ORD 2001-47 2002 UPDATE OF CAPITAL FACILITIES ELEMENT SIX-YEAR PLANORDINANCE 2001 - 47
AN ORDINANCE OF THE CITY OF BAINBRIDGE ISLAND,
WASHINGTON ADOPTING THE 2002 UPDATE OF THE SIX-YEAR
FINANCING PLAN OF THE CAPITAL FACILITIES ELEMENT OF
THE BAINBRIDGE ISLAND COMPREHENSIVE PLAN.
WHEREAS, in accordance with the Growth Management Act, the City of Bainbridge
Island adopted a Comprehensive Plan on September 1, 1994, which Plan contains a
capital facilities element that establishes goals and policies for the provision and financing
of capital facilities for the citizens of Bainbridge Island; and
WHEREAS, the Growth Management Act requires that the six-year financing plan
be updated at least biennially and adopted as an amendment to the Comprehensive
Plan and Comprehensive Plan Policy CF 1.7 requires annual updates; and
WHEREAS, the 2002 updated Six-Year Financing Plan addresses all of the goals and
requirements set further in the Growth Management Act and the Bainbridge Island
Comprehensive Plan; and
WHEREAS, the 2002 update of the Six-Year Financing Plan is in conformance with
the decision criteria for amendments to the Comprehensive Plan as set forth in
BIMC 18.117.060; and
WHEREAS, through its staff, the Planning Commission and the City Council have
received, discussed and considered the testimony, written comments and material
from the public; now, therefore
THE CITY COUNCIL OF THE CITY OF BAINBRIDGE ISLAND, WASHINGTON,
DO ORDAIN AS FOLLOWS:
SECTION 1. The 2002 update of the Six-Year Financing Plan of the Capital
Facilities Element of the Bainbridge Island Comprehensive Plan is adopted as of
December 12, 2001.
SECTION 2. In the event that there are instances where the dollar amounts or timing
of capital projects included in this update differ from those in other sections of the
Comprehensive Plan, the amounts and timing in this update shall prevail.
SECTION 3. This ordinance authorizes the reformatting of the information in this
update of the Capital Facilities Plan and the transmission of this information to the State
of Washington as the City's Transportation Improvement Plan which is required on or
before July 31, 2002.
SECTION 4. This Ordinance shall take effect and be in force five days from and
after its passage, approval and publication as required by law.
PASSED by the City Council this 17th day of December, 2001.
APPROVED by the Mayor this 18th day of December, 2001.
DWICOtT SUTTON, Mayor
ATTEST/AUTHENTICATE:
SfSSAN P. KASPER, City Clerk
APPROVED AS TO FORM:
ROD P. KASEGUMA, City Attomey
FILED WITH THE CITY CLERK:
PASSED BY THE CITY COUNCIL:
PUBLISHED:
EFFECTIVE DATE:
ORDINANCE 2001 - 47
October 23, 2001
December 17, 2001
Dcn2o_albo~ 26~ 2001
January 1, 2002
City of Bainbridge Island
2002 Capital Facilities Plan
INTRODUCTION
The 2002 update of the Capital Facilities Plan continues to build on the prior updates. Because the City
has begun a major review and update of the Comprehensive Plan, almost no policy changes have been
considered this year. Also, plan updates from other local governments are included. As in the past two
As in last year's Plan, projects anticipated to be worked on after the six-year planning horizon are
shown in a single column described as "After 2007" rather than in separate categories. This choice
matches reality in that at present the City really has little idea when after the year 2007 these projects
will actually be constructed.
As mentioned in the prior paragraph, the efforts of the City to plan capital facilities using a 20 year time
horizon are, as yet, somewhat uneven. As is the case with most long-range planning, we have a better
vision of the near-term than ofthe far. Further, the different agencies included in the Plan have not used
a consistent planning horizon. The City has shown projects to be done for the full twenty years but has
not paid much attention to those past the six-year horizon of the Financial Capacity Analysis. Schools
have not yet planned beyond 2004. Fire planned for a twenty year period; while Parks planned
through 2006. Sewer District No. 7 has not updated their plan since at least 1998 and has no capital proje
planned. Also because of the planning schedule for each of the local governments differs, summaries of
plans for multiple agencies are not inclusive.
This concentration on the six-year plan involves, the inclusion of the details of the major capital projects
of the City and also an improved Financial Capacity Analysis. The City and the special purpose districts:
Schools, Parks, Fire, and Sewer continue to work together to integrate their capital planning efforts to
to provide a more even tax impact and to prioritize their projects while still providing quality facilities
and services for the citizens they serve. This is consistent with Goal 6 of the Framework of the
Comprehensive Plan (pg. 51 of the Land Use Element) :
All government entities strive to cooperate and serve their constituents in a fiscally sound manner;
and Policy CF 1.10 (pg. 9) of the Capital Facilities Element: The City shall coordinate with other public
entities which provide public services within the City to ensure that the Capital Facilities Plans of each
of these entities are consistent with the City's Comprehensive Plan.
This Element and the 2002 Plan update have been developed in accordance with the RCW 36.70A, the
Growth Management Act (GMA), and WAC 365-195, the Procedural Criteria. It begins with a short
review of some ofthe concepts behind the Capital Facilities Plan and the Capital Facilities Element of
the Comprehensive Plan.
Relation of Capital Facilities Plan to the Bud2et
The Capital Facilities Plan and the City's Budget serve different but overlapping purposes. Both
are prepared annually, although each could be prepared biennially under Washington law. The
Budget authorizes the amount to be spent during the coming year; whereas the Capital Facilities
Plan identifies needed capital facilities over a twenty year period. A requirement for the Capital
Facilities Plan is that it show how the needed facilities will be paid for during at least a six-year period.
Because Washington law requires that, for cities required to plan under the Growth Management
As Approved by the City Council on December 17, 2001
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Act, no money can be spent on capital projects which are not shown in the Capital Facilities Plan (CFP),
it is important that the Budget not authorize spending on capital facilities not in the Plan. The following
table shows a summary ofthe City's 2002 Appropriated Budget and shows (in bold) where the projects in
the CFP fit in the budget (the $20,000 amount in the CFP and not in the Budget is the South Spoils Area):
Summary of 2002 Appropriated Budget
Description All Other Wtr/Swr Util Total
Notes
I
, Beginning Balances $8,516,770 $3,422,225 $11,938,995 As of 12/31/2001
+ Revenues 16,877,300 2,575,000 19,452,300
_._~.
+ Other $ (Bonds, etc.) 1,000,000 635,000 1,635,000
I Net Interfund Transfers 0 Nets to Zero
I
= Total $ Available 26,394,070 6,632,225 33,026,295
- Operating Costs 13,944,900 2,528,176 16,473,076
- Debt Service Costs 2,002,489 311,962 2,314,451
- Capital Equipment 718,200 322,500 1,040,700 $474,000 in CFP
- Capital Projects 7,300,600 1,022,600 8,323,200 $20k under CFP
---_..~
= Ending Balances $2,427,881 $2,446,987 $4,874,868 Set by policy
.-
The above table shows a very simplified view of the Budget. This (and any) budget starts with an
estimate of the money available to be spent at the beginning of the budget year. To that is added the
income and revenues expected to be received during the coming year. Also added are any direct
additions to capital and any bonds or loans received from which costs can be paid. Also included for
individual funds are interfund transfers. During 2002, these are expected to total $8.9 million; however,
by their very nature these net to zero, and because of the way the above chart is simplified none occur
between the categories shown. From the sum ofthe money available is subtracted the various
categories of costs: operating, debt service an capital. While most capital spending (and all projects) is
is included in the Capital Facilities Plan, some equipment and computer software is not. What remains
are the ending cash balances which both provide a reserve for emergencies and can be used to help
pay for the next year's spending.
One source of paying for capital facilities which is not shown in the Budget is required "contributions" from
developers. For example, part of the cost of widening Madison Avenue north of High School Road next year
is expected to be paid by the developer of the property east of Madison as a requirement of approving the
project. That contribution is not shown in the Budget because the amount is not fixed and it does not directly
affect the City's cash records. Other noncash contributions are expected during the six-year period.
What is a Capital Facilitv?
Capital facilities are those public facilities, including utilities, that are necessary for a government to
carry out its functions to provide services to its citizens. Examples are roads, public buildings, schools,
parks, water and sewer systems, fire protection, police protection, and libraries. Often the entire
collection of these facilities is referred to as infrastructure.
There are several categories of capital expenditures proposed in this plan. A key distinction is whether
new or expanded facilities will serve existing residents or new growth. Expenditures may also be
proposed to maintain or repair existing capital facilities (cure deficiencies). The categories are as
follows and will be used to identify specific projects proposed in the six-year plan:
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(M) Major maintenance, repair, renovation, or replacement of an existing facility. Many of
the road projects are in this category.
(E) New facilities or improvements to existing facilities that provide added capacity to serve
the existing population.
(N) New facilities or improvements to existing facilities that are built primarily to provide
added capacity to serve new population or employment growth.
Plans and Studies
A significant amount of the projects anticipated to be included in the Capital Facilities Plan rely on
various plans and studies needed to determine the capacity of various systems and the extent of problems
in those systems. Although these studies drive many of the projects in the Capital Facilities Plan,
because they are operating costs, they are not included in the Plan. The following table summarizes
the plans and studies recently completed or that the City expects to complete in the next few years:
2001 Listing of Studies & Plans
Name of Study or Plan Cost Due
Non-motorized Transportation Plan $35,000 2001
Pavement Management System Update 50,000 2002
Sewer System Plan 105,000 2002
South End Sewer Study 100,000 2000
Surface Water 1 Drainage Plan 125,000 2001
Transportation Plan 100,000 2002
Water System Plan 115,000 2002
Water Resources Plan 80,000 2000
Wellhead Study 50,000 2002
Nearshore Assessment 205,000 2002
Total $760,000
Levels of Service (LOS)
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 gallon 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. Parks LOS is often expressed as the number of acres of park per 1,000 population. Once
the level of service is decided upon it can then be determined what capital improvements are necessary
to 1) cure any existing deficiencies, and 2) maintain that level as the community grows.
The Capital Facilities Financin2 Plan
The GMA requires that the Capital Facilities Element contain a financing plan that identifies the type and
location of expanded or new capital facilities and the sources of funding that will used to pay for them
There are two questions that must be satisfactorily answered:
1) What is the quantity ofthe public facilities that will be required during the six years?
(identified in the inventory and needs analysis);
2) Is it financially feasible to provide the quantity offacilities that are required? (do we now,
or will we, have the money to pay for them?)
As Approved by the City Council on December 17, 2001
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Dependable revenue sources must be identified that equal or exceed the anticipated costs. If the
costs exceed the revenue, the local government must reduce its level of service, or otherwise reduce
costs; or else modify the land use element to bring future development into balance with available or
affordable facilities and services. This plan will examine each type offacility separately. The costs of
all the facilities will then be added together in order to determine the financial feasibility of the plan.
The Capital Facilities Plan is intended to be a planning document. It, therefore, does not contain the
level of detail that the annual budget must contain. Some costs in the plan are estimated in order to
give citizens a general idea of how much certain types of projects or facilities may cost.
Criteria for Proiect Prioritization
One of the problems with determining which projects to work on when has been the difficulty in
determining project priorities. To some extent, priorities are set by the Growth Management Act
and are noted in the section on "What is a Capital Facility" on page 2 above as "M", "E", and "N"
(that is, curing deficiencies is, by law, a higher priority than building to serve new growth). Beyond
that, the City Council has used an ad hoc method of identifying high priority projects (maintenance
of existing facilities mandated projects, targets of opportunity, etc.). This year's Capital Facilities
Plan update process has proposed using four sets of criteria together. The four sets are:
1. Strong citizen support as measured by the Community Values Survey.
2. The criteria for policy CF 1.2 mentioned above (the "M", "E", and "N").
3. Financial effects (availability of grants and/or costlbenefit). and
4. Sequencing/Coordination (including timing factors).
By evaluating each project against these four sets of criteria, it is hoped that the resulting priorities
assigned capital facilities projects will optimize the sequencing of the projects and the effectiveness
of the City funds used to pay for them.
Capital Facilities Plannio2
This Capital Facilities Plan is the product of many separate but coordinated planning documents and
planning bodies. Each of the special districts (schools, fire, parks, etc.) has its own capital plan. The
City has a Water System Plan, a Sewer System Plan, a Winslow Drainage System Plan and a
Pavement Management System Plan. Each capital facility may have several sources of funding that
include combinations of federal and state grant money, loans and general revenues (tax dollars). In
addition, there are several subarea and neighborhood plans in progress, including the Island Center
and Lynwood Center Special Planning Areas, and the Winslow Master Plan (now being implemented)
each with its own capital requirements. Most facilities must be planned for years in advance and
planning means determining not only when a facility will be needed but how it will be financed. For
facilities that are projected for five to seven years in the future, capital costs are more estimates than
actual. As the time for construction nears, actual costs are narrowed as design and engineering are
completed. It is important to remember that Capital Facilities planning is not a once a year or once
every two years effort, but an ongoing process requiring continual review as new information
becomes available, conditions change, and priorities evolve.
As Approved by the City Council on December 17, 2001
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City of Bainbrid~e Island
The following is the City's 2002 Capital Facilities Plan. The Plan is organized by project category and
each category includes: 1) a current inventory of facilities; 2) a narrative providing a general background
ofthe planning activities and some discussion offuture plans; 3) a discussion of level of service (LOS), if
applicable; and 4) a six-year project financing plan which identifies projects and funding sources for
that section. A listing of known needs (sometimes without cost estimates) beyond the six-year period
follows. The timing of projects beyond the six-years horizon is also very nebulous.
Other Comprehensive Plan policies that are implemented or furthered by this Capital Facilities Plan
are the following:
CF 1.2: The City shall prioritize the allocation of resources to meet its capital needs in the following
order: 1) major maintenance of existing facilities; 2) elimination of existing deficiencies; and, 3) provision
of new or expanded facilities to accommodate new growth.
CF 1.6: Funding of major capital facilities shall typically rely on long-term financing and not current
revenues. The term of financing should generally be no longer than the useful life of the facility.
CF 1.8: The City may apply various, alternative, funding mechanisms in the development of capital
improvements identified in the Capital Facilities Element in order to optimally use limited City
resources. Such mechanisms include joint ventures with the private sector, grants, or other means.
CF 1.12: Funding for the City's water and sewer facilities shall be paid for primarily by users, except in
unusual circumstances where the public benefit may justify the use of general funds. Drainage improve-
ments and facilities shall funded by the City Stormwater utility which, as an Island-wide utility, may be
supplemented by general revenue. When utility improvements, provide benefits primarily to a limited
group of users the costs will generally be paid by the benefited parties through Local Improvement
Districts (L.I.D.'s) or other means.
As Approved by the City Council on December 17, 2001
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City Administration
City Offices
Employees and offices of the City are located at several sites because of space constraints at the Winslow
City Hall location. City staff has grown to 116 full time employees and 11 part time employees as of
December, 2000, an increase of three full-time employees and four part-time employee since the 2000
update. There are 5 employees located at the Municipal Court at Rolling Bay, 26 at the Police Station in
the old city hall, 28 at the Public Works facility on Hidden Cove Road, and about 65 at City Hall.
2002 City Land and Office Facility Inventory
Building Owned or
Building and Location Land Area Area Leased Office Uses
City Hall Administration, Finance,
280 Madison Ave. N 1.92 Ac 24,107 SqFt Owned Planning, & Engineering
Former City Hall Police
6~? Winslow Way E 0.82 Ac 7,000 SqFt Owned
Municipal Court Municipal Court,
10255 NE Valley Rd. n/a 2,289 SqFt Leased Hearing Examiner
Steel Building + Office Trailers, Public Works Operations
Former Public Works Yard nla 6,148 SqFt Owned & Maintenance
Subtotal Staff Office Space 2.74 Ac 39,544 SqFt
Bainbridge Island Commons Social Services, Council
223 Bjune Ave. 0.38 Ac 4,975 SqFt Owned & Committee Meetings
Bainbridge Performing Arts Land leased to BP A for
(land only) 200 Madison Ave. N 2.45 Ac n/a Owned $1/yr through May, 2081
Helpline House No-cost lease to
282 Knechtel Way 1.07 Ac 4,400 SqFt Owned Helpline House
Land w/City-owned utilities 15.42 Ac n/a Owned Wells, pump stations, etc.
Public Works Facility O&M Offices, Shop, and
7305 NE Hidden Cove Road 12.62 Ac 21,968 SqFt Owned Covered Equipment Storage
~ ...
Unimproved land:
High School Rd. near Madison 1.42 Ac Owned No use specified
Head of the Bay 20.52 Ac Owned Wellhead protection
()!~ Madison near Wyatt 0.43 Ac Owned Future pocket park
Lumpkin Property 11.00 Ac Owned Open space
~uzuki Property 15.00 Ac Owned Future Police/Court Facilty
Weaver Rd. near Wyatt 0.92 Ac Owned No use specified
~alter Property 5.00 Ac Owned Open space
Johnson Farm 14.51 Ac Owned Open space
Suyematsu Farm 15.00 Ac Owned Agricultural Land
Hayes Property 10.25 Ac Owned Wellhead protection
County Gravel Pit & Other 25.00 Ac Owned No use specified
Misc. unimproved land 1.32 Ac Owned No use specified
Total 155.05 Ac 70,887 SqFt
As Approved by the City Council on December 17, 2001
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City Hall
In 1997, the City Council selected a site for City Hall on property in the vicinity of the Bainbridge
Performing Arts building, northeast of the intersection of Winslow Way and Madison Ave. In addition
to property on the site already owned by the City, four additional parcels were identified for acquisition
to assemble a site sufficient for the long range needs of a City Hall, a "Town Square", and parking.
Construction of the new City Hall was completed in early 2000 and the building was occupied in mid-
February. This decision implements Policy W 1.6 of the Land Use Element (pg. 56) of the
Comprehensive Plan: "The permanent location of City Hall shall be in downtown Winslow."
Public Works Operations and Maintenance Facility
In late 1998, the Public Works Yard was relocated from the 5-acre John Nelson Park site just north
of Winslow Way on the east side of SR305 to a new, 12.6 acre site at Hidden Cove Road and SR305.
Drainage problems, discovered during construction, are in the process of being corrected. Phase II
of the construction of the new Public Works Facility at Hidden Cove has been deferred until after 2007.
Police & Court
During 2000, the former City Hall building was remodeled for use by the Police. Also, a 15 acre site was
purchased in 2000 at a cost of $450,000 for a permanent Police and Municipal Court facility. It is
expected that the Police will occupy the former City Hall building and the Court to continue to lease space
for seven to ten years before a permanent facility is built on the new site.
Open Space / Agricultural Land Acquisition
In late 1998, the City Council voted to encumber the City with $500,000 in L TGO debt for the purpose
of acquiring open space and/or agricultural land and development rights. An unspecified amount of
funding for open space was included in the 1999 L TGO Bond issue. Although the City has put in place
ordinances governing both the purchase and transfer of development rights, policies governing open
space acquisition have not yet been determined despite the acquisition of over 65 acres for open space
in 2000 and 2001. The intent is to support the goals for Agricultural Land in the Land Use Element.
2002 Capital Facilities Projects -- City Administration / Facilities
Pri- Before After Project
Project orit 2002 2002 2003 2004 2005 2006 2007 2007 * Total
Parking Facilities Downtown (WII P) $100 $2,500 $2,500 $5,100
PW Yard North Annex 1 210 2,035 2,245
--.
Police & Court (N) 2 5,000 5,000
South Spoils Area 3 20 100 200 320
City Hall 4 65 65
c.:~ntral Spoils Area 5 620 620
Energy - Telecommunications 6 50 50
North Spoils Area 7 200 200
Total Projects 0 295 100 0 300 2,500 2,500 7,905 13,600
Note: All amounts are $ in OOO's and are in 2001 $ (that is, no adjustment has been made for inflation).
'WMP' indicates that this project relates to the Winslow Master Plan.
A priority of "N" indicates that a project has not yet been given a priority. Once the indicated
project has been prioritized, funding and timing will be assigned.
As Approved by the City Council on December 17,2001
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2001 Public Works Facilities Inventory
l ~~cility Floor Area Function
Portable office trailers (4) 2,520 SqFt * Storage, safety & future parks buildings ..--
Steel shop building 2,400 SqFt Storage - holds telemetry .--
Wood frame building 1,245 SqFt Storage - John Nelson
Small wood frame building 663 SqFt Storage - John Nelson
Portable steel building 100 SqFt Oil storage shed PWYard
PW Facility - Shop 7,776 SqFt * Mechanics Shop / Equipment Maintenance
PW Facility - Covered Equip't Stg 11 ,520 SqFt * Covered Euipment Storage
PW Facility - Office Trailer 1,792 SqFt * o & M Office
i PW Facility - wood building 100 SqFt * Well house
Total 28,116 SqFt
*These facilities are also counted in the main office inventory on page 6.
The inventory of heavy equipment includes only those items with an estimated replacement value
of $20,000 or more. Equipment replacement is based upon a standard of useful life for each type of
equipment in the inventory. Smaller items (over $5,000) are treated as operating costs in this document
but as capital in the annual budget and financial reports.
2002 Public Works Equipment Inventory
Type of Equipment Quantity
Water & Sewer Utility - Heavy Equipment 11
Water & Sewer Utility - Other Vehicles 8
Streets, SSWM & General - Heavy Equipment 28
Streets, SSWM & General- Other Vehicles 26
Total 73
Parks & Trails
Most of the parks and trails on Bainbridge Island are owned and run by the Bainbridge Island Park and
Recreation District. The City has a few which it owns but which are generally maintained (with the ex-
ception of Waterfront Park) by the Park District under contract to the City. In 1997, the City developed
a plan for the expansion of the facilities at Waterfront Park. This plan is expected to be implemented
in stages over the next eight to ten years. During the past two years, the City has acquired or helped the
Park District acquire a large amount of open space. Plans for this land have not yet been developed.
2002 Capital Facilities Projects -- City Parks & Trails
-
Pri- Before After Project
Project orit 2002 2002 2003 2004 2005 2006 2007 2007 * Total
Open Space & Ag Land (N) N $1,000 $2,000 $2,000 $2,000 $1,000 $8,000
Landfill Reclamation (E) N 500 500
Winslow Parksffrails - WMP (N) N 50 50 100
Road End Improvements (E) N 60 25 25 25 25 25 350 535
i Waterfront Park (E) N 150 75 375 325 600 125 1,650
Acq. WF Park Residence (E) N 350 350
Acq. Wyckoff Property N 5,000
Total Projects 0 1,710 2,150 7,450 2,350 1,025 625 825 16,135
Note: All amounts are $ in OOO's and are in 2001 $ (that is, no adjustment has been made for inflation).
As Approved by the City Council on December 17,2001
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Transportation Facilities (Roads, Bike Lanes, Sidewalks, Trails)
Ofthe five types of capital facilities that are constructed, operated and maintained by the City, the most
costly and 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 assumes the costs.
Kitsap Transit pays for facilities that support transit service. The citizens do pay indirectly for these
services through other taxes. However, following with passage ofInitiative 695, one of the largest source
of such funding, the Motor Vehicle Excise Tax, was repealed. At present, particularly given the possible
passage ofInitiatives 747, funding for public transportation in general (including all activities not
directly under the control of the City is at risk of severe reductions and/or threatened elimination.
The transportation system outside of historic Winslow has suffered from "deferred maintenance". The
Pavement Management System (PMS) study conducted for the City in 1992/1995 indicated the wearing
surface of many ofthe roads to be at or near failure, especially the smaller suburban roads. Since many
of the Island's roads were initially only scraped and then a thin layer of asphalt applied, the maintenance
performed by the City is usually more extensive, and costly, than normal maintenance of "paved" roads.
Many roads, having no substantial base before placing asphalt, need considerable base preparation. The
PMS study indicated a need for $600,000 per year for 10-12 years in the annual roads maintenance and
repaving program to maintain the roads at the then current status; but that study assumed a normal road
base. The City has attempted to "reconstruct" some of the roads, rather than just "maintain" their wearing
surface, and while it is more time consuming and more costly (initially), the life-cycle costs will be less, a
the citizens will have better roads to travel over. Because the $600,000 annual amount has proven inade-
quate to cover the more extensive "reconstruction" as well as normal repaving, beginning in 1998 the City
Council increased the annual amount for repaving to about $1,000,000. Also, in 1998 the City began a pr
gram using a "chip-seal" which has allowed many more lane miles to be recovered for the same cost as tra
ditional asphalt overlays. Chip-sealing the roads to halt their deterioration is intended to buy the City time
to accomplish the needed, and expensive, reconstruction before the failure of more of the Island's roads.
The Public Works Department has been aggressive in obtaining grants and low interest loans to address
many of the City's transportation improvement needs. Passage ofInitiative 695 and the threat ofInitiative
747 has made continued access to this sort of funding uncertain at best. As a result, the reliance on
future grants in this year's update of the Capital Facilities Plan increases the likelihood that some of the
City's transportation projects will need to be deferred.
Although not called for in the Comprehensive Plan, a draft Island-wide Transportation System Plan is
in the process of preparation, with additional funding included in the 2002 budget. At this point,
acceptance of that plan by the citizens and approval by the City Council is obviously uncertain.
A complete discussion of transportation facilities and a detailed description oflevels of service and
proposed improvements can be found in the Transportation Element.
Other Comprehensive Plan Goals and Policies that are implemented or furthered by the following
transportation projects:
TR 3.4: The transportation system infrastructure should be maintained in a safe and usable condition.
As Approved by the City Council on December 17, 2001
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TR 3.10: Provide safe bicycle travel along roadways identified in the Bike Access Plan in Winslow,
along designated school routes, and where needed for safety reasons.
TR 3.11: Sidewalks shall be required in Winslow, along designated school routes, in areas where
sidewalks have been historically located ( e.g., Fort Ward), and where needed for safety reasons.
TR 4.21: Undertake spot improvement projects. Safety improvements could include: Reconstruction
of key traffic bottlenecks and unsafe road segments; elimination of poor sight distances.
TR 5.3: Aggressively seek available county, state, and federal money to: 1) pay for (or at least mitigate)
the effects of county, state, and federal mandates; 2) fund appropriate demonstration projects; 3) fund
improvement projects which meet the overall Island transportation objectives.
TR 5.4: Ensure that the Island's transportation system is planned in advance to have revenue sources
sufficient to build and maintain it.
2002 Inventory of Transportation Facilities
I Type of Facility Description Example Length
FRC 1 * State Highway SR305 7 miles
-----
FRC 2 * Secondary Arterial Miller Road 34 miles
FRC 3 * Collectors Oddfellows Road 43 miles
.M~ Residential Urban Wood A venue
FRC 4 * 22 miles
FRC 5 * Residential Suburban Spargur Loop Road 38 miles
FRC 6 * Unimproved City Roads (gravel) Walden Lane 12 miles
.-----_.
Subtotal 156 miles
Without SR305 & gravel roads 137 miles
Bikelanes** Shared roadway on paved shoulders High School Road 23.5 miles
Sidewalks Paved walkway Madison Ave. 7.6 miles
Trails pedestrian, bike, equestrian, etc. The Grand Forest 6.9 miles
*FRC = Functional Road Classification; Source: Public Works Department, Pavement Management Program
(Klohn Leonoft)
* * With the exception of SR305, bike lanes on Bainbridge Island are three to five foot paved shoulders.
Bike lanes are reported in lane miles. SR305 is included here.
The proposed projects listed below are identified as to whether they are for maintenance and/or
repair (M), for added capacity for existing residents (E), or for added capacity for new population
or employment (N).
Winslow Master Plan and Timin2 of Projects
In 1998, the City Council approved the Winslow Master Plan. That plan included the identification of
many projects intended to attract growth to Winslow in order to meet the concentration targets of the
Comprehensive Plan. While the need to complete these projects has been established, their timing and
method of funding have not. For example, the Winslow Master Plan calls for many ofthe projects to be
funded by developer contributions. As a result, the timing ofthese projects depends on the timing of the
As Approved by the City Council on December 17, 200 I
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related developrnent. To accommodate this timing uncertainty, many of the Winslow Master Plan
projects have been shown as occurring after 2007. This is when the City can afford to build the
projects if they are to be funded by taxes; however, the hope and intent is that they would be completed
sooner with the help of the developers. An example of this is the upgrading of the water main on
Madison A venue which is expected to be completed eight to ten years earlier than otherwise with
the help of contributions from several developments in the area. Also, the absence of funding for
bike lanes should be noted. This is because a significant amount is expected to be spent on bike
lanes as part of other transportation projects (some $3 million in such projects are planned for 2002
and 2003 alone).
2002 Capital Facilities Projects -- Transportation
Pri- Before After Project
Project orit 2002 2002 2003 2004 2005 2006 2007 2007 * Total
Roads Resurfacing - Annual $630 $900 $950 $950 $1,000 $1,000 $14,000 $19,430
Bike & Pedestrian Safety 100 100 100 100 100 100 1,400 $2,000
Bjune Drive (E) N 220 $220
Bypass Road-WMP (N) (WMP) N 1,500 $1,500
Day Road East (N) N 1,005 $1,005
Ericksen Improvements (E)(WM N 934 $934
Ericksen-Hildebrand Opening (N) N 500 $500
Ft. Ward Hill Reconst. (M) N 168 562 $730
Grow Improvements (WMP) N 53 187 $240
Halls Hill/Blakely Hill (E) N 221 $221
High School Road (M) N 460 1,565 $2,025
Hildebrand Improvements (N) N 250 $250
Madison / New Brooklyn- (E) N 164 885 $1,049
Madison Ave (WMP) (E) N 340 1,220 $1,560
Manitou Beach Rd. Phase I (M) N 50 722 $772
Manitou Beach Phase II (E) N 1,414 $1,414
Non-Motorized Plan (WMP) N 100 500 500 500 500 1,900 $4,000
Upper Crystal Springs (E) N 500 $500
_~~llace Way (E)(WMP) N 37 130 $167
Wing Pt. Road Reconstruct'n (M) N 255 833 $1,088
Winslow Way W. - WMP (N) N 100 400 $500
Winslow Way W. - WMP (N) N 50 150 900 $1,100
Winslow Way W. - WMP (N) N 75 505 580
Wyatt Wy Reconst. HOB (M) N 679 679
~yatt Wy Reconst. to Madison ( N 70 351 421
Wyatt Wy Reconst. to Madison ( N 300 100 870 1,270
Winslow Way East (E) N 900 68 968
F erncliff Reconstruction (E) N 1,382 16 1,398
~.._._---
l~age Total 2,743 3,902 4,021 3,452 2,246 2,800 2,090 25,268 46,522
Note: All amounts are $ in ODD's and are in 2001 $ (that is, no adjustment has been made for inflation).
"WMP" indicates that this project relates to the Winslow Master Plan.
A priority of "N" indicates that a project has not yet been given a priority.
As Approved by the City Council on December 17,2001
11
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2002 Capital Facilities Projects -- Transportation (Continued)
..--
Pri- Before After Project
Project orit 2002 2002 2003 2004 2005 2006 2007 2007 * Total
CONNECTIVITY PROJECTS: ??? ???
Agatewood Rd (N) N ??? ???
Country Club Rd (E) N ??? ???
Darden Lane N ??? ???
---.
Deerpath Lane N ??? ???
Dingly I Alder/Fairview N ??? ???
Erickson Avenue (N) N ??? ???
Halls Hill Rd N ??? ???
Mandus Olson Road (N) N ??? ???
-~--------
Marshall Ave N ??? ???
Paulanna Ln N ??? ???
. S~~pard Way (N) N ??? ???
Springridge Rd N ??? ???
SR305/Phelps Road Inter'n (E) N ??? ???
NE Tolo Rd N ??? ???
Wardwell Road N ??? ???
..
Wyatt to SR305 (N) N ??? ???
Wyatt Way/Fletcher Bay (N) N ??? ???
Total Projects - This Page 0 0 0 0 0 0 0 0 0
Total of Prior Page 2,743 3,902 4,021 3,452 2,246 2,800 2,090 25,268 46,522
Less Amounts Charged to Utiliti s:
I Charged to Water (115 (90 (101 (225 (99 (913 (1,543
Charged to Sewer (103 (90 (72 (128 (99 (570 (1,062
Charged to SSWM (205 (428 (203 (214 (107 ( 1,164 (2,321
Transportation Equipment n/a 624 420 420 420 440 440 6,160 8,924
Total Transportation 2,743 4,526 4,018 3,264 2,290 2,673 2,225 28,781 50,520
Note: All amounts are $ in ODD's and are in 2001 $ (that is, no adjustment has been made for inflation).
"WMP" indicates that this project relates to the Winslow Master Plan.
A priority of "N" indicates that a project has not yet been given a priority. Once the indicated
project has been prioritized, funding and timing will be assigned.
Projects which have not yet been assigned a priority are listed in alphabetical order.
As Approved by the City Council on December 17, 200 I
12
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Water
Domestic drinking water is supplied by the City of Bainbridge Island, North Bainbridge Water Company,
South Bainbridge Water Company, numerous smaller public water systems (2 or more hookups), and over
1,000 private single-dwelling wells. The following information was obtained from the Water Element of
this Comprehensive Plan and from the Bainbridge Island Water System Plan prepared for the Winslow
Water System by R.W. Beck and Associates in 1993. Work on an updated Island-wide water resources
plan is largely done with a draft now being circulated for comment.
Level of Service: The levels of service proposed in the Water Element for water systems on Bainbridge
Island are the minimum design standards and performance specifications provided in the 1992 Kitsap
County Coordinated Water System Plan. Fire flow requirements were adopted by ordinance 98-30
and Resolution 98-34 and are tiered to based on zoning and type of construction. Residences can
satisfy deficiencies by installing individual sprinkler systems. Levels of service are as follows:
Levels of Service for Water
Pressure 30 psi residual
Pipe sizing 8" diameter min. (where fire system is required)
Storage "Sizing Guidelines for Public Water Systems"
Quality Federal and State minimum standards
Fire Flow Residential Zone R.04 & R.1 = 500 gpm or sprinkler
Fire Flow Residential Other Zones = 1,000 gpm or sprinkler
Fire Flow Commercial & LM = 1,000 gpm or don't build
Inventory: The Bremerton-Kitsap County 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. Following that is a summary of systems with more than 100 connections:
Group A systems : 15 or more connections 44
Group B systems: Under 15 connections 124
Systems with Over 100 Connections
Capacity Capacity Storage
System # Connections (ERU) (MGD) Volumes (gal.)
Meadowmeer 212 398 0.53 235,000
North Bainbridge 1,522 1,576 1.08 711,000
~guth Bainbridge 950 1,114 0.90 562,000
Winslow 2,002 4,629 1.00 2,910,000
Total 4,686 7,717 3.51 4,418,000
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, it must be concluded that 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 concluded 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.
As Approved by the City Council on December 17, 2001
13
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As part of an interlocal agreement between the City and the Kitsap County PUD # 1, the City is now
developing an all-Island water system inventory (with the PUD funding the project) which will forrn the
basis of a Water Comprehensive Plan. This plan is still in preparation and in its third year of work,
although work on other segments of the plan is believed to be near completion.
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. The system now has four storage reservoirs, and two additional reservoirs are
planned in the six-year plan.
Inventory of Winslow Water System Wells
~
Name Capacity Depth Present Yield
Head of Bay # 1 100 gpm 130 ft. 90 gpm
Head of Bay #2 55 gpm 155 ft. 30 gpm
Head of Bay #3 together with #2 150 ft. together with #2
Lower Weaver * -- 135 ft. 30 gpm
Fletcher Bay 600 gpm 1,550 ft. 400 gpm
HHead of Bay #4 300 gpm 135 ft. 180 gpm
Head of Bay #5 together with #4 135 ft. together with #4
Head of Bay #6 75 gpm 70 ft. 55 gpm
Head of Bay #IA 200 gpm 145 ft. 85 gpm
Sands Ave. # 1 300 gpm 1,023 ft. 200 gpm
Sands Ave. #2 600 gpm 1,055 ft. 600 gpm
Commodore Well 20 gpm 380 ft. 20 gpm
Total 2,250 gpm 1,690 gpm
*Not a potable source - used for construction
It has been determined that the Winslow Water System capacity is adequate to serve the needs ofthe
potential build-out population under existing zoning and build-out to the highest density possible (to
R-28) in the Land Use Element. The available sources are adequate to serve a potential population of
approximately 7,900 or approximately 4,000 units. The system currently serves a population of 3,500
and approximately 3,000 residential equivalent units. There are, however, upgrades necessary to provide
adequate fire flow in most areas, which have been identified in the Bainbridge Island Water System Plan,
by R.W. Beck and the update to this plan done in July, 1995 (and now in the process of being updated).
The two most significant upgrades needed for fire flow are two large storage tanks. Other improvements
include increasing the size of several of the City's water mains, which will be accomplished as major street
are repaved. In 1998, the City completed the connection to City water of 33 homes previously served by
the Commodore Lane Water System, which had been condemned by the State Department of Health.
As Approved by the City Council on December 17, 2001
14
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Other Water Services Provided bv the City
In addition to the Winslow Water System, the City has acquired a water system providing water to
some 65 residences at Rockaway Beach. As part of the acquisition, the City replaced a private system
which had the distinction of having the only public water system in the nation with a well in the middle of
a Superfund site as its sole source of water. A replacement system was provided by the City in 1995
with funding from a local improvement district and grants from the US Environmental Protection Agency
and the Washington State Department of Ecology.
Under state law revenues cannot significantly exceed the cost to provide service but must not be less
than that cost. New hookups are charged according to the cost to connect plus a system "participation
fee" to purchase a share of the capital cost of the system. A restructuring of these participation fees was
completed in late 1997 so that the charges would match the demand placed on the system by new
connection.
Comprehensive Plan policies that are implemented or furthered by the following water projects are:
WR 2.2: The City shall be responsible for facilitating reliable, high-quality water services and
resources Island-wide. The City shall work with other governmental agencies, water purveyors,
and citizens to preserve and protect the water resources of Bainbridge Island. The City shall
assist citizens and water system purveyors to obtain reliable, high quality water service.
WR 2.4: The construction of new water systems and the upgrading of or connection to existing
systems shall be paid for through user fees, Local Utility Districts (LUDs), or other mechanisms
that ensure that the cost is paid for by the service recipients.
WR 2.5: Engineering specifications of new public water systems and expansions or improvements
to existing public water systems shall meet City or other regulatory standards.
CF 1.2: The City shall prioritize the allocation of resources to meet its capital needs in the
following order: 1) major maintenance of existing facilities; 2) elimination of existing deficiencies;
and, 3) provision of new or expanded facilities to accommodate new growth.
As Approved by the City Council on December 17, 2001
15
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2002 Capital Facilities Plan -- Water
6 Year
Funding Sources: 2002 2003 2004 2005 2006 2007 Total
..--.
Beginning Cash & Investments 1,452
Service Charges 1,156 1,272 1,666 1,774 1,943 2,108 9,918
Interest & Other Revenues 76 54 51 50 58 45 334
P~r1:icipation Fees 225 225 225 233 241 249 1,398
Bonds & Other Sources (Net) 0 0 0 0 0 0 0
!()tal Funding 1,457 1,550 1,942 2,057 2,241 2,403 11,651
-.-.-.-..
Less: Operating Costs - Finance 285 70 73 77 81 86 672
Taxes, Rent & Debt Service 371 374 382 389 395 403 2,315
Operating Costs - PW 773 761 803 859 919 984 5,098
- --
Funding Avail. for Projects: 1,480 345 684 732 846 931 3,565
~ -
Pri- Before After Project
Projects: orit 2002 2002 2003 2004 2005 2006 2007 2007 * Total
Water Mains Upgrade - Annual nla $203 $200 $200 $300 $300 $300 $4,200 $5,703
i Water Property Acquisition (N) 1 500 500
t .H__'
~~\V Zone Reservoir (E) 2 200 320 520
High Zone Reservoir (E) 3 200 50 500 750
Wyatt-High Zone Main (E) 4 20 180 200
High School Tank Seismic (M) 5 226 226
~ Pressure Zone Extension (N) 6 65 10 75
i Te!emetry Equip. Upgrade (E) 7 20 90 110
Pressure Zone Extension (N) N 50 50 50 150
Wellfield Emerg. Power (E) N 40 40
Water Treatment Equipment (M) N 35 35 70
~.?ckaway Manganese (M) N 75 75
Security Fencing (M) N 40 40
Weaver Wellhouse Reconstruct'n N ]0 10
--~.
Wellhead Protection (M) N 28 100 100 20 248
Head of the Bay Wells (2) N 100 100
9':<>w Ave-WMP (HS-Gideon)(N) N 176 176
Grow-High Zone Main (N) N 100 100
Shepherd-High Zone Main (N) N 80 80
Grand Res.Seismic Improv's (E) N 5 10 115 130
Knechtel Seismic Improv's (E) N 5 10 80 95
--
Navy Housing System Acquisitio N 5 5
Share of Transportation Projects 0 115 90 101 225 99 913 1,543
Total Projects 0 756 930 745 727 675 1,179 5,933 10,945
6 Year
Total
I Annual Excess I (Shortfall) 723 (585) (61) 5 171 (248 5
Cumulative Excess I (Shortfall) 723 138 77 82 253 5 5
tEnding Cash & Investments 5
Note: All amounts are $ in ODD's and are in 200] $ (that is, no adjustment has been made for inflation).
A priority of "N" indicates that a priority has not yet been assigned to this project.
"WMP" indicates that this project relates to the Winslow Master Plan.
As Approved by the City Council on December 17,2001
16
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Sanitary Sewae:e 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 at the south end of the Island was completed in 1997.
That system was extended in 1998 to allow connection by the Lynwood Center area, where sewage
disposal had been deemed inadequate by the Bremerton-Kitsap County Health District. Details of the
Sewer District No.7 system can be found in the Water Element. More detailed information on the
Island's wastewater facilities may be found in the Wastewater Facility Improvement Plan, February,
1994. Brown & Caldwell Consultants. Funding to update this plan is contained in the 2002 budget.
The City is studying the creation four local improvement districts (Emerald Heights, North Pleasant
Beach, Point White, and Rockaway Beach) to connect areas offailing septic systems to Sewer District
No. Ts treatment plant. The cost ofthese LID's has not yet been fully determined, but will be fully
borne by the users. All other residents not within the service areas of the above districts rely upon
on-site septic systems that require approval from the Bremerton-Kitsap County Health District.
Level of Service: 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 Bremerton-Kitsap County Health District standards
that consider combinations of lot size, soil type, infiltration capacity, depth to hardpan, and proximity to
surface water among others.
Inventory of Winslow Sewerage Facilities: The Winslow sanitary sewer system consists of two separate
parts: the collection system, and the treatment plant.
Collection system: 5.12 miles gravity sewer with pipes 8" to 16" in diameter
2.69 miles of force main with pipes 4" to 12" in diameter
11 pumping stations with 100-2,300 gpm pumping capacity
Treatment plant: Secondary treatment facility located on Donald Place NE
just east ofthe ferry terminal.
The existing collection system capacity has been judged to be adequate through the year 2010 with
periodic upgrades in pumping facilities, although the City like other sewage utility providers experiences
seasonal inflow and infiltration problems. In 1997 with the acquisition of a television camera to check
sewer lines, the City began an effort to locate points of inflow. The City plans to correct inflow problems
over the next five years as shown in the attached plan. The existing treatment plant was designed to
accommodate an effective population of 10,000 and now serves a population equivalent to 5,500 (with
conversion of multifamily and commercial customers to single-family residential equivalents). An upgrade
was completed in January, 1996, at a cost of $2.5 million. A number of additional improvements costing
some $2.9 million have been identified by H R Esvelt Engineering. Those improvements are anticipated
to be phased in over the next few years. The City had added emergency generators and telemetry to
the system to significantly curtail demands. Where possible, pump stations have been taken out of
As Approved by the City Council on December 17, 2001
17
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service to further reduce system costs. The sewer system plan was updated in July, 1995 by R. W. Beck
and Associates (with an update budgeted for 2000), and the system (plant and delivery system) was found
to have adequate capacity for the projected growth for Winslow well past 2012 (the overlap of this
assessment and the Esvelt study is unclear). Other capital projects may be indicated following an inflow/
infiltration analysis being done at the request of the Department of Ecology.
In a separate effort, a comprehensive study of sewer needs was completed in 2000 and has been under
review since then. The study, entitled "South Bainbridge Island General Sewer Service Plan", by
H.R. Esvelt Engineering and American Engineering is also referred to as the "South End Sewer Plan."
2002 Capital Facilities Plan -- Sewage Disposal
--
6 Year
2002 2003 2004 2005 2006 2007 Total
Funding Sources:
Beginning Cash & Investments 1,970
Service Charges 1,227 1,350 1,701 2,058 2,192 2,334 10,861
Interest & Other Revenues 114 77 80 71 61 90 492
Participation Fees 250 250 250 259 268 277 1,554
Bonds & Other Sources (Net) 1,000 1,000 0 0 0 0 2,000
Total Funding 2,591 2,677 2,030 2,387 2,520 2,701 14,907
Le.s.s: Operating Costs - Finance 89 66 68 71 74 78 446
Taxes, Rent & Debt Service 513 444 453 461 467 475 2,813
i Operating Costs - PW 1,185 1,072 1,115 1,176 1,241 1,309 7,099
- - I 2,774j 1,0941 394j 6791 7381 8391 4,549 L
Funding Avail. for Projects:
Pri- Before After Project
Projects: orit 2002 2002 2003 2004 2005 2006 2007 2007 * Total
Collection System Upgrades Annual $100 $100 $100 $200 $200 $65 $854 $1,619
Lift Station Upgrades 80 50 50 50 230
Infiltration/Inflow (I/I) (M) 50 50 50 50 200
Emergency Power (E) N 30 30 60
Telemetry Equip. Upgrade (E) N 50 70 120
South End Sewer: (E) N 1,000 1,000 2,000
Wing Point Sewer (N) N 40 40
--
WWTP Recommendations (E) N 140 700 100 500 500 1,940
--~._..-
Share of Transportation Projects 0 103 90 72 128 99 570 1,062
Totlll Projects 0 1,400 2,093 340 872 928 214 1,424 7,271
6 Year
Total
Annual Excess / (Shortfall) 1,374 (999) 54 (193) ( 190) 625 672
Cumulative Excess / (Shortfall) 1,374 375 430 237 47 672 672
Ending Cash & Investments 672
Note: All amounts are $ in ODD's and are in 2001 $ (that is, no adjustment has been made for inflation).
A priority of liT" indicates that this project is part of a Transportation project.
As Approved by the City Council on December 17,2001
18
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Storm & Surface Water Manae:ement
In the Winslow urban area stormwater is managed by a combination of piped collectors, roadside ditches
and natural stream channels and is well-defined in the City of Winslow Storm Water Drainage Plan, 1985.
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 crossing
the roadways and is labor intensive to maintain. The natural drainage system does currently remove
storm water but not without signs of distress from erosion, siltation, and water quality degradation. The
drainage system is closely related to road maintenance issues. Due to the somewhat incomplete or
obstructed nature of the natural drainage system, there are many wet areas that are causing localized
problems that result in flooding of private property and roadways failing. With the 2000 Capital Facilities
Plan, the City is significantly increasing its efforts to remedy as many problems as possible. However,
some areas, because of the manner in which they were developed are candidates for Local Improvement
Districts to handle or improve drainage systems.
A review of the City of Winslow Storm Water Drainage Plan, 1985, identified several necessary drainage
projects for the area, for example, the Lower Weaver Outfall Project which was completed in 1996. The
Fletcher Bay culvert repair project was also completed in 1996 and is designed to enhance salmon spawn-
ing in the stream. During 1999, drainage for lower Madison and Winslow Way West was provided.
Under an interlocal agreement with the Kitsap County P.U.D. No.1, the City is working on a general
update of the 1985 plan to include the entire Island and to consider water quality as well as quantity. This
plan includes four elements: (1) aerial photography and mapping (which is complete), (2) the storm water
drainage plan which is near completion, (3) a water plan (mentioned on pages 11 and 12, and (4) a
drainage basin assessment. The completion of this plan will form the first comprehensive storm water
drainage plan of Bainbridge Island.
As Approved by the City Council on December 17, 2001
19
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2002 Capital Facilities Plan -- Surface Water Management
I 6 Year
I 2002 2003 2004 2005 2006 2007 Total
Funding Sources:
Beginning Cash & Investments 38
Service Charges 620 744 875 1,009 1,019 1,030 5,298
Interest & Other Revenues I 4 0 I 4 2 12
m
Transfers from General Fund ** 675 350 550 300 1,000 550 3,425
Total Funding 1,296 1,098 1,426 1,311 2,023 1,581 8,734
Less: Operating Costs - Finance 22 17 18 19 20 21 II7
----.-
Taxes, Rent & Debt Service 144 197 202 208 214 221 1,185
. ~~-
Operating Costs - PW 549 579 608 647 689 734 3,807
Funding Avail. for Projects: 620 305 598 436 1,100 605 3,626
.- -.-.---
Pri- Before After Project
Projects: orit 2002 2002 2003 2004 2005 2006 2007 2007 * Total
Drain Sys Upgrades - $50 $50 $50 $50 $50 $50 $7,000 $7,300
Culvert Replacement Program - 50 50 50 50 50 50 700 1,000
Decant Facility N 295 295
Manzanita Area N 250 250
_~t_W ard Drainage Phases I & II N 90 90
Hidden Cove @ Coho Ck N 275 275
Mountain View Drive N 20 110 130
McRedmondlWardwell Area N 20 130 150
Fairview/Madrona Area N 20 120 140
.--
Miller Road @ Manzanita Ck N 50 250 300
Upper Crystal Springs N 20 180 200
- --
i Rockaway Beach N 25 150 175 350
lC;ystal Springs Area N 50 320 370
--
Pt. White Drive Area N 20 140 160
Lynwood Center N 10 60 70
Country Club Rd. Revetment N 100 400 500
Battle Point Area N 60 60
-
Beck/Pleasant Beach Area N 5 225 230
Eagle Harbor Rd. Cut Stabiliz'n N 225 225
Erickson Ave Convenance N 144 144
Euclid Ave. (Dorsey & Loop) N 350 350
Lovell Ave Drainage (HS-Wyatt) N 300 300
Lower Weaver conveyance N 153 153
Park Avenue N 40 40
Phelps Rd. Drainage N 80 80
Halls Hill Area N 220 220
Reitan Road N 60 60
Rolling Bay Walk N 80 80
Rotary - WMP - Detention N 35 35
, -. ..
,
Page Total 0 490 145 250 210 830 550 11,082 13,557
Note: All amounts are $ in ODD's and are in 2001 $ (that is, no adjustment has been made for inflation).
As Approved by the City Council on December 17, 2001
20
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2002 Capital Facilities Plan -- Surface Water Mgmt (Continued)
Pri- Before After Project
Projects: orit 2002 2002 2003 2004 2005 2006 2007 2007 * Total
South Beach Drive Revetment N $336 $336
I Sunrise Area N 85 85
C TaylorlNew Sweden Area N 150 150
Venice Loop Area N 380 380
~nWay/Cave Conveyance N 297 297
Wyatt Basin A Detention N 50 50
Wyatt/Grow Basin B Conveyance N 500 500
'S~re of Transportation Projects 0 205 428 203 214 107 1,164 2,321
-----
--
~- .~
- ---
--
---~
~._..._.
i Total of Prior Page 0 490 145 250 210 830 550 11,082 13,557
Total Projects 0 490 350 678 413 1,044 657 14,044 17,676
6 Year
Total
~nnu'" E"", I (8ho","'I) 130 (45~ (80~ 23 56 (52 33
Cumulative Excess / (Shortfall) 130 86 6 29 85 33 33
Ending Cash & Investments 33
Note: All amounts are $ in OOO's and are in 2001 $ (that is, no adjustment has been made for inflation).
"WMP" indicates that this project relates to the Winslow Master Plan.
A priority of "N" indicates that a project has not yet been given a priority. Once
the indicated project has been prioritized, funding and timing will be assigned.
Projects which have not yet been assigned a priority are listed in alphabetical order.
As Approved by the City Council on December 17, 2001
21
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CITY OF BAINBRIDGE ISLAND
SIX-YEAR FINANCING PLAN
The capital facilities and services discussed in the previous pages are the responsibility ofthe City to
provide. The City's Capital Facilities financing plan is presented here, showing all sources of funding and
compiling all of the City's anticipated capital projects (except utilities). Funding sources are displayed so
that debt service on any proposed bonds is accounted for as though they were operating costs. Facilities
and services discussed on the following pages are those of districts or entities that are separate from the
City and have specific funding sources of their own. As the relevant pages show, some districts have
done a greater degree of revenue projections than others.
The City's Financing Plan calls for funding of about $1 million per year in roads resurfacing in
addition to a lengthy list of specific road projects. In December, 1998, the City issued $9,900,000 in
L TGO bonds ($8.6 million in net new proceeds) to pay for the construction of City Hall and to provide
approximately $2.5 million in funding for major road projects and open space/agricultural land purchase.
In October, 1999, an additional $4.9 million was issued to pay for additional road and drainage projects pI
the roughly $1 million cost of the High Zone Water Reservoir. Thereafter, because of the limitations
placed on the City by the approval oflnitiative 695, part of the road and non-motorized transportation,
and open space projects are expected to be funded by voter special levy General Obligation bonds
approved by at least 60 % of Bainbridge Island voters. It is assumed that if the electorate does not
approve the special levy bonds the designated road, non-motorized transportation, open space, and
drainage projects will not be undertaken.
Winslow Master Plan (WMP)
A Winslow Master Plan was developed under the integrated GMAlSEP A process and includes an
Environmental Impact Statement. As a result, further EIS's do not need to be sought for projects
described in the WMP. That plan, approved by the City Council in May, 1998, calls for major
infrastructure upgrades in Winslow to serve as a magnet for development. Because a separate
Financial Capacity Analysis was not conducted in conjunction with the WMP, funding for several
of the WMP projects is not available from identified sources within the six year planning horizon.
As a result, completion of some of the projects shown in the WMP has been deferred beyond the six-year
horizon (unless developer contributions are available) and this update consequently amends the WMP.
Critical Assumptions
The following tables are based on a set of economic forecast assumptions that include: a 1.0% - 2.5 %
inflation rate and little to no real growth reflecting a downturn in the economy; limits on property taxation
imposed by passage oflnitiative 747 (plus new construction); straight-line population increases based on
20,740 residents in 2001. A more detailed Financial Capacity Analysis ofthe City can be found in an
Appendix to this document. Financing for utilities (drinking water, sanitary sewer, storm and surface
water management) is shown separately with each utility segment (e.g. drinking water) and is excluded
from the following table. Lists of the more important economic and financial assumptions are attached to
the Financial Capacity Analysis. A General Overview of the Capital Facilities Plan is also attached for
reference as a quick way to review the changes in this year's update to the Capital Facilities Plan.
As Approved by the City Council on December 17, 2001
22
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Summary of the City's Six Year Capital Financing Plan (except L.I.D.'s and Utilities)
6 Year
Funding Sources: 2002 2003 2004 2005 2006 2007 Total
Beginning Cash & Investments 8,479
Operating Revenues :
Property Taxes 4,896 5,238 5,884 6,286 6,674 7,035 36,013
Sales & Use Tax 2,130 2,237 2,304 2,442 2,588 2,744 14,444
B & 0 / Other Taxes 2,333 2,380 2,202 2,879 2,980 3,084 15,859
__n_
Interfund Taxes & Rent 628 643 658 679 701 723 4,031
-.-.----
Licenses & Permit Fees 679 762 785 832 882 935 4,876
.~-"---
Sales Tax Equaliz'n/Replacem't 294 0 0 0 0 0 294
Other Intergovemment 281 351 361 372 374 379 2,118
Charges for Services 606 886 913 968 1,026 1,087 5,486
Fines & Forfeits 175 194 200 212 224 238 1,242
Interest, Misc & Other 1,305 1,505 1,486 1,484 1,500 1,485 8,765
Operating Revenues 13,327 14,195 14,792 16,154 16,950 17,712 93,129
Dedicated Revenues :
Real Estate Excise & Other Taxes 1,517 2,034 1,829 2,048 2,055 2,174 11,657
MV Fuel Tax 440 476 482 496 497 508 2,899
Parking Revenues 250 258 263 272 281 291 1,615
Grants Received 640 1,320 6,072 338 1,252 485 10,106
Interest, Misc & Other 575 530 561 559 575 560 3,360
Dedicated Revenues 3,422 4,618 9,206 3,712 4,660 4,018 29,637
Bonds & Other Financing Sources 1,160 4,807 4,081 3,907 3,738 3,420 21,112
Total Sources of Funds 26,387 23,620 28,080 23,773 25,348 25,149 143,878
Operating Costs:
I Executive / Legislative 2,054 2,095 2,137 2,212 2,289 2,369 13,155
Intergovernment Expend's 1,017 1,048 1,079 1,127 1,178 1,231 6,680
Judicial 549 560 571 591 612 633 3,517
~.".._-
Finance - General 2,532 2,582 2,634 2,726 2,822 2,920 16,216
--
Finance - Debt Service 1,752 1,839 2,410 2,737 3,049 3,297 15,085
--~-
Police 2,235 2,280 2,325 2,407 2,491 2,578 14,316
~Ianning / Building 2,128 2,171 2,214 2,292 2,372 2,455 13,631
Public Works 1,278 1,304 1,330 1,376 1,425 1,474 8,187
Street & Road Maintenance 1,993 2,032 2,073 2,146 2,221 2,298 12,763
Operating Capital Expend's 231 297 306 320 334 349 1,836
Net Transfers to Utilities 675 350 550 300 1,000 550 3,425
Operating Costs & Transfers to Utilities 16,444 16,557 17,629 18,233 19,792 20,156 108,811
City Offices 295 100 0 300 2,500 2,500 5,695
Public Works 1,710 2,150 7,450 2,350 1,025 625 15,310
!~ansportation Equipment 474 420 420 420 440 440 2,614
.1'r:~sportation Projects 3,902 3,598 2,844 1,870 2,233 1,785 16,232
Total Capital 6,381 6,268 10,714 4,940 6,198 5,350 39,851
1.._ .
Expenditures & Other Uses of Funds 22,825 22,825 28,343 23,173 25,990 25,506 148,662
6 Year
Total
Annual Excess / (Shortfall) 3,562 795 (264) 600 (642 (357 3,694
Cumulative Excess / (Shortfall) 3,562 4,357 4,094 4,693 4,051 3,694 3,694
Ending Cash & Investments 3,694
Note: All amounts are $ in OOO's.
As Approved by the City Council on December 17, 2001
23
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B.I. PARK & RECREATION DISTRICT
The District has an elected board of five volunteer commissioners and maintains a staff of 22 full
time employees. Funding for operations is by citizen levies authorized under RCW 36.69.
The District provides park and recreation programs to Island residents. Established in 1965, the District
provides services and recreational opportunities to youth, adults, families, seniors, as well as our chal-
lenged populations. Examples of programs the District offers include aquatics, adult exercise, martial
arts, gymnastics, soccer, youth sports, and cultural programs. Examples of events sponsored by the
District include bike and day hikes, Ski School, Spring Arts and Music Festival, and a variety of
youth camps, including arts, baseball / softball, basketball, soccer, and volleyball, and cosponsored
with the City, Wednesday Concerts in the Park. The Cultural Division also led additional development
of the District's special needs programs.
Additionally, the District provides staffing to the Senior Center and Teen Center. Class schedules
and offerings are mailed to each Island household quarterly. The District also strives to assist
community efforts to acquire open space, trails and expand aquatic opportunities. The District's
early achievements included negotiation and effective transfer of Federal government land:
Battle Point, Eagledale, and Strawberry Hill. Since that time, other system parks have been acquired
through donation, citizen levy process, and State grants. The District does not have an impact fee.
The District's largest construction project this biennium is the addition of the new pool. The complex
was approved by voter referendum in 1999 opening in October 2001. The project received
grants and donations for art and a community pool slide. Additionally,following a grant from Rotary,
the pool is named in honor of Don Nakata. Sands Road ball field development is the District's
second largest capital project for the period. Donations in labor and construction provided for
over $600,000 savings here. Additional field space at Sands supports GMA goals and park standards
and was greatly facilitated through an interlocal agreement with the School District that allowed
additional savings through the use of school lands. Blakely Park has also added this year an
additional 18 plus acres as a result of community donations and City contributions.
Efforts in 2000 and 2001 have brought in grassroots support for fundraising and construction of the
skate park at Strawberry Hill as well as the largest tot lot in the County, Kidsup!, at Battle Point.
These efforts were facilitated by the development and use of the Bainbridge Island Parks
Foundation and the tremendous generosity of a large number of citizens.
The District is consummating planning efforts for Blakely Harbor Park and an update to its
Comprehensive Plan. The first of these efforts provided input through a series of workshops led
by a citizens committee under the direction of staff and Portico, a Seattle design firm. Staff and
citizens with the public input of over 600 household surveys, public meetings and 2000 census
data will develop the Comprehensive Plan update. The District has worked with the City to develop
GIS trail planning data used by the City's planners for Bainbridge Island's Non-motorized
Transportation Plan. The District has also been a lead player in working with other agencies and
pursuing park options for the Wyckoff Superfund site and Nikkei Memorial area / Taylor Road
end. Planning efforts are beginning for T'chookwop Park and are targeted for John Nelson Park
as well as a new community center.
As Approved by the City Council on December 17, 2001
24
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Fundraising for the new pool continues. Fundraising for Blakely Park will occur once the plan is
accepted. Other projects on the horizon will be to work with open space and tot lot projects in the
Winslow and surrounding areas as well as partnerships occurring as a result of the upcoming open
space levy.
Volunteer efforts will continue with Stewardship, Earth Day, Trails, Swim and Dive team, coaching,
citizen committees, and the Bainbridge Island Parks Foundation.
Voter approval is required for any major capital projects. Projects are included in this plan to aid
community-wide planning and to provide for grant funding eligibility.
Level of Service: (Existing = 57.2 acres of park per 1,000 residents)
The District has identified a variety of service levels for different types of parks and park facilities.
Those levels of service are as follows:
-~--~-
Park Type Definition of Park / Facility Level of Service
l'l:~ighborhood Park 1,4 to Y2 mile service area & minimum size 5 acres .9 acres /2000
Community Park Y2 to 3 mile service area & minimum size 20 acres 2.1 acres / 1000
Island-Wide Park within Y2 mile drive and minimum size 100 acres 5.3 acres / 1000
Tennis / Multi-use Asphalt or concrete courts with nets 1 court / 2000
Ball Fields Areas designed for softball and baseball I field / 2500
Soccer Fields Areas designed for soccer including goals & nets 1 field / 5000
Rec. Athletic Fields Large grass areas. Recommended size: 5 acres 1 field / 5000
Swimming Pools Covered pool suitable for year-round use 1 pool / 10000
V olleyball Courts Outdoor court with net and sand / soil mixture I court / 5000
Mini-Parks/Tot Lots Not recommended - too expensive to maintain None
Spec Use Facilities Public art, parkways, historic sites, etc. Not Determined
Linear Parks / Trails Elongated area with lengthwise road or trail Not Determined
Equestrian Facilities Areas primarily used by equestrians Not Determined
Note: The City Council has agreed to accept the Capital Facilities Plans of other local agencies as they
are presented rather than try to question other elected officials within the community.
As Approved by the City Council on December 17, 2001
25
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The following inventory includes the Park District's land type designation and the park site owner.
Inventory of Park Sites
i-- Park Site Owner Facilities Size in Acres
Resource Con$ervancy :
Meigs Park Park District None as yet 67.0 Acres
Ted Olson Nature Preserve Park District Nature trail 10.0
W. Port Madison Preserve Park District Trails, picnic shelters, beach access 13.8
Manzanita Park Park District Horse & pedestrian trails 120.0
The Grand Forest Park District Horse & pedestrian trails 240.0 (3 pcs.)
Gazzam Lake Preserve Park District Horse & pedestrian trails 294.0
Battle Point Park, North Park District Fishing pond, trails, picnicking 45.3
Athletic ParkS/Playgrounds :
Battle Point Park, South Park District Sport courts, fields, play area, trails, 45.0
Strawberry Hill Park Park District Sport courts, field sports, classrooms,
Historical Museum, picnicking 17.8
-
Aaron Tot Park City Park Children's play structure 0.3
---
Eagledale Park Park District Sport courts, play structure, covered 6.7
picnic shelter, art center
Gideon Park Park District Trail and playground 2.5
Hidden Cove Park Park District Future ballfields and trails 7.8
Rotary Park Park District Ballfields & children's' play structure 9.8
Gazzam Park Park District Future ballfields, sport courts, trails 24.0
Sands Road Park School District Future ballfields 10.0
I Resource Activity Parks:
_~~p Yeomalt Park District Multi-use bldg, trail, picnicking 3.0
T^chookwap Park City Park Future water access & view, picnicking 1.0
Waterfront Park City Park Boat launch, picnicking, tennis
courts, playground 8.1
Fay Bainbridge Park State Park Picnicking, camping, boat launch,
volleyball, sandy beach 16.8
Fort Ward Park State Park Boat launch, picnicking, trails, beach access 137.0
Blakely Harbor Park Park District Picnicing, hand-carry boat access, shoreline 39.0
Recreation Centers:
-----
fu Island Center Park Park District Community hall, picnicking 2.5
Linear Park / Trail :
Fairy Dell Trail Park Park District Trail and beach access 2.5
South End Trails Park District Trails, easements, trait implementation 4 linear miles
Special Use Facility :
B. I. Aquatic Center Park District (leased) Aquatic Center 1.5
Point White Dock Park District Dock, fishing, clamming 0.3
Other:
John Nelson Park City Park Not presently in use 5.0
Lumkin Property City Park Shoreline Access 7.0
Total 1,137.7 Acres
As Approved by the City Council on December 17, 2001
26
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2002 Capital Facilities Plan -- Parks & Recreation
2007 or 6 Year
Funding Sources: 2001 2002 2003 2004 2005 2006 Later Total
Beginning Cash & Investments 950 950
Maint & Opns Tax Levy 0 20 0 250 0 512 782
BOE?S ICIF Levy & Other Debt 3,000 350 900 4,250
Grants & Contributions 1,272 285 1,215 700 515 1,000 4,070 9,057
Service Charges & Impact Fees 40 40
Interest & Other Income 300 40 340
Total Funding 4,572 735 1,215 1,850 515 1,000 4,582 15,419
Less Operating Costs nla nla nla nla nla nla nla nla
Funding Avail. for Projects: 5,522 735 1,215 1,850 515 1,000 4,582 15,419
Pri- 2007 or
----
Projects: ority 2001 2002 2003 2004 2005 2006 Later Total
Land Acquisition:
Landfill 1,000 1,000
Winslow Proximity 900 900
Facilities:
Ballfield Devopment/School sites 650 650
Blakely Harbor Park 500 1,000 1,500
Battle Pt Play Equipment 150 150
Battle Pt Soccer Renovation 180 180
Battle Pt Picnic Shelter 25 25
Battle Pt Park I Redesign 185 185
Battle Pt Park Center (Tran. Build) 150 150
Battle Pt Hard Court 62 62
Camp Yeomalt 450 450
Community Center Dev 2,000 2,000
Eagledale Art Ctr Renovation 350 350
Eagledale Park Access 20 20
_~ort Ward Neighborhood Park 200 200
Gazzam Park Active Rec Area 400 400
Gazzam Park Wildlife Area 60 ISO 210
Grand Forest Parking 50 50
Hidden Cove Dev 42 80 122
Island Center Restroom 65 65
~eigs Interpretive Center 400 400
~eigs Park Parking 115 115
Ray W'mson Pool Addition 4,530 4,530
Ray W'mson Pool Renovation 100 250 350
Rotary Park Improvement 190 190
Strawberry Hill Skate Park 100 100
Strawberry Hill Tennis Cts. 65 65
Sands Rd. 950 950
T'Chookwop Park Dev 50 50
Total Projects 0 5,872 385 1,215 1,850 515 1,000 4,582 15,419
6 Year
Total
I Annual Excess I (Shortfall) (350~ 350 0 0 0 0 0
I Cumulative Excess I (Shortfall) (350~ 0 0 0 0 0 0
E~<!ing Cash & Investments 0
Notes: All amounts are $ in OOO's and are in 2001 $ (that is, no adjustment has been made for inflation).
As Approved by the City Council on December 17, 200 I
27
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B.I. SCHOOL DISTRICT No. 303
Bainbridge Island School District #303 has not updated its Capital Facilities Plan since the last update
ofthe City's Plan. An update of the School's Plan is presently underway and is expected shortly.
Bainbridge Island School District #303 offers kindergarten through 12th grade (K-12) education to
Bainbridge Island residents. School facilities are principally funded through voter-approved long-term
bonds, interest on bond proceeds, state matching money and impact fees. School impact fees, collected
and held by the City of Bainbridge Island since 1992, have funded approximately $4 million in
construction of additional space in the High School and Sakai Intermediate School. Special levies can
fund specific capital improvements, such as technology, and can purchase equipment such as school
buses. School District operating costs are principally funded through a state apportionment formula and
local tax levies.
Wilkes Elementary and Blakely Elementary are located in the north and south sections of the Island.
Ordway Elementary, Bainbridge High and Commodore Center are located on the district's main campus,
a 75-acre site at Madison Ave. NE and NE High School Road. The campus includes district administra-
tion buildings, maintenance and shop facilities, the transportation center, and a nature study area.
The main campus also encompasses land leased to other agencies for a swimming pool, a teen center and
a daycare facility. Woodward Middle School and Sakai Intermediate School are located at Sportsman
Club Road and New Brooklyn, less than a half-mile northwest of the main campus.
LEVEL OF SERVICE: School District LOS considers two criteria: 1) the permanent, physical space
space available to house students; and 2) program capacity, which is a complex calculation involving the
personnel and facilities needed to provide the desired classes and activities. The desired student-to-
teacher ratios are:
Student/Teacher Ratio
Grades K through 2: 22 students per teacher *
Grade 3: 23 students per teacher *
Grades 4 through 5: 27 students per teacher *
Grades 6 through 8: 29 students per teacher
Grades 9 through 12 29 students per teacher
* There is currently Federal/State funding available on a year-to-year basis to lower class sizes at Grades
RECENT EVENTS: One goal of the district's strategic plan is to partner more with the entire commun-
ity for educational and recreational purposes. To this end the district has agreements with a consortium
of community service agencies, led by Bainbridge Youth Services, to rent part of Commodore Center;
with the City for water provision and surface water/environmental education; with the Park District for
additional sports fields and transfer of the former alternative high school building at Strawberry Hill Park;
with the Bainbridge Island Education Association for office space; with the Fire Department for a
transmission tower site; and with the Meadowmere Water utility for a storage tank site. Proceeds from a
technology levy approved in February, 1996 have improved computer access for students at all levels
and for community members.
As Approved by the City Council on December 17, 2001
28
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The voters approved a $26.8 million bond in February, 1997. Along with interest and school impact fees,
these bonds funded expansion and improvements at Bainbridge High School, construction of Sakai
Intermediate School, and compliance with federal regulations regarding underground storage tanks and
asbestos abatement.
PLANS FOR THE FUTURE :
Page 1 of the School District's Capital Facilities Plan indicates its purpose is to aid planning to :
1. Extend the useful life of existing facilities,
2. Enhance educational opportunities in program and technology,
3. Improve the learning environment by improving major systems,
4. Provide appropriate classrooms for all students, and
5. Acquire enough land to provide sites for future facilities.
These are still the significant areas to be considered when planning.
As we enter the twenty-first century, the following trends and conditions are expected:
1. Continued enrollment growth,
2. Continued high expectations for the Island's children and their schools,
3. Continued rapid technological change,
4. Educational reform affecting the spaces needed to deliver programs in ways that cannot be
foreseen,
5. Insufficient funding to support the desired page of educational reform (the pressure to defer
defer maintenance will continue),
6. Increased concern about building environment and health, requiring updates in materials and
systems,
7. Continued need for social and recreational facilities, to be met in part by school facilities,
8. Continued cooperation among Island agencies to meet the needs of children,
9. Continued dependence on voter-approved bonds to fund capital improvements, and
10. Continued demand for neighborhood schools and small buildings with smaller student class size
at the elementary level.
The District is beginning a comprehensive Study and Survey of its capital facilities with a team of
local citizens, school administration and staff, architects, engineers and students. The Study and
Survey (last updated in 1997) will assist in the planning of capital improvements. It is likely that the
District will propose a bond issue to the voters in later 2002 or 2003 following the completion of the
update to the Study and Survey. The District will need to obtain wide popular support to fund its
needed capital improvements through this, and possible future, bond issues.
OTHER CAPITAL ITEMS: The district's major capital assets include the properties discussed
above, a district-wide technology network, and a vehicle fleet. The fleet currently contains 21 school
buses, of which 11 are new (1999) models;; 7 special education buses of which 2 are new (1999) models;
and 20 miscellaneous maintenance and motor pool vehicles.
As Approved by the City Council on December 17, 2001
29
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OPERATING COSTS New buildings are primarily funded through long-term bonds, with contributions
from state sources, investment earnings, and impact fees. The operating expenses of the District,
including maintenance offacilities, are through state apportionment (74%) and local tax levies (18%).
Federal sources and local efforts each provide about four percent of the operating budget. The state
apportionment funding can be expected to grow in concert with increased enrollment and inflation.
Operating funds are not available to support construction of capital facilities.
Inventory of Facilities
Building Building Program Capacity
School Facility Area Classrooms for Building Portables
Capt. Wilkes Elementary 40,985 SqFt 14 334 5
12781 Madison Ave. NE
Capt. Blakely Elementary 42,450 15 357 4
4707 Blakely Ave. NE
Ordway Elementary 51,193 16 381 6
8555 Madison Ave. NE
Subtotal - Elementary 134,628 45 1,072 15
Woodward Middle School 77,547 24 696 6
9125 Sportsman Club Road
Bainbridge High School 206,990 60 1350 0
9330 NE High School Road
Sakai Intermediate School 66,536 22 600 0
Sportsman Club Road NE
Subtotal - Middle & US 351,073 106 2,646 6
Total Schools 485,701 151 3,718 21
'M.'
Commodore Center * 89,508 35 770 0
9350 NE High School Road
Administration Center n/a n/a
8489 Madison A venue NE
Maintenance Center n/a n/a
Transportation Facility n/a n/a
Mandus Olson Property 40 acres Undeveloped
Sands Road Property 10 acres Athlatic playfield (used together with Park District)
* Commodore Center, formerly an elementary and middle school, now houses alternative elementary and high school
programs, a home school support resource center, some school district offices, and a variety of early childhood and
community service programs. It accommodated overflow from the high school during construction (1998-99) and the
the intermediate school temporarily during fall 1999. Long-term use is not feasible, given the age of the building
and the cost to renovate. When short-term uses are no longer advantageous, major portions of Commodore Center
have been identified for demolition.
As Approved by the City Council on December 17, 2001
30
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2002 Capital Facilities Plan -- School District
I -- 2008 6 Year
2002 2003 2004 2005 2006 2007 or Later Total
Funding Sources:
_Beginning Cash & Investments 1,481
Maint & Opns Tax Levy n!a n/a n!a n!a n!a n/a n/a 0
Bonds ICIF Levy & Other Debt 35,000 nla n/a nla n/a 35,000
State Matching Funds 1,000 n!a n!a n/a n/a 1,000
Service Charges & Impact Fees 660 615 615 n/a n/a nla n/a 1,230
Interest & Other Income 4,210 1,500 400 n/a n/a n/a n/a 1,900
.---
Total Funding 4,870 37,115 2,015 nla nla nla n/a 39,130
---...--
Less Operating Costs nla n/a n/a nla nla nla n!a 0
Funding Avail. for Projects: 6,351 37,115 2,015 0 0 0 n!a 39,130
Pri- Before 2007 Project
Projects: ority 2002 2002 2003 2004 2005 2006 or Later Total
Sakai Intermediate School n/a 10,379 20 10,399
High School Add'n & Mod. n/a 16,326 350 1,500 18,000 36,176
Technology n/a 680 680
Pool Improvements n!a 100 100
UST Compliance n/a 212 212
Additional Equipment n/a 38 38
Blakely Boilers n!a 100 100
Woodward Recladding Project nla 1,349 3,000 4,349
Other Facility Expansion nla 100 1,000 11,000 12,100
System Replacement n/a 100 150 150 400
PSELC Transaction/Blakely Waterline nla 230 70 300
Administration Building nla 500 500
Sands Avenue TImber Removal n!a 20 20 40
Madison A venue Road Improvement nla 200 200 400
Real Estate Purchase n/a 0
n!a 0
Capital-related Operating Costs n/a 134 346 158 163 801
nla 0
n/a
Total Projects 29,567 4,506 3,008 29,513 0 nla nla
6 Year
Total
Annual Excess I (Shortfall) 1,845 34,107 (27,498) 0 n/a n/a 8,455
Cumulative Excess I (Shortfall) 1,845 35,952 8,455 8,455 n/a n/a 8,455
Ending Cash & Investments 8,455
Note: All amounts are $ in OOO's and are in 1999 $ (that is, no adjustment has been made for inflation).
Note the absence of an indicated maintenance & operations levy and also of operating costs. This is
because the School District funds much of its operations from state apportionment and annual special
levies. As a result, there is no operating surplus to fund capital improvements.
The Bainbridge Island School District advises that it has not formulated capital plans past the year 2003,
as so many of its needs are dependent on enrollment. Additionally, the projects listed have not been
prioritized because funding is available to complete them all.
Note: The City Council has agreed to accept the Capital Facilities Plans of other local agencies as they
are presented rather than try to question other elected officials within the community.
As Approved by the City Council on December 17,2001
31
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B.I. FIRE DEPARTMENT
Each year the Bainbridge Island Fire Department (also known as Kitsap County Fire Protection District
No.2) reviews and updates a Ten Year Plan to guide future operating costs and capital projects involving
emergency facilities, vehicles and equipment. The Department takes into account six factors in setting
its capital project priorities: (1) completing prior year commitments; (2) meeting response time and
emergency service level standards adopted by the Board of Fire Commissioners; (3) following through
with planned upgrades and replacements of facilities, vehicles and equipment; (4) supporting a
community-based services Department mostly staffed by volunteers; (5) emphasizing the training and
safety of emergency responders; and (6) promoting self-sufficient fire stations for normal operations and
for operations during storms and disasters.
MAJOR ACCOMPLISHMENTS 1997-2001
In 1997, the Department installed a 160 foot emergency communications tower on Mandus Olson Road
to improve radio coverage at emergency incidents. The tower is also utilized by the City's Police
Department.
In 1998, the Department completed a Master Site Plan for future fire station improvements. Based on
this Plan, the Department completed several projects in 2000 at the Headquarters Station #21 (Madison
Avenue) including: replacing underground fuel tanks with a new above ground fueling facility;
construction a new housing unit for volunteer resident firefighters; and making site improvements for
drainage control and expanded parking. In 2000 the Department also constructed a new roof
canopy at Station #33 to protect vehicles while they are being maintained and serviced. Planned
vehicle purchases over the last two years included the acquisition of two pumper trucks and the
replacement of one medical aid unit.
ANTICIPATED SCHEDULE CHANGES AND FUTURE OUTLOOK
Facility improvements at three existing fire stations will continue to be guided by the Master Site
Plan. Anticipated fire station improvements over the next six years include: (1) constructing wash
bay for vehicles and remodeling the main building at Station #21; and (2) constructing a new housing
unit for volunteer resident firefighters, installing a fueling facility and constructing a wash bay at
Station #22 (Bucklin Hill Road). In 2002, the Department anticipates adding a new aerial ladder
truck to the fleet to enhance emergency operations and support firefighter safety. Within the next
six years the Department will also replace two pumper trucks, two water tenders and two medical
aid units. Note that the scheduling and financing of these capital projects may change depending
on the approval in Initiative 747.
Note: The City Council has agreed to accept the Capital Facilities Plans of other local agencies as they
are presented rather than try to question other elected officials within the community.
As Approved by the City Council on December 17, 2001
32
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LEVEL OF SERVICE
The Fire Department's mission is to save lives, protect property, and share responsibility for cornrnunity
safety. The Departrnent responds to fire and medical emergencies, rescue situations and disasters. It also
provides programs aimed at preventing fires and preparing both adults and children for emergencies.
The Department currently responds to about five emergency calls each day, with 75 % ofthe calls
involving medical aid and 25 % involving fires. The Department's goal is to respond within an average of
five minutes from the notice of a call to arrival at the scene. In 2000, the Department responded to 372
fire calls and 1,397 medical aid calls.
2001 Inventory of Facilities
--.---.- Uses
Building Floor Area
Headquarters Fire Station 21 Administration and operations, resident housing for 4
8895 Madison Ave. 13,400 SqFt firefighters, 8 stall Apparatus Bay, Multipurpose Room
South Satellite Station 22 Facilities and equipment office, resident facilities for
. 7943 Bucklin Hill Road 5,000 SqFt 2 firefighters, 4 stall apparatus bay, maintenance shop
North Satellite Station 23 Resident facilities for 3 to 4 firefighters, 3 stall apparatus
12985 Phelps Road N.E. 8,500 SqFt bay, training classroom and tower, training/safety office
Storage Facility Two Stall Concrete Block Apparatus Bay
9421 NE Day Road East 875 SqFt (currently used for storage)
Taylor A venue Property n/a Vacant Lot
Mandus Olson Radio Tower 80 SqFt Communications Shed with a 160' Radio Tower
Total 27,855 SqFt
2001 Inventory of Vehicles
1-
Location Apparatus Capacity/type
Fire Station 21 (Headquarters) Car I Command / Operations Chief
-. -.. Suburban Truck Command / Duty Officer
- . Suburban Truck Training & Safety
Van Fire Code Mgmt Official
. .- General Transport
Van
... on 1500 gallons per minute Attack Engine
- Pumper
Pumper 1500 gallons per minute Attack Engine
... Rescue Truck RescuelEquipment Vehicle
----- Tender 1500 gallon Water Tender
Tender 1500 gallon Water Tender
Medic Unit Medic Unit - Advanced Life Support
Aid Unit Aid Unit - Basic Life Support
Boat Truck Marine Rescue
- Trailered Marine Rescue Boat
Boat
Fire Station 22 (Bucklin Hill Road) Maintenance Truck Utility / Facilities & Equipment
Pumper 1250 gallons per minute Attack Engine
Tender 2500 gallon Water Tender
..--- Aid Unit Aid Unit - Basic Life Support
- (Phelps Road) Pumper 1250 gallons per minute Attack Engine
Fire Station 23
--. Tender 2500 gallon Water Tender
Aid Unit Aid Unit - Basic Life Support
Training pumper 1971 Pumper Engine (will be surplussed)
Total Apparatus Count 22
As Approved by the City Council on December 17, 2001
33
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2002 Capital Facilities Plan -- B.I. Fire Department
-~
6 Year
2001 2002 2003 2004 2005 2006 2007 Total
Funding Sources:
~eginning Cash & Investments (Expense Fund) 578 459 474 496 518 541 566
Maint & Opns Tax Levy 3,356 3,630 3,923 4,235 4,569 4,927 5,265 26,549
Alternative Revenue Sources 0
Transfer In from Reserve Fund 19 4 5 5 5 5 5 29
_Service Charges 116 119 123 126 130 134 138 770
Interest & Other Income 100 104 85 104 96 236 98 723
Total Funding 4,169 4,316 4,610 4,966 5,318 5,843 6,072 28,649
Less Operating Costs 2,752 2,846 2,974 3,108 3,248 3,394 3,547 19,117
Less Debt Service Costs 306 303 450 460 478 484 505 2,680
- ---
Less Funds Dedicated to Ending Fund Balance 459 474 496 518 541 566 591
Funding Avail. for Projects (Capital Transfer) 652 693 690 880 1,051 1,399 1,429 6,142
u___..
Pri- 2001 & After
Projects: ority Before 2002 2003 2004 2005 2006 2007 2007 *
Capital Facilities:
Renovate Headquarters Station n/a 507 959 313 740
Station 22 Improvements nla 1 727 444 7,300
Station 23 Improvements nla 7,800
Capital Equipment:
Command I Utility Vehicles nla 32 46 90 332
EMS Aid Units n/a 128 139 149 954
.~~-
Fire Engines n/a 929 742
Aerial Ladder Truck nla 89 178 178 178 178 89
Tenders n/a 627 924
Marine Truck & Rescue Boat nla 48 52 72
----
Rescue Truck nla 264
Radio System Improvements nla 21
Other n/a 1,200
---...
Total Projects 618 1,169 352 1,118 1,092 1,462 291 20,328
6 Year
2000 Ending Capital Fund Balance 447 Total
Net Annual Excess I (Shortfall) 34 (476~ 338 (238~ (41 (63) 1,138 692
Cumulative Excess I (Shortfall) 447 481 5 343 105 64 1 1,139 1,139
Ending Capital Fund Balance * * * 1,139
Notes: All amounts are $ in OOO's and are in 2000 $ (that is, no adjustment has been made for inflation).
Ending Capital Fund Balance omits $591,000 in "Funds Dedicatged to (Operating) Ending Fund Balance."
As Approved by the City Council on December 17, 2001
34
T
SEWER DISTRICT No.7
Unlike the other local governments, Kitsap County Sewer District No.7 has not updated its Capital
Facilities Plan since the last update ofthe City's Plan. An update of the Sewer District's Plan is unlikely
because the District believes that, absent changes to its planned capital projects, an update is not needed.
In August, 1996, Kitsap County Sewer District No. 7 completed construction of a sewage treatment facilit
with a design capacity equivalent to 408 single-family residences (ERU's), an outfall, and major intercepto
lines. Funding for the $3,500,000 cost of the facilities consisted of a Department of Ecology grant for
roughly 50 % of the cost and a Washington State Revolving Loan Fund loan for the remainder. The loan
is being repaid from assessments against the property owners served by the facility through Local Improve
ent District #1. The Sewer District serves an area around Fort Ward including approximately 350
parcels ofland ranging in size from 6,000 sq.ft. to 20 acres. Presently, the District is serving 76 customers
and has another 25 who have prepaid L.I.D. # 1 charges in order to ensure availability of service. More
customers are signing up daily. The District does not have the capacity to serve all the lots which could
be created within its boundaries under existing zoning, although it has sufficient capacity to serve all
presently-existing lots within the District. Service availability is offered on a "first come, first served" bas
Roughly three years ago, the District committed to provide 80 ERU to property owners in and around
Lynwood Center. That agreement is now final and the Lynwood Center customers began connecting
to the sewer in August, 1998. The Lynwood Center customers were required to pay for the cost of the
sewer line to serve them plus a proportionate share of the general facilities cost (L.I.D. #1)
The Sewer District has determined to fund all future improvements through local improvement districts.
L.I.D.'s will only be established when homeowner petitions show a clear desire for the connection. The
following table lists the known or anticipated L.I.D.'s :
2002 Capital Facilities Plan -- Sewage District No.7
6 Year
Funding Sources: 2002 2003 2004 2005 2006 2007 Total
L.I.D. Bonds 0
All other sources
Total Funding 0 0 0 0 0 0 0
Funding Avail. for Projects: 0 0 0 0 0 0 0
-.---- .. 6 Year
Before
Projects: Priority 2002 2002 2003 2004 2005 2006 2007 Total
--.
(None planned)
Total Projects 0 0 0 0 0 0 0
Note: All amounts are $ in OOO's and are in 1999 $ (that is, no adjustment has been made for inflation).
Note: The City Council has agreed to accept the Capital Facilities Plans of other local agencies as they
are presented rather than try to question other elected officials within the community.
As Approved by the City Council on December 17,2001
35
T
SUMMARY
The following summarizes projects proposed by the various taxing districts on Bainbridge Island,
during 2000-2006 and their effects on the taxpayers. Because different plans are for different time
periods, the summary is not complete for all years.
Summary of Capital Projects for All Bainbridge Island Taxing Districts
r- 6 Year
District 2002 2003 2004 2005 I 2006 2007 I Total
City - Admin I Facilities $295 $100 $0 $300 $2,500 $2,500 $5,695
City - Parks & Trails 1,710 2,150 7,450 2,350 1,025 625 15,310
City - Transportation & Equipm't 4,526 4,018 3,264 2,290 2,673 2,225 18,996
Sub-Total: City-Tax Sppt'd 6,531 6,268 10,714 4,940 6,198 5,350 40,001
Schools 4,506 3,008 29,513 0 nla nla nla
Parks 385 1,215 1,850 515 1,000 4,582 nla
Fire 1,169 352 1,118 1,092 1,462 291 nla
Six Year Total (Excl. Util.) nla 10,843 43,195 6,547 8,660 10,223 nla
n,,_'o'n
City - Drinking Water 756 930 745 727 675 1,179 5,012
City - Sewage Disposal 1,400 2,093 340 872 928 214 5,847
City - Storm & Surface Water 490 350 678 413 1,044 657 3,632
Swr Dist #7 -Sewage Disposal 0 0 0 0 0 0 0
Six Year Total 2,646 14,216 44,958 8,559 11,307 12,273 nla
[!\'Iemo: Total City
9,1771 9.6411 12,4771 6,9521 8,8451 7,400 I 54,4921
Note: All amounts are $ in OOO's and are in 1999/2000 $ (that is, no adjustment has been made for inflation).
As Approved by the City Council on December 17,2001
36
T
Critical Assumptions
..,~"'.
'. ,
~"""
CITY OF BAINBRIDGE ISLAND -- 2002 Financial Capacity Analysis
Revenues
. Property taxes are limited to the 1 % increase on existing properties required by 1-747
plus $75 million a year in new construction.
. MVET replacement funding ends in 2003.
. Development fees increased to 40% of cost in 2003,50% in 2004 and finally 60% of
cost in 2005.
. Water and sewer rates are increased sufficient to provide positive cash balances at the
end of 2007.
. SSWM utility rates are increased to $60.00 in 2002, $72.00 in 2003, $84.00 in 2005
and $96.00 thereafter.
. Other revenues are as projected for the 2002 Budget except that grants are adjusted to
match the lack of carryover of capital projects.
Expenditures
. 2001 costs are a forecast based on the first six months actuals and adjusted for known
transactions.
. No carryover of capital projects from 2001 to 2002 is shown (2001 projects are
assumed to be completed and paid for in 200 I--note that this assumption is not
consistent with the assumption used in the 2002).
. Operating costs for 2002 approximate the budget requests and their growth thereafter
will be held to one percent.!!llikr the sum of inflation plus real growth.
. Capital projects are as shown in the CIP / CFP.
. Wyckoff property to be obtained in 2004 with full funding from grants.
Other
. The current economic downturn will flatten out (that is, real growth will be zero rather
than negative).
. The City will maintain its existing policy on cash reserves (7.5% of operating costs for
tax-supported funds and 3 months of costs for water and sewer).
. Local improvement districts will fund the following projects: South End Sewer
(100%), Madison / New Brooklyn (50%) and all SSWM projects after 2002.
. $8 million in GO bonds for open space is approved by the voters in November, 2001.
The bonds are to be issued as the money is spent.
. lAC grants will fund all Waterfront Park improvements.
. Most transportation capital projects from 2003 through 2007 are funded by either
grants, developer contributions, or voted GO bonds (bonds total $6.4 million). Non-
motorized plan improvements are funded by $4 million in GO bonds. Half of the
SSWM drainage amounts in transportation projects ($682,000) funded by grants.
. Parking Facility to be funded by a combination of bonds and new sources of revenue.
. lnterfund borrowing is used to cover any short term deficits in individual funds.
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