach than lot-by-lot development, including lot design,
placement of buildings, use of open spaces and circulation, and best addresses the site
characteristics of geography, topography, size or shape. This method permits clustering of lots,
with a variety of lot sizes, to provide open space and protect the Island's natural systems. The
criteria for the layout and design of lots, including a minimum percentage of open space and a
minimum lot size for each zone, are set out in the zoning ordinance.
Forest Land: Land used for growing trees, not including Christmas trees, for commercial
purposes (as shown by record of income) that has long-term commercial significance; or
unharvested forest land preserved in open space for the environmental benefits and
maintenance of rural character.
Frequently Flooded Areas: Lands subject to a one percent or greater chance of flooding in any
given year. These areas include, but are not limited to, floodplains adjacent to streams, lakes,
coastal areas, and wetlands.
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2016 COMPREHENSIVE PLAN G-7 GLOSSARY
Functional Classification: A technique for assigning categories to transportation facilities
based on a facility's role in the overall transportation system.
Functional Plan: Detailed assessments of existing conditions, current and future facility needs,
service targets, and projected funding. Such plans adopted by City Council are incorporated by
reference into the Comprehensive Plan’s Capital Facilities Element. Other local jurisdictions,
such as the Bainbridge Island School District, Bainbridge Island Fire District, and Bainbridge
Park District also prepare functional plans.
General Obligation Debt: Local governments can raise revenues by selling tax-exempt
municipal bonds and incurring debt. General obligation debt carries an unconditional promise
by the local government to levy the taxes necessary to make the interest and principal
payments required to retire the debt. General obligation debt is distinguished from limited
obligation debt (also known as councilmanic bonds), which does not require a vote of the people
and is paid from general operating revenues.
Geologically Hazardous Areas: Areas susceptible to erosion, sliding or other geological
events which pose a threat to the health and safety of citizens when used as sites for
incompatible commercial, residential or industrial development. Geologically hazardous areas
include erosion hazard areas, landslide hazard areas, slopes and seismic hazard areas.
Goal: An expression of a general, ultimate ideal to be sought. It reflects basic community
values and establishes the basis for formulating policies.
Green Building: A structure and use process that is environmentally responsible and resource
efficient throughout a building’s life cycle: from siting to design, construction, operation,
maintenance, renovation, and demolition. Green buildings are designed to reduce the overall
impact of the built environment on human health and the natural environment by efficiently using
energy, water, and other resources; protecting occupant health and improving employee
productivity; and reducing waste, pollution, and environmental degradation.
Greenhouse Gas (GHG): A gas in the atmosphere that absorbs and emits radiation within the
thermal infrared range and affects the temperature of the earth. Primary greenhouse gases in
the earth’s atmosphere are water vapor, carbon dioxide, methane, nitrous oxide, and ozone.
Green infrastructure: Natural vegetation, landscape design, and engineered techniques that
retain, absorb, and often cleanse stormwater runoff. By including such features throughout a
community, stormwater and other runoff from wet weather or spring thaws is retained,
absorbed, and often naturally filtered. Green infrastructure prevents or reduces the amount of
runoff flowing directly into storm drains where it can overwhelm the sewer system and
contaminate local waterways.
Groundwater: Subsurface or underground water resource.
Growth Management Act (GMA): A Washington State law requiring urban counties and their
cities to adopt comprehensive plans and to adopt development regulations and capital budgets
to implement comprehensive plans.
Guiding Principle: A high-rank order value guiding growth, development, and conservation of
resources in the community. Guiding principles are derived from and provide extension of the
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2016 COMPREHENSIVE PLAN G-8 GLOSSARY
aspirations and values described in the Vision Statement. Guiding Principles provide policy
direction to the Goals and Policies of the Elements in the Comprehensive Plan.
High Occupancy Vehicle (HOV): Public transportation vehicles and private vehicles carrying
no less than a specified number of passengers (usually set at 2 or 3).
High Occupancy Vehicle Improvement: Facilities or priority treatments, such as preferential
signalization or queue bypasses, designed to encourage HOV usage.
High Occupancy Vehicle Lane (HOV Lane): A lane of traffic designated for use by public
transit vehicles and high occupancy private vehicles.
Historic Preservation: Includes the protection, rehabilitation, restoration, identification,
scientific excavation, and reconstruction of districts, sites, buildings, structures and objects
significant in American and Washington state history, architecture, archaeology, or culture.
(RCW 27.26.901)
Home Occupation: An activity for gainful employment involving the manufacture, provision, or
sale of goods and/or services as an accessory use. The home occupation is carried on in the
dwelling unit or building accessory to the dwelling unit.
Homeless: Persons whose primary nighttime residence is 1) a public or private place not
designed for, or ordinarily used for, sleeping accommodations for human beings, or 2) a
residence which is a publicly or privately operated shelter designed to provide temporary living
accommodations.
Household: One or more related or unrelated persons occupying a housing unit.
Housing and Urban Development, Department of (HUD): The federal Department of Housing
and Urban Development that administers most federally-sponsored housing and community
development programs.
Housing Types: This term refers to the physical form, configuration or scale of housing, as
opposed to an ownership pattern (i.e., rental vs. owned). The list below groups housing types
into three categories: detached, common wall, or stacked.
Detached housing, includes one and two-story houses, ramblers, split-levels, cottages,
cabins, accessory dwelling units, mobile homes, and carriage houses (unit over a
garage);
Common wall housing, includes duplexes, zero lot line homes, row houses and
townhouses; and
Stacked housing, includes two or three story garden apartments and mid-rise, mixed-
use structures with commercial ground floor uses and two or more stories of residences
above.
Humanities: The term humanities encompasses those modes of inquiry, which are also
academic disciplines, “including but not limited to the study of languages, literature, history,
philosophy, comparative religion, and ethics.” Source: National Endowment for the Humanities.
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2016 COMPREHENSIVE PLAN G-9 GLOSSARY
Impact Fees: Charges levied by the City against a new development for its pro-rata share of the
capital costs of facilities necessitated by the development. The Growth Management Act
authorizes the imposition of impact fees on new development and sets the conditions under
which they may be imposed.
Impervious Surface: Any material that substantially reduces or prevents the infiltration of water
into previously undeveloped land. It includes surfaces such as compacted sand, limerock, or
clay, as well as most conventionally surfaced streets, roofs, sidewalks, parking lots, and other
similar surfaces or structures.
Income-qualified: A description for a renter or owner of designated affordable housing unit,
meaning that the entity managing the affordability has verified the potential resident’s income
to fall within the income ranges defined under “Affordable housing”.
Infill Development: Development usually consisting of either 1) construction on one or more
lots in an area already developed or 2) new construction between two existing structures.
Infrastructure: A term connoting the physical underpinnings of the built environment including,
but not limited to, roads, bridges, transit, waste system, public buildings, and communications
networks.
Intermodal Surface Transportation Efficiency Act of 1991 (ISTEA): Legislative initiative by
the U.S. Congress restructuring funding for highway and transit programs. ISTEA authorized
increased levels of highway and transportation funding and an enlarged role for regional
planning commissions/MPOs in funding decisions. The Act also requires comprehensive
regional long-range transportation plans extending to the horizon year of 2015.
Island Character: For purposes of the Bainbridge Island Comprehensive Plan the term is used
to describe the special character of the Island - winding, narrow and vegetated roadways and
forested areas, meadows, farms, and which contain much of the Island's wetlands and streams,
aquifer recharge areas and fish and wildlife habitat.
Kitsap Regional Coordinating Council (KRCC), formerly known as Kitsap Regional
Planning Council (KRPC): A Council formed in 1990 by agreement between Kitsap County
and the cities of Bainbridge Island, Bremerton, Port Orchard and Poulsbo. The purposes of the
council are 1) to provide a forum for cooperative decision making by the region's elected
officials in order to bring about a continuous and comprehensive planning process, 2) to foster
cooperation and mediate differences among governments throughout the region and 3) to
maintain an ongoing planning program and coordinate actions to make the best use of the
region's resources and overcome problems of waste and pollution. In 1991, the Port Gamble
S'Klallam Tribe and the Suquamish Tribe became members.
Land Use: A term used to indicate the utilization of any piece of land. It is the way in which
land is being used or may be used.
Land Owner Compacts: Adjacent property owners collectively, aggregate and develop their
properties under a unified development plan.
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2016 COMPREHENSIVE PLAN G-10 GLOSSARY
Landslide Hazard Areas: Areas that are potentially subject to risk of mass movement due to a
combination of factors, including historic failures, geologic, topographic and hydrologic features
as identified in the Department of Ecology Coastal Zone Atlas.
Latecomer Agreement: Also referred to as recovery contracts or reimbursement agreements, a
latecomer agreement allows a property owner who has installed street or utility improvements to
recover a portion of the costs of those improvements from other property owners who later
develop property in the vicinity and use the improvements.
Level of Service (LOS): A rating of how well some unit of transportation supply or other facility
(e.g., street, intersection, sidewalk, bikeway, transit route, water and sewer, park facilities)
serves its current or projected demand.
LIHPRHA: The Low-Income Housing Preservation and Resident Home Ownership Act of 1990,
or LIHPRHA, is designed to preserve existing assisted housing for permanent low-income use.
It provides incentives for current owners of assisted-housing projects to retain ownership for
low-income use or to sell them to new owners who will agree to maintain the housing for low-
income occupants for the remainder of its useful life.
Livable Neighborhood: Livable neighborhoods are places that are affordable to
diverse populations with a mix of housing types. They are designed with pedestrians
and non-motorized transportation in mind, where children can play safely outdoors, and
where public spaces exist for recreation and for neighbors to gather and so cialize.
Local Extirpation: The elimination of self-sustaining residential populations from the entire
Island and its waters, or elimination of habitat sufficient to sustain use of the Island’s lands and
waters by transitory or migratory populations.
Low Impact Development (LID): A stormwater management strategy that emphasizes
conservation and use of existing natural site features integrated with distributed, small-scale
stormwater controls to more closely mimic natural hydrologic patterns in residential, commercial,
and industrial settings. LID employs principles such as preserving and recreating natural
landscape features and minimizing impervious surfaces to create functional and appealing site
drainage that treat stormwater as a resource rather than a waste product. Practices that
adhere to these LID principles include bio-retention facilities, rain gardens, vegetated rooftops,
rainwater harvesting (rain barrels and cisterns) and permeable pavements.
Manufactured Housing: A broad term including mobile homes, modular homes and other
"factory built" housing. The main distinction is that manufactured housing is created in one or
more parts in a factory and is designed and constructed for transportation to a site for
installation on a permanent foundation and occupancy when connected to required utilities.
Master Plan: A tool to implement the Comprehensive Plan that details land use and circulation
plans for a particular area or particular site using the goals and policies contained in the adopted
Comprehensive Plan.
Micro Unit: A small studio apartment; micro unit could include a fully functioning and
accessibility compliant kitchen and bathroom or rely upon communal kitchen or bathroom
facilities.
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2016 COMPREHENSIVE PLAN G-11 GLOSSARY
Mineral Resource Lands: Land which is primarily devoted to the extraction of gravel, sand, or
valuable metallic substances.
Mixed Use Development: The presence of more than one category of use in a structure, for
example, a mixture of residential units and office or retail uses in the same building.
Mode Split: The statistical breakdown of travel by alternate modes, usually expressed as a
percentage of travel by auto, transit, etc. Mode split is frequently used to describe the
percentage of people using private automobiles versus bus transit or other modes.
Multifamily: A structure or portion of a structure containing two or more dwelling units.
Multi-modal Transportation System: A system in which there is accessibility by a variety of
travel modes, typically: pedestrian, bicycle, transit and automobile (Single Occupancy Vehicle
and High Occupancy Vehicle - carpool/vanpool) and may include water and air transport as
well.
Native Vegetation: Plant species that are indigenous to the Puget Sound region.
Natural Resource Lands: Agricultural, forest and mineral resource lands as defined in this
Plan.
Neighborhood: A small, predominantly residential area of the Island in which the residents
share a common identity which may focus around an elementary school, park, community
business center or similar feature.
Neonicotinoid: a class of neuro-active insecticides chemically similar to nicotine. Studies
have linked Neonicotinoid use to adverse ecological effects, including honey-bee colony
collapse and loss of birds due to a reduction in insect populations.
Non-point Source Pollution: Pollution that enters water from dispersed and uncontrolled
sources (such as surface runoff) rather than through pipes.
Open Space: Any area of land that provides physical or visual relief from the developed
environment. Open space may be essentially unimproved and set aside, designated or
reserved for public use or enjoyment, or for the private use and enjoyment of adjacent property
owners. Open space may also consist of undeveloped areas, such as pastures, woodlands,
greenbelts, wetlands, pedestrian corridors and other natural areas that provide visual relief from
developed areas.
Preservation of open space would 1) conserve and enhance natural or scenic resources, 2)
protect streams or water supply, 3) promote conservation of soils, wetlands, beaches or tidal
marshes, 4) enhance the value to the public of abutting or neighboring parks, forests, wild
preserves, nature reservations or sanctuaries or other open space, 5) enhance recreation
opportunities, 6) preserve historic sites, or 7) preserve visual quality along highway, road and
street corridors or scenic vistas.
Open Space Plan: an adopted map that identifies those portions of Bainbridge Island which
have the attributes and values of open space and which are candidate areas for protection
and/or acquisition through nonprofit organization, city programs or regulations.
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2016 COMPREHENSIVE PLAN G-12 GLOSSARY
Overlay District: A set of zoning requirements that are described in the ordinance text, are
mapped, and subsequently imposed in addition to those of the underlying zone. Development
within an overlay zone must conform to the requirements of both zones.
Park-and-Ride: A system in which commuters drive to a common location, park their vehicles,
and continue travel to their final destination via public transit or carpooling/vanpooling.
Peak Hour: The hour during which the maximum amount of travel takes place.
Peak Period: The period during which the maximum amount of travel occurs. Usually about 7
to 9 a.m. and 4 to 6 p.m.
Pedestrian-orientation: An area where the location and access to buildings, types of uses
permitted on the street level and storefront design are based on the needs of the walking
customers and residents. Reduces auto dependence and encourages the use of public
transportation.
Peninsula Regional Transportation Planning Organization (PRTPO): The Regional
Transportation Planning Organization for Kitsap, Mason, Clallam, and Jefferson Counties. The
PRTPO serves as a mechanism for coordinating transportation planning in and among those
counties and as a conduit for federal and state transportation funds.
Performance Standards: Regulations that establish standards of performance that are
required of any use permitted in a given zoning district. For example, control over the type of a
particular development in a particular zone may be accomplished by the establishment of
standards which impose maximum levels of smoke, dust, noise, glare, traffic generation or other
development impacts which must not be exceeded.
Permeability: The rate at which water moves through undisturbed soil. It depends largely on
the texture, structure, porosity and density of the soil.
Placemaking: With community-based participation at its center, placemaking is a design
process that capitalizes on a local community’s assets, inspiration, and potential, and results in
the creation of quality public spaces that contribute to people’s health, happiness, and well
being. Source: the Center for Public Spaces.
Policy: An agreed course of action adopted and pursued by decision makers for achieving one
or several goals and objectives and which are used to guide the formulation of regulations and
programs.
Precautionary principle: An approach to risk management, stating that if an activity carries a
threat of causing serious harm to the public or to the environment, the burden of proof that it
should not be limited or prohibited falls on proponents of the activity.
Primary Treatment: A wastewater treatment method that uses settling, skimming and usually
chlorination to remove solids, floating materials and pathogens from wastewater.
Public Facilities: Use of land that includes streets, roads, highways, sidewalks, street and road
lighting systems, traffic signals, domestic water systems, storm and sanitary sewer systems,
parks and recreational facilities, and schools.
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2016 COMPREHENSIVE PLAN G-13 GLOSSARY
Public Sewer System: Any system which is owned or operated by the City, political subdivision
of the state, or other approved ownership consistent of a collection system and necessary
trunks, pumping facilities and a means of final treatment and disposal and under permit from the
Department of Ecology.
Public Services: Include fire protection and suppression, law enforcement, public health,
education, recreation, environmental protection, and other governmental services.
Public Water System: Any system or water supply intended or used for human consumption or
other domestic uses where water is furnished to two or more hookups.
Puget Sound Council of Governments (PSCOG): Predecessor to the Puget Sound Regional
Council. PSCOG is the former area-wide metropolitan planning organization (MPO) responsible
for regional planning in the Puget Sound area. (See Puget Sound Regional Council.)
Puget Sound Regional Council (PSRC): Current metropolitan planning organization (MPO) for
the Puget Sound region, including Snohomish, King, Pierce, and Kitsap Counties. The PSRC
coordinates transportation planning in those four counties and allocates federal and state
transportation funds. The PSRC is also responsible for coordinating transportation planning
with air quality emissions requirements.
Pump Station: A facility housing the equipment to pump water from or to a destination to
counter gravitational forces. Pumping facilities are also employed to increase the pressure of
the water as it travels through the system.
Pumping Station: Used to convey sanitary, wastewater to locations that cannot be reached in a
normal downhill gravity collection system.
Purchase of Development Rights (PDRs): A program which would permit an owner of property
designated as a TDR "sending area" to sell the right to develop all or the unused zoned capacity
of the property to a public entity or non-commercial entity, such as a land trust. In exchange,
the seller of the PDR would extinguish the development right on the "sending area" by means of
an easement.
Queue Bypass: Route designed to provide a path for transit around traffic queues (or waiting
lines), allowing transit to move to the head of traffic flow.
Recharge: The process involved in the absorption and addition of water from the unsaturated
zone to groundwater.
Residential Use: Any land use that provides for living space. Examples include single family
residence, multi-family residence, special residence mobile home park, boarding house,
caretaker's quarters, accessory dwelling.
Right-of-way: Land in which the state, county, city or other governmental entity owns the fee
simple title or has an easement dedicated or required for a transportation or utility use. The
right-of-way is the right to pass over the property of another. It refers to a strip of land legally
established for the use of pedestrians, vehicles or utilities.
Runoff: That portion of precipitation that flows over land surface and enters the storm drainage
system during and immediately following a storm. The rapidity of runoff and the amount of
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2016 COMPREHENSIVE PLAN G-14 GLOSSARY
water removed are affected by slope, texture (that is the structure and porosity of the soil
surface) vegetation and prevailing climate.
Sanitary Sewer: A facility that carries waterborne wastes of household, industrial and
commercial users from the point of origin to treatment plant(s) for treatment and disposal.
Secondary Arterial: Roads that link activity centers and convey traffic onto major arterials.
Secondary arterials provide both mobility and access.
Secondary Treatment: A wastewater treatment method that usually involves the addition of
biological treatment to the settling, skimming and disinfection provided by primary treatment.
Seismic Hazard Areas: Includes areas subject to severe risk of damage as a result of seismic
induced ground shaking, slope failure, settlement, slope failure, soil liquefaction or surface
faulting. Ground shaking is a primary risk, followed by some unstable slopes causing damage
below them. The muck soils of the Island pose a specific risk of settlement and soil liquefaction.
These conditions occur in areas where muck soils and other organic deposits are unsuitable for
foundations, generally underlain by cohesion-less soils or poorly consolidated sediments usually
in association with a shallow groundwater table.
Senior Housing: Housing specifically designed and operated to assist elderly persons (as
defined in the State or Federal program); or intended for, and solely occupied by persons 62
years of age or older.
Sense of place: A geographic location with a strong identity, historical meaning or visual
character that is deeply felt by local inhabitants and by many visitors. It may apply across any
scales, from a small, intimate space (e.g., an historic building or a small park), to a unique
neighborhood (e.g., Seattle’s Pioneer Square or Portland’s Pearl District) or to an entire city
(e.g., New Orleans or San Francisco).
Shoreline Management Act: The Shoreline Management Act of 1971, Chapter 90.58 RCW,
as amended.
Shoreline Master Program: Bainbridge Island’s policy and use regulations adopted under the
authority of and subject to the requirements of the Shoreline Management Act and its
implementing administrative guidelines.
Shall: The use of the terms “shall” and “should,” determines the level of discretion the City can
exercise in making future land use policy, budget, and development regulation decisions.
“Shall” means that it is mandatory for the City to carry out the policy, even if a timeframe is not
included. The use of “shall” in a policy statement does not convert it into a regulation.
Should: Signifies a slightly less rigid directive than "shall" to be honored in the absence of
compelling considerations that require another course of action.
Single Occupant Vehicle (SOV): A vehicle carrying only the driver and no passengers.
Slope: An inclined ground surface, the inclination of which is expressed as a ratio (percentage)
of vertical distance to horizontal distance.
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2016 COMPREHENSIVE PLAN G-15 GLOSSARY
Sole Source Aquifer: A sole source aquifer is an underground water supply designated by EPA
as the sole or principal source of drinking water for an area. The system EPA designated
encompasses the entire Bainbridge Island area and is made up of six principal aquifers. One
hundred percent of the current population on Bainbridge Island obtains their drinking water from
the designated aquifer. There are no other sources of drinking water nearby that would be
economically feasible to supply all residents in the area.
Special Needs Populations: Individuals or families who require supportive social services in
order to live independently or semi-independently.
Storm Drain: A system of gutters, pipes or ditches used to carry storm water from surrounding
lands to streams, lakes or Puget Sound.
Storm Water: Water that is generated by rainfall and is often routed into drainage systems in
order to prevent flooding.
Stream: Surface waters, which flow into or become connected with other surface waters
generally at least once per year. Streams are classified in accordance with classification system
established by the Washington State Department of Natural Resources, as modified by
Bainbridge Island.
Subarea Plan: An optional comprehensive plan feature authorized by the Growth Management
Act. Subarea plans provide detailed land use policies for a geographic subset of a city.
Subdivision: The division or redivision of land into five or more lots, tracts, parcels, sites or
divisions for the purpose of sale, lease or transfer of ownership.
Substandard Housing: A dwelling unit that does not meet the criteria for an acceptable
standard of living, through lack of maintenance, age of unit, neglect, lack of plumbing facilities,
kitchen facilities, or crowded conditions.
Sustainability: Meeting the needs of the present without compromising the ability of future
generations to meet their own needs.
Sustainable Community: A community with the ability to meet the needs of the present
without compromising the ability of future generations to meet their own needs.
Tiny House or Home: A small dwelling, with a kitchen and bathroom, possibly mounted on
wheels.
Transfer of Development Rights Program (TDRs): A program which would permit an owner of
property designated as a TDR "sending area" to sell the right to develop all or the unused zoned
capacity of the property to the developer of a TDR "receiving area” who is allowed to add the
capacity to the zoned capacity of the site. In exchange, the seller of the TDR would extinguish
the development right on the "sending area" by means of an easement.
Transit: Refers to a multiple-occupant vehicle operated on a for-hire, shared-ride basis,
including bus, ferry, taxi, shuttle bus, carpool, or vanpool.
2/28/17
2016 COMPREHENSIVE PLAN G-16 GLOSSARY
Transportation Demand Management (TDM): Policies and programs to motivate people to
use public transportation, such as bus pass subsidies, flex-time programs, and limiting free
parking.
Transportation System Management (TSM): An array of strategies intended to lead to a
reduction in the number of vehicles using the road system while simultaneously serving the
same number of travelers.
Threatened Species: Any species that is likely to become an endangered species within the
foreseeable future throughout all or a significant portion of its range.
Trip: A one-way movement of a person or vehicle between two points for a specific purpose,
sometimes called a one-way trip to distinguish it from a round trip.
Trip Assignment: The process of determining route or routes of travel and allocating the zone-
to-zone trips to these routes.
Trip Distribution: The process by which the movement of trips between zones is estimated.
The data for each distribution may be measured or be estimated by a growth factor process or
by synthetic model.
Undeveloped Rights-Of-Way: Any undeveloped portion of a right-of-way legally established for
the use of pedestrians, vehicles or utilities.
Universal Design: The designing of products and environments to be usable by all people, to
the greatest extent possible, regardless of age, size, or abilities.
Upzoning: A change in the zoning classification of land to a classification allowing more
intensive development, such as a change from single-family to multifamily or from residential to
commercial.
Vehicle Miles Traveled (VMT): A measurement of forecasting travel demand; equivalent to one
car, bus or truck traveling one mile. VMT is the sum of an individual's vehicle trip lengths - in
miles - made over a set period, divided by the number of affected individuals driving that period
within the household, study area, zone or facility.
Vision: A Vision is a narrative description of a preferred future, describing desired long-term
qualities and characteristics of the community 20 or more years in the future.
Vision 2040: Vision 2040 constitutes the multi-county planning policies for the region consisting
of King, Pierce, Snohomish and Kitsap counties and the cities within those counties.
Watercourse: The areas to which surface and subsurface waters naturally flow and which form
a continuous channel through which water descends to natural outlets. A watercourse includes:
a permanent stream; intermittent stream; river, brook, creek, channel or ditch for water, whether
natural or man-made.
Water Re-use: Using treated wastewater in place of drinking water for commercial irrigation
and industrial processes. Also called wastewater reclamation.
2/28/17
2016 COMPREHENSIVE PLAN G-17 GLOSSARY
Watershed: The geographic region within which water drains into a particular river, stream or
body of water. A watershed includes hills, lowlands and the body of water into which the land
drains.
Wetland: Those areas that are inundated or saturated by surface or groundwater at a
frequency and duration sufficient to support, and that under normal circumstances do support, a
prevalence of vegetation typically adapted for life in saturated soil conditions.
2016 Comprehensive Plan Appendix A
Economic Profile [1] Fall 2015
Current Economic Background
Bainbridge Island, located 35 minutes from downtown Seattle via ferry, is a vibrant, diverse community.
With views of the snow-capped Olympic Mountains to the west and Mount Rainier to the east, Bainbridge
Island is the closest getaway destination by ferry from Seattle. The area has a rich history and a unique
culture of strong community engagement and sustainable environmental practices.
Demographics
In 2015, Bainbridge Island is home to a community of over 23,000 citizens. Population has remained
relatively stable over the past 15 years, after rapid growth between 1980 and 2000, see Figures 1 and 2.
Figure 1: Regional Population Growth
Bainbridge Island Kitsap County Washington State
Population
2013 23,196 2013 253,968 2013 6,971,406
Population Growth
2000 20,308 2000 231,969 2000 5,894,121
% Change 12.5% % Change 8.66% % Change 15.45%
Source: 2000 U.S. Census and 2013 American Community Survey
Figure 2: Bainbridge Island Population Growth
1980 1990 2000 2010 2013
12,314 15,846 20,308 23,025 23,196
Source: 1980-2010 U.S. Census and 2013 American Community Survey
While modest population growth is anticipated to continue, the number of residents under 65 is expected
to remain constant. In contrast, the number of residents aged 65 and above is growing rapidly, see Figure
3. The senior population is anticipated to increase more than 26% by 2019, which will affect the way the
economy of the Island looks and operates as the needs and desires of its residents change.
An aging population typically spends less on clothing, transportation, and food but spends far more on
health care. Services which give the ability for older residents to stay in their homes such as transit
ECONOMIC PROFILE
2016 Comprehensive Plan Appendix A
Economic Profile [2] Fall 2015
services, meal delivery, and in-home caregivers will be in greater demand in addition to other long-term
care options like assisted living facilities. Although their level of consumption may be more limited overall,
seniors tend to have an increased demand for higher-end products. Ultimately, the changing
demographics may necessitate a shift in resources away from education and childcare.
Figure 3: Bainbridge Island Population by Age
Source: 2000-2010 U.S. Census and Experian Census Area Projections & Estimates
With the majority of the population above 45 years of age, the composition of the Bainbridge Island
population is markedly different than that of both Kitsap County and Washington State. Further, the
median age for Bainbridge Island is nearly 10 years older than that of Kitsap Co unty and nearly 12 years
older than that of Washington State, see Figure 4. Experian predicts that the median age on Bainbridge
Island is projected to be greater than 50 years of age by 2019.
Figure 4: Population by Age
Source: Experian Census Area Projections & Estimates
0-19
20-44
45-64
65+
0
5,000
10,000
15,000
20,000
25,000
2000 2010 2019 (Projected)
0-19
20-44
45-64
65+
Kitsap County
Median Age: 39.3
0-19
20-4445-64
65+
Bainbridge Island
Median Age: 49.0
0-19
20-44
45-64
65+
Washington State
Median Age: 37.4
2016 Comprehensive Plan Appendix A
Economic Profile [3] Fall 2015
Bainbridge Island Workforce
Residents enjoy a wide range of amenities. Cultural sites include the Bainbridge Island Museum of Art,
Bainbridge Island Historical Museum, Bloedel Reserve, Islandwood, Japanese American Exclusion
Memorial, and Bainbridge Performing Arts. The Island also boasts numerous galleries, shops, museums,
bakeries, and restaurants. The majority of people employed on Bainbridge Island work within the
services industry based on their standard industrial classification (SIC) per the Occupational Safety &
Health Administration, see Figure 5. The primary services represented include health, education,
business, engineering, and accounting.
Figure 5: Employees on Bainbridge Island
Source: DemographicsNow
Both the number of people working on the Island and the number of business establishments has
remained relatively stable since 2001, see Figure 6. Although the population has grown, the number of
available jobs on the island has not increased proportionally.
Figure 6: Bainbridge Island Business Patterns
Source: U.S. Census Bureau, 2013 Zip Code Business Patterns
0
1,000
2,000
3,000
4,000
5,000
6,000
1998 2001 2004 2007 2010 2013
# of Establishments # of Paid Employees
Agriculture,
Forestry & Fishing
Construction
Finance,
Insurance &
Real Estate
Manufacturing
Public
Administration
Retail Trade
Services
Transportation,
Communications &
Utilities
Wholesale Trade
Employees by Major SIC Division
Business
Educational
Engineering, Acctng,
Research, Mgmt &
Related
Health
Other
Services
Services Division
2016 Comprehensive Plan Appendix A
Economic Profile [4] Fall 2015
At 4.2%, unemployment on Bainbridge Island is lower than Kitsap County (6.3%) and Washington State
(6.9%) and is projected by Experian to drop to 3.6% by 2019.
There are nearly 10,000 Island residents in the labor force, and with fewer than 6,000 jobs on the Island,
it is clear that a number of Island residents must work elsewhere in Kitsap County or the nearby Seattle
metropolitan area.
Islanders commute by car far less frequently than Kitsap County or the State as a whole, instead relying
more heavily on public transit, see Figure 7. This translates to longer commute times, as the Bainbridge
Island commute is longer by 13-18 minutes on average. Also significant in viewing commute patterns is
the high number of residents who work at home, almost three times the percentage within Kitsap County
or Washington.
Figure 7: Regional Commute Types
Commute Type Bainbridge
Island Kitsap County Washington
State
Vehicle
(Self or Carpool) 49.1% 78.6% 83.2%
Public Transit 25.3% 8.3% 5.8%
Worked at Home 16.3% 6.6% 5.4%
Walked 5.6% 4.4% 3.5%
Other Means 3.7% 2.1% 2.1%
Mean Commute
Time (mins) 43.2 29.7 25.7
Source: 2013 American Community Survey
Figure 8: City Business License Information (10/8/15)
# of Licenses % of Total Licenses
On-Island Location 2198 68%
Home-based Businesses
(included in On-Island Count) 1345 42%
Off-Island Location 1020 32%
Total Business Licenses 3218 100%
2016 Comprehensive Plan Appendix A
Economic Profile [5] Fall 2015
Figure 9. Bainbridge Island Home-Based Businesses by Type
Business Type Number %
Construction & Related Services 143 10.6%
Artists & Entertainment 141 10.5%
Management & Professional Services 111 8.3%
Marketing, Advertising & Graphic
Design 109 8.1%
Accommodations, Real Estate &
Related 90 6.7%
Health & Wellness 79 5.9%
Landscaping 60 4.5%
Engineering, Environmental, Scientific
& Technical Services 57 4.2%
Computer & Technology 56 4.2%
Educational Services 50 3.7%
Finance, Investment & Accounting 44 3.3%
Fitness, Recreation & Related 43 3.2%
Legal Services 43 3.2%
Home Furnishings & Interior Design 41 3.1%
Nonprofit, Civic & Advocacy
Organizations 38 2.8%
Miscellaneous 37 2.8%
Agriculture 30 2.2%
Food Services & Manufacturing 28 2.1%
Architects 24 1.8%
Machinery & Equipment 20 1.5%
Maintenance & Cleaning 19 1.4%
Travel & Transportation 17 1.3%
Pet Services 16 1.2%
Industrial Design & Manufacturing 14 1.0%
Personal Services 11 0.8%
2016 Comprehensive Plan Appendix A
Economic Profile [6] Fall 2015
Business Type Number %
Childcare 8 0.6%
Clothing 7 0.5%
Water Utilities 5 0.4%
Florists 3 0.2%
Total 1,344 100.0%
Source: City of Bainbridge Island Business Licenses (10/8/15)
Based on the large number of Island residents working off-Island, the type of occupations in which they
are employed gives a better indication of their financial means as opposed to analyzing the composition
of Island jobs.
Bainbridge Island residents overwhelmingly hold professional or management positions: almost 60% of
the workforce holds such positions, sharply contrasting with the less than 40% of Kitsap County or
Washington residents that do, see Figure 8. These positions also tend to command a much higher salary
than other types of positions.
Figure 10: Workforce by Occupation
Source: 2013 American Community Survey
Since 2000, the proportion of Bainbridge Island households with incomes greater than $100,000 has
steadily increased with Island businesses benefitting from off-Island income. Bainbridge Island has
significantly higher median household incomes, when compared to Kitsap County or Washington State,
see Figures 9 and 10.
Workforce by Occupation
(1) Management & Professionals (2) Sales & Office
(3) Services (4) Natural Resources & Construction
(5) Production & Transportation
(1)
59.5%
(2)
12.9%
(3)
19.6%
(4) 5.0%(5) 3.0%
Bainbridge Island
(1)
37.7%
(2)
18.9%
(3)
23.1%
(4)
10.5%
(5)
9.8%
Kitsap County
(1)
38.6%
(2)
17.5%
(3)
23.2%
(4)
9.5%
(5)
11.2%
Washington State
2016 Comprehensive Plan Appendix A
Economic Profile [7] Fall 2015
Figure 11: Proportion of Bainbridge Island Households by Income Bracket
Source: 2000-2010 U.S. Census and Experian Census Area Projections & Estimates
Figure 12: Median Household Income
2000 2010 2014 2019
(Projected)
Bainbridge
Island $70,797 $92,762 $89,223 $103,499
Kitsap County $46,923 $62,712 $59,362 $68,859
Washington
State $45,811 $57,181 $58,274 $67,667
Source: 2000-2010 U.S. Census and Experian Census Area Projections & Estimates
Living and Working in the Same Community
As shown previously in Figure 5, the majority of people employed on Bainbridge Island work in the
services industry or retail trade. The corresponding wages paid to employees on the Island in these
sectors show a much lower average wage than represented by the median household income, see
Figures 10 (above) and 11.
$0-$24.9K
$25K-$49.9K
$50K-$74.9K
$75K-$99.9K
$100K-$149.9K
$150K+
2000 2010 2019 (Projected)
2016 Comprehensive Plan Appendix A
Economic Profile [8] Fall 2015
Figure 13: Average Wages on Bainbridge Island by Industry
Industry Name Average Annual Wage*
Health Care & Social Assistance $30,306
Other Services
(excl. Public Administration) $29,576
Retail Trade $27,748
Arts, Entertainment &
Recreation $21,257
Accommodation & Food
Services $16,754
*Average Annual Wage is calculated based on the total wages paid by
reporting employers during calendar year 2014 and the average of the
same 12 months employment for the same employers.
Source: Washington State Employment Security Department
This disparity in income and wages could be the result of a number of different factors such as the
prevalence of part-time work in these sectors or that a sizable portion of these employees reside off-
Island. Regardless of the reason, it is clear that the wage and salary analysis above coupled with a highly
competitive housing market indicates that many jobs within the Island economy cannot provide workers
sufficient incomes to make living within the community possible, even for dual income households.
Bainbridge Island Residential Investment
Bainbridge Island is primarily a residential community. Just over 9,600 of the total 17,779 acres of the
Island are developed for residential land uses. A majority of the remaining land has been kept
undeveloped to maintain the unique rural character so highly regarded by Island residents.
Approximately 87% of all Bainbridge Island property value is in the form of residential property which has
a 2015 assessed valuation of over $5.3 billion per the Kitsap County Assessor. Home values on Bainbridge
Island tend to be much higher than those in neighboring communities, see Figure 11. This represents an
investment of some portion of the income imported into the community from well-paying jobs in Seattle
and elsewhere in addition to employment on the Island.
2016 Comprehensive Plan Appendix A
Economic Profile [9] Fall 2015
Figure 14: Regional Median Assessed Home Values
Source: Kitsap County Assessor, Statement of Assessments 2001-2015
Residential investment also drives a portion of the local economy by supporting a demand for businesses
such as home repair and remodeling, landscaping services, food service, auto repair, interior design,
insurance, house cleaning, day care, and municipal services.
$0
$100,000
$200,000
$300,000
$400,000
$500,000
$600,000
1998 2000 2002 2004 2006 2008 2010 2012 2014
Bainbridge Island Bremerton Poulsbo Port Orchard
Housing Needs Assessment
Page | 2
City of Bainbridge Island
Housing Needs Assessment
Prepared by
Jared Eyer, Management Intern
December 2014
Revised April 2016
Special Acknowledgement to the Following Contributors
Kim Dunscombe, Senior Fiscal Analyst, City of Bainbridge Island
Phedra Elliott, Associate Director, Housing Resources Board
Kelly Jahraus, Records Management Coordinator, City of Bainbridge Island
Jennifer Sutton, AICP, Senior Planner, City of Bainbridge Island
Page | 3
Table of Contents
Introduction p. 7
Goals and Requirements p. 7
Growth Management Act p. 7
RCW p. 7
WAC p. 8
Kitsap County p. 9
Kitsap Regional Coordinating Council – County-wide Planning Policies p. 9
City of Bainbridge Island p. 11
Current Comprehensive Plan p. 11
Housing Supply Inventory p. 12
Total Housing Units and Growth p. 12
Table 1 – Housing Unit by Type p. 12
Chart A – Total Housing Unit by Type p. 13
New and Demolished Housing Units by Structural Type p. 13
Table 2 – Residential Building Permit Summaries from 2002 – 2012 p. 14
Housing Tenure p. 14
Table 3 – Housing Units by Tenure p. 15
Chart B – Housing Units by Tenure p. 16
Housing Cost: Multifamily Residents p. 16
Table 4 – Market Rate Multifamily Rental Units p. 17
Page | 4
Table 5 – Market Rate Independent Senior and Assisted Living Rental Units p. 18
Table 6 – Rent Assisted Multifamily Rental Units p. 19
Table 7 – Summary of Multifamily Units and Average Rents p. 20
Table 8 – Summary of Multifamily Rents from 2002 and 2014 p. 21
Housing Cost: Single Family Residents p. 22
Table 9 – Average Single-Family Home Sales and Prices p. 22
Chart C – Average Single-Family Home Sales Prices p. 23
Table 10 – Average Single-Family Home Sales Price Comparison p. 24
Table 11 – Average Single-Family Home Sales Prices for 2014 (Jan 1 – Oct 28) p. 25
Table 12 – Bainbridge Average Single-Family Home Sales Prices:
Current Market Vs. New Builds p. 26
Chart D – Bainbridge Average Single-Family Home Sales Prices:
Current Market Vs. New Builds p. 26
Rent Assisted Housing p. 27
Table 13 – Duration of Commitment on Rent Assisted Multifamily Projects p. 27
Table 14 – Demand from Waitlists for Existing Rent Assisted Multifamily Units p. 29
Table 15 – Single-Family Rental Units p. 30
Housing Condition p. 30
Table 16 – Housing Condition – Year Structure was Built p. 31
Vacancy Rates p. 31
Table 17 – 2010 Housing Occupancy p. 31
Special Housing: Group Homes and Senior Housing p. 32
Table 18: A – Special Housing: Nursing/Assisted Living/Convalescent Homes p. 32
Table 18: B – Special Housing: College Dormitory/Fraternity/Sorority p. 32
Table 19 – Senior Housing Inventory p. 33
Page | 5
Demographic Information p. 33
Total Population and Growth p. 33
Chart E – Population Growth p. 34
Total Households and Household Size p. 34
Table 20 – Population, Total Households, and Household Size p. 35
Chart F – Total Households and Household Size p. 35
Household Composition (Type) p. 36
Table 21 – Household Composition (Type) p. 36
Race Representation p. 37
Table 22 – Racial Representation p. 38
Chart G – Racial Representation of Bainbridge Island in 2010 p. 39
Age Distribution p. 39
Table 23 – Age Distribution p. 40
Chart H – Population by Age (Bar Chart) p. 41
Chart I – Population by Age (Trend Graph) p. 42
Educational Attainment p. 43
Chart J – Education Attainment p. 43
Household Income p. 43
Table 24 – Bainbridge Island & Kitsap County Income Figures p. 44
Wage and Employment Data p. 44
Table 25 – Employment Status p. 45
Table 26 – Poverty Status p. 45
Charts K – Occupations of Bainbridge Island Residents in 2000 p. 46
Charts L – Occupations of Bainbridge Island Residents in 2010 p. 47
Page | 6
Chart M – Median Income in 2010 verses Median Wages in 2013 p. 48
Immigration and Migration p. 49
Table 27 – Year Householder Moved into Unit p. 49
Determining Existing and Future Housing Needs p. 49
Methods to Assess Housing Needs p. 50
Cost Burden Analysis p. 50
Table 29: A – Cost Burden Analysis: Household Income in 2012 p. 51
Table 29: B – Cost Burden Analysis: Monthly Housing Costs in 2012 p. 52
Table 29: C – Cost Burden Analysis: Monthly Housing Costs as a Percentage of
Household Income in 2012 p. 53
Affordability by Income Level Analysis p. 53
Table 30 – Area Median Income Categories p. 54
Table 31 – Number of Housing Units per Price Range p. 55
Table 32 – Affordable Rents by Bedroom Size p. 56
Workforce Housing p. 56
Table 33 – Workforce Housing Affordability p. 58
Jobs/Housing Balance p. 61
Housing + Transportation Costs Index p. 61
Special Needs Housing p. 62
Appendix p. 63
WAC p. 63
Kitsap Regional Coordinating Council p. 66
Page | 7
Introduction
The purpose of this Housing Needs Assessment is to present the City of Bainbridge Island’s current
housing goals and policies, along with the City’s current housing supply inventory and demographics,
and provide some analysis based on these statistics to determine the current and future housing needs
on the Island. Development of the Housing Needs Assessment also fulfills Goal 8 of the Housing
Element of the City’s Comprehensive Plan, which speaks to the importance of staying abreast of the
status of housing, in order to assess the effectiveness of the City’s housing policies.
The City is currently engaged in the state-mandated update of its Comprehensive Plan, which is
scheduled for completion in 2016. The housing data included in this Housing Needs Assessment will
inform the review of and revisions to the current Housing Element contained in the Comprehensive
Plan.
The previous Housing Needs Assessment was prepared for the City by Karen Monson of Space-Solutions
pllc in September of 2003, in anticipation of the 2004 Comprehensive Plan update. The report provided
a baseline for the state of housing on Bainbridge Island and what the City should be aware of as it
prepared for future population growth. It specifically discussed the growth strategy in the
Comprehensive Plan and Winslow Master Plan of accommodating 50% of projected growth in the
downtown Winslow area. The report noted that while the Comprehensive Plan establishes this goal, as
of 2003 only one-third of new growth had been directed to this area.
This Housing Needs Assessment picks up the question of housing needs on Bainbridge Island where the
last report left off. The structure of this assessment is slightly different from the previous report as
direction was taken from the Puget Sound Regional Council’s recommendations for how a City should
approach the assessment.
Goals and Requirements
Growth Management Act
Revised Code of Washington (RCW)
The Growth Management Act requires that all cities’ Comprehensive Plans “include a plan, scheme, or
design for” a Housing Element.1 The purpose of the Housing Element is to ensure the “vitality and
character of established residential neighborhoods.” Jurisdictions will accomplish this by:
a) Including an inventory and analysis of existing and projected housing needs that identifies the
number of housing units necessary to manage projected growth;
1 RCW 36.70a.070 – Comprehensive plans – Mandatory elements.
http://app.leg.wa.gov/rcw/default.aspx?cite=36.70a&full=true#36.70A.070; 23 OCT 2014
Page | 8
b) including a statement of goals, policies, objectives, and mandatory provisions for the
preservation, improvement, and development of housing, including single-family residences;
c) identifying sufficient land for housing, including, but not limited to, government-assisted
housing, housing for low-income families, manufactured housing, multifamily housing, and
group homes and foster care facilities; and
d) making adequate provisions for existing and projected needs of all economic segments of the
community.
The following GMA planning goal guides the development of the City’s Housing Element and associated
regulations.
● Housing: Encourage the availability of affordable housing to all economic segments of the
population of this state, promote a variety of residential densities and housing types, and
encourage preservation of existing housing stock.2
Washington Administrative Code (WAC)
Furthermore, the WAC recommends the following to meet the requirements of a Housing Element.3
The Housing Element shows how a county or city will accommodate anticipated growth, provide a
variety of housing types at a variety of densities, provide opportunities for affordable housing for all
economic segments of the community, and ensure the vitality of established residential neighborhoods.
The following components should appear in the Housing Element:
1) Housing goals and policies.
2) Housing inventory
3) Housing needs analysis
4) Housing targets or capacity
5) Affordable housing – RCW 36.70A.070 requires counties and cities, in their Housing Element, to
make adequate provisions for existing and projected needs for all economic segments of the
community.
6) Implementation plan
A detailed list of descriptions and definitions related to the components are included in the appendix.
2 RCW 36.70a.020 – Planning Goals – http://app.leg.wa.gov/rcw/default.aspx?cite=36.70a.020; 23 OCT 2014
3 WAC 365-196-410 – Housing Element – http://app.leg.wa.gov/wac/default.aspx?cite=365-196-410; 23 OCT 2014
Page | 9
Kitsap County
Kitsap Regional Coordinating Council – Countywide Planning Policies for Kitsap4
As required by the Growth Management Act, Kitsap County adopted County-Wide Planning Policies
(CPPs) in 1992 that are intended to establish a countywide framework from which the County and cities’
comprehensive plans are developed and adopted. The Kitsap Regional Coordinating Council is required
to periodically update the Planning Policies through a multi-jurisdictional collaboration that includes
Kitsap County, the Cities of Bremerton, Bainbridge Island, Port Orchard and Poulsbo, the Suquamish and
Port Gamble S’kallam Tribes, the Navy, and other agencies. The last update was completed in 2013
Element I. Housing of the CPPs provide housing policy guidance on:
Jobs-Housing Balance
Best Practices in Housing
Affordable Housing
as well as specific housing policies that describe a coordinated County-wide effort to address housing
needs. (See excerpt below.)
1. Coordinated process among County, Cities, and housing agencies for determining and fulfilling
housing needs, and the equitable distribution of affordable housing at all income levels in Kitsap
County:
d. The County and the Cities should each identify specific policies and implementation
strategies in their Comprehensive Plans and should enact implementing regulations to
provide a mix of housing types and costs to achieve identified goals for housing at all
income levels, including easy access to employment centers.
e. The County and the Cities shall incorporate a regular review of public health, safety, and
development regulations pertaining to housing implementation strategies to assure that:
i. protection of the public health and safety remains the primary purpose for housing
standards.
ii. regulations are streamlined and flexible to minimize additional costs to housing.
2. Recognizing that the market place makes adequate provision for those in the upper economic
brackets, each jurisdiction should develop some combination of appropriately zoned land,
regulatory incentives, financial subsidies, and/or innovative planning techniques to make
adequate provisions for the needs of middle and lower income persons.
3. Recognizing the percentage share of the existing and forecasted countywide population and
4 Kitsap County Ordinance 509-2013 - Adopted Kitsap Countywide Planning Policies; 25 NOV 2013;
http://www.kitsapregionalcouncil.org/library/D%20-
%20Countywide%20Policies/CPP%20As%20Adopted%2011%2025%2013.pdf; 23 OCT 2014
Page | 10
housing stock, as well as the distribution of existing housing for those households below 120%
countywide median income, the County and the Cities should develop coordinated strategies
to disperse projected housing for those below 120% countywide median income throughout
Kitsap County, where they are specifically found to be appropriate, in consideration of existing
development patterns and densities. These strategies should promote the development of
such housing in a dispersed pattern so as not to concentrate or geographically isolate low-
income housing in a specific area or community.
4. Provision of affordable housing for households below 120% countywide median income should
include:
a. Housing options located throughout Kitsap County in Urban Growth Areas and Rural
Communities, as defined in Element D (2-a),in a manner to provide easy access to
transportation, employment, and other services.
i. Designated Centers should include such housing options.
ii. Rural self- help housing programs should be encouraged first in UGA’s and Rural
Communities and then allowed in other appropriate areas as defined by the U.S.
Department of Agriculture.
b. Local comprehensive plan policies and development regulations that encourage and
do not exclude such housing.
c. Housing strategies that include:
i. preservation, rehabilitation and redevelopment of existing neighborhoods as
appropriate, including programs to rehabilitate and/or energy retro-fit substandard
housing;
ii. provision for a range of housing types such as multi-family, single family, accessory
dwelling units, cooperative housing, and manufactured housing on individual lots and
in manufactured housing parks;
iii. housing design and siting compatible with surrounding neighborhoods;
iv. mechanisms to help people purchase their own housing, such as low interest loan
programs, "self-help" housing, and consumer education.
v. innovative regulatory strategies that provide incentives for the development of such
housing, such as: reducing housing cost by subsidizing utility hook-up fees and rates,
impact fees, and permit processing fees; density incentives; smaller lot sizes; zero lot
line designs; inclusionary zoning techniques, such as requiring housing for specified
income levels in new residential developments; transfers of development rights
and/or a priority permit review and approval process and/or other provisions as
Page | 11
appropriate.
d. Housing policies and programs that address the provision of diverse housing opportunities
to accommodate the homeless, the elderly, physically or mentally challenged, and other
segments of the population that have special needs.
e. Participation with housing authorities to facilitate the production of such housing. The
County and the Cities shall also recognize and support other public and private not-for-
profit housing agencies. Supporting housing agencies is encouraged through public land
donations, guarantees, suitable design standards, tax incentives, fee waivers, providing
access to funding sources and support for funding applications, or other provisions as
appropriate.
5. The County and the Cities shall collaborate with PSRC to evaluate availability of
appropriate housing types to serve future residents and changing demographics.
City of Bainbridge Island
Comprehensive Plan
The City adopted its original Comprehensive Plan in 1994. As required by the GMA, a comprehensive
review and update of the Plan was conducted in 2004. In addition, the Plan has also been amended
several times in the last twenty years as part of the City’s regularly scheduled limited amendment
process. The City is currently engaged in another GMA-mandated review and update of its
Comprehensive Plan, which is scheduled for completion in 2016.
The current Housing Element incorporates the GMA definition of “affordable housing” and includes
goals and policies to:
▪ Promote and maintain a variety of housing choices to meet the needs of island residents
at all economic segments;
▪ Maintain the stock of existing affordable and rent-assisted housing;
▪ Increase the supply of affordable multi-family housing;
▪ Promote and facilitate the provision of diverse affordable housing stock in all geographic
areas of the community;
▪ Promote and facilitate the provision of rental and for-purchase housing that is
affordable to households with a variety of income levels;
▪ Facilitate the siting and development of housing opportunities for special needs
populations;
▪ Utilize the City’s bonding capacity to support the creation of affordable housing; and
▪ Provide a periodic update on the status of housing and the implementation of the
Housing Element.
Page | 12
Housing Supply Inventory
The Housing Element should begin with an inventory of the existing housing resources in a community.
This information will create a baseline for understanding the current condition of housing on Bainbridge
Island and inform how decision makers and the community could proceed with the update of the
Housing Element, policies, and programs.
Total Housing Units and Growth
As of 2010 the total housing units on Bainbridge Island reached 10,584, which met the growth
requirements set by the Office of Financial Management in the last Comprehensive Plan update. The
largest gain in housing unit type in the last thirty years was single-family homes, which saw an overall
increase of 113.3%. Multifamily housing kept pace with single-family housing at a total of 111.2%.
Mobile homes did increase by 24% between 2000 and 2010, which compensated for the loss of 75 units
during the previous decade. (Please see Table 1) Even though every type of housing unit had increases
during the last decade, single-family housing makes up 81% of all housing units on Bainbridge Island, far
surpassing the number of multifamily and mobile home units. (Please see Chart A)
Table 1 – Housing Units by Type
Single
Family
Homes
Percent Multifamily
Homes Percent Mobile
Homes Percent Total
1980 4013 80.1% 823 16.4% 174 3.5% 5010
1990 5255 81.6% 882 13.7% 306 4.7% 6443
Change 1980 - 1990 1242 59 132 1433
Percent Change 30.9% 7.2% 75.9% 28.6%
2000 7134 83.8% 1152 13.5% 231 2.7% 8517
Change 1990 - 2000 1879 270 -75 2074
Percent Change 35.8% 30.6% -24.5% 32.2%
2010 8559 80.9% 1738 16.4% 287 2.7% 10584
Change 2000 - 2010 1425 586 56 2067
Percent Change 20.0% 50.9% 24.2% 24.3%
Change 1980 - 2010 4546 915 113 5574
Percent Change 113.3% 111.2% 64.9% 111.3%
Source: Decennial United State Census (1980 – 2010)
Page | 13
Chart A – Total Housing Units by Type
Source: Decennial United State Census (1980 – 2010)
New and Demolished Housing Units by Structural Type
Table 2 shows the detailed summaries of new and demolished residential building permits by type on
Bainbridge Island from 2002 to 2012. Except for 2005, which saw a net increase of 409 multifamily
permits, the number of single-family permits was significantly higher every year. It is also important to
note that the Puget Sound Regional Council includes accessory dwellings in their multifamily one and
two unit counts. This inflates the number of net multifamily permitted units, which means the difference
is even greater between single-family and multifamily permits.
174 306 231 2878238821152
1738
4013
5255
7134
8559
0
1000
2000
3000
4000
5000
6000
7000
8000
9000
1980 1990 2000 2010
Nu
m
b
e
r
o
f
U
n
i
t
s
Year
Housing Units by Type
Mobile Homes Multifamily Homes Single Family Homes
Page | 14
Table 2 – Residential Building Permit Summaries from 2002 – 2012
Source: PSRC Residential Building Permit Summaries (2002 – 2012)
Housing Tenure
Table 3 tracks the changes in owner and renter-occupied housing units between 1980 and 2010. The
ratio of owner-occupied to renter-occupied housing units has remained fairly consistent from 1980 to
2010, with owner-occupied units accounting for just over three-quarters of all housing units in each of
these census decades. Owner-occupied units increased slightly from 1990 to 2000, but in 2010,
decreased back to the same level as 1990. Chart B provides a graphic comparison of the number of
renter-occupied to owner-occupied units for each census decennial from 1980 to 2010.
New
Units
Lost
Units
Net
Units SF MF
Total MF1-2 MF3-
4 MF5-9 MF10-
19
MF20-
49 MF50+ MH
Year
Total
New
units
permitted
Total units
lost
through
demolition
Lost units
subtracted
from new
units
Net
Single-
Family
units
Net
Multifamily
units, in
any
structure
Net
Accessory
Dwelling
& Duplex
Units
Net 3-
and 4-
family
units
Net units
in 5- to
9-family
structure
Net units
in 10- to
19-
family
structure
Net units
in 20- to
49-
family
structure
Net units
in a 50+
family
structure
Net
Mobile
&
Modular
home
units
2012 65 -24 41 32 12 2 0 0 10 0 0 -3
2011 59 -25 34 32 5 5 0 0 0 0 0 -3
2010 34 -10 24 21 5 5 0 0 0 0 0 -2
2009 42 -24 18 14 4 4 0 0 0 0 0 0
2008 70 -18 52 33 23 8 15 0 0 0 0 -4
2007 100 -17 83 67 16 16 0 0 0 0 0 0
2006 120 -15 105 94 9 6 3 0 0 0 0 2
2005 611 -14 597 187 409 2 4 20 23 360 0 1
2004 216 -1 215 127 87 16 3 8 0 0 60 1
2003 223 -5 218 152 63 46 17 0 0 0 0 3
2002 196 -4 192 129 59 13 8 22 16 0 0 4
Page | 15
Table 3 – Housing Units by Tenure
Owner
Occupied
Unit
Percent
Renter
Occupied
Unit
Percent
Total
Occupied
Housing
Units
Change
in total
units
Percent
Change
1980 3508 77.3% 1,031 22.7% 4539
1990 4662 76.0% 1472 24% 6134 1595 35.1%
2000 6250 78.3% 1729 21.7% 7979 1845 30.1%
Change
1990 - 2000 1588 257 1845 250
Percent
change 34.1% 17.5% 30.1%
2010 7222 76.3% 2248 23.7% 9470 1491 18.7%
Change
2000 - 2010 972 519 1491 -354
Percent
change 15.6% 30.0% 18.7% -19.2%
Change
1990 - 2010 2560 776 3336 -104
Percent
change 54.9% 52.7% 54.4% -6.5%
Source: Decennial United State Census (1980 – 2010)
Page | 16
Chart B – Housing Units by Tenure
Source: Decennial United State Census (1980 – 2010)
Housing Cost: Multifamily Rentals
Multifamily rentals are defined by the U.S. Department of Housing and Urban Development as a building
or project with five or more units. On October 27, 2014 and October 28,, 2014, City staff conducted a
phone survey. All multifamily rental units were polled for their number of units, types of units, and
rental costs. Rentals in a duplex, triplex, four-plex, and condominiums were not included in the survey.
However, the rental townhomes of Camelia on Bainbridge are included because they are part of a
project that is managed by one owner. Based on the survey information, each of the following
multifamily rental apartment tables were divided into Market Rate Units (Table 4), Market Rate Senior
Units (Table 5), and Rent Assisted Units (Table 6).
3508
4662
6250
7222
1,031
1472 1729
2248
0
1000
2000
3000
4000
5000
6000
7000
8000
1980 1990 2000 2010
Year
Housing Units by Tenure
Owner Occupied Renter Occupied
Page | 17
Table 4 – Market Rate Multifamily Rental Units
Total
Units Type Studio
Rent
per
Month
One
BR
Rent per
month Two BR Rent per
month
Three
BR
Rent per
month
Number
Vacant
Vacancy
Rate
Eagle's Nest
Apts 40 *I&F 25 $850 15 $950 2 1%
Island
Homestead
Apts
75 *I&F 75 $1,300 -
$1,550 0 0%
Lynwood
Commons
LLC
30 *I&F 8 $825 10 $950 12 $1300 -
$1450 0 0%
Quay
Bainbridge 72 *I&F 38 $ 895 25 $ 1,000 9 $1,200 0 0%
Camelia on
Bainbridge 71 *I&F 4
$1175
-
$1190
13 $1,105
- $1,290 36 $1,310
- $1,450 18 $1625 -
1675 0 0%
The
Residences
at Pleasant
Beach
12 *I&F 4 $1730 -
$2250 3 $3050 -
$3200 5 $2570 -
$3550 0 0%
The Cooper
- Grow
Community
20 *I&F 4 $975 16 $1800 -
$1975 0 0%
*I&F – Individuals and Families
Source: Phone Survey Conducted 10/27/2014 – 10/28/2014
Assisted Living Units were by far the most expensive multifamily rentals on Bainbridge Island. Table 5
shows that an independent senior living two bedroom apartment is around the median price for two
bedroom apartments. An assisted living two bedroom apartment is three times the price in rent.
However, assisted living rental prices cannot be directly compared to the market-rate multifamily rental
prices as they provide meals and 24-hour staff with a range of services to the residents. The assisted
living apartments were not included in the multifamily summaries other than the following table.
Page | 18
Table 5 - Market Rate Independent Senior and Assisted Living Rental Units
Total
Units Type One
BR
Rent
per
month
Two BR
Rent
per
month
Three BR
Rent
per
month
Number
Vacant
Vacancy
Rate
Winslow
Manor
Apts
39
Independent
Senior (adult
living - no
children)
39
$1325
-
$1475
3 1%
Madison
Ave
Retirement
Center
53 Assisted
Living 50
$2500
-
$4100
3
$3950
-
$5800
3 5%
Wyatt
House 42 Assisted
Living 39
$2900
-
$4200
3
$4500
-
$5000
4 9%
Madrona
House 81 Assisted
Living 79 $4000-
$4500 2 $5,000 28 36%
Source: Phone Survey Conducted 10/27/2014 – 10/28/2014
Bainbridge Island contains some rent assisted multifamily units. These units are managed by two private
rental management companies, an independent non-profit called the Housing Resources Bainbridge
(HRB), and a public housing authority called Housing Kitsap. Since the 1980s, both HRB and Housing
Kitsap have made it their mission to provide and facilitate affordable housing on Bainbridge Island and
Kitsap County respectively.
Page | 19
Table 6 – Rent Assisted Multifamily Units
*I&F – Individuals and Families
Source: Housing Resources Broad provided Rent Assisted data Oct 29, 2014
Owner Total
Units Type Studios
Rent
per
Month
One
BR
Rent
per
month
Two
BR
Rent
per
month
Three
BR
Rent
per
month
Vacant
Island Home HRB 10 *I&F 4 $951 6 $1,244 0
Village Home HRB 11 *I&F 11 $725 0
Western
View Terrace HRB 8 *I&F 8 $851 0
Janet West HRB 9 *I&F 8 $832 1 $832 0
Island
Terrace
Winslow
Terrace
LLC
48 *I&F 12 $697 36 $818 0
Lynnwood
Commons
Lynnwood
Commons
LLC
4 *I&F 1 $500 3
two for
$500
and
one for
$700
0
Rhododendron Housing
Kitsap 50 *I&F 38 $745 12 $820 0
550 Madison Housing
Kitsap 14 *I&F 11 $631 3 $820 0
Finch Place
Apt
Housing
Kitsap 29 Senior/
Disabled 29 $630 0
Virginia Villa
Blue
Heron
Park Apts
LP
40 Senior/
Disabled 36 $635 4 $885 0
Winslow
Arms
Winslow
Arms
Associates
LLP
60 Senior/
Disabled 1 30% of
income 12 30% of
income 47 30% of
income 0
Page | 20
Currently, Bainbridge Island has a total number of multifamily rental inventory of 642 units. There are
eight market-rate, multifamily rental projects with 359 units, comprising 56% of the multifamily
apartment inventory. Since 2003, the number of projects has been reduced by four, due to
condominium conversions and a demolition, but the amount of units has increased by 42 from new
builds. The Park View Apartments, Sea Breeze Apartments, and Victoria Lane were all converted into
condominiums. The eleven rent-assisted projects add 283 units, comprising 44% of the multifamily
rental inventory. Both the number of rent assisted projects and the number of units have increased
since 2003 by three and 26 respectively. The breakdown of rental units and their monthly average rent
for each unit type is shown in the following table. One and two-bedroom units make up 92% of the
market. Studios and three-bedroom apartment units continue to be in very short supply. A summary of
multifamily units and average rentals are included in Table 7.
Table 7 – Summary of Multifamily Units & Average Rents
Multifamily
Projects
Total
Units
Percent
of Total
Units
Studio
Average
Monthly
Rent
One
BR
Average
Monthly
Rent
Two
BR
Average
Monthly
Rent
Three
BR
Average
Monthly
Rent
Market Rate
Units 320 50% 12 $ 944 94 $ 980 182 $ 1,380 32 $ 1,744
Senior
Market Rate
Units (Non-
assisted
Living)
39 6% 0 $ - 0 $ - 39 $ 1,400 0 $
-
Total
Market Rate
Units
359 56% 12 94 221 32
Rent
Assisted
Units
154 24% 1 $ 500 83 $ 722 64 $ 831 6 $ 1,244
Senior Rent
Assisted
Units*
129 20% 1 * 77 $ 633 51 $ 885 0 $ -
Total Rent
Assisted
Units
283 44% 2 160 115 6
Total all
units 642 100% 14 254 336 38
Percent of
total units 100% 2.18% 39.6% 52.3% 5.92%
* Winslow Arms was excluded from the Average Monthly Rent calculation as their rent is based on 30%
of tenants’ income. They are still included in the Total Rent Assisted and Total Units.
Page | 21
Table 8 shows significant increases in the average market rate rental prices over the last ten years. The
vast majority of apartments, being one and two bedroom, show an average increase in rent of around
$270.00 for a one bedroom and $473.00 for a two bedroom. Rent-assisted units also show significant
increases over the last ten years, but all units showed a smaller percentage increase than market rate. In
addition, a qualified individual or family can rent a two bedroom rent-assisted apartment for $150.00
less per month than a market rate one bedroom apartment.
Table 8 – Summary of Multifamily Rents 2002 and 2014
Unit
Type FY 2002 FY 2014 Change
2002 - 2014
Percent
change
Market Rate Studios $ 850 $ 944 $ 94 11.1%
1 BR $ 713 $ 981 $ 268 37.6%
2 BR $ 911 $ 1,384 $ 473 51.9%
3 BR $ 1,042 $ 1,744 $ 702 67.4%
Rent Assisted Studios $ 528 * * *
1 BR $ 563 $ 685 $ 122 21.7%
2 BR $ 575 $ 834 $ 259 45.1%
3 BR $ 916 $ 1,244 $ 328 35.8%
Source: 2003 City of Bainbridge Island Housing Needs Assessment and Phone Survey Conducted
10/27/2014 – 10/28/2014
The net gain in multifamily rental apartments was relatively low. Based on the survey results, the net
gain was 68 units, bringing the total to 642. This was due to a combination of new construction,
demolition, and some apartments being converted into condominiums. Over the last ten years, there
was a 12% increase in rental apartment units on Bainbridge Island. However, rental apartments (market
rate and rent assisted) make up less than 7% of the total housing units. Additionally, rent assisted
apartments make up 3% of the total housing units in the City. These numbers show that the vast
majority of new construction of multifamily housing units was condominiums in the last ten years.
According to previous survey data and the most recent survey conducted on October 27 and 28, 2014,
the vacancy rate in established projects was 1% or less. Property managers consistently attested to the
low vacancy rates and high demand they have for apartments. These vacancy rates are well below 5%,
the percentage generally assumed to indicate a healthy rental market with a balance in supply and
demand. This means that the demand for apartments has continually exceeded the supply on
Bainbridge Island.
Page | 22
Housing Cost: Single-Family Residences
The average single family home sale prices on Bainbridge Island and in the rest of Kitsap County show
the same signs of being affected by the national housing bubble and subsequent Great Recession that
the rest of the United States experienced during the last decade. Table 9 and Chart C show the average
single-family home sale price growing annually to its peak in 2007 of $820,569.00 in Bainbridge Island
and $384,119.27 in the rest of Kitsap County. After the bubble burst in 2008, housing prices declined
until they were able to stabilize between 2011 and 2012 at average price levels seen in 2004. The
number of houses sold also reflects the challenges the housing market and the economy endured, with
more sales before and after the recession.
Table 9 – Average Single-Family Home Sales and Prices
Bainbridge Rest of Kitsap County
Year Number Sold Price Year Number Sold Price
2004 469 $ 561,462.00 2004 2652 $ 252,513.20
2005 442 $ 670,004.00 2005 2710 $ 311,742.00
2006 350 $ 751,346.00 2006 2418 $ 358,785.09
2007 333 $ 820,569.00 2007 1957 $ 384,119.27
2008 187 $ 749,862.00 2008 1529 $ 327,075.27
2009 215 $ 664,545.00 2009 1615 $ 316,873.27
2010 256 $ 639,169.00 2010 1389 $ 285,491.00
2011 258 $ 581,855.00 2011 1324 $ 286,934.73
2012 386 $ 635,394.00 2012 1540 $ 266,436.45
2013 415 $ 602,500.00 2013 1942 $ 277,468.00
2014 (as of
Oct 28) 327 $ 696,519.80 2014 (as of
Oct 28) 2617 $ 262,381.15
Source: Northwest Multiple Listing Service
Page | 23
Chart C – Average Single-Family Home Sales Prices
Source: Northwest Multiple Listing Service
The following table shows the average price difference between Bainbridge single-family home sales
prices and the rest of Kitsap County single-family home sales prices. Since 2004, Bainbridge Island has
maintained a price difference of at least $300,000.00 or higher compared to the rest of homes sold in
Kitsap County. This means that homes on Bainbridge Island are consistently worth twice as much as
comparable homes throughout the rest of the County. It is interesting to note that after the economic
recovery, home sale prices for Bainbridge Island are growing at a faster rate than the rest of Kitsap
County, which is holding steady just under an average of $300,000.
$0
$100,000
$200,000
$300,000
$400,000
$500,000
$600,000
$700,000
$800,000
$900,000
2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
Year
Average Single Family Home Sales Prices
Bainbridge Kitsap County (Excluding Bainbridge)
Page | 24
Table 10 – Average Single Family Home Sales Price Comparison
Bainbridge Kitsap Price
Difference
Bainbridge
Price
"premium"
Change in
Bainbridge
Price
Percent
Change
Change in
Kitsap
Price
Percent
Change
2004 $ 561,462 $ 252,513 $ 308,948 222.3%
2005 $ 670,004 $ 311,742 $ 358,262 214.9% $ 108,542 19.3% $ 59,228 23.5%
2006 $ 751,346 $ 358,785 $ 392,560 209.4% $ 81,342 12.1% $ 47,043 15.1%
2007 $ 820,569 $ 384,119 $ 436,449 213.6% $ 69,223 9.2% $ 25,334 7.1%
2008 $ 749,862 $ 327,075 $ 422,786 229.3% $ (70,707) -8.6% $ (57,044) -14.9%
2009 $ 664,545 $ 316,873 $ 347,671 209.7% $ (85,317) -11.4% $ (10,202) -3.1%
2010 $ 639,169 $ 285,491 $ 353,678 223.9% $ (25,376) -3.8% $ (31,382) -9.9%
2011 $ 581,855 $ 286,934 $ 294,920 202.8% $ (57,314) -9.0% $ 1,443 0.5%
2012 $ 635,394 $ 266,436 $ 368,957 238.5% $ 53,539 9.2% $ (20,498) -7.1%
2013 $ 602,500 $ 277,468 $ 325,032 217.1% $ (32,894) -5.2% $ 11,031 4.1%
2014
(as of
Oct 28)
$ 696,519 $ 94,019 15.6%
Source: Northwest Multiple Listing Service
The following table compares single-family home sale prices on Bainbridge Island to other cities and
census tract areas in the County as of October 2014. Even with multi-million dollar home sales in other
parts of the County, Bainbridge Island has the highest average price of single-family home sales.
Page | 25
Table 11 – Single-Family Home Sales Prices for 2014 (January 1 – October 28)
City Average Sell Price Range Maximum Minimum
Bainbridge $ 696,519.80 327 $ 3,300,000.00 $ 180,000.00
Kitsap County
(Excluding
Bainbridge)
$ 262,381.15 2617* $ 3,490,004.00 $ 23,000.00
Bremerton $ 207,272.70 920 $ 1,100,000.00 $ 32,175.00
Hansville $ 335,354.08 49 $ 995,000.00 $ 137,000.00
Indianola $ 416,608.33 12 $ 875,000.00 $ 284,900.00
Kingston $ 311,569.72 124 $ 1,225,000.00 $ 34,000.00
Olalla $ 289,974.67 45 $ 765,000.00 $ 75,000.00
Port Orchard $ 253,289.46 753 $ 2,649,000.00 $ 23,000.00
Poulsbo $ 354,369.95 414 $ 3,490,004.00 $ 24,000.00
Seabeck $ 308,326.30 57 $ 848,000.00 $ 68,000.00
Silverdale $ 288,022.74 199 $ 648,000.00 $ 99,900.00
Suquamish $ 222,763.16 37 $ 795,000.00 $ 43,000.00
*This will not tie with the rest of the Cities and county areas below as Keyport, Manchester, and Southworth did
not have enough purchases to provide significant statistics. These seven purchases were included in Countywide
Average Sell Price.
Source: Northwest Multiple Listing Service
The average new home price on Bainbridge Island followed the same trends as the rest of the U.S.
housing market. It continued to increase through 2007 and then decline until 2012. “New” is defined as
newly built, either on a new plot of land or after a demolition, with no occupants until after its first sale.
Average new single-family home prices sales have consistently stayed above average single-family home
prices for the last decade on Bainbridge Island. However, the average sales price of existing homes
nearly caught up to the average sales price of a new homes built in 2012. This can be seen in Table 12
and Chart D.
Page | 26
Table 12 – Bainbridge Average Single-Family Home Sales Price: Current Market Vs. New Build
Average Home Price Average New Home Price
Year Price Year Price
2004 $ 561,462 2004 $ 676,063
2005 $ 670,004 2005 $ 745,435
2006 $ 751,346 2006 $ 858,720
2007 $ 820,569 2007 $ 1,082,562
2008 $ 749,862 2008 $ 998,841
2009 $ 664,545 2009 $ 968,848
2010 $ 639,169 2010 $ 861,939
2011 $ 581,855 2011 $ 763,669
2012 $ 635,394 2012 $ 638,474
2013 $ 602,500 2013 $ 657,640
2014 $ 696,520 2014 $ 866,876
Source: Northwest Multiple Listing Service
Chart D - Bainbridge Average Single-Family Home Sales Price: Current Market Vs. New Build
Source: Northwest Multiple Listing Service
$-
$200,000
$400,000
$600,000
$800,000
$1,000,000
$1,200,000
2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
Comparison of Single-Family Homes on
Bainbridge Island: Current to Newly Built
Average Home Price Average New Home Price
Page | 27
Rent Assisted Housing
Bainbridge Island has eleven rent assisted projects that received funds in whole or in part from Federal,
State, and/or local agencies. In exchange for favorable financing terms, the property owner commits to
providing the housing to a targeted population for a specific term. Commitments can run from 20 to 50
years depending upon the funding source. Federal funding sources include the U.S Department of
Housing and Urban Development and the U.S. Department of Agriculture (USDA). Local jurisdictions
have priority purchase rights for the USDA projects through the Housing Preservation Section of the
Federal Housing Act of 1990 before they are offered on the open market. The USDA projects must
provide a one-year notice of intent to pre-pay the loan with notices being sent to the City and to
Housing Kitsap. Table 13 shows the date each project’s current commitment expires.
Table 13 – Duration of Commitment on Rent Assisted Multifamily Projects
Owner Total
Units Type
Number
of ADA
units
Number
of units
with
subsidy
Required Period
of Affordability subsidy type
Island Home HRB 10 *I&F 0 12/1/2031
HOME funds used to
construct units, no
ongoing rental
subsidy, rent rates
below market based
on HOME
requirements
Village Home HRB 11 *I&F 1 0 8/9/2048
HOME funds used to
construct units, no
ongoing rental
subsidy, rent rates
below market based
on HOME
requirements
Western
View Terrace HRB 8 *I&F 0
no subsidy - rent,
lower than market,
HRB rents to those at
80% or below
Janet West HRB 9 *I&F 0 1/1/2053
HOME funds used to
construct units, no
ongoing rental
subsidy, rent rates
below market based
on HOME
requirements
Page | 28
Owner Total
Units Type
Number
of ADA
units
Number
of units
with
subsidy
Required Period
of Affordability subsidy type
Island
Terrace
Winslow
Terrace
LLC
48 *I&F 4 19 USDA - Rural
Development
Lynnwood
Commons
Lynnwood
Commons
LLC
34 *I&F 4
Follows King County
Affordable Housing
Incentive Program
Rhododendron Housing
Kitsap 50 *I&F 48
1/1/2016;
Renewed
annually
based on
tenant needs
USDA - Rural
Development
550 Madison Housing
Kitsap 14 *I&F 0
no subsidy - rent
lower than market
rate
Finch Place
Apt
Housing
Kitsap 29 Senior/
Disabled 20
Renewed
annually
based on
tenant needs
USDA - Rural
Development
Virginia Villa
Blue
Heron
Park
Apts LP
40 Senior/
Disabled 20
Renewed
annually
based on
tenant needs
USDA - Rural
Development
Winslow
Arms
Winslow
Arms
Associates
LLP
60 Senior/
Disabled 60
Renewed
annually
based on
tenant
needs
Project based Section
8
*I&F – Individuals and Families
Source: HRB provided data
The City’s local financing source is the Housing Trust Fund. The Trust Fund was established by ordinance
in 1999. Funds were distributed to local non-profits to fund affordable housing projects and programs
on the Island. Funding was reduced in response to the financial challenges the City faced during the
Great Recession, but the Trust was maintained to fund affordable housing programs on the Island.
Recently the Council decided to appropriate $200,000.00 to the Housing Trust Fund as part of the 2015-
16 biennial budget for future housing projects.
Page | 29
Table 14 tallies the number of individuals and families desiring affordable housing on Bainbridge Island.
HRB, Housing Kitsap, and other owners of rent assisted multifamily units maintain a waiting list for
individuals and families who contact them for affordable rental housing. The current totals of combined
waiting lists contain 149 households (individuals and families).
Table 14 – Demand from Waitlists for Existing Rent Assisted Multifamily Units
HRB Projects Individuals Households
Total 24 14
Currently Live on BI 10 4
Currently Work on BI 5 5
Disabled 3 3
Female Head of Household 13 13
Other Housing Assisted Projects
Finch Place Apt 30
Rhododendron 31
550 Madison 6
Virginia Villa Unknown
Winslow Arms 36
Island Terrace 8
Total of All Projects 24 125
Source: HRB provided data
In addition to the multifamily units mentioned above, HRB also offers three single-family rental housing
units on Bainbridge Island to qualifying individuals and families. They are listed in Table 15.
Page | 30
Table 15 – Single-Family Rental Units
Property Owner Total
Units Type Studio
Rent
per
Month
Three
BR
Rent
per
Month
Vacant
Number
of units
with
subsidy
Subsidy Type
Forest
Home
(single
family
home)
HRB 1 *I&F 1 $1,199 0 0
No subsidy - rent,
lower than market,
HRB rents to those
at 80% or below
Dore
Cabin
(single
family
home)
HRB 1 *I&F 1 $725 0 0
No subsidy - rent,
lower than market,
HRB rents to those
at 80% or below
Sadie
Woodman
(single
family
home)
HRB 1 *I&F 1 $1,199 0 0
No subsidy - rent,
lower than market,
HRB rents to those
at 80% or below
*I&F – Individuals and Families
Source: HRB provided data
Housing Condition
It is difficult to determine the condition of the housing stock of Bainbridge Island as a whole. No surveys
have been done to gauge this on a consistent basis. The Kitsap County Assessor’s database assesses the
value of homes in Kitsap County every six years on a cyclical basis. The database includes a category to
assess the condition of a home, but this field is not maintained in a consistent manner. The following
Table shows the percentage of houses built during a specific census decennial. As of 2010, 40% of the
Island’s housing stock was built before 1980. A trend of concern regarding housing condition is the
combination of a larger portion of older residents and the increasing cost of housing. An increased
percentage of income needed for housing leaves a reduced portion of that income for repairs.
Page | 31
Table 16 – Housing Condition – Year Structure was Built
2000 2010
YEAR STRUCTURE
BUILT Number Percent Estimate Percent
Total housing units 10,402 10,402
Built 2010 or later 23 0.20%
Built 2000 to 2009 2,255 21.70%
Built 1990 to 1999 2453 28.8% 2,218 21.30%
Built 1980 to 1989 1463 17.2% 1,759 16.90%
Built 1970 to 1979 1767 20.7% 1,818 17.50%
Built 1960 to 1969 850 10.0% 864 8.30%
Built 1940 to 1959 880 10.3% 744 7.20%
Built 1939 or earlier 1104 13.0% 721 6.90%
Source: American Community Survey (2008-2012)
Vacancy Rates
Vacancy rates for multifamily rental units and housing unit occupancy have been reviewed in earlier
sections of this report. The following table reviews occupancy and vacancy rates as of 2010. Based on
the survey and the recent recovery of the economy and the housing market, it is fair to assume that
occupancies have increased and vacancies have decreased.
Table 17 – 2010 Housing Occupancy
Bainbridge Kitsap
Total housing units 10,584 100% 107,367 100%
Occupied housing units 9,470 89.5% 97,220 90.5%
Vacant housing units 1,114 10.5% 10,147 9.5%
For rent 154 1.5% 2,897 2.7%
Rented, not occupied 27 0.3% 171 0.2%
For sale only 181 1.7% 1,521 1.4%
Sold, not occupied 50 0.5% 336 0.3%
For seasonal, recreational, or occasional use 514 4.9% 2,781 2.6%
All other vacancies 188 1.8% 2,441 2.3%
Homeowner vacancy rate (percent) [8] 2.4 ( X ) 2.2 ( X )
Rental vacancy rate (percent) [9] 6.3 ( X ) 8.6 ( X )
Source: American Community Survey (2008-2012)
Page | 32
Special Housing: Group Homes and Senior Housing
Bainbridge Island has a handful of group homes. The stock of group homes includes nursing homes,
assisted living facilities, and a dormitory. The following tables outline the population and vacancy rates,
when applicable, of each group home.
Table 18A – Special Housing: Nursing/Assisted Living/Convalescent Homes
Facility Name Type 2013
Population
2014
Population Vacancy Rate
Island Health and
Rehabilitation Nursing Home 49 57 N/A
Messenger House Care Center Nursing Home 75 77 N/A
Madison Ave Retirement
Center Assisted Living 50 50 5%
Wyatt House Assisted Living 43 38 9%
Madrona House Assisted Living
Assisted Living,
number of units
have specific focus
for residents with
dementia and
Alzheimer’s
0 52 36%
Subtotal 217 274
Source: Phone Survey Conducted 10/27/2014 – 10/28/2014 and COBI’s most recent submission of the
annual Housing Unit and Population Estimate Report for the Office of Financial Management
Table 18B – College Dormitory, Fraternity, or Sorority
Facility Name Type 2013 Population 2014 Population
Island Wood College Dormitory 20 22
Subtotal 20 22
Source: COBI’s most recent submission of the annual ‘Housing Unit and Population Estimate Report’ for
the Office of Financial Management
The following graphic tracks the entire senior group/multifamily unit housing on Bainbridge Island as of
2013. Bainbridge currently has a senior housing stock of 344 units. Multifamily senior housing
represents around 3% of housing units of the current stock.
Page | 33
Table 19 – Senior Housing Stock
Type Units
Madison Ave Retirement Center Assisted Living 53
Wyatt House Assisted Living 42
Madrona House Assisted Living
Assisted Living, number of units
have specific focus for residents
with dementia and Alzheimer's
81
Winslow Manor Apts Independent Senior Living 39
Finch Place Apartments Senior/Disabled 29
Virginia Villa Senior/Disabled 40
Winslow Arms Senior/Disabled 60
Total Senior Housing 344
Source: Phone Survey Conducted 10/27/2014 – 10/28/2014
Demographic Profile
The following section provides demographic information about Bainbridge Island over multiple planning
periods. The purpose of this information is to provide a cumulative profile of the City’s characteristics
and to show demographic trends over time. This community profile includes population, race and
ethnicity, household size, household type, age, educational attainment, persons in group quarters,
household income, wage and employment data, and immigration and migration trends. These
characteristics and trends will inform goals and policies during the Comprehensive Plan update process
and beyond.
Total Population and Growth
As depicted in Chart E and Table 20, Bainbridge Island saw significant population increases between
1960 and 2000, which then slowed to a relaxed but still positive rate. The Island’s population grew
rapidly between 1960 and 1980 by 77.6%. The following two decades showed a consistent rate of
growth around 28.5% per decade. Between 2000 and 2010, the 3% annual population growth of the
previous decades slowed to an approximate 13.5% increase in population for the whole decade.
Population growth between 2010 and 2013 has slowed even further to below 1% percent growth
(0.72%).
Page | 34
Chart E – Total Population and Growth
Source: Decennial United State Census (1960 – 2010); American Community Survey (2008-2012)
Total Households and Household Size
As would be expected, total households increased with population. Table 20 and Chart F show a steady
increase in total households on Bainbridge at a rate of around 30% per decade. While the total
population and households have increased since 1960, the average household size decreased steadily
from 3.06 in 1970 to 2.41 in 2013. Projected household size will likely continue to decrease very slightly
based on age demographic movements and current trends. This can be seen in Table 20 and Chart F.
6,404 8,494
12,314
15,846
20,308
23,025
23,196
-
5,000
10,000
15,000
20,000
25,000
1960 1970 1980 1990 2000 2010 2013
Year
Population of Bainbridge Island
Page | 35
Table 20 – Population, Total Household, and Household Size
Year 1960 1970 1980 1990 2000 2010 2013
Change
1990-
2010
Change
2000 -
2013
Population 6,404 8,494 12,314 15,846 20,308 23,025 23,190
Change 2,090 3,820 3,532 4,462 2,717 165 7,179 2,882
Percent
Change 32.64% 44.97% 28.68% 28.16% 13.38% 0.72% 45.3% 14.2%
Total
Households 2,778 4,558 6,177 7,979 10,584
Change 1,780 1,619 1,802 2,605 4,407
Percent
Change 64.07% 35.52% 29.17% 32.65% 71.3%
Average
Household
Size
3.06 2.7 2.57 2.52 2.41
Change -0.36 -0.13 -0.05 -0.11 -0.16
Percent
Change -11.77% -0.05% -0.02% -0.04% -6.2%
Source: Decennial United State Census (1960 – 2010); American Community Survey (2008-2012)
Chart F – Total Households and Average Household Size
Source: Decennial United State Census (1970 – 2010)
2,778
4,558
6,177
7,979
10,584
3.06 2.7 2.57 2.52 2.41
0
2,000
4,000
6,000
8,000
10,000
12,000
1970 1980 1990 2000 2010
Year
Total Households and Household Size
Total Households Average Household Size
Page | 36
Household Composition (Type)
The following table (Table 21) shows a breakdown of household types including family and non-family
households, whether children under eighteen are present, and single parent households. The number of
households on Bainbridge Island doubled between 1980 and 2010. In 1980 the number of married
couple households without children under eighteen years of age and those with children under eighteen
were the same. Since 1980, the number of households without children under eighteen living at home
consistently exceeded those with children. In fact, there was a sharp increase of households without
children by 2010. Both male and female headed-households with no spouse have continuously
increased since 1980, but it is important to note that there were three times as many female headed
households to males. Finally, non-family households, composed of unrelated persons, increased by
160% from 1980 to 2010.
Table 21 – Household Composition (Type)
Family Households Non-Family
Households
Married Couples Male Head –
No Spouse
Female Head -
No Spouse
(Unrelated
Persons)
Children
under 18
Total
Households Yes No Yes No Yes No Total
1980 4,558 1,509 1,509 53 49 190 147 1,101
1990 6,134 1,905 2,078 81 45 273 122 1,630
1980 -
1990
change
1,576 396 569 28 -4 83 -25 529
Percent
change 34.6% 26.2% 37.7% 52.80% -8.20% 43.70% -17.0% -52.0%
2000 7,979 2,391 2,592 114 75 372 225 2,200
1990 -
2000
change
1,845 486 514 33 30 99 103 570
Percent
change 40.50% 32.20% 34.10% 62.30% 61.20% 52.10% 70.10% -48.20%
2010 9,470 2,343 3,355 146 96 442 229 2,858
2000 -
2010
change
1,491 -48 763 32 21 70 4 658
Percent
change 18.7% -2.0% 29.4% 28.1% 28.0% 18.8% 1.8% 29.9%
Page | 37
Family Households Non-Family
Households
Married Couples Male Head –
No Spouse
Female Head -
No Spouse
(Unrelated
Persons)
Children
under 18
Total
Households Yes No Yes No Yes No Total
1980 -
2010
change
4,912 834 1,846 93 47 252 82 1,757
Percent
change 107.8% 55.3% 122.3% 175.5% 95.9% 132.6% 55.8% 159.6%
Source: Decennial United State Census (1980 – 2010)
Race Representation
According to the U.S. Census Bureau, the information on race in the 2000 Census and beyond cannot be
directly compared to the data in earlier censuses because respondents were and are able to select more
than one race category. The question sequence was altered and changes were made to the terminology.
The category of “some other race” includes responses to the “two or more races” and all other
responses not included in those specified in the first four categories. Persons of Hispanic origin are also
included in the other race categories.
As shown in Table 22, minority racial groups showed some growth in each category between 1980 and
1990. African Americans, Some Other Race, and Hispanic categories showed consistent growth through
2010. The Native American category showed a consistent decline since 1990. The Asian/Pacific Islander
category fluctuated slightly, but ultimately showed an increase in the population. As displayed in Table
22, minorities have consistently made up less than 10% of the population of Bainbridge Island since
1980.
Page | 38
Table 22 – Racial Representation
White African
American
Native
American
Asian/Pacific
Islander
Some
Other Race Total Hispanic
1980 11,639 23 70 482 40 12,314 60
Percent of
population 1980 95.0% 0.2% 0.6% 3.9% 0.3% 100.0% 0.5%
1990 15,071 43 156 522 54 15,846 237
Percent of
population 1990 95.10% 0.30% 1.0% 3.30% 0.30% 100.0% 1.5%
2000 18,863 57 125 509 754 20,308 440
Percent of
population 2000 92.9% 0.3% 0.6% 2.5% 3.7% 100.0% 2.2%
2010 20,963 100 111 784 1067 23,025 887
Percent of
population 2010 91% 0.4% 0.5% 3.4% 4.6% 100% 3.9%
Change 1980 - 2000 7,224 34 55 27 714 7,994 380
Percent change 62.1% 147.8% 78.8% 5.6% 1785.0% 64.9% 633.3%
Change 2000 - 2010 2,100 43 -14 275 313 2,717 447
Percent change 11.1% 75.4% -11.2% 54.0% 41.5% 13.4% 101.6%
Source: Decennial United State Census (1980 – 2010)
Page | 39
Chart G – Racial Representation in 2010
Source: Decennial United State Census (2010)
Age Distribution
As can be seen in Table 23 below and Charts H and I that follow, there have been significant changes in
age distributions of the Island’s population during the thirty-year span from 1980 to 2010. In 1980
Bainbridge Island had a fairly even distribution of age groups. Since that time the population has seen
significant increases in the five to seventeen, thirty-five to fifty-nine, and the sixty and over age groups,
so much so that these age groups make up 86% of the population. Further analysis of the trend of each
age group follows:
0 – 4 Age Group: The population of children ages zero to four declined by 10% between 2000
and 2010. This suggests that fewer births are occurring in Bainbridge Island than in previous
decades. This age group represents the smallest in size compared to the rest of the age groups.
5 – 17 Age Group: The population of children ages five to seventeen increased by 45% between
1990 and 2010. In addition, the representation of this age group stayed around 20% of the
population.
91%
0.4%
0.5%3.4%
4.6%
Racial Representation
White African American Native American Asian/Pacific Islander Some Other Race
Page | 40
18 – 34 Age Group: The population of adults ages eighteen to thirty-four continuously declined
between 1980 and 2000. However, this age group increased by 100 individuals between 2000
and 2010. This age group represents the second smallest in size compared to the rest of the age
groups.
35 – 59 Age Group: The population of adults between the ages of thirty-five and fifty-nine has
nearly tripled between 1980 and 2010. This age group has consistently represented the largest
in size compared to the other age groups.
60 and Over Age Group: The population of adults sixty years and older has increased by 72%
between 2000 and 2010. It surpassed the five to seventeen year old age group during this time,
making it the second largest age group compared to the other age groups.
Table 23 – Population by Age
Age Group 0 to 4 5 to 17 18 to 34 35 to 59 60+ Total
1980 729 2,807 2,914 3,887 1,977 12,314
Percent of
Total 5.90% 22.80% 23.70% 31.60% 16.10% 100%
1990 1,046 3,106 2,411 6,438 2,845 15,846
Percent of
Total 6.60% 19.60% 15.20% 40.60% 18.00% 100%
2000 1,036 4,388 2,150 9,271 3,463 20,308
Percent of
Total 5.10% 21.60% 10.60% 45.70% 17.10% 100%
2010 931 4,518 2,249 9,358 5,969 23,025
Percent of
Total 4.0% 19.6% 9.8% 40.6% 26.0% 100%
Change 1990
- 2010 -115 1,412 -162 2,920 3,124 7,179
Percent
Change 1990
- 2010
-11.00% 45.46% -6.72% 45.36% 109.81% 45.30%
Change 2000
- 2010 -105 130 99 87 2,506 2,717
Percent
Change 2000
- 2010
-10.13% 2.96% 4.60% 0.94% 72.37% 13.38%
Source: Decennial United State Census (1980 – 2010)
Page | 41
Chart H – Population by Age (Bar Chart)
Source: Decennial United State Census (1980 – 2010)
729 1,046 1,036 931
2,807 3,106 4,388 4,518
2,914 2,411
2,150 2249
3,887
6,438
9,271 9358
1,977
2,845
3,463
5969
0
5000
10000
15000
20000
25000
1980 1990 2000 2010
Year
Population by Age
0 to 4 5 to 17 18 to 34 35 to 59 60+
Page | 42
Chart I – Population by Age (Trend Chart)
Source: Decennial United State Census (1980 – 2010)
0
5000
10000
15000
20000
25000
1980 1990 2000 2010
Year
Population by Age
0 to 4 5 to 17 18 to 34 35 to 59 60+
Page | 43
Educational Attainment
Bainbridge Island has a relatively high educational attainment rate. As of 2010, around 98% of the
population 25 years old and over had obtained a high school degree or higher and almost 65% of 25 year
olds and older obtained a bachelor’s degree. In addition, both statistics increased between 2000 and
2010. A detailed breakdown of educational obtainment comparing 2000 to 2010 can be seen below in
the Chart J.
Chart J – Educational Attainment
Source: Decennial United State Census (1980 – 2010)
Household Income
The Bainbridge Island Median Household Income, according to the 2010 Census, was $92,558.00
compared to the Kitsap County Median Household Income of $61,776.00. Between 2000 and 2010, the
Bainbridge Median Income jumped $22,447 compared to Kitsap’s increase of $14,802. However, the
percentage increase in Median Income was consistent between Bainbridge Island and the rest of Kitsap
County.
0 1000 2000 3000 4000 5000 6000 7000
Less than 9th grade
9th to 12th grade, no diploma
High school graduate (includes equivalency)
Some college, no degree
Associate degree
Bachelor's degree
Graduate or professional degree
Educational Attainment
2010 2000
Page | 44
Table 24 – Bainbridge Island & Kitsap County Income Figures
1990 2000
Percent
change
1990 and
2000
2010
Percent
change
2000 and
2010
Percent
change
1990 and
2010
Median Household Income
Bainbridge $ 42,135.00 $ 70,110.00 66.40% $ 92,558.00 32.0% 119.7%
Kitsap $ 32,038.00 $ 46,840.00 46.20% $ 61,776.00 31.9% 92.8%
Median Family Household Income
Bainbridge $ 51,971.00 $ 83,415.00 60.50% $ 120,200.00 44.1% 131.3%
Kitsap $ 36,942.00 $ 53,878.00 45.80% $ 73,731.00 36.8% 99.6%
Average Household Income
Bainbridge $ 57,751.00 $ 93,078.00 61.20% $ 130,379.00 40.1% 125.8%
Kitsap $ 38,095.00 $ 58,299.00 53.0% $ 77,782.00 33.4% 104.2%
Per Capita
Income
Bainbridge $ 22,437.00 $ 37,482.00 67.10% $ 53,589.00 43.0% 138.8%
Kitsap $ 14,282.00 $ 22,317.00 56.30% $ 31,287.00 40.2% 119.1%
Source: Decennial United State Census (1990 – 2010)
Wage and Employment Data
Employment Status
Table 25 shows the trends of employment status on Bainbridge Island. The combination of an increase
in population of 60 years and older age group, who typically are retired or working less, and the Great
Recession are likely factors in the increases in the categories “Population Not in the Labor Force” and
“Unemployment.”
Page | 45
Table 25 – Employment Status
2000 2010
Number Percent Number Percent
Population 16 years and over 15,626 100% 18,627 100%
In labor force 10,026 64.2% 11,196 60.1%
Civilian labor force 9,929 63.5% 11,125 59.7%
Employed 9,670 61.9% 10,284 55.2%
Unemployed 259 1.7% 841 4.5%
Armed Forces 97 0.6% 71 0.4%
Not in labor force 5,600 35.8% 7,431 39.9%
Own children under 6 years 1,198 100% 1,147
All parents in family in labor force 513 42.8% 660 57.5%
Own children 6 to 17 years 3,959 3,959
All parents in family in labor force 2,332 58.9%
Source: Decennial United State Census (2000 – 2010)
Table 26 shows the percentages of families and individuals whose incomes in the last year were below
the poverty line in the years 2000 and 2010. Almost every category within the Poverty Status Table was
higher in the 2010 census verses the 2000 census, but this seems expected at the height of the recession
in 2010.
Table 26 – Poverty Status
2000 2010
Number Percent Number Percent
All families 171 3% 3.3%
With related children under 18 years 115 3.9% 4.5%
With related children under 5 years
only 36 4.1% 10.9%
Married couple families 2.0%
With related children under 18 years 2.6%
With related children under 5 years
only 7.5%
Families with female householder,
no husband present 72 12.1% 12.9%
With related children under 18 years 55 14% 12.2%
With related children under 5 years
only 18 31% 22.9%
Page | 46
2000 2010
Number Percent Number Percent
All people 896 4.4% 5.4%
Under 18 years 5.9%
Related children under 18 years 206 3.8% 5.4%
Related children under 5 years 14.1%
Related children 5 to 17 years 168 3.9% 3.5%
18 years and over 686 4.7% 5.3%
18 to 64 years 6.2%
65 years and over 81 3.3% 2.1%
People in families 3.4%
Unrelated individuals 15 years and over 362 12.8% 16.5%
Source: Decennial United State Census (2000 – 2010)
The number of employed residents who are sixteen years and over increased from 9,670 in 2000 to
10,284 in 2010. While the majority of occupational categories were consistent, “Natural Resources,
Construction, and Maintenance” occupations decreased by a three-fourths and “Production,
Transportation, and Material Moving” occupations decreased by nearly half over the decade. This can
be seen in the two occupation charts that follow (Chart K and Chart L).
Chart K – Occupations of Bainbridge Island Residents (1)
Source: Decennial United State Census (2000)
56%
12%
20%
20%
7%
Occupations of Bainbridge Island Residents in
2000
Management, business, science,
and arts occupations
Service occupations
Sales and office occupations
Natural resources, construction,
and maintenance occupations
Production, transportation, and
material moving occupations
Page | 47
Chart L – Occupations of Bainbridge Island Residents (2)
Source: Decennial United State Census (2010)
Chart M compares the Median Household Income of Bainbridge Island and Kitsap County to the Annual
Median Wages for a selected range of occupations found on Bainbridge Island. The occupational wages
of the Bremerton-Silverdale area and the Seattle-Bellevue-Everett area were averaged per position to
better represent the possible wages of individuals on Bainbridge as surveyed by the Washington State
Employment Security Department.
58.6%
13.0%
19.4%
5.5%
3.6%
Occupations of Bainbridge Island Residents in
2010
Management, business, science,
and arts occupations
Service occupations
Sales and office occupations
Natural resources, construction,
and maintenance occupations
Production, transportation, and
material moving occupations
Page | 48
Chart M - Median Income in 2010 verses Median Wages in 2013
Source: 2013 Occupational Employment and Wages Estimates – Labor Market and Economic Analysis,
June 2013, Washington State Employment Security Department
Page | 49
Immigration and Migration
As of 2012, almost 90% of householders on Bainbridge Island had moved into their current residence
before 2009. Only 38% of Bainbridge Island householders moved into their current residence before
1999. These trends mimic the trends in population growth as well as the economically-charged housing
market through the early 2000 before the recession. These numbers are displayed in Chart 27.
Chart 27 – Year Householder Moved into Unit
Number Percent
Occupied housing units 9,325 100%
Moved in 2010 or later 964 10.30%
Moved in 2000 to 2009 4,827 51.80%
Moved in 1990 to 1999 2,004 21.50%
Moved in 1980 to 1989 873 9.40%
Moved in 1970 to 1979 376 4.00%
Moved in 1969 or earlier 281 3.00%
Source: American Community Survey 2008-2012
Determining Existing and Future Housing Needs
The Housing Element should include an inventory and analysis of existing and projected housing needs.
The element should identify the number of housing units necessary to accommodate projected growth,
including government-assisted housing, housing for low-income families, manufactured housing,
multifamily housing, and group homes and foster care facilities.
Determining the existing need for housing at all income levels is an important step for jurisdictions in
evaluating current policies and provides the basis for determining future housing needs of projected
housing growth.
WAC rules identify topics to consider when looking at housing needs, including:
● Workforce housing
● Jobs-to-housing-balance
● Reasonable measure to address inconsistencies found in the Buildable Lands Report
● Affordable housing
Page | 50
Methods to Assess Housing Needs
Cost Burden Analysis
The US Department of Housing and Urban Development (HUD) defines any household spending more
than 30% of household income on housing as “cost burdened.” Extremely cost burdened households are
defined as households that pay more than 50 percent of income on housing. Households that pay more
than 30 percent of their income for housing may face additional financial challenges for purchasing food,
education, transportation, and medical care. Extremely cost-burdened low-income households are at
risk of becoming homeless. The percentage of households that are cost burdened, in addition to the
percentage that is extremely cost burdened, is an indicator of an existing unmet need for affordable
housing.
A cost burden analysis is applied both to renter and owner households. The WAC requires jurisdictions
to make adequate housing provisions for all economic segments of the community; a cost burden
analysis will help determine the existing and projected housing need. Table 29 displays household
income, monthly housing costs, and monthly housing costs as a percent of household income for
Bainbridge Island in 2012. Each set is divided into total occupied housing units, owner-occupied housing
units, and renter-occupied housing units.
The last set in Table 29 shows the percent of residents whose monthly housing costs make up more than
30% of their income, which is Bainbridge Island’s cost burden analysis. However, there are some
important points to make from the other two table sections. As displayed in Table 29A, median
household income for owner-occupied housing units ($110,670) was more than double the median
household income of renter-occupied units ($46,905). The number of owner-occupied housing units
(7,329) is over three-and-a-half times the number of renter-occupied units (1,996). The significant
difference in income levels between the overall median household income of $92,558, which is still
almost double to the $46,905 of median income for individuals and families in renter-occupied units, is
tied to the types of housing units available.
Page | 51
Table 29A – Cost Burden Analysis: Household Income in 2012
Total Occupied Housing
Units
Owner-Occupied
Housing Units
Renter-Occupied
Housing Units
Estimate Margin of
Error Estimate Margin of
Error Estimate Margin of
Error
Occupied Housing Units 9,325 +/-256 7,329 +/-323 1,996 +/-254
Household Income in the Past Twelve Months (in 2012 Inflation-Adjusted Dollars)
Less than $5,000 1.6% +/-0.8 1.5% +/-0.9 1.7% +/-1.6
$5,000 to $9,999 1.8% +/-1.0 0.7% +/-0.6 5.9% +/-4.1
$10,000 to $14,999 1.2% +/-0.8 1.3% +/-0.9 0.7% +/-1.1
$15,000 to $19,999 3.2% +/-1.2 1.7% +/-0.9 8.7% +/-4.4
$20,000 to $24,999 3.3% +/-1.3 3.6% +/-1.4 2.3% +/-2.1
$25,000 to $34,999 6.0% +/-2.0 3.5% +/-1.2 15.1% +/-7.6
$35,000 to $49,999 11.1% +/-2.3 9.6% +/-2.6 16.4% +/-6.7
$50,000 to $74,999 13.1% +/-2.4 11.6% +/-2.3 18.2% +/-6.8
$75,000 to $99,999 12.2% +/-2.1 11.4% +/-2.2 15.4% +/-5.1
$100,000 to $149,999 19.1% +/-2.5 21.5% +/-2.9 10.4% +/-5.8
$150,000 or more 27.4% +/-2.9 33.5% +/-3.3 5.2% +/-2.8
Median Household Income $92,558 +/-9,860 $110,670 +/-7,103 $46,905 +/-10,469
Source: American Community Survey (2008 – 2012)
Table 29B displays Bainbridge Island’s monthly housing costs in 2012. Over 43% of individuals and
families pay more than $2,000 a month in housing costs. Furthermore, 52% of individuals and families
that own their housing unit pay more than $2,000. The majority (31.5%) of renter-occupied housing
units pay between $1,000 and $1,499 a month. However, 23% of renters pay $1,500 or more a month
for housing. Monthly housing costs will also be useful in the Workforce Housing Analysis.
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Table 29B – Cost Burden Analysis: Monthly Housing Costs in 2012
Occupied housing units Owner-Occupied Housing
Units
Renter-Occupied Housing
Units
Estimate Margin of
Error Estimate Margin of
Error Estimate Margin of
Error
Less than $100 0.2% +/-0.3 0.2% +/-0.4 0.0% +/-1.6
$100 to $199 0.7% +/-0.6 0.8% +/-0.7 0.7% +/-1.1
$200 to $299 1.9% +/-1.1 0.6% +/-0.5 6.6% +/-4.8
$300 to $399 0.8% +/-0.8 1.1% +/-1.1 0.0% +/-1.6
$400 to $499 1.7% +/-0.9 1.6% +/-0.8 2.4% +/-2.2
$500 to $599 3.2% +/-1.3 3.2% +/-1.2 3.4% +/-3.7
$600 to $699 2.9% +/-1.0 2.7% +/-1.1 3.7% +/-2.7
$700 to $799 5.2% +/-1.3 4.8% +/-1.2 6.8% +/-3.9
$800 to $899 5.2% +/-2.0 2.8% +/-1.1 14.0% +/-7.0
$900 to $999 3.7% +/-1.3 3.4% +/-1.5 4.8% +/-2.9
$1,000 to $1,499 17.1% +/-2.4 13.2% +/-2.3 31.5% +/-6.8
$1,500 to $1,999 13.3% +/-2.2 13.7% +/-2.5 11.7% +/-4.6
$2,000 or more 43.4% +/-2.9 52.0% +/-3.0 11.9% +/-5.7
No cash rent 0.6% +/-0.5 (X) (X) 2.7% +/-2.1
Median (dollars) 1,800 +/-87 2,079 +/-120 1,089 +/-105
Source: American Community Survey (2008 – 2012)
Table 29C shows the calculation of five different income groups’ cost burden. Based on 2012 data, over
35% of all residents at all income levels experience housing cost burden on Bainbridge Island. Almost
34% of individuals and families at all income levels who live in owner-occupied housing units are cost
burdened. The majority (around 14%) of these residents have an income of $75,000 or more a year.
Almost 40% of individuals and families at all income levels who live in renter-occupied housing units are
cost burdened. The majority (around 28%) of these residents have an annual income between zero and
$34,999. This means that as of 2012, 569 renters on the Island that have an income of $34,999 or less
are housing cost burdened. This is concerning as lower income cost burdened households are more
likely to have to choose between housing costs and other necessities.
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Table 29: C - Monthly Housing Costs as a Percentage of Household Income in 2012
Occupied housing units Owner-Occupied
Housing Units
Renter-Occupied Housing
Units
Monthly Housing Costs Estimate Margin of
Error Estimate Margin of
Error Estimate Margin of
Error
Monthly Housing Costs as a Percentage of Household Income in the Past 12 Months
Less than $20,000 6.8% +/-1.8 4.6% +/-1.6 15.0% +/-6.0
Less than 20 percent 0.8% +/-0.6 0.6% +/-0.6 1.3% +/-1.1
20 to 29 percent 0.3% +/-0.3 0.3% +/-0.4 0.0% +/-1.6
30 percent or more 5.8% +/-1.8 3.6% +/-1.5 13.8% +/-5.9
$20,000 to $34,999 9.3% +/-2.2 7.1% +/-1.7 17.4% +/-7.6
Less than 20 percent 1.1% +/-0.9 0.8% +/-0.6 2.3% +/-3.6
20 to 29 percent 0.7% +/-0.5 0.8% +/-0.6 0.5% +/-0.7
30 percent or more 7.5% +/-2.0 5.5% +/-1.7 14.7% +/-7.1
$35,000 to $49,999 10.9% +/-2.3 9.6% +/-2.6 15.8% +/-6.7
Less than 20 percent 2.5% +/-1.0 2.3% +/-1.0 3.1% +/-3.7
20 to 29 percent 2.6% +/-1.3 1.2% +/-1.1 7.5% +/-4.8
30 percent or more 5.9% +/-1.7 6.1% +/-2.0 5.2% +/-2.9
$50,000 to $74,999 12.9% +/-2.4 11.6% +/-2.3 17.6% +/-6.9
Less than 20 percent 4.2% +/-1.3 3.9% +/-1.4 5.5% +/-3.6
20 to 29 percent 4.1% +/-1.3 2.9% +/-1.1 8.5% +/-5.4
30 percent or more 4.6% +/-1.3 4.9% +/-1.5 3.6% +/-2.2
$75,000 or more 58.8% +/-3.2 66.3% +/-3.2 31.0% +/-8.1
Less than 20 percent 31.5% +/-3.0 35.1% +/-3.5 18.3% +/-6.2
20 to 29 percent 16.0% +/-2.3 17.5% +/-2.5 10.7% +/-5.8
30 percent or more 11.3% +/-2.2 13.8% +/-2.6 2.1% +/-2.0
Zero or negative income 0.7% +/-0.5 0.7% +/-0.5 0.5% +/-0.8
No cash rent 0.6% +/-0.5 (X) (X) 2.7% +/-2.1
Source: American Community Survey (2008 – 2012)
Housing cost burden is one important measure of how well the existing housing market is meeting
actual needs of residents. Policy implications could include measures to stimulate housing production
and a variety of housing types. Previous indicators and this analysis suggest that an increased production
in apartments, both market-rate and rent-assisted, would benefit the City of Bainbridge. However, there
are limits to meeting affordability needs through new housing production alone and a full range of other
tools targeted specifically to affordable, below market rate housing preservation and production are
necessary as well.
Affordability by Income Level Analysis
Affordability of housing is considered in relation to the amount of income available to households. PSRC
suggests Area Median Income (AMI) as a benchmark of the median income assessed by HUD at the
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Metropolitan Statistical Area or the Fair Market Rent Area, which is used to determine eligibility for
subsidized housing. To determine the AMI associated with our jurisdiction, household incomes were
divided into the categories below representing different levels of affordability based on the Median
Family Income of Bainbridge Island in 2012.
This method of analysis complements and builds upon the employment and household growth targets
set by each county and meets GMA and VISION 2040 requirements to plan for a range of housing
options and affordability at all income levels. When applied to the existing housing stock, this analysis
provides a measure of existing need. With a few simple assumptions, future need can be described
based on the percent of households in each income category.
Table 30 – Area Median Income Categories (Comparing Regional and Jurisdictional Shares)
Income Category
Percent Area
Median Income
(AMI)
Regional Share Jurisdictional
Share
Household Income
Ranges
Upper-income
households
Earning more than
120% of AMI
35% of
households
46% of
households $111,070 and Above
Middle-income
households
Earning 80% to
120% of AMI
22% of
households
13% of
households $74,047 - $111,070
Moderate-income
households
Earning 50% to 80%
of AMI
18% of
households
13% of
households $74,047 - $46,279
Low-income
households
Earning 30% to 50%
of AMI
12% of
households
17% of
households $46,279 - $27,767
Very low-income
households
Earning less than
30% of AMI
13% of
households
11% of
households $27,767 - $0.00
Source: PSRC Housing Element Guide 2014 and American Community Survey (2008-2012)
The above table shows that Bainbridge Island’s jurisdictional share deviates from the proscribed regional
share. The number of upper-income households is 10% higher than suggested, while the middle-income
and moderate-income are 9% and 5% lower respectively. This first step in the affordability by income
analysis suggests that Bainbridge Island could increase its stock of middle- and moderate-income
households.
Table 31 gives the number of housing units per price range on Bainbridge Island based on 2013 data
from Kitsap County’s Assessor’s Office. The data removed all assessed land that did not have any
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additional value added and rolled up housing number values into set price ranges to see how many
housing units were in a specific price range. This can be an indicator of how many units are in each
income price range and how many units at specific price ranges the City could encourage to promote
affordable housing at all income levels.
The data gives some insight to the current housing stock on Bainbridge Island. Based on the number of
assessed value units, over half of the housing units on the Island are condominiums, mobile homes, or
homes between the $100,000 to $299,999 price ranges. The number of condominiums on the Island has
increased over the last decade with a number of developments in the Winslow area including Harbor
Square and some of the Grow properties. Condominiums are an effective approach to housing an aging
population, which is consistent with the demographic information on Bainbridge. However, this housing
does not support young families who want to raise a family in a house on the Island. As shared earlier,
the average single family home value is nearly $700,000 this year. The number of housing units in the
market value ranges compared to the number of income households is another indicator that more
affordable housing is needed in the middle, moderate and lower income ranges.
Table 31 – Number of Housing Units per Price Range
Market Value Range Count in Range Percentage
$0.00 - $49,999 37 0.66%
$50,000 - $99,999 244 4.36%
$100,000 - $199,999 1350 24.15%
$200,000 - $299,999 1588 28.41%
$300,000 - $399,999 909 16.26%
$400,000 - $499,999 479 8.57%
$500,000 - $599,999 301 5.38%
$600,000 - $699,999 168 3.01%
$700,000 - $799,999 107 1.91%
$800,000 - $899,999 64 1.14%
$900,000 - $999,999 77 1.38%
$1,000,000 - $1,999,999 186 3.33%
$2,000,000 - $2,999,999 41 0.73%
$3,000,000 - $3,999,999 10 0.18%
$4,000,000 - $4,999,999 8 0.14%
$5,000,000 - $5,999,999 7 0.13%
$6,000,000 - $6,999,999 3 0.05%
$7,000,000 - $7,999,999 3 0.05%
$8,000,000 - $8,999,999 1 0.02%
$9,000,000 - $9,999,999 7 0.13%
Total 5590 100.00%
Source: Kitsap County Assessor’s Office – 2013 Assessed Value Data
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Table 32 compares rent limits based on 2013 Income Limits for Seattle-Bellevue HUD Metro Fair Market
Rent Area to current market rental prices on Bainbridge Island. The purpose of this analysis is to show
the range of rental amounts that would be affordable for different sizes of housing units and
households. Based on the AMI categories above, the average rental prices are affordable at the top of
the income ranges while 43% of households in the community are cost burdened and qualify for
assistance or more opportunities for affordable housing. It is important to reiterate that 28% of
residents on the Island are very-low or low income and only around 6% of housing units are dedicated to
affordable housing on Bainbridge Island (including rental and Ferncliff Village houses).
Table 32 – Affordable Rents by Bedroom Size
Unit Type 2014 Average
Rental Price
Very low-
income
households
(< 30% MFI)
Low-income
households
(30% - 50%
AMI)
Moderate-
income
households
(50% - 80%
AMI)
Studios $ 944.00 $ 455.00 $ 758.00 $ 1,127.00
1 BR $ 981.00 $ 487.00 $ 813.00 $ 1,208.00
2 BR $ 1,384.00 $ 585.00 $ 976.00 $ 1,450.00
3 BR $ 1,744.00 $ 676.00 $ 1,127.00 $ 1,675.00
Source: 2013 Income Limits for Seattle-Bellevue HMFA and Phone Survey Conducted 10/27/2014 –
10/28/2014
Ideally, the existing stock of housing will be affordable to meet the needs of households at all income
levels. A shortfall of housing affordable at any income level, particularly levels below 80% of AMI,
indicates an existing need that should be addressed through new policies in the Housing Element. Based
on the above data, there are shortfalls for middle- and moderate-income households in general and the
number of rental units for very low- and low-income households. As a related issue, vacancy rates across
segments or the entirety of the housing market are also a major factor in housing availability and price.
Low vacancy rates can exert upward pressure on rents and low vacancy rates themselves mean that
relatively few units are available to meet households that need housing at any one time. As displayed
earlier in this report and previous reports, Bainbridge Island has had and continues to have historically
low vacancy rates.
Workforce Housing
Workforce housing refers to housing that is affordable to individuals employed in the community,
especially housing at affordability levels that are not provided for adequately by the private market.
The WAC requires jurisdictions to address the housing needs of the local workforce in Comprehensive
Planning. If there is no housing that is affordable to employees at local public and private employers,
workers may have longer commutes, undermining goals for transportation and the environment.
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Table 33 displays selected professions common to citizens of Bainbridge Island and whether they work
on the Island or in Seattle. Each position can be compared to the top two measures at the top of the
table (‘Household Income Needed to Purchase Average Priced Home in 2013: $602,500’ and ‘Median
Income’) to see if the income the profession provides meets median affordability.
It is important to point out that the calculation for ‘Affordable Home Prices’ is actually lower because
this calculation does not include the costs of a mortgage, insurance, or repairs and upkeep. The
assumptions needed for this calculation vary too much in reality to the fluctuations of the housing
market in the last decade. Assessed value has increased with the housing bubble, significantly decreased
with the housing market crash, and increased with the recovery over this period of time. Those
fluctuations in assessed value have a significant impact on taxes, interest rates, and ultimately house
insurance. In addition, a home owner may increase the value of their home through renovation or
decrease the value of their home by not keeping up with maintenance and repairs. All of these factors
influence affordability.
Table 33 – Workforce Housing Affordability
Affordable Home
Price (30 yr fixed
mortgage)
Interest
Rate
Max. Monthly
Mortgage Payment
(Principal &
Interest)
Estimate of
Monthly Real
Estate Taxes/
Insurance
Other Fees
(e.g. Ground
Lease, HOA)
Available for Annual
Mortgage Payment below
cost burdened benchmark
(30% Monthly Income)
Annual
Income
Average Bainbridge Island Single-Family Home Sales Price in 2013: $602,500
Median Income $320,357 5.50% $1,818.95 $375.00 $120.00 $2,314 $92,558
Marketing
Managers $430,723 5.50% $2,445.60 $500.00 $120.00 $3,066 $122,624
Lawyers $386,667 5.50% $2,195.45 $450.00 $120.00 $2,765 $110,618
Financial Analysts $350,733 5.50% $1,991.43 $400.00 $120.00 $2,511 $100,457
Fire Fighting &
Prevention
Supervisors
$324,777 5.50% $1,844.05 $375.00 $120.00 $2,339 $93,562
Registered
Nurses $262,796 5.50% $1,492.13 $350.00 $120.00 $1,962 $78,485
Urban & Regional
Planners $249,358 5.50% $1,415.83 $350.00 $120.00 $1,886 $75,433
Chemists $240,094 5.50% $1,363.23 $350.00 $120.00 $1,833 $73,329
Fire Fighters $245,985 5.50% $1,396.68 $300.00 $120.00 $1,817 $72,667
Market Research
Analysts $241,652 5.50% $1,372.08 $300.00 $120.00 $1,792 $71,683
Police & Sheriff's
Patrol Officers $229,592 5.50% $1,303.60 $300.00 $120.00 $1,724 $68,944
Accountants &
Auditors $227,703 5.50% $1,292.88 $300.00 $120.00 $1,713 $68,515
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Affordable Home
Price (30 yr fixed
mortgage)
Interest
Rate
Max. Monthly
Mortgage Payment
(Principal &
Interest)
Estimate of
Monthly Real
Estate Taxes/
Insurance
Other Fees
(e.g. Ground
Lease, HOA)
Available for Annual
Mortgage Payment below
cost burdened benchmark
(30% Monthly Income)
Annual
Income
Librarians $224,555 5.50% $1,275.00 $300.00 $120.00 $1,695 $67,800
Computer
Network Support
Specialists
$213,750 5.50% $1,213.65 $300.00 $120.00 $1,634 $65,346
Teachers &
Instructors $189,489 5.50% $1,075.90 $250.00 $120.00 $1,446 $57,836
Postal Service
Mail Carriers $173,594 5.50% $985.65 $250.00 $120.00 $1,356 $54,226
Real Estate Sales
Agents $167,197 5.50% $949.33 $250.00 $120.00 $1,319 $52,773
Healthcare
Practitioner &
Tech Workers
$156,176 5.50% $886.75 $250.00 $120.00 $1,257 $50,270
Biological
Technicians $147,282 5.50% $836.25 $200.00 $120.00 $1,156 $46,250
Painters,
Construction &
Maintenance
$143,693 5.50% $815.88 $200.00 $120.00 $1,136 $45,435
Bus Drivers,
School $122,004 5.50% $692.73 $150.00 $120.00 $963 $38,509
Retail
Salesperson $88,818 5.50% $504.30 $150.00 $120.00 $774 $30,972
Nursing
Assistants $84,961 5.50% $482.40 $150.00 $120.00 $752 $30,096
Bakers $82,914 5.50% $470.78 $150.00 $120.00 $741 $29,631
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Affordable Home
Price (30 yr fixed
mortgage)
Interest
Rate
Max. Monthly
Mortgage Payment
(Principal &
Interest)
Estimate of
Monthly Real
Estate Taxes/
Insurance
Other Fees
(e.g. Ground
Lease, HOA)
Available for Annual
Mortgage Payment below
cost burdened benchmark
(30% Monthly Income)
Annual
Income
Cashiers $75,380 5.50% $428.00 $150.00 $120.00 $698 $27,920
Waiters &
Waitresses $74,425 5.50% $422.58 $150.00 $120.00 $693 $27,703
Maids & House
Cleaners $59,771 5.50% $339.38 $150.00 $120.00 $609 $24,375
Source: 2013 Occupational Employment and Wage Estimates Washington State Employment Security Department Labor Market and Economic
Analysis, June 2013
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An analysis of housing needs for the local workforce will strengthen planning efforts to ensure housing
affordability for the individuals who work within the jurisdiction. Based on the above numbers, a gap in
housing affordable for the workforce has been identified. Workers in service professions may be
challenged to find affordable housing near their employment. This can cause workers to have to travel
longer distances to work. This increase in transportation costs increases their cost burden as well as
adding demands to the transportation system and the environment. Programs and regulations may be
needed to create opportunities for more affordable ownership or rental housing. Development
incentives tied to affordability have proven successful for providing housing that meets the needs of the
workforce.
Jobs/Housing Balance
Jobs/housing balance is a measure that compares the amount of employment vs. the amount of housing
in a specific geographic area. Typically, a jobs/housing balance is calculated by dividing jobs within in
geography by the number of housing units in that geography. There are approximately 1.15 jobs for
every housing unit in the 4-county central Puget Sound region as a whole. This is a ratio that is close to
representing jobs/housing balance across the entire regional commute-shed. The range included in the
average includes jurisdictions with jobs centers with jobs/housing balance as high as 3 jobs per housing
unit to more residential communities with less than .5 jobs per housing units. A low jobs/housing ratio
indicates a housing-rich “bedroom community,” while a high jobs/housing ratio indicates an
employment center.
Providing an appropriate balance between jobs and housing ensures that workers have access to
housing near their work. Measuring jobs/housing balance around major employment centers and within
individual communities provides jurisdictions an opportunity to work with neighboring cities and towns
to reconcile the geographic distribution of housing and employment opportunities. It is important to
note that a jobs/ housing balance is already reflected in each jurisdiction’s housing targets developed at
the countywide level. Jurisdictions should not modify their housing target based on a jobs/housing
analysis, but may use this analysis at a neighborhood level to plan effectively for projected household
and employment growth.
Bainbridge Islands jobs/housing balance is .59 jobs for every housing unit in the City, making it a
“bedroom community.” PSRC suggests that housing-rich neighborhoods can add employment to provide
more access for current residents to economic opportunities. Planning to move toward a more balanced
distribution of housing and jobs within a jurisdiction can help to achieve a number of transportation and
environmental goals as the need to commute long distances by private auto declines.
Housing + Transportation Costs Index
A Housing + Transportation Costs Index represents the percentage of household income spent on
housing and transportation. This tool expands on the cost burden analysis to account for transportation
costs. Housing costs may be lower in more suburban areas for modest and low-income households, but
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the Housing + Transportation analysis incorporates the resulting increase in transportation for a more
comprehensive definition of affordability.
This approach addresses the location of housing within a community and the provision of transportation
infrastructure and services as components of the total affordability picture. Increasingly, affordability is
defined by the confluence of housing and transportation costs. After the cost of housing, the largest
expense for most households is transportation. The location cost of transportation is largely determined
by the range of transportation options available in a given location in addition to the average length of
the trips for work, education, and other daily needs. Locations with better access to transit and other
alternative transportation modes generally result in lower transportation costs. Bainbridge Island
residents show a significant increase in their housing + transportation cost burden as a number of
residents commute to Seattle, other sections of King County and Kitsap County. Transportation costs can
range from the costs of bus passes, ferry passes, and gasoline/maintenance for cars.
The Housing +Transportation analysis may be used to develop affordable housing policies that focus the
development of housing, and specifically affordable housing, in areas with lower transportation costs. A
Housing +Transportation analysis provides the basis for developing policies and investing financial
resources to support equitable transit oriented development (TOD). A recent Sustainable Communities
Grant, awarded by HUD to the PSRC, funded the Growing Transit Communities Partnership and Strategy,
which outlines strategies to leverage transit investment through equitable TOD. Strategies outlined
through the Growing Transit Communities Partnership aim to mitigate and reverse the negative
community, environmental, and economic impacts of a high housing and transportation costs by
developing policies that facilitate the concentration of affordable housing, employment, and services
near transit.
Special Needs Housing
Special needs housing refers broadly to housing accommodations for individuals with physical and
mental disabilities, seniors, veterans, individuals with mental illness, individuals with chronic and acute
medical conditions, individuals with chemical dependency, survivors of domestic violence, and adult,
youth, and families who are homeless. Planning for special needs populations is integral to the success
of an economically and socially vibrant Puget Sound Region. Both GMA and the WAC specifically require
jurisdictions to “address how the county or city will provide for group homes, foster care facilities, and
facilities for other populations with special needs” (WAC 365-196-410)
As displayed above in the Special Needs Housing on page 32, there was an increase in units for assisted
living in the last decade. However, with the significant increase in seniors and an aging population, more
planning for senior housing could be important to a successful plan for future housing on Bainbridge
Island.
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Appendix
Washington Administrative Code (WAC)
Furthermore, the WAC recommends the following to meet the requirements of the Housing Element.5
The Housing Element shows how a county or city will accommodate anticipated growth, provide a
variety of housing types at a variety of densities, provide opportunities for affordable housing for all
economic segments of the community, and ensure the vitality of established residential neighborhoods.
The following components should appear in the housing element:
7) Housing goals and policies.
a) The goals and policies serve as a guide to the creation and adoption of development regulations
and may also guide the exercise of discretion in the permitting process.
b) The housing goals and policies of counties and cities should be consistent with county-wide
planning policies and, where applicable, multicounty planning policies.
c) Housing goals and policies should address at least the following:
i) Affordable housing;
ii) Preservation of neighborhood character; and
iii) Provision of a variety of housing types along with a variety of densities.
d) Housing goals and policies should be written to allow the evaluation of progress toward
achieving the housing element's goals and policies.
8) Housing inventory
a) The purpose of the required inventory is to gauge the availability of existing housing for all
economic segments of the community.
b) The inventory should identify the amount of various types of housing that exist in a community.
The act does not require that a housing inventory be in a specific form. Counties and cities
should consider WAC 365-196-050 (3) and (4) when determining how to meet the housing
inventory requirement and may rely on existing data.
c) The housing inventory may show the affordability of different types of housing. It may provide
data about the median sales prices of homes and average rental prices.
d) The housing inventory may include information about other types of housing available within
the jurisdiction such as:
i) The number of beds available in group homes, nursing homes and/or assisted living
facilities;
ii) The number of dwelling units available specifically for senior citizens;
iii) The number of government-assisted housing units for lower-income households.
9) Housing needs analysis
a) The purpose of the needs analysis is to estimate the type and densities of future housing
needed to serve all economic segments of the community. The housing needs analysis should
5 WAC 365-196-410 – Housing Element – http://app.leg.wa.gov/wac/default.aspx?cite=365-196-410; 23 OCT 2014
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compare the number of housing units identified in the housing inventory to the projected
growth or other locally identified housing needs.
b) The definition of housing needs should be addressed in a regional context and may use existing
data.
c) The analysis should be based on the most recent twenty-year population allocation.
d) The analysis should analyze consistency with county-wide planning policies, and where
applicable, multicounty planning policies, related to housing for all economic segments of the
population.
10) Housing targets or capacity
a) The housing needs analysis should identify the number and types of new housing units needed
to serve the projected growth and the income ranges within it. This should be used to designate
sufficient land capacity suitable for development in the land use element.
b) Counties and cities may also use other considerations to identify housing needs, which may
include:
i) Workforce housing which is often defined as housing affordable to households earning
between eighty to one hundred twenty percent of the median household income.
ii) Jobs-to-housing balance, which is the number of jobs in a city or county relative to the
number of housing units.
iii) Reasonable measures to address inconsistencies found in buildable lands reports prepared
under RCW 36.70A.215.
iv) Housing needed to address an observed pattern of a larger quantity of second homes in
destination communities.
c) The targets established in the housing element will serve as benchmarks to evaluate progress
and guide decisions regarding development regulations.
11) Affordable housing – RCW 36.70A.070 requires counties and cities, in their housing element, to
make adequate provisions for existing and projected needs for all economic segments of the
community.
a) Determining what housing units are affordable.
i) In the case of dwelling units for sale, affordable housing has mortgages, amortization, taxes,
insurance and condominium or association fees, if any, that consume no more than thirty
percent of the owner's gross annual household income.
ii) In the case of dwelling units for rent, affordable housing has rent and utility costs, as defined
by the county or city that cost no more than thirty percent of the tenant's gross annual
household income.
iii) Income ranges used when considering affordability. When planning for affordable housing,
counties or cities should use income ranges consistent with the applicable county-wide or
multicounty planning policies. If no such terms exist, counties or cities should consider using
the United States Department of Housing and Urban Development (HUD) definitions found
in 24 C.F.R. 91.5, which are used to draft consolidated planning documents required by
HUD. The following definitions are from 24 C.F.R. 91.5:
(1) Median income refers to median household income.
Page | 65
(2) Extremely low-income refers to a household whose income is at or below thirty percent
of the median income, adjusted for household size, for the county where the housing
unit is located.
(3) Low-income refers to a household whose income is between thirty percent and fifty
percent of the median income, adjusted for household size, for the county where the
housing unit is located.
(4) Moderate-income refers to a household whose income is between fifty percent and
eighty percent of the median income where the housing unit is located.
(5) Middle-income refers to a household whose income is between eighty percent and
ninety-five percent of the median income for the area where the housing unit is located.
b) Affordable housing requires planning from a regional perspective. County-wide planning policies
must address affordable housing and its distribution among counties and cities. A county's or
city's obligation to plan for affordable housing within a regional context is determined by the
applicable county-wide planning policies. Counties and cities should review county-wide
affordable housing policies when developing the housing element to maintain consistency.
c) Counties and cities should consider the ability of the market to address housing needs for all
economic segments of the population. Counties and cities may help to address affordable
housing by identifying and removing any regulatory barriers limiting the availability of affordable
housing.
d) Counties and cities may help to address affordable housing needs by increasing development
capacity. In such an event, a county or city affordable housing section should:
i) Identify certain land use designations within a geographic area where increased residential
development may help achieve affordable housing policies and targets;
ii) As needed, identify policies and subsequent development regulations that may increase
residential development capacity;
iii) Determine the number of additional housing units these policies and development
regulations may generate; and
iv) Establish a target that represents the minimum amount of affordable housing units that it
seeks to generate.
12) Implementation plan
a) The housing element should identify strategies designed to help meet the needs identified for
all economic segments of the population within the planning area. It should include, but not be
limited to, the following:
i) Consideration of the range of housing choices to be encouraged including, but not limited
to, multifamily housing, mixed uses, manufactured houses, accessory dwelling units, and
detached houses;
ii) Consideration of various lot sizes and densities, and of clustering and other design
configurations;
iii) Identification of a sufficient amount of appropriately zoned land to accommodate the
identified housing needs over the planning period; and
Page | 66
iv) Evaluation of the capacity of local public and private entities and the availability of financing
to produce housing to meet the identified need.
b) The housing element should also address how the county or city will provide for group homes,
foster care facilities, and facilities for other populations with special needs. The housing element
should provide for an equitable distribution of these facilities among neighborhoods within the
county or city.
c) The housing element should identify strategies designed to ensure the vitality and character of
existing neighborhoods. It should show how growth and change will preserve or improve
existing residential qualities. The housing element may not focus on one requirement (e.g.,
preserving existing housing) to the exclusion of the other requirements (e.g., affordable
housing) in RCW36.70A.070(2). It should explain how various needs are reconciled.
d) The housing element should include provisions to monitor the performance of its housing
strategy. A monitoring program may include the following:
i) The collection and analysis of information about the housing market;
ii) Data about the supply of developable residential building lots at various land-use densities
and the supply of rental and for-sale housing at various price levels;
iii) A comparison of actual housing development to the targets, policies and goals contained in
the housing element;
iv) Identification of thresholds at which steps should be taken to adjust and revise goals and
policies; and
v) A description of the types of adjustments and revisions that the county or city may consider.
Kitsap County
Kitsap Regional Coordinating Council – Countywide Planning Policies for Kitsap6
Jobs-Housing Balance:
Jobs-housing balance refers to relationship of housing supply and the job base. There are transportation
implications in terms of improving accessibility between where jobs are located and where people live,
as well as access to goods, services and other amenities.
Best Practices in Housing:
The County and the Cities recognize the value of housing practices that preserve existing neighborhoods
and communities, use land more efficiently, make services more economical, and meet the diverse
needs of our county’s changing demographics. The Community Design and Development Policies in
6 Kitsap County Ordinance 509-2013 - Adopted Kitsap Countywide Planning Policies; 25 NOV 2013;
http://www.kitsapregionalcouncil.org/library/D%20-
%20Countywide%20Policies/CPP%20As%20Adopted%2011%2025%2013.pdf; 23 OCT 2014
Page | 67
Element F: Contiguous, Compatible and Orderly Development address key innovative practices and
design principles for development and housing.
Affordable Housing:
Housing affordability refers to the balance (or imbalance) between household income and housing
costs. Affordable housing is a major challenge in Kitsap County.
The following definitions relate to the Countywide Planning Policies: Housing shall mean housing
intended for a full range of household incomes. These income levels are defined as follows (WAC
365.196.410 [2]-e-i-C):
● Extremely low-income shall mean those households that have incomes that are at or below 30%
of the countywide median.
● Very low-income shall mean those households that have incomes that are within the range of 31
- 50% of the countywide median.
● Low-income shall mean those households that have incomes that are within the range of 51 -
80% of the countywide median.
● Moderate-income shall mean those households that have incomes that are within the range 81-
95% of the countywide median.
● Middle-income shall mean those households that have incomes that are within the range of 96-
120% of the countywide median.
● Upper-income shall mean those households that have incomes above 120% of the countywide
median.
Policies for Affordable Housing (AH):
a) Coordinated process among County, Cities, and housing agencies for determining and fulfilling
housing needs, and the equitable distribution of affordable housing at all income levels in Kitsap
County:
i) The County and the Cities should inventory the existing housing stock consistent with the
Growth Management Act synchronized with County and Cities’ respective Comprehensive
Plan updates, and correlate with current population and economic conditions, past trends,
and ten year population and employment forecasts, to determine short and long range
housing needs, including rental and home ownership. Navy personnel housing policy should
also be considered.
ii) Local housing inventories, projections, and equitable distribution strategies should be
compiled, updated, and monitored under the coordination of the Kitsap Regional
Coordinating Council to identify countywide conditions and projected needs.
iii) Sufficient land supply for housing including various housing types shall be identified and
monitored through regular updates to the countywide Buildable Lands Analysis [see
Element B-1 Land Utilization and Monitoring Programs].
Page | 68
iv) The County and the Cities should each identify specific policies and implementation
strategies in their Comprehensive Plans and should enact implementing regulations to
provide a mix of housing types and costs to achieve identified goals for housing at all income
levels, including easy access to employment centers.
v) The County and the Cities shall incorporate a regular review of public health, safety, and
development regulations pertaining to housing implementation strategies to assure that:
(1) protection of the public health and safety remains the primary purpose for housing
standards
(2) regulations are streamlined and flexible to minimize additional costs to housing.
b) Recognizing that the market place makes adequate provision for those in the upper economic
brackets, each jurisdiction should develop some combination of appropriately zoned land,
regulatory incentives, financial subsidies, and/or innovative planning techniques to make
adequate provisions for the needs of middle and lower income persons.
c) Recognizing the percentage share of the existing and forecasted countywide population and
housing stock, as well as the distribution of existing housing for those households below 120%
countywide median income, the County and the Cities should develop coordinated strategies to
disperse projected housing for those below 120% countywide median income throughout Kitsap
County, where they are specifically found to be appropriate, in consideration of existing
development patterns and densities. These strategies should promote the development of such
housing in a dispersed pattern so as not to concentrate or geographically isolate low-income
housing in a specific area or community.
d) Provision of affordable housing for households below 120% countywide median income should
include:
i) Housing options located throughout Kitsap County in Urban Growth Areas and Rural
Communities, as defined in Element D (2-a),in a manner to provide easy access to
transportation, employment, and other services.
(1) Designated Centers should include such housing options.
(2) Rural self- help housing programs should be encouraged first in UGA’s and Rural
Communities and then allowed in other appropriate areas as defined by the U.S.
Department of Agriculture.
ii) Local Comprehensive Plan policies and development regulations that encourage and do not
exclude such housing.
iii) Housing strategies that include:
(1) preservation, rehabilitation and redevelopment of existing neighborhoods as
appropriate, including programs to rehabilitate and/or energy retro-fit substandard
housing;
(2) provision for a range of housing types such as multi-family, single family, accessory
dwelling units, cooperative housing, and manufactured housing on individual lots and in
manufactured housing parks;
(3) housing design and citing compatible with surrounding neighborhoods;
Page | 69
(4) mechanisms to help people purchase their own housing, such as low interest loan
programs, "self-help" housing, and consumer education.
(5) innovative regulatory strategies that provide incentives for the development of such
housing, such as: reducing housing cost by subsidizing utility hook-up fees and rates,
impact fees, and permit processing fees; density incentives; smaller lot sizes; zero lot
line designs; inclusionary zoning techniques, such as requiring housing for specified
income levels in new residential developments; transfers of development rights and/or
a priority permit review and approval process and/or other provisions as appropriate.
iv) Housing policies and programs that address the provision of diverse housing opportunities
to accommodate the homeless, the elderly, physically or mentally challenged, and other
segments of the population that have special needs.
v) Participation with housing authorities to facilitate the production of such housing. The
County and the Cities shall also recognize and support other public and private not-for-profit
housing agencies. Supporting housing agencies is encouraged through public land donations,
guarantees, suitable design standards, tax incentives, fee waivers, providing access to
funding sources and support for funding applications, or other provisions as appropriate.
The County and the Cities shall collaborate with PSRC to evaluate availability of appropriate housing
types to serve future residents and changing demographics.
The Island-wide Transportation Plan (IWTP) can be viewed on the City’s website.
See hyperlink below.
http://www.bainbridgewa.gov/708/Island-wide-Transportation-Plan-IWTP-Upd
APPENDIX C: ISLAND-WIDE TRANSPORTATION PLAN
The Winslow Master Plan can be viewed on the City’s website. See hyperlink
below.
http://www.bainbridgewa.gov/431/Winslow-Master-Plan
APPENDIX D : WINSLOW MASTER PLAN
A
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Blakely Rock
Bean Pt.
Restoration Pt.
Wing Pt.
Yeomalt Pt.
Skiff Pt.
Hidden Cove
Tolo Lagoon
Point Monroe Lagoon
Battle Pt.
Fletcher Bay
Blakely Harbor
Eagle Harbor
Battle Point Lagoon
Rolling Bay
Murden Cove
Manzanita Bay
Port M
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R-2
R-1
R-2
R-1
R-2
R-2
R-1
R-2
R-2
R-2
R-1
R-1
SUR-2.9
R-1
R-1
R-2
R-2
R-1
B/I
R-2
R-2
R-2
R-1
R-1
CORE
WDI
UR-4.3
R-1
SUR-3.5
MAD
SUR-2.9
HS-1
UMF R-8
UR-4.3
UR-4.3
SUR-3.5
R-1
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FTD
B/I
SUR-3.5
R-1
B/I
R-2
B/I
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SUR-2.9
R-1
SUR-2.9
NC
NC
UR-5
UMF R-8
HS-2
NC
B/I
UMF R-14
SUR-2.9
R-2
WDI
UMF R-8
B/I
GATE
NC
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NC
UR-6
UMF R-8
NC/R-12
UMF R-14
UMF R-8
UMF R-8
UMF R-8
SUR-3.5
SUR-3.5
SUR-3.5
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NE Tolo Rd
Cr
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NE Day Rd W
Baker Hill Rd W
NE
A
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NE Koura Rd
NE Day Rd E
Ma
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P
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R
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NE High School Rd
N
M
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A
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N
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Lafayette Ave
NE South Beach Rd
NE New Brooklyn Rd
Battle Point Dr NE
NE Cou
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Sa
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Lofgren Rd
Fi
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Mc
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A
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NE Torvanger Rd
West Port Madison Rd
Phelp
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Ma
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NE Halls
H
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NE Oddfellows Rd
Wardwell Rd NE
Bu
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H
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N
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Ta
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A
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N
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Manitou
B
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D
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NE Bergman Rd
B
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NE Dolphin Dr
NE Winther Rd
P
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B
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N
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Ko
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N
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Wyatt St NE
Er
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A
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N
E
Foster Rd NE
NE Blakely Ave
NE Lovgreen Rd E
Ma
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A
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N
Fo
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W
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H
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Wing Point Way NE
Ol
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A
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Winslow Way E
P
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A
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N
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NE Hidden Cove Rd W
NE Wyatt Way NW
We
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A
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N
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Ft
W
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H
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l
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R
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N
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NE Baker Hill Rd E
Parfitt Way SW
NE Valley Rd
Fo
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S
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N
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NE Frey St
NE North St
NE Fletcher Bay Rd
NE
H
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L
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Ma
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B
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D
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N
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Wallace Way
Fo
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W
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H
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R
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N
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W.
B
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a
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e
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R
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N
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NE County Park Rd
N
M
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A
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N
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Fe
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n
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l
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A
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N
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NE New Brooklyn Rd
Phel
p
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R
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N
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Mille
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R
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N
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NE New Brooklyn Rd
Ta
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A
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N
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N
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C
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C
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N
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A
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N
E
NE Koura Rd
Miller
R
d
N
E
Su
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i
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D
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N
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NE Koura Rd Su
n
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i
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D
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N
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Spo
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m
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C
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R
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N
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NE High School Rd
F
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A
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N
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B
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H
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P
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N
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Su
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D
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N
E
Gra
n
d
A
v
e
N
E
NE Day Rd E
Ha
n
s
e
n
R
d
N
E
Ê City of Bainbridge Island Future Land Use MapFebruary 28, 2017
Legend
Shoreline Designations
Island Conservancy
Natural
Shoreline Residential
Shoreline Residential Conservancy
Urban
Comprehensive Plan Designations
COMP_DESIG
Business/Industrial
Contract Zoning Districts
CORE
Erickson Ave District
Ferry Terminal District
Gateway District
High School Rd 1 District
High School Rd 2 District
Madison Ave District
Neighborhood Center
Neighborhood Ctr/R-12
Residential -0.4
Residential -1
Residential -2
Semi-Urban -2.9
Semi Urban -3.5
Urban Multi-Family R-14
Urban Multi-Family R-8
Urban Residential -4.3
UrbanResidential -5
Urban Residential -6
Water Dependent IndustriaI
Christine Brown,
EXHIBIT B