ORD 2004-09 2004 COMPREHENSIVE PLAN UPDATE
2004 Comprehensive Plan Update
ORDINANCE NO. 2004-09
AN ORDINANCE of the City of Bainbridge Island, Washington, adopting text
amendments to the Land Use Element, Housing Element, Water Resources
Element, Transportation Element, Capital Facilities Element, Utilities Element,
Economic Element, and Human Services Element of the Comprehensive Plan;
repealing certain goals and policies in the above referenced elements of the
Comprehensive Plan; adopting a new Environmental Element of the
Comprehensive Plan; adopting text amendments to the Winslow Master Plan, a
supplement of the Comprehensive Plan; and adopting map amendments to the Land
Use Map oft!te Comprehensive Plan.
WHEREAS, in accordance with RCW 36.70A, the Growth Management Act, the City of
Bainbridge Island adopted a Comprehensive Plan on September 1, 1994, subsequently amended,
which guides the growth of the city through 2012, establishes the long range vision for the island
and identifies the important characteristics that the community desires to retain, promote and
foster; and
WHEREAS, the Comprehensive Plan includes a Land Use Element, Housing Element,
Capital Facilities Element, Utilities Element and Transportation Element as required by the Growth
Management Act, as well as the optional elements for Water Resources, Human Services, Cultural
Development and Economic Development; and
WHEREAS, in accordance with RCW 36.70A, the Growth Management Act, the City is
required to review and update its Comprehensive Plan; and
WHEREAS, the Planning Commission conducted numerous public study sessions and
workshops in reviewing the Land Use, Housing, Water Resources, Transportation, Capital
Facilities, Utilities, Economic, and Human Services elements, the Winslow Master Plan, and the
Land Use Map of the Comprehensive Plan, and identified certain amendments that are necessary to
meet the Growth Management Act requirements of RCW 36.70A, or other applicable laws; and
WHEREAS, the Planning Commission also identified the need to adopt a new
Environmental Element to further the Comprehensive Plan goals of protecting and managing the
natural resources of the City; and
WHEREAS, the Planning Commission also reviewed the Cultural Element of the
Comprehensive Plan and determined that no revisions were needed; and
WHEREAS, the Planning Commission held public hearings on the update of the
Comprehensive Plan on April 25, 2002; May 9, 2002; May 22,2003; June 12,2003; November 13,
2003; December 11,2003; January 8, 2004; January 22, 2004; and February 26, 2004; and
WHEREAS, the Planning Commission completed their review in March 2004 and
forwarded their recommendations to the City Council; and
Ordinance 2004-09
2004 Comp Plan Update
Page 1
WHEREAS, the proposed update to the Comprehensive Plan was reviewed by the various
committees of the City Council on April 5, 2004; April 6, 2004; April 19, 2004; April 20, 2004;
May 4,2004; May 10,2004; May 17,2004; May 18,2004, May 19,2004; May 24,2004; June 1,
2004; June 14, 2004; June 29, 2004; July 6, 2004; July 19, 2004; July 20, 2004; and August 3,
2004; and
WHEREAS, the City issued a notice of Draft Supplemental Environmental Impact
Statement on September 15, 2004 and issued a Final Supplemental Environmental Impact
Statement & Addendums on November 27,2004; and
WHEREAS, the Washington State Office of Community Development was notified on
October 1,2004, of the intent to adopt this ordinance, in accordance with State law;. and
WHEREAS, the City Council held public hearings on the update of the Comprehensive
Plan on October 13; 2004; November 10, 2004; and November 23, 2004;
NOW, THEREFORE, the City Council of the City of Bainbridge Island, Washington,
does ordain, as follows:
Section 1. The Introduction to the Comprehensive Plan is amended to add the following:
Introduction to the 2004 Update of the Comprehensive Plan
The City is required by the Growth Management Act (GMA, RCW 36.70A) to review, and if
needed, revise the comprehensive plan to address changes in local and regional conditions and
state or federal laws since the original plan was adopted in 1994. The City of Bainbridge Island
GMA comprehensive plan review must be completed by December 2004.
Development of the Plan Update Process
The City began the review process in 2000 with the appointment of a steering committee made up
of three City Council members, three Planning Commissioners and staff. The committee decided
on a methodology for the review, dividing the process into three phases:
Phase One - Information Gathering - 2000
In Phase One, staff analyzed the existing policies of the Plan and prepared the document "Staff
Review 2000," which provided a review of actions taken to date to implement the Plan. The staff
review also included recommendations for revising some of the goals and policies.
Another important component of Phase One was the completion of a new community values
survey, to measure any change in community sentiment since the 1992 Community Values Survey
was conducted as part of the development of the 1994 Comprehensive Plan. The new survey, with
slight modifications, was conducted in May 2000 and a final report was published in July 2000
(Bainbridge Island Community Values Survey Report, July 10,2000, Pacific Rim Resources, Inc.).
The results of the survey were presented to the public and the City Council at an open house on
July 26, 2000.
Phase Two -Analysis - November 2000 - January 2001
The steering committee reviewed the results of the community survey and staff review and
determined that the goals and policies in the Comprehensive Plan still represented the community's
Ordinance 2004-09 Page 2
2004 Comp Plan Update
vision, and that substantive revisions were not necessary. The Planning Commission was directed
to begin their review of the Plan, discussing each element individually and proceeding policy by
policy. The steering committee also decided that consideration of public comment provided in
writing and at Planning Commission meetings should be an important part of the review process.
At the end of the discussion of each element, agreed-upon changes were to be publicized for public
comment at a public hearing before the Planning Commission.
Phase Three - Recommended Action - January 2001- March 2004
Planning Commission Review
The Commission began their review in early 2001, using the 2000 Staff Review and the results of
the 2000 Community Values Survey as the basis for their discussions. Through a series of study
sessions and public hearings, the Commission completed the review process in January 2004, held
a final series of public hearings and a workshop, gathered additional community input and
forwarded their recommendation along with the public comments to the City Council in March
2004.
City Council Committee Review - March 2004 - December 2004 .
The City Council continued the public review process through the spring and summer of 2004,
reviewing each of the Planning Commission recommendations on the elements of the Plan within
the four Council Committees (public Works and Transportation Committee, Land Use Committee,
Finance Committee, and Community Relations Committee), and holding a series of public
meetings. The Council held a public open house and workshop on the entire Plan Update in
September 2004 and then a- series of public hearings, gathering additional public input prior to
adopting the revisions.
County-wide Planning Policies (CWPP)
In coordination with the Kitsap Coordinating Council, in which the City of Bainbridge Island
participates, Kitsap County adopted the County-wide Planning Policies in 2001 and amended in
2003. The City reviewed the policies in relationship to the Comprehensive Plan and ratified the
County-wide Policies in 2001, and again with the revisions in 2003. The Kitsap Regional
Coordinating Council is currently updating these policies.
Socioeconomic Profile
Since the development of the 1994 Plan, the socioeconomic character of Bainbridge Island has
changed only slightly. The population has grown to 20,760 (Office of Financial Management
estimate for 2004), in line with the expected growth trend of the 2012 population projection. From
1990 to 2000, the population grew from 15,846 to 20,308, an increase of 4,462 people, or a 28%
increase in population.
The 2000 census reports that 92.9 % of Islanders are listed as white and that those of Asian
ancestry (Japanese, Filipino and Vietnamese) remain the largest minority on the Island.
The Island experienced an increase in employment of 52% between 1990 to 2000, from 3,460 jobs
to 5,271 jobs. The majority of the job growth was in the finance, real estate and service sectors,
with an increase of 69%. Manufacturing employment increased 60% after decreasing last decade,
however, it represents only 11 % of the jobs on the Island.
Community values
As required by the GMA, the City of Bainbridge Island produced its first Comprehensive Plan in
Ordinance 2004-09
2004 Comp Plan Update
Page 3
1994, to outline strategies to manage growth on the Island through the year 2012. A community
values survey was conducted for the 1994 Plan.
In 2000, the City began the required update of the Comprehensive Plan by again identifying the
community values and opinions about land use, growth, environment, and related policy issues.
The City of Bainbridge Island contracted with Pacific Rim Resources (PRR) to develop and
implement a random community values survey and analyze the resulting data. The 2000 survey
was based largely on the 1992 survey to allow for direct comparisons. The survey was
administered by telephone to 406 residential households.
A random telephone survey format was chosen because it would yield an unbiased, objective and
scientific analysis of public opinions about growth issues on Bainbridge Island.
Specifically, the objectives of the survey were to:
. Determine .significant changes in public attitudes since the 1992 Community Values
Survey;
. Understand residents' vision for the future of Bainbridge Island;.
. Understand residents' perceptions about Bainbridge Island's character;
. Prioritize residents' desires for services and improvements;
. Determine levels of support for a variety of growth management issues;
. Assess attitudes about restricting private property rights;
. Determine whether residents support the development of affordable housing;
. Determine the willingness of residents to support tax increases to pay for additional
services or improvements;
. Identify the most effective means of communicating with residents about the
Comprehensive Plan.
Conclusions and General Recommendations from the Survey Consultant
. In general, residents appear to have mixed feelings about past growth on the island, and little
enthusiasm for future development. There is still little support for additional shopping
facilities, office space, or industrial facilities, and job creation is not a high priority.
. While traffic congestion is one of the issues of most concern to residents, there is clear support
for maintaining narrow, winding roads with native vegetation and other public services.
Clarifying the tradeoff between expanding roads and maintaining narrow, winding character
could reduce the potential for unreasonable expectations with respect to congestion
improvements. More creative solutions than road widening and straightening should be
considered to address traffic problems.
. Increasing park-and-ride lots, expanding the sewer and water systems, and expanding
roadways are the issues with the least support in the community. If it is determined that these
are needed services, public education activities will be needed to broaden understanding of
these issues.
. Residents are surprisingly willing to be taxed, both for environmental preservation and for
"quality of life" improvements like pedestrian and bike trails and new parks and recreational
areas. These are the items around which a base of support would most easily be built in terms
of tax proposals.
Ordinance 2004-09 Page 4
2004 Comp Plan Update
. Although Bainbridge Island residents recognized the importance of a mix of incomes and
affordable housing and favored the issue when asked to rate it, few were willing to be taxed in
support of affordable housing.
. Bainbridge Island residents opposed improved police and fire services, road expansion,
development of manufacturing, additional shopping facilities and other infrastructure
improvements that support growth.
. Newspaper articles should be the primary mechanism for reaching Bainbridge Island residents,
followed by mail. The city website has gained in popularity.
Planning under GMA
Under the Growth Management Act, updates to the comprehensive plan may occur on an on-going
basis to reflect local needs, new data or new law, but they must occur in a deliberate manner every
seven years [RCW 3670A.130(4)]. This deliberate GMA Update process includes four basic steps:
1) establish a public participation program that identifies procedures and schedules for the review,
evaluations and possible revision process; 2) review of relevant regulations; 3) analysis of need for
revisions; and 4) adoption of an appropriate resolution and/or amendments.
The issues that the Washington State Office oL Community Development (OCD) advises
communities to address in their GMA Update include: urban densities; urban growth areas; critical
areas; natural resource lands; essential public facilities; affordable housing for all income levels;
transportation, including levels of service to meet future needs; and shorelines.
Population assumptions: According to GMA the comprehensive plan must be evaluated based on
the most recent 20-year population forecast, expressed in a range from high to low, on a county-by-
county basis. RCW 36. 70A.130(1)(b) specifically states that the review must include an analysis of
the population allocated to a city from the most recent ten-year population forecast by the
Washington State Office of Financial Management. (OFM). According to guidance from OCD,
the City has three options in dealing with population forecasts in the GMA Update processes: 1)
Continue with existing county-wide population projections; 2) Use the new OFM county-wide
population forecasts; or 3) Work with the County to develop own population projections and
reallocate population based on these projections.
Although OFM has provided a 20-year forecast for Kitsap County (January 2002), the official
allocation for the City of Bainbridge Island for the year 2025 has not yet been finalized, therefore
the 2004 Update utilizes option one, continuing with the 2012 population projection for the City.
The City will re-evaluate the Comprehensive Plan again in 2005 upon receiving the official 2025
population allocations from the County, expected late in 2004.
Urban densities: Under the Growth Management Act, the City must include provisions to
accommodate projected population growth in a manner that reduces sprawl and encourages growth
in urban areas which can provide urban services, such as public sewer and water. This should be
accomplished through a coordinated approach that plans for development in the urban growth area.
The framework of the Comprehensive Plan is to accommodate 50% of the growth in Winslow and
5% in the Neighborhood Service Centers, with the remaining 45% provided for Island-wide in the
open space residential areas. The Comprehensive Plan accommodates the projected population by
Ordinance 2004-09 Page 5
2004 Comp Plan Update
concentrating the growth in the Winslow area where urban services exist and can service the
growing population. As the Island develops and population increases and new growth projections
are supplied, the plan must accommodate these numbers and revisions will be necessary. The
Comprehensive Plan is a dynamic document that is designed to retain the basic framework for
growth and development while also responding to changing forecasts through review and
amendment.
The City is a water service provider and a sewer service provider with both the primary water and
sewer service areas located in Winslow. Service areas for both the public water and public sewer
are dictated by the capabilities of the facilities. Expansion and additions to these facilities are
based on several necessary considerations, including programming capital costs within the six-year
capital facilities plan.
When the City addresses the new population projections for 2025, an evaluation of the land use
densities and the urban services necessary to serve the densities will be conducted and amendments
will be made as necessary.
Critical areas and natural resource lands: One of the adopted changes to GMA since 1995 is the
requirement that best available science be included in the critical areas policies and regulations,
with special consideration given to measures for protecting anadromous fisheries.. The policies
relating to critical areas are provided in the new Environmental Element and were reviewed in
consideration of best available science.
Essential public facilities: Minor amendments are included to the policies addressing essential
public facilities to meet the GMA Update (RCW 36.70A.200).
Affordable housingfor all income levels: GMA requires that the City provide affordable housing to
all economic segments of the population, promote a variety of residential densities and housing
types, and encourage preservation of existing housing stocks. The City's 2004 Update includes
amendments that address changing local needs associated with the affordable housing program.
Transportation, including levels of service to, meet future needs: The 2004 Update includes a
revised Transportation Element built on the Island-wide Transportation Study (IWTS). The IWTS
is a 20-year vision for the transportation system of the City including a technical analysis of the
transportation system, update of goals and policies to reflect GMA Updates and new state law, and
development of new level of service standards based on industry standards.
Shorelines: Updates to the City of Bainbridge Island Shoreline Master Program (SMP), adopted in
1996, are being processed on a separate timetable from the 2004 Comprehensive Plan Update. The
update to the SMP policies began in 2002 and is continuing at least through 2006. State regulations
require that the SMP update occur by 2011.
2004 Update
The 2000 Community Values Survey revealed that the community held primarily the same values
and vision for Bainbridge Island as had been determined in 1994, and the review and analysis of
the Plan indicated that, with the exception of the Transportation Element and to some extent the
Water Resources Element, only minor changes were necessary in the goals and policies guiding
that vision. Therefore, most of the existing goals and policies within the Plan are retained, with
minor amendments to improve clarity, reduce redundancy or reflect new information. Several new
Ordinance 2004-09
2004 Comp Plan Update
Page 6
policies have been added and some have been incorporated with other policies for organizational
purposes. Other policies have been deleted because they are unnecessary or no longer relevant.
The Water Resources and Transportation Elements have been updated and reorganized, and the
existing environmental goals and policies have been consolidated in a new Environmental
Element.
The following summary outlines the revisions to the various elements of the Comprehensive Plan.
Water Resources Element
The 2004 Update to the Water Resources Element includes a complete reorganization of its goals
and policies. This includes adding a new introduction, reordering the subjects to follow a logical
sequence, and adding two new policy sections that address monitoring and public education.
The greatest change in the Water Resources Element is to policies related to the extension of public
sewer service. The. Winslow sewer service map is amended to designate one service boundary.
The previously existing service area map has been the cause of considerable confusion as it had
two boundaries that designated a "future service area" and an "existing .service area". This revised
sewer service map eliminates the dual boundary, and drops out most of the area previously labeled
"future." In addition, a new Policy SSP 2.7 is added to establish the criteria and process for
developing or expanding public sewer systems.
Existing policies pertaining to drinking water are amended to encourage development and
expansion of public and private water systems, rather than encourage individual shallow private
wells, and to clarify the role the City plays in terms of public and private water systems. A major
change is the addition of new policy that provides for administration of the City service area map
by the Public Works Department.
Minor amendments are made to the on-site septic system policies, primarily to clarify the
responsibilities of the City and the Kitsap County Health District.
An updated Aquifer Recharge map and supporting information are also added to the Water
Resources Element. (The map and related information were previously included in the Land Use
Element.)
Transportation Element
Revisions to this element include a new introduction, revised and reorganized goals and policies
(including new levels of service for Island transportation systems) and updated information on
existing conditions. New information proposed for inclusion in the element is drawn from a
transportation study commissioned by the City to provide direction in meeting state requirements
for the Transportation Element update. This study, titled Is/and Wide Transportation Study
(IWTS), 2003, JDL & Associates, is referenced in the Transportation Element and provides current
information on the use and function of the Island roadways and recommendations for potential
improvements to the transportation system.
The Non-Motorized Transportation Plan (NMTP), adopted in 2002, is part of the Transportation
Element. No revisions to the NMTP are proposed in the 2004 Update.
New Environmental Element
Environmental goals and policies related to fish and wildlife, aquatic, agricultural and forest
Ordinance 2004-09
2004 Camp Plan Update
Page 7
resources, flood and geological hazards, greenways, atmospheric conditions and mining are moved
:from the Land Use Element to the newly created Environmental Element. Revisions to some of
these existing policies are included to increase clarity, reduce redundancy and provide consistency
with changed circumstances. Several new policies relating to sea level rise, seismic infonnation,
indoor air quality, light pollution, noise pollution and regional greenhouse gases are also included.
Land Use Element
As described above, environmental goals and policies previously located in this element have been
relocated to the new Environmental Element. Other amendments to land use policies include
designating the Rolling Bay Neighborhood Service Center as a special planning area, identifying
the Winslow Master Plan Study Area as the target area for accommodating future growth and
highlighting the community goal of public acquisition for the Wyckoff site. Policies that designate
contract zones are deleted, as are several redundant policies pertaining to flexible lot design.
Land Use Map
The land use map is amended, changing three land use designations; I) the St. Cecilia Parish
property at the comer of High School Road and Madison A venue is c}langed to Madison Avenue
District (MAD) :from Urban Multi-family(UMF); the Webster property located on the east side of
Madison Avenue near the intersection of New Brooklyn is changed to Urban Multi-family (UMF)
:from Semi-urban Residential (SUR); and the property located at the southwest comer of Madison
Avenue and New Brooklyn, currently occupied by a mini-storage facility, is changed from
Contract Zone-Light Manufacturing (CZ-2) to Light Manufacturing (LM).
Housing Element
Language is added to the element to incorporate the GMA defInition of "affordable housing" and
policies are broadened to include more of the available affordable housing tools, including cottage
housing and accessory dwelling units. SpecifIc numeric requirements are removed :from some
goals and policies in order to provide flexibility and make it easier to adjust the City's housing
programs if necessary. New goals relating to the financing of affordable housing and the
monitoring of the City's housing programs are added.
Economic Element
Minor amendments are made to this element to remove language related to skills development and
educational curricula (fonner Goal 5), as they are not appropriate to this element. In addition,
previous language pertaining to fiscal practices of all the taxing districts (fonner Goal 7), and
monitoring and reporting commercial activity (fonner Goal 8) are removed.
Other Elements
Minor revisions to policies in the Utilities, Capital Facilities and Human Services elements are also
included in the 2004 Update. No revisions were made to the Cultural Element.
Public Involvement
As required under GMA, the City has involved the public in the review and update to the
Comprehensive Plan. The 2000 Community Values Survey was the first step to gathering public
input in the review. A city-wide mailing was provided to each household on the Island, inviting
citizens to participate in the update to the plan.
Ordinance 2004-09
2004 Comp Plan Update
Page 8
The Planning Commission held a series of public study sessions, workshops and public hearings
on the review and revisions of each of the elements of the Comprehensive Plan beginning in 2000
and concluding in early 2004.
51 Planning Commission meetings with study sessions on the 2004 Update
9 Planning Commission meetings with public hearings on the 2004 Plan
2 Planning Commission open house/workshops on the 2004 Update
The City Council began their review of the 2004 Comprehensive Plan Update in March of 2004
and held a series of meetings on specific elements of the Plan within the Council subcommittees.
A special Council open house/workshop was also held, followed by a series of public hearings at
City Council meetings.
20 City Council Committee meetings on the 2004 Update
1 City Council open house/workshop on the 2004 Update
2 Council public hearings on the 2004 Update
Section 2. The Introduction to the Land Use Element of the Comprehensive Plan is
amended as follows:
The Land Use Element and Environmental Element are is the heart of the Comprehensive Plan. It
Together they describes the general balance between the distribution.1 and location. preservation
and protection of uses of land: including housing, commerce, light manufacturing, recreation, open
spaces, natural resources, public utilities, public facilities, and other land uses necessary to
accommodate plan for future growth in a manner that reflects the overall vision of the
Comprehensive Plan.
The first section of the Land Use Element provides an overview of the natural f-eatures fotHld on
Bainbridge Island today: its hydrogeology, vratersheds, streams and 'Netlands, soils, and fish and
...vildlif-e habitat. Next, the existing pattern of development: is deseribed 1) how much of the land is
currently devoted to residential, commercial, light-manufacturing, public facilities, and agricultural
uses, 2) where these uses are located, 3) how much of the land is vacant, and 4) the future
development potential on the Island.
The second section of the Element contains the goals and policies, which provide guidance for
future land use.
Framework of the Plan
The Framework Goals and Policies establish the overall approach to managing growth on
Bainbridge Island. As a city, Bainbridge Island is an urban growth area under GMA. However,
future growth on Bainbridge will be accommodated in a manner that is consistent with the
requirements of GMA, but retains the Island's character and quality of life its residents so highly
value.
Five overriding principles guide the Plan: 1) preserve the special character of the Island which
includes forested areas, meadows, farms, marine views, and winding roads bordered by dense
vegetation, 2) protect the water resources of the Island, 3) foster the diversity of the residents of the
Island, 4) balance the costs and benefits to property owners in making land use decisions, and 5)
base development on the principle that the Island's environmental resources are finite and must be
maintained at a sustainable level.
Ordinance 2004-09
2004Comp Plan Update
Page 9
There is another important concept in the Plan. Due to the Island's ability to accommodate the
anticipated growth through the number of existing platted lots on the Island and the unused
capacity under current zoning, increase in density over current zoning should further a public
purpose. The public purposes identified in the Plan are: 1) shift density from critical areas and
farmland to Winslow, 2) provide affordable housing, and 3) contribute to public infrastructure and
public amenities in excess of what is needed to mitigate the impacts of development.
Another important component of the Plan's framework is an emphasis on establishing benchmarks
against which to assess the continued viability of the Plan. A monitoring program must be created
to track the success of the City in achieving the vision and goals of the Plan.
Winslow
Winslow is the area of urban concentration on the Island. The Plan creates a Mixed Use Town
Center (MUTC) which is to be the vibrant, pedestrian-oriented core of Winslow, and also
recommends a change of approximately 46 acres of multi-family residential designation to the
Mixed Use Town Center. In the MUTC, densities of up to 28 units per acre or the equivalent in
floor area ratio are recommended, but only if the increase in density over existing zoning is
achieved through the use of transfer development rights (TDRs) or by providing affordable
housing or contributions to infrastructure in excess of what is needed to mitigate the impacts of
development.
Five overlay districts are designated to address the distinct neighborhoods and commercial areas
within the Town Center:
· Central Core Overlay District - To provide the commercial center; residential uses are
encouraged, but not required.
· Ericksen Avenue Overlay District - To preserve the unique and historical features of
Ericksen Avenue; retail is permitted only if on the ground floor with residential or office
development
· Madison Avenue Overlay District - To provide a mix of residential and small-scale,
nonresidential uses; all retail and office development must contain a residential component.
· Gateway Overlay District - To protect the ravine and provide low-intensity, tourist-oriented
commercial, multi-family and agricultural uses.
· Ferry Terminal - To provide ferry and associated transportation-oriented uses and a
residential/office neighborhood with limited retail adjacent to the terminal to serve
commuters.
The High School Road District is meant to provide commercial uses that complement the Town
Center and that benefit from auto access near SR 305. +we-sSpecial planning considerations areas
are created to provided for coordinated development: the Ferry Terminal Plar.:1iBg I\.rea - for the
area in and around the ferry terminal, and the Eagle Harbor plar.:1iBg area for properties which
abut Eagle Harbor. A master plan for Winslow was developed to implement the goals and policies
of the Plan.
The Plan recognizes the existing residential districts in Winslow and suggests that the urban Multi-
family District could be appropriate for an increase in density with the use of TDRs after
monitoring the success of the TDR program in the Mixed Use Town Center.
Ordinance 2004-09
2004 Comp Plan Update
Page I 0
Neighborhood Service Centers
The Neighborhood Service Centers will continue to serve as small-scale commercial actIvIty
centers. The residential density within the service centers would remain at two units per acre.
Island Center
Expansion of the boundaries of Island Center would be considered part of a special planning-area
process.l A contract zoning districr for the IO-acre site on the northwest corner of Miller and
Battle Point Roads would be established to continue with garden supply sales, nursery, and related
uses, and provide for some possible expansion of those uses.
Lynwood Center
The Plan recommends one change for Lynwood Center. This change is the removal of the IO-acre
parcel currently designated for commercial development in Lynwood Center and designating the
parcel as appropriateJor increased residential density of up to five units per acre with public water
and sewer. Aspecial planning area process is also recommended for Lynwood Center.
Rolling Bay
No changes to the existing boundaries of Rolling Bay ar~ recommended. Changes to the
boundaries of Rolling Bay would be considered as part of a soecial planning area process.
Light Manufacturing (LM)
The Plan recommends expansion of the existing Light Manufacturing District at Day Road by an
additional 35 acres. Federal, state, and local regulations govern the handling and disposal of
hazardous substances and hazardous waste and will be used to guide future light manufacturing
development. The Plan recommends the ereation of an advisory eommittee, composed of
representatives from the light manufacturing businesses and the neighborhood, to ensure
compliance ..yith the existing federal, state, and loeal regulations.
1\ contract zoning district is recommended f-or the 1+ acres at the southwest corner of New
Brooklyn Road and Madison Avenue to r-ecognize the existing mini storage facilities.
Areas Outside Winslow, NSCs, and LM
The areas of the Island outside Winslow, the neighborhood centers, and the light manufacturing
areas, which are designated Residential Open Space, are characterized by forest lands, meadows,
small-scale farms, and narrow, winding heavily-vegetated roadways. These areas also contain
much of the Island's sensitive areas. These include aquifer recharge areas and wetlands and
streams, which serve a variety of importarIt functions, and also serve as fish and wildlife habitat.
The Plan attempts to encourage a pattern of development which will preserve and protect these
areas.
IA Special Planning Area is an area, which reflects uses, and/or conditions, which are unique to that area and
would benefit from a local and/or neighborhood planning process. The Special Planning Area Process would address
such issues as current use, future mix and location of uses and densities, transportation, public facilities, and services
and amenities and protection of natural systems.
2 A Contract Rezone District is a distinct area for which a special zoning designation is developed which
reflects uses and/or conditions that are unique to that area, and which would affect future development of the land.
Ordinance 2004-09
2004 Camp Plan Update
Page 11
The Plan recommends proyiding incentives for the aggregation of nonconforming lots in these
areas. It also recommends the creation of flexible lot design subdivision and short plat processes
that will encourage a more creative approach than the traditional lot-by-lot development. This
method addresses lot design, building placement, and circulation. Clustering of lots is encouraged,
with varying lot sizes, to provide open space and protect the Island's natural systems.
A Critical Areas Overlay District is created for the protection of certain critical areas (wetlands
and high-vulnerability recharge areas). The underlying base density is retained, but development is
subject to the requirements of the overlay district. Development through clustering by using the
Flexible Lot Design Subdivision Process, or the use ofTDRs, is at the underlying base density. If
the owner of property located in areas currently designed for development at one unit per 2.5 acres
chooses to develop through a standard, subdivision process, then density would be limited to one
unit per ten acres.
f.. Ce1'lt1WCt r-ero1'ling district is reoommended for the 16+ aeres at the southwest comer of Hidden
CO'le Road and SR 305 to eontin1:le ClH'fent uses and permit possible exp~sion of those uses.
The 1,100 acre Port Blakely site at the south end of the Island is designated as a special plan.-ling
afeEr.
Environmentally Sensitive f..reas
The environmeatal goals and policies are essentially derived from the existing 1989 &linbridge
Islsnd Subar-ea ..ohm, the 1987 Winsww Cemp1'ehenslve Plan and the existing Environmentally
Sensitive Areas OrdiflaIlee adopted by the City in 1992 as a requiremem of the G~1A. The
enviromnental goals and polioies address aquatic resources (Vt'etlands, streams, lakes, creeks, tidal
inlets, and mud flats); fish and 'Nildlife habitat; freqtleatly flooded areas; and geologically
hazafdous areas.
Greenways
The Greenways Goals and Policies establish a framev,'ork for the Greenways Plan for the Island.
A . ..1
. ..gncmture
The Plan seeks to retain and enhance existing farming on the Island and proyide additional
opportunities f-or farming and reaffirms the Right to Farm. ordinanoe. Farmers '.vho "Ash to sell the
Uffi:1sed development potemial of farmland ma-y opt to llse TDRs.
Historic Preservation
Historic Preservation Goals and Policies recognize the importance of archaeological, cultural, and
historic resources on the Island. The Plan recommends examining the feasibility of a local historic
registry program and the creation of a local Historic Preservation ordinance which would provide
incentives for preservation of historic resources.
Siting of Essential Public Facilities
The Plan requires the creation of a Facility and Site Evaluation Committee (composed of citizens,
City staff, and elected officials) to review the siting of proposed essential public facilities. The
Plan also requires that each public agency develop a notification and communications plan to
Ordinance 2004-09
2004 Camp Plan Update
Page 12
ensure early public review of proposed essential public facilities and promote trust between
government agencies and the community.
Land Use maps are part of the Land Use Element
Section 3. The sections of the Land Use Element of the Comprehensive Plan entitled
Existing Conditions-Overview: The Natural Environment, (pages 5 through 33), including Figures
1 through 6, are deleted from the Land Use Element and relocated to the new Environmental
Element.
Section 4. The section of the Land Use Element of the Comprehensive Plan entitled
Existing Conditions - Overview: Built Environment (pages 35 through 38) are amended as follows:
The Built Environment
The built environment is that portion of the land that has been developed in some way with
manmade structures or other artificial (not natural) physical alteration of the landscape.
On January 1, 1992, the City published a Land Use Inventory Report which provided an inventory
of existing land uses on the Island and an analysis of the remaining development potential, based
on current zoning. The 1992 Inventory took into account constraints on future development as a
result of critical areas, lot configuration, market forces, and property owner choices. A range of
constraints was applied to the number of potential units of development from undeveloped and
underdeveloped land. The estimated population which could be accommodated by the potential
units was determined and then reduced by 50%, (to assume a high level of constraint) and by 10%
(to assume a low level of constraint. Based on current zoning, a range of build-out potential was
developed to account for the many factors that can potentially limit development such as
environmentally sensitive areas, lot configuration, water availability, sewage disposal
requirements, location of existing buildings on developable parcels, and the public and private
decision-making process.
Likely potential, additional units on undeveloped and underutiIized land are between 5,500 and
8,200. Based on the assumption that there will an average of 2.4 persons per household in the
future, this means a potential, additional population range of 11,000 to 20,000 persons. Added to
the 1992 population of 16,500, this means a total population of27,500 to 36,500 persons.
In November 1993, the Land Use Inventory was re-analyzed. The re-analysis was entitled:
Bainbridge Island Land Use Re-Analysis - November, 1993. The re-analysis was completed after a
workgroup was convened to discuss the issues. The Re-analysis findings were similar to those of
the 1992 Land Use Inventory.
According to the 1992 inventory, Bainbridge Island encompasses approximately 17,779 acres, or
about 28 square miles. Of the 9,717 land-based (excluding tidelands) parcels, slightly over one-
half (51%) have been developed to some degree, 7% are devoted to rights-of-way and the balance
is undeveloped (42%). The inventory also revealed that the Island has over 1,400 non-conforming
lots and over 1,500 conforming, platted lots.
Ordinance 2004-09
2004 Comp Plan Update
Page 13
Residential Development
Residential land uses occupy the largest percentage (73%) of developed land and 38% of all land
on the Island (about 7,000 total units). Single-family homes account for 84%, while 16% are
multi-family units in condominiums and apartment buildings of various sizes, mostly concentrated
in Winslow. (Multi-family units are those units containing more than one living unit in a single
structure.)
The most densely developed areas are in Winslow and along the shoreline of the Island. The
Winslow area, which is a mix of single-family, multi-family, and mixed-use units, is developed at
about 2.5 units per acre.
Commercial Development
Commercial development is also mainly concentrated in the Winslow area and in the three
neighborhood centers: Rolling Bay, Island Center, and Lynwood Center. However, there are
numerous commercial uses scattered about the Island in areas not zoned for commercial use.
These uses were approved by Kitsap County as conditional uses, previously existing uses which
are now nonconforming, or are home occupations.
Winslow
The 1992 Land Use Inventory had only a brief analysis of commercial land and commercial uses
because of inadequacies in data available at the time. The inventory shows approximately 190
acres3 in Winslow zoned for commercial use, with 37 acres4 underdeveloped. A subsequent,
detailed study was conducted, dated May 6, 1993, that analyzed each parcel in the commercially
zoned areas of Winslow for its development or redevelopment potentiaLS That study found that
there are today 600,000 square feet of commercial development in Winslow, or about 33 square
feet of commercial space per person.
The study further found that under existing conditions, assuming no changes in land use policy,
there is development potential for an additional 625,000 square feet of commercial space.
The results of the Potential Buildout Study were re-examined during the Vision Winslow Design
Workshop and the findings of the May 6, 1993 study were confirmed.6
Neighborhood Centers
Commercial activity in the neighborhood centers of Rolling Bay, Island Center, and Lynwood
Center has developed not in response to neighborhood demand, but more as a function of the
location of the centers themselves: each is located at or near a major Island crossroads. With the
exception of the convenience stores found at each, virtually all businesses in. the neighborhood
3Did not include the three undeveloped parcels (comprising 17+ acres) on which the ravine is located.
4Did not include the three undeveloped parcels (comprising 17+ acres) on which the ravine is located.
SPotential Buildout of Winslow Under Current Zoning and Under CPAC's Preferred Alternative, May 6, 1993, Bruce
Anderson and Jane Allan.
6 The Vision Winslow Design Workshop was a two-day workshop to test the viability of the recommendations in the
Comprehensive Plan to target Winslow for additional growth. Workshop participants included Island architects,
bankers, developers, realtors and citizen representatives. (See pages 26 and 27 of the Introduction for a more
detailed description.)
Ordinance 2004-09
2004 Comp Plan Update
Page 14
centers draw Island-wide trade.
Zoning in these areas has served more to legitimatize what already exists rather than in response to
an overall plan. As a result, there is little or no undeveloped, commercially zoned land in the
centers.
Nei hborhood Service Center Commercial Activi
Total Acres .. ...Undevelope~.. Acres Residential
ZOned Comm.
. 'RolliIlgBay
'<Island Center
tytiwood'Cepter
TOTAL.
7.00
8.00
24.00
39.00
0.34
o
3.00
3.34
0.68
o
5.38
6.06
Commercial..
SqtUlre Feet
32,300
42,500
30,000
104,800
The neighborhood centers offer a limited range of goods and services from convenience stores,
which mainly serve the local neighborhoods, to specialty businesses, such as auto repair, hair
salons, art galleries, nurseries, and restaurants, that serve clientele not only Island-wide but from
off-Island as well. The Island's only movie theater is located at Lynwood Center.
The total commercial space available goes through periodic cycles of high and low vacancy rates.
There is a rather high turnover in small rental spaces in the centers, while the larger owner-
occupied businesses remain relatively steady.
Light Manufacturing
Light manufacturing-zoned areas are intended for low-impact, low-intensity manufacturing
activities, including research, testing, warehousing of goods, and fabrication, assembly, and
processing of products; Light manufacturing (LM) uses are mainly confined to the Day Road
Industrial Park area near the intersection of Day Road and SR 305. The 40-acre Day Road area
contains approximately 277,000 square feet of light manufacturing space (approximately 7,000
square feet per acre) and houses roughly 30 businesses with a total of over 450 employees.
Businesses range from a newspaper publisher, soil analysis company, manufacturers of pottery,
fishing equipment, and office furniture to a smoked salmon business. Only 5 acres currently zoned
for LM are undeveloped.
There are three other single-use, light manufacturing sites and one four-parcel LM site (two are
developed, two are undeveloped) scattered about the Island. These sites account for another
100,000 square feet of space. However, 90,000 square feet of this is in storage space at New
Brooklyn Road and Madison Avenue, a use that is also permitted in the neighborhood centers.
Ordinance 2004-09
2004 Camp Plan Update
Page 15
L' ht M f: t . A
12J anu ac Ur1D2 reas
..
Light Manufa~turing Total Acres Existing Square . Feet Total Acres
Areas Zoned LM.... Light Manufacturing Vacant
Day Road 40.00 277,012 5
New Brooklyn 4.35 90,440
Sportsman Club 4.08 7,200 1.14
. Fletcher :say Road ... 1.14 3,894
. .~aglegaJ.~u.
2.36
.. Marina .....
.
. ...TOTAL... 51.93 378,546 6.14
Industrial
There are two industrial sites on Bainbridge Island. One is the Washington State Department of
Transportation ferry repair facility and Bainbridge Marine and Boat Yard located in Eagle Harbor,
just west of the ferry terminal. The other is the Pacific Resources (formerly Wyckoff) site at the
southeast entrance to Eagle Harbor. Pacific Resources operated as a creosoting plant for many
years and is now out of that business. It does, however, still perform minor industrial operations
not involving chemical processing. It is the only land-based portion of the Eagle Harbor Superfund
cleanup site designated by EP A Region 10.
2004 Update - The Built Environment
Build Out Estimations - The 1992 estimate of build-out ranlZes from 27.500 to 36.500. The Office
of Financial Management estimate for 20031'01'ulation is 21.350. Several more recent estimates of
build-out have produced figures of 30.000 and 33.000. This is within the bracket set by the 1992
study and is therefore consistent with those estimates.
Residential Development
County land use codes were used to analyze the level of development that has occurred since 1992.
In this analysis a single family residence situated on any size lot is listed as a developed lot. In
1992. 38% of all the land on the Island was listed as developed for residential use. In 2003. 41 %
of the land on the Island was listed as developed for residential use. This figure does not include
open space in separate parcels in subdivisions or parcels in some type of Kitsap County Current
Use Assessment program. The number of dwelling units on the Island has increased from about
7.000 units in 1992 to 9.100 units as of April!. 2003.
Commercial Development
The general location of commercial development has not changed since 1992. Development is
concentrated primarily in the Winslow area and in the three neighborhood centers: Rolling Bay.
Island Center. and Lynwood Center. Most of the new commercial development has occurred in
the Winslow area. much of which has been in the Hildebrand Lane area south of High School
Road. The only significant new commercial development in the three neighborhood centers is a
new grocery store at Lvnwood Center. This business was however. previously located in another
building at Lynwood Center.
Ordinance 2004-09 Page 16
2004 Comp Plan Update
Light Manufacturing
Since the Comprehensive Plan was adopted. four additional areas have been designated Light
Manufacturing. A thirty-five acre area located to the north of the existing Day Road Light
Manufacturing area was designated Light Manufacturing in 1997. This new area has not yet been
developed and is awaiting approval of a master plan development permit. Another 4.77 acre parcel
located east of Highway 305. on the south side of Day Road, was designated and zoned Light
Manufacturing in 1999. This oroperty has also not been developed.
Two other properties were designated and zoned Light Manufacturing in 1999; These are located
north of New Brooklyn Road, on or near Sportsman Club Road. One of these properties contains
two parcels with sixteen acres and is located on the north side of New Brooklyn Road and east of
Sportsman Club Road. This property has not yet developed and is currently operated as a
Christmas tree farm. The other area is located on the east side of Sportsman Club Road northeast
of Sakai Intermediate School. This 7.28-acre oroperty contains two parcels and remains
undeveloped. .
Section 5. The sections of the Land Use Element of the Comprehensive Plan entitled
Existing Conditions-Overview: Resource Lands, (pages 38 through 46) and Figures 7 through
9 (pages 41 through 46) are deleted and relocated to the new Environmental Element.
Section 6. Comprehensive Plan Policy FRW 1.3 of the Land Use Element is amended as
follows:
FRW 1.3
The Plan targets Winslow to accommodate 50% of the population growth through the year 2012,
with the Neighborhood Service Centers to accommodate up to 5%. The balance of the growth
would be absorbed throughout the remainder of the Island. For purposes of allocating-iefr50% of
the growth, Winslow shall be defined as Winslow Master Plan Study Area. (Figure ~ 2-of Exhibit
^ of this Ordinance - the Winslow Master Plan.)
Discussion: The 1992 population of Winslow was 3,397 persons. Fifty percent of the Island's
2012 population allocation is 3,715. Winslow is therefore targeted for a 2012 population of7,112
persons. The 2003 population estimate for the City of Bainbridge Island as provided by the
Washington State Office of Financial Management (OFM) is 21.350 people.
Section 7. Comprehensive Plan Policies -Winslow- W 1.4, Goal 5, W 5.1, W 7.3, W 7.5,
W 7.8, W 7.9, and WlO.3 of the Land Use Element are amended as follows:
Ordinance 2004-09
2004 Comp Plan Update
Page 1 7
Wl.4
The base density levels of development in the Mixed-use Town Center and High School Road
Districts shall be the density ..mien is permitted under existing zoning for each property determined
bv the floor area ratios (FAR) established in the Winslow Master Plan. /'a. maximum ofup.to 28
ooits per aere A maximum level of development may be achieved through the use of FAR bonus
provisions established in the Winslow Master Plan. including Transfer Development Rights; an
affordable housing density bonus or contributions to public infrastructure or public amenities in
excess of what is required to mitigate development impacts.
Coal S
Planning in and around Eagle HarhoF should he eooFdinated.
W-Y-
.^.. master plan [-or all the properties 'limon bor-der Eagle Harbor shall be developed in cooperation
'.vith the City, Washington State Department of TfftBsportation, and pri'late landowners to ensure
ooordinated and consistent deyelopmeflt. The master plan should address such issues as design
standards, coordinated transportation analysis, and environmeBtal revie..\', including sewage
treatment, and should be consistent ','lith the Shoreline Master Program.
Ordinance 2004-09
2004 Comp Plan Update
Page 18
Water dependent Industrial District
W7.3
Industrial uses shall employ best management practices (BMPs) and best available facilities
practices and procedures concerning the various services and activities performed and their impacts
on the surrounding water quality. (For example, practices and procedures include safe handling of
fuels and toxic of hazardous materials to prevent them from entering the water and providing
optimum means to provide prompt and effective clean-up of spills that do occur.)
Diseussioa: BMPs for small boat yards are found in Best A16magcment Practices for Small Boat
-f.aFds .
W7.5
Expansion or redevelopment of existing, legally established industrial areas, facilities, and services
with the possibility of incorporating mixed-use development should be encouraged over the
addition and/or loeation of new or single-purpose industrial facilities. Such development or
redevelopment for mixed-use should occur through a master planned development process in areas
designated appropriate for such urban shoreline uses.
W-+.8
Prior to any expansion of the 'Washington State Ferry System repair facility, the existing repair
facility should comply with all federal, state and local regulation of hazardous substance and
hazardous v/aste. The WSF should prepare a hazardous substance inventory, a hazardous vraste
management plan, and de';elop a fire containment plan.
W 7.98
The land use No change in designation!s f9r the Wyckoff site should reflect what tyPes of land use
activities would be appropriate for the site based. in part. on historical significance. habitat
mitigation implemented and performed on the property and the development restrictions required
by the Environmental Protection Agency. is recommended in the Comprehensive Plan at this time.
The City shall review, by 1996, proposed land use for the site.
Discussion: EP A has begun cleanup at the Wyckoff Superfund Site and constructed a habitat
mitigation beach along the western portion of the site. The Japanese American WWII Exclusion
Memorial is proposed on the site and the adiacent Tavlor Avenue. A public park is proposed for
the remainder of the site. Mixed use development may be appropriate if public acquisition is not
successful. Current actions by EP A focus on the removal and containment of contamination
sludge from the facility. Future land use of the site may be affected by EP A's final cleanup action
decisioB on ho.... stringent a cleaf:Hlp level is chosen, the technologies used, and the time allowed
feF required to complete the cleanup implementation.
W 10.3
Contract Zone: High School Road/Ferncliff Avenue
The 9+ acres located at the northwest comer of High School and Ferncliff Roads is designated as
R-2. with the six western acres (approximately) of the nine acres designated as R-8. a eontract
zone due to its location between ~ high intensity, commercial area on High School Road and the
low density, residential area which begins at Ferneliff Road. The three eastern acres
(approximately) of the site are currently zoned R 2 and shall remain R 2. The six '.'Iestern acres
Ordinance 2004-09
2004 Camp Plan Update
Page 19
(approximately) are clHTently zoned R 2.9 and shall be rezoned to R 8. No density bonuses will be
permitted on either portion of the site and development of this site is encouraged to be clustered on
the western portion of the property, with a significant buffer retained along the eastern boundary of
the site along Ferncliff Avenue.
Discussion: The density bonus restriction is due to the property's transitional location. between the
high-intensity commercial area on High School Road and the lower-density residential area
associated with FerncliffAvenue.
Section 8. Comprehensive Plan Policy NSC 1.5 of the Land Use Element is amended as
follows:
NSC 1.5 - Rolling Bay
The Neighborhood Service Center boundaries are as shown on the Land Use Map. Rolling Bay is
designated as a Special Planning Area. No further expansion is reeommended. Any changes to the
boundaries may be determined during the special planning process.
Section 9. Comprehensive Plan Light Manufacturing Goals and Policies LM 1.4, LM Goal
2, LM 2.1 and LM 3.3 of the Land Use Element are amended as follows:
LM 1.1
f.. eitizen adyisory eommittee shall revie'.... the ar.nual reports pertaining to hazardous materials and
\Yaste management. The eommittee shall be eomposed of representatives from the light
manufaeturing busiBess assoeiation, the Fire Marshal, and Beighborhood represematives.
GOAL 2
Provide additioBsl appropriate land for light manufacturing in order to provide
opportunities for small manufacturing businesses on the Island to expand, and to provide
additional employment opportunities.
LM 2.1
Designate af1 additional The 35 acres adjacent to the existing light manufacturing area north of Day
Road and west of SR 305, are designated as light manufacturing on the Land Use MaJr. :J:he and
development within this 35-acre expansion of the light manufacturing area must oeeur throagh a
utilize the Master Plan process for project review. The Master Plan must include a substantial
buffer from Day Road and SR 305, and from adjacent properties, and must also provide for
substantial open space and pedestrian and equestrian trails connecting through the adjoining
parkland.
SEP A review for development of the site shall address the impact of the proposed use on water
quality, aquifer recharge, noise, odor, lighting, storm water runoff, transportation, environmentally
sensitive areas (such as wetlands and streams), and fire safety.
Ordinance 2004-09
2004 Comp Plan Update
Page 20
LM3.2
Contrad Zone Distrid: New Brooklyn Rood/Madison .,\yenue
The 1.3 5 acre site at the southwest comer of New Brooklyn Road and Madison i\ Yeooe is
appropriate for a special zoning designation to recognize the mini storage use currently on
site;
Diseussion: This property is zoned for light manufacturing, although its eurrent use for mini
storage does not reqUire a light manufacturing designation. Creation of a contract zone district
for this site acknowledges its current use, while furthering the overall framework of the Plan to
concentrate light manufacturing acti.;ity at Day Road.
LM 3.3
The 2.3 acre LM parcel located on the south side of Eagle Harbor on Taylor l\...,enue should be
designated 'Vater d_ependent Industrial to reflect the use of the property and the needs of the
commooity.
Section 10. Comprehensive Plan Policies Residential Open Space OS'I, OS 1.1, OS 1.2, OS 1.3,
OS 1.7, OS 1.13, OS 2.2, OS 2.4, OS 3.1, OS 3.4, OS 3.5, OS 4.1, OS 4.2, OS 4.3, and OS 4.5 of
the Land Use Element are amended as follows:
OS 1: Preserve the open space area outside Winslow and the Neighborhood Service
Centers through a development pattern which will protect and enhance the character of
the area - forested areas, meadows, farms, narrow roads bordered by dense vegetation _
and the valuable functions the open space area serves on the Island (i.e., aquifer
recharge, fish and wildlife habitat, recreation).
Discussion: Preservation and protection of the open space area is also addressed elsewhere in
the Environmental Element of the Plan under Environmental, Greenways, Forest Lands and
Agricultural Lands sections.
OS 1.1
Protect open space, critical areas, and agricultural uses through public and private initiatives,
including open space tax incentives, cluster development, PUDs, transfer and purchase of
development rights, public land acquisition, greenways, conservation easements, landowner
compacts, do:'.'mzoning, limiting the amount oflot coverage, and other techniques.
OS 1.2
Encourage the aggregation of nonconfonning lots of record and undeveloped subdivisions and
short plats in order to achieve a development pattern that is consistent with goals of the Plan to
preserve open space, provide a greenway through the Island, protect environmentally sensitive
areas, and protect the water resources.
Discussion: The proliferation of approved short plats and the existence of standard
subdivisions on the Island presents a major obstacle to the preservation of the Island's
character and the protection of its natural systems. The City should encourage the creation of
landowner compacts where adjacent landowners collectively aggregate and develop their
properties under a unified development plan. This could involve innovative, joint partnerships
between nonprofit organizations and developers interested in preserving open space and
promoting sensitive development. The City should work with nonprofit agencies to identify
Ordinance 2004-09 Page 21
2004 Comp Plan Update
techniques for establishing landowner compacts and potential lands that could be aggregated
under a compact. See the Housing Element for additional policies on the development of
nonconforming lots for aff{)rdable housing.
OS 1.3
To reflect the policies in the Housing Element to provide for a variety of housing options in areas
designated for residential development including residential open space. accessory dwelling units
shall be considered allowed uses in all residential zoning districts except R-6. (See Housing
Element policy H 3.2.)
The City shall de'/elop streamlined procedures and other incenti'les for replatting and development
review of subdivisions and short plats where the lots in the original plat are aggregated and
replatted in order to aehieve better design and meet the goals of the Comprehensiye Plan.. The
streamlined procedures should apply to the aggregation of lots.
Diseussion: The streamlined pmcedl:lfes are imeaded to encol:lfage the aggregation of lots which
are existing, buildable lots in order to acrne\'e a better design and meet the goals of the
Comprehensiye Plan. In addition to streamlined procedures, additional incentives should be
considered inell:lding the vlaiyer or modification of impaet and processing fees, and modification of
deyelopment standards. The level of incentive could increase with the increase in the number of
lots and acreage being aggregated.
OS 1.7
Water or wastewater infrastructure, which may contribute to system capacity exceeding local
need, shall not be used to justify development counter to the City-wide land use policies. Aay
development predicated on such a basis shall be denied by all appropriate City permitting
ageneles.
081.13
The short plat procedures should be r~'ised to provide for flexible lot design, utilizing the criteria
established in Policies OS 1.11 and 1.12 to the maximum extent possible.
Discussion: If the short plat proeess encourages standar<l platting of land, the Flexible Lot Design
Process will be more bW'densome: a property O\Vfler is more likely to short plat rather than go
through the Flexible Lot Design Process.
OS 2.2
The Critical Areas Overlay District is limited to activities compatible with the conservation
and protection of sensitive areas, including 1m'" density residential use, passive recreation, and
agriculture, using Best Management Practices.
OS 2.4
Properties within the TDR-Sending Area Overlay retain the underlying zoning, but are subject to
the requirements of the Overlay District. The Overlay is intended to encourage a pattern of
development which will protect and enhance the sensitive areas. The property owner may choose
one of several techniques to realize development potential on the site:
Ordinance 2004-09
2004 Comp Plan Update
Page 22
a. An applicant may choose to use the Flexible Lot Design Process to accommodate
innovation, creativity, and design flexibility, and to achieve a level of environmental
protection that would not be possible by typical lot-by-Iot development. Through the
Flexible Lot Design Process, the maximum allowed density will be established on a case-
by-case basis based on the carrying capacity of the site, but shall not exceed the underlying
base density.
DiseussioB: The existing Enviromnentally Sensitiye .^..reas Ordinance (ESA) allows \vetlands to
be used in calculating density only if a property owner develops using thmugh PUD process. The
Flexible Lot Design Process would be used in place of the PUD process.
b. An applicant may choose to transfer the development rights of the parcel to
preserve the land as open space. Under this option, the development rights would be calculated
assuming the development potential of the underlying base density.
Discussion: Wetland density '.Yould only be included through the Flexible Lot Design Process on
a case by ease basis. Inclusion of wetland area in density for TDRs and PDRS may encourage a
property owner to forego any development of the property in exchange for transfer or purchase of
development rights. Therefore, if a property owner chooses to transfer all development rights, then
the property owner may obtain all of the wetland density.
c. If a property is located in the Open Space Residential District and a property owner
chooses to develop the site without using the Flexible Lot Design Process or Transfer
Development Rights (TDRs) options, the maximum density shall not exceed 1 unit per 10 acres.
Discussion: Only the TDR-Sending Areas with an underlying zoning of one unit per 2.5 acres are
subject to the requirements of paragraph c.
OS3.1
The Open Space Residential District is designated for areas appropriate for less intensive law-
density, residential development and a variety of agricultural and forestry uses.
083.4
The Island landscape should be preserved through creati'/e site design 1:lsing the Flexible Lot
Design Process f-or five lots or more, and the flexible lot design short plat prooess for f-our lots or
leS5-;-
OS 3.4
Development of the 40 acres of City-owned land located on Vincent Road (former site of the
County landfill) shall be subiect to a comprehensive and coordinated planning process that
addresses such issues as. but is not limited to. compatibility and location of current and proposed
uses. on-site circulation. off-site pedestrian connections. public amenities. landscaping. lighting
and traffic. The planning process shall include a public outreach program that seeks the
participation and input of both the immediate neighborhood and the larger Island-wide
community.
Ordinance 2004-09
2004 Camp Plan Update
Page 23
OS 3.5
The 1,153 acre site at Port Blakely is designated as a Special PlarJling Area.
OS 4.1
The R-l District is intended to recognize an existing development pattern of one unit per acre. +he
booodaries of these land 1:lse districts shall not be expanded beyond those that exist at the time of
adoption of this eomprehe8.sive plan.
OS 4.2
The R-2 District is intended to recognize an existing development pattern of two units per acre.
The boundaries of these land use districts shall not be expanded beyond those that exist at the time
of the adoptio8. of this comprehensive plan.
OS 4.3
The Island landscape shall be preserved through creative site desig8. 1:lsi8.g the Flexible Lot Desig8.
Process for fi'/e lots or more and the flexible lot design short plat process for four lots or less.
OS 4.5
Contrae! ZOlle Distriet: Hiddea CO'/e Road
The 16.8 aer-e site at the south-Vlest iaterseetion of SR 305 and Hidden Coye Road is appropriate
for a special zomag designation to recognize the actiyities cl:U'fently occurring on site under the
prm'isio8.s of an Unclassified Use Permit. 1ft addition, any special zomng designation should
consider the potential for 1:lse of this site for composting of yard and animal '.vaste; bio solid
eomposting; asphalt and concrete debris crushing; chipping and grinding of stumps and limbs; and
other similar uses. i\dditional uses sho1:lld only be allo'.ved follo'.ving detailed re'/iew of
environmental impacts that may be associated with the new 1:lses.
Ordinance 2004-09
2004 Comp Plan Update
Page 24
Section 11. The Environment goals and policies of the Land Use Element of the
Comprehensive Plan (pages 80 through 81) are deleted from the Land Use Element and relocated
to the new Environmental Element.
Section 12. The Fish and Wildlife Policies of the Land Use Element of the Comprehensive
Plan (pages 81 through 82) are deleted from the Land Use Element and relocated to the new
Environmental Element.
Section 13. The Aquatic Resources goals and policies of the Land Use Element of the
Comprehensive Plan (pages 82 through 85) are deleted from the Land Use Element and relocated
to the new Environmental Element.
Section 14. The Frequently Flooded Areas goals and policies of the_Land Use Element of
the Comprehensive Plan (page 85) are deleted from the Land Use Element and relocated to the
new Environmental Element.
Section 15. The Geological Hazardous Areas goals and policies of the Land Use Element
of the Comprehensive Plan (pages 89 through 90) are deleted from the Land Use Element and
relocated to the new Environmental Element.
Section 16. The Atmospheric Conditions goals and policies of the Land Use Element of
the Comprehensive Plan (page 90) are deleted from the Land Use Element and relocated to the
new Environmental Element.
Section 17. The Greenways goals and policies of the Land Use Element of the
Comprehensive Plan (pages 91 through 101) are deleted from the Land Use Element and relocated
to the new Environmental Element.
Section 18. The Natural Resource Lands goals and policies of the Land Use Element of
the Comprehensive Plan (pages 102 through 105) are deleted from the Land Use Element and
relocated to the new Environmental Element.
Section 19. Comprehensive Plan Policies for Siting of Essential Public Facilities PF Goal
1, and Policies PF 1.1 and PF 2.1 of the Land Use Element are amended as follows:
GOAL 1
The needs of the community shall be met by providing public facilities and services that are
equitably distributed throughout the community; that are located and designed to be safe
and convenient to the people they serve; that provide flexibility of use and maximum
efficiency; and that are compatible with adjacent uses2 mKI the environment and
preservation of public health and safety.
Discussion: The Growth Management Act reQuires that all iurisdictions planning: under the Act
must provide a process for siting essential public facilities. These goals and policies are intended to
guide the siting process. and therefore. in accordance with RCW 36.70A.200(2). thev do not
preclude the siting of essential public facilities. Site specific consideration of a proposed essential
public facility would occur during the development application review process.
Ordinance 2004-09
2004 Comp Plan Update
Page 25
PF 1.1
The City shall develop a list of State and County ':lide publio faoilities, and essential public
facilities of a local nature that whieh may potentially be sited on Bainbridge Island and coordinate
with the Kitsap Regional Coordinating Council in the development of a list of state and county-
wide public facilities.
PF 2.1
If Vlhen a public facility is proposed for Bainbridge Island that is an "essential public facility," as
defined in RCW 36.70A.200. the Mayor City Counoil shall appoint, and the City Council confirm
a Facility Analysis and Site Evaluation Committee composed of citizens, City staff.1 aflEl elected
officials and al'l'ropriate technical experts which shall consider in determining a recommendation
to City Council, at a minimum, the following:
. Analysis of the need for such facility;
. The development of specific siting criteria for the proposed project; -
. Identification, analysis, and ranking of potential sites;
. Consistency with the goals and policies of the City's Comprehensive Plan~
. Identification of potential physical impacts including. but not limited to. those relating to
land use. the environment. transportation. utilities. noise. odor and public safety~
. Identification of potential cumulative impacts. including the likelihood of a related
development locating in proximity to the l'roposed essential public facility~
. Identification of potential fiscal impacts to the local economy~ and , enyironment, and
eommunity.
. Measures to minimize and/or mitigate such impacts.
Section 20. The section of the Winslow Master Plan of the Comprehensive Plan entitled
Master Plan Land Use Policies: Overview, (page 16, paragraph 2) is amended as follows:
The Plan recognizes and emphasizes the vitality and importance of Winslow and its retail core.
The area defined as the Winslow Master Plan study area (see Figure -1-2) is designated to receive
50% of the allocation of future growth for the Island. The Master Plan assumes that a sub-target of
up to 50% of this new residential development will be concentrated within the Mixed-Use Town
Center and the High School Road Districts (see Figure 1 ). Based on the City of Bainbridge Island
population growth of 7,430 over the period ending 2012, and Winslow's portion thereof at 3,715
people, the associated growth in Winslow housing units would be approximately 1,500 dwelling
units
Section 21. The section of the Winslow Master Plan of the Comprehensive Plan entitled
Master Plan Open Space/Trail Policies (Chapter 4, page 34) is amended as follows:
Waterfront Trail
The missing link would be filled in from Waterfront Park to the foot of Madison A venue. While
the preferred route for eompletion of the trail projeot 'No'l:lld not require easement aequisition, the
alternative route and would require some easement acquisition. A boardwalk could be necessary.
The City should work to obtain easements, where possible, to extend the trail to the head of Eagle
Harbor. (See FigiH-'0 11.)
Section 22. The section of Winslow Master Plan of the Comprehensive Plan entitled
Impacts and Mitigation (Chapter 12, page 118) is amended as follows:
Ordinance 2004-09
2004 Comp Plan Update
Page 26
Waterfront Trail
Completion of the Waterfront Trail to the vicinity of the Pub requires addition of a missing section
from Waterfront Park to the foot of Madison Avenue. The preferred route to complete the trail has
already been identified as part of a previously approved project along Shannon Drive. (See Figure
-l-h1 Part of the trail One route would probably require a bridge and would require easement
acquisition from private properties.
The proposed altemati'le One possible connecting route would require obtaining easements from
commercial properties fronting on lower Madison Avenue south of Bjune Drive. Part of the trail
may require use of a boardwalk supported by piles where inadequate uplands exist. The trail
would not reduce the amount of development that could occur on those abutting properties but
would displace and impact up to 5,000 square feet of riparian habitat.
Section 23. -The Land Use Map of the Comprehensive Plan is amended as indicated on the
attached map, ExhibifA.
Ordinance 2004-09
2004 Camp Plan Update
Page 27
..... m YD A I "
U ~ ~ '\ \ I-- l-- -(
II
tf l- f- ~ >=-=J 1 1: II
-)~ g ~r-~ :rr:
-~ l;;;;~ L-
~~
,... n=- t ~ ....iiiii..
r -,...,....... ~
IrTl ' ...-Ir-' ...... h(\
L\~ 7 -\ 7'~ ~
L.-~ Ir
~ f'..11'\\1 I""'
;0 iT \1\ ~~
:-rTi i--V...,..... _l-
\:: I-
~ ,.. ~i-- - ...."
t: 1-1- '... ....
0- "\. rT'
"1 :u ~ ~;;
'1 ~ I-
.L- ~ t:;
l- 1 l~ l/~""
~ --- I
T1 ~ ,4'" " ~ //(C
T ~\ \...-il l~J ~ -- ~
~ '\ \ ~ "T ~ I--
t ~.l.n" H ~ -
Ej It ~ l'"?f
."'[ I
""" t==- 1- - "' ~~ ~ rl
-t\ 1\.'
IT..\ olfU 7 -, - CJ
I 1
L5-~ ----~ .,/
r\: ...' ", "1 , .......- ItJ -"p
\ A)~ ~ q ~ T ~ ~-::f
I- h , ~ ~
~ ;A .. l- I K2
-, ~ ~ ~~
'- , >-' .... '0 v
r ""': ^ ... ut.M' au) ... .... ~~ ~
i-l -I II a.e \0-
II l- I-- I'
ow.: OSt\-2 l\. --- L-l- ~ 9~ V
or \ \J" ~ ~ ~~ I- 1I~~
...\- ear--: ~ '( \l0'
l~
\ I- ~ ."Y '\
;I ..---. ...-rrrn' L- C::: >-- ~;) ~ C\\y -nr:
~~
g <8f-LVf"J [: 'Y<~).$
rL 1 ~-~ ~
It It :\Uf7 ~,~
;:.... :1i1lI\\ ~ ~ ". ~
~I...- ~~ Ei -nC
en A~' \~
~
,I. "1 rr \ '.>.:<' ~ j::::lY
t: \,))' "'-L~ "
'lA~,_~V/ ~
l-
~
Land Use Element
Otdina1lce 2004-09
2004 Com\' -Plan \Jpdate
Exhibit A
-page 28
Section 24. A new Environmental Element is added to the Comprehensive Plan, relocating
goals and policies and existing conditions overview from the Land Use Element and amending
these as follows:
ENVIRONMENTAL ELEMENT
INTRODUCTION
This element addresses the natural environment of Bainbridge Island. The Environmental Element
includes goals and policies for all lands considered critical areas under the Growth Management
Act. such as wetlands. streams. aquifer recharge areas. fish and wildlife habitat. frequently flooded
areas. and geologically hazardous areas. This element also addresses natural resources such as
forests. agricultural lands. and mineral resources and provides goals and policies concerning air
qualitv and the retention and development of the Greenwavs trails and open space svstem.
Preserving and protecting the environmental resources and natural amenities of the Island is an
important component for the vision of our city. Bainbridge Island contains interconnected forests.
meadows. wetlands and stream systems. and saltwater shorelines. all of which provide wildlife
habitat and scenic value. and some of which are protected as public parkland. The Island also
contains agricultural lands. and land areas that are sensitive due to geological conditions. slope
and/or soil tyPes.
As our Island grows and develops. continued protection of these varied open space areas and
environmentally sensitive landscape is necessary to maintain the quality of life that is currently
enioyed on Bainbridge Island.
Citizens of Bainbridge Island enioy and value the Island's natural environment. The public
parklands. open spaces. and other natural areas contribute to the quality of life on the Island. The
Bainbridge Island Community Values Survey - 2000. indicates that the citizens' support for
preservation of environmentally sensitive areas and agricultural lands remains high. It also
indicates that the community is supportive of providing pedestrian and bicycle trails and increased
public access to shorelines.
Understanding the functions of the Island's valuable natural systems and what types of activities
may impact these functions is key to protecting these lands and natural resource areas. Retaining
the viability and ecological functions of our natural systems and protecting those areas that are
sensitive to development is paramount to maintaining a healthy natural environment and a high
qualitv of life.
The goals and policies of the Environmental Element attempt to guide future action such that the
qualitv of the Island's natural environment is protected and maintained. and when possible.
restored and improved. Future actions will incorporate the best available science as required by
RCW 36.70A.172.
Ordinance 2004-09
2004 Comp Plan Update
Page 29
GOALS AND POLICIES
GOAL 1
EN 1: Preserve and enhance Bainbridge Island's natural systems, natural beauty, and
environmental quality.
EN 1.1
Land use decisions should shall Bet be made at the expense of seriously considerin~ the overall
goal of the Comprehensive Plan in protecting the Island's natural environment.
EN 1.2
Taking into account the need to reduce the potential for personal iniury. loss of life. or property
damage due to flooding. erosion. landslides. seismic events. or soil subsidence. PQroperties
adjoining or adjacent to critical areas must be developed in observance of the following principles
in descending order:-
-Avoid the impact, if possible.
-Minimize or limit the degree or magnitude of the action and its implementation by usmg
appropriate technology to avoid or reduce impacts.
-Reduce or eliminate the impact over time by preservation and maintenance operations during the
life of the action.
-Rectify by repair, rehabilitation, or restoration of the affected environment.
-Compensate for unavoidable impacts by replacing, enhancing or providing substitute resources or
environments.
Reooce the potential for personal injw)', loss of life, or property damage due to flooding, erosion,
landslides, seismic eveRts, or soil sabsidence.
-Protect against publicly fhumced eKpeBditures d1:le to the misuse of critical areas which cause:
1) Unnecessary maiBtenanee and r-eplacement of pablie facilities
2) Public fimding of mitigatioB for ayoidable impacts
3) Public emergencies that ...:ere avoidable
1) DegradatioB of the natl:lfal enyironment
- Utilize sensitive site design and siting of facilities and eonsauetion staging areas a'.vay
from critical areas and their buffers.
_ Provide dfainage proteetiye measures to avoid interfereBee '.vith vAldlife and fisheries
r-earing, resting, nesting, or spawaing activities, and ',vater quality.
Diseussioa: EnvimnmeBtaI coneems and land 1:156 are closely r-elated. If development occurs
witham car-eful examination of effects on its s'WTol:lBmngs, several UAdesirable outcomes are
possible. Hazards to that development or adjoining properties may be created or iacr-eased.
Natural systems may be damaged.
Discussion: . Critical areas are intended to flag concerns in the review process and to
make applicants aware of potential hazards or areas which may be damaged by unsound
development decisions. The designations are not intended to eliminate all development.
Development in these areas may be constrained. Compatible development will be allowed
which avoids designated critical areas, minimizes the impact, or mitigates potential problems
through engineering, siting, design, or other techniques. Proposals will be examined on a
case-by-case basis to allow for creative solutions and to assure that the special combinations
of factors in a particular case are addressed.
Ordinance 2004-09
2004 Camp Plan Update
Page 30
EN 1.3
Protect and enhance the natural systems and environmental quality of Bainbridge Island by
building a cooperative relationship between the City, citizens, land owners, and other public and
private agencies.
EN 1.4
Encourage community land use plans and development patterns that maintain, enhance, or restore
natural systems, and protect wildlife. fish resources and open spaces.
EN 1.5
The City shall adeJ* create overlay maps which show the location of critical aquifer recharge
areas. geologically hazardous areas, floodplains, streams, wetlands, and fish and wildlife
habitat.
EN 1.6
The City will use the City's Shoreline Management Master Program to address and protect marine
fish and marine shoreline habitat.
GOAL 2
EN 2: Encourae:e sustain ability in City e:overnment operations.
EN 2.1
In managing City government operations. take reasonable steps to reduce impacts to the
environment and ecosystems upon which we depend.
EN 2.2
Seek to minimize the quantity and toxicity of materials used and waste generated from City
facilities and operations through reduction. reuse. and recycling.
EN 2.3
Use. where feasible. new technologies that demonstrate ways to reduce environmental impacts.
GOAL ~~
EN 3: Whenever there is a subdivision of land, the City shall consider the impact on critical
areas.
EN~3.1
The number and design of lots shall be based on avoiding or minimizing impact to critical areas
and protecting natural systems. Development shall be consistent with the objectives of the Critical
Areas policies rather than maximizing the number of lots. In order to protect critical areas, the full
density permitted under the zoning ordinance might may not be achieved.
Discussion: Although it may be possible to obtain maximum density on a. site which has one or
more critical areas, there may be sites which do not have the capacity to obtain maximum density
and protect critical areas.
EN ~~.2
Creative solutions (such as flexible lot design, TDRs, and PDRs) which may allow the maximum
number of lots while protecting critical areas, should be explored.
Ordinance 2004-09
2004 Comp Plan Update
Page 3 1
EN ~3.3
No lots shall be created that do not provide sufficient area to aceommodate a building site on the
"noncritical" portion of the site.
Any lot created by subdivision of land shall include sufficient area to accommodate a building site
not in a critical area.
Fish and Wildlife Policies
GOAIA!
FW 1~: Protect and enhance wildlife. fish resources and natural ecosystems on Bainbridge
Island.
FW 1.1
The protection and enhancement of wildlife habitat shall be an integral component of the land use
planning process. Land uses and developments that are incompatible '.vith \vildlife habitat and
other critical areas should be prohibited. shall minimize the impacts to priority habitat and priority
species as defmed by the Washington Department of Fish and Wildlife and species or habitat
determined to be locally significant.
FW 1.2
The identification of priority habitat shall be based on an evaluation of the species of wildlife on
the Island and the habitat requirements of these species.
FW 1.~3
The protection ef and enhancement of eritieal priority '.vildlife habitat shall be one of the criteria
used when evaluating the preservation of open space as part of development techniques, such as
clustering, flexible lot design subdivisions, and creation of transfer of development rights (TDRs).
FW 1.~
The CitY shall protect critical priority ...Aldlif-e habitat and limit fragmentation of habitat that
isolates wildlife populations (physically and genetically) by developing identifying an
interconnected system of corridors which will provide continuous links east to west and north to
south, connecting larger tracts identified as critical priority '.vildlife habitat.
FW 1.4
The City shall eyaluate ...:ildlife habitat OR the Island and develop a classification system which
,vill identify priority habitat to be preserved. The_classifieation system shall be based OR an
evaluation of the speeies of ':lildlife OR the Island and the habitat requirements of these speeies.
TheclassificatioR system shall eOl'lSider '.vatercourse areas, wetlands, shoreline, ripariaa ar-eas,
tidelands, public open space, forested areas, topography, an.d iRtensity of adjacent development.
FW 1.5
Wetlands and riparian areas, espeeially those ..vmeh are part of an integrated Retwork oyer an entire
natural clraiflage system, shall be protected.
FW 1.(;
'Nildlif-c species on Bainbridge Island should not become locally extinct ....ithin the City due to land
use changes and habitat alteratioR.
FW 1.6
The City shall undertake appropriate, adequate. and timely actions to protect and recover state
Ordinance 2004-09
2004 Comp Plan Update
Page 32
priority species. species listed under the federal Endangered Species Act. local species of concern.
and their habitats located within the City to 1) avoid local extirpation of such species from the
lands or fresh waters or nearshore of the City and 2) contribute to the protection and recovery of
such species throughout the greater region in cooperation with federal, state, and other local
agencIes.
Discussion: Local extirpation means the elimination of self-sustaining residential populations
from the entire Island and its waters. or adequate habitat to sustain use of the Island's lands and
waters by transitory or migratory populations.
FW 1.7
The City shall work closely with the Washington State Department of Fish and Wildlife (the
agency with expertise to "preserve, protect, and perpetuate" wildlife resources of the State) in
matters involving wildlife.
FWl.8
The City, in coordination with the Department of Fish and Wildlife. and the Bainbridge Island
Parks District, shall develop a program to educate the citizens of the Island, particularly those
citizens who reside adjacent to critical priority wildlife habitat, on ways to utilize private property
in a manner which will help to protect and enhance priority wildlife habitat.
FW 1.9
Forest practice applications vAllch are not a Class IV should require a replanting plan for a variety
of species. Snags shall be r-et-ained in accordance with the recommendations of the Department of
Wildlife's Management Recommendations for Washington's Priority Habitats and Species.
Aauatic Resources
GOAL 1
AQ 1: Preserve and protect the Island's remaining aquatic resources' functions and values.
Discussion: Aquatic resources include marine nearshore, wetlands, streams, lakes, creeks, tidal
inlets and mudflats and associated vegetated areas.
Over the past decade, awareness has grown of the importance of aquatic resources, particularly
wetlands, in our natural and built environment. Aquatic resources have a number of important
ecological functions and values. These functions vary from wetland to wetland, stream to stream,
but include providing water quality protection, flood plain control, shoreline stabilization,
contributions to groundwater and stream flows and wildlife and fisheries habitat.. Wetlands and
streams also have values as natural areas providing aesthetic, recreational and educational
opportunities that need to be preserved for future generations.
AQi.l
Achieve no overall net loss of the City's remaining, regulated, aquatic resources.
AQ 1.2
Development shall not be approved in regulated wetlands, streams, or buffer areas, unless a
property owner would be denied all reasonable economic use of property.
Discussion: In some cases, buffer configurations and widths can be modified to allow normal
Ordinance 2004-09
2004 Comp Plan Update
Page 33
usage of legallv established lots. In other cases. the development and implementation of a habitat
management plan mav provide resource protection to allow development. A variance process
should be available to accommodate development in buffer areas. Reasonable use exception
should be reserved for develo1Jment in the critical area if no other process will allow for a
reasonable use of the property. A Reasonable Use Exception (RUE) is a form of variance from
regulations that allows some use of a legally established lot. A reasonable use must minimize the
impact to critical areas. The RUE process is included in the critical areas refimlations of the
Bainbridge Island Municipal Code. which implements policies of this document.
AQ 1.3
Require that vegetated buffers be maintained between proposed development and the aquatic
resource in order to protect the function~ al and values of such systems. Degraded buffers should
be restored to enhance their function.
AQ 1.4
Require that buffer-s be retained in their natural condition wherever possible, while allowing for
appropriate maintenance. Where buffer disturbance has occurred, require revegetation with fJ:atWe
appropriate species with a preference for native species to restore the bWfers' protective values.
Discussion: Vegetated buffers facilitate infiltration and maintenance of stable water temperatures,
provide the biological functions of flood storage, water quality protection and groundwater
recharge, reduce amount and velocity of run-off, and provide for wildlife habitat.
AQ 1.5
Ensure that development activities are conducted so that aquatic systems resources and natural
drainage systems are maintained and water quality is protected.
AQ 1.6
Prior to any clearing, grading, or construction on a site, all wetlands, streams, and buffer areas
should be specifically identified and accurately located in the field in order to protect these areas
during development. After construction, permanent visual markers should be placed around the
buffer areas.
Discussion: The purpose of this policy is to educate future home owners and users of wetlands
aquatic resources (i.e. trail users) of the boundary of the wetlands and buffer area. aQuatic
resources.
AQ 1.7
New development using flexible lot design should include any wetlands, streams, or required
buffers in separate tracts or easements to remain in common ownership.
AQ 1.8
DiseolH'age Hherbicide~ and pesticide~ use should not be used in wetlands, streams, and buffer
areas, and should be discouraged in the areas that drain into them.
Discussion: Encourage alternatives to the use of herbicide and pesticide in areas adjacent to buffer
areas by providing technical information and educational programs including, the use of native
vegetation.
AQ 1.9
Develop a community-wide program to educate island residents about alternatives to using and
disposing of herbicides, pesticides, and other household chemicals to reduce impacts to marine
shoreline areas. wetlands, streams, and other environmentally sensitive areas.
Ordinance 2004-09
2004 Comp Plan Update
Page 34
AQ 1.10 .
Access to regulated wetlands and streams by farm animals should be discouraged. Agricultural
activities must be in conformance with Best Management Practices.
DiseussioB: The goal of any aquatic resource compensatory project is no net loss of the aquatic
resource fimction and acreage.
AQ 1.11
Restoration, creation or enhancement of wetlands, streams, and their buffers shall be required in
order to offset the impacts of alteration of a wetland/stream or buffer area. Compensation for loss
of aquatic resources should be determined according to function. acreage. type. location. time
factors. and an ability to be self-sustaining.
DiseussioB: The goal of any aquatic resouree compensatory project is no net loss of the aquatio
resource fimction and aereage.
A Q''} 12
.... .
Compensation f-or loss of aquatie resources should be determined accerding to function, acreage,
type, location, time factors, and an ability to be self sustaining.
Wetlands
AQ 1.~12
Maintain the Island's wetlands in their natural state by:
. Preservation of native vegetation in and next to the wetlands
. Restoration of areas that have already been degraded
. Protection of areas that have not been disturbed
AQ 1.H13
The City should make every effort to purchase or obtain conservation easements for significant
wetlands and areas of the shoreline critical to natural habitat.
AQ 1.14
Density calculations shall not include the area of a regulated '."etland. If an applioant utilizes a
flexible lot design to accommodate irmovation, creativity, and design flexibility to achieve a level
of environmental pmtection that would not be possible by typical lot by lot development, some or
all the wetland areas may be included in the density caloulatioFl. If, in the TDR Sending .^..reas, a
property ovmer elects to transfer all dem~lopmeFlt rights, then the OVlner may obtain all of the
\vetlands density.
Streams
AQ 1.~14
Maintain the Island's streams and creeks in their natural state whereyer feasible through .by:
. Preservation of their courses, their banks, and the vegetation next to them
.. Restoration of areas that have already been degraded
. Protection of areas that have not been disturbed
AQ 1.l{}15
Allow stream relocation only where relocation would result in improved stream habitat and when a
property owner would otherwise be denied all reasonable use of the property.
Ordinance 2004-09
2004 Comp Plan Update
Page 35
AQ 1.-1+16
Degraded channels and banks should be rehabilitated by various methods (e.g. volunteer efforts.
public programs or as offsetting mitigation for new development} to restore the natural function of
the riparian habitat.
ABftdromous Fish Streams
AQ 1.1817
Anadromous fish streams and adjacent land should be preserved and enhanced to ensure the
propagation of salmonid fish.
DiseussioB: Protection of tidelands as salmonid rearing ar<las is addressed by the V.'ashington
State Department of Fisheries and in the City's Shoreline Master Program.
AQ 1.1918
Require the construction of necessary roads and utility corridors on upland sites to avoid wetland
and stream crossings and disturbances.
DiseussioB: If erossings and/or access is authorized, culyerts shall not be used. Use only bridges
with support setbacks from the stream bank designed to avoid erosion. ConstnlctioH timing shall
be coor<linated ...lith appropriate fish and \vildlife ageacies. Erosion and sedimentation shall be
contr{)lled to the max.imwn exteat feasible and disturbed areas should be restored and stabilized
prior to the time when eggs or fry are in the stream bed. Shared access for several properties should
be provided wheneyer possible.
.f..Q 1.20!!
Removal of gravel from an anadromous fish stream should be prohibited.
.\Q 1.21
The l::lSe of closed pipe draiHage systems f-or fish bearing streams should be discouraged. Vllhen the
use of effi',erts is neeessary, the oolverts shall be oversized and haye gravel bottoms which
maintaia the channel's \vidth and grade.
Frequently Flooded Areas
Regulation of frequently flooded areas is important for property and habitat protection.
Floodplains are valuable natural resource areas that playa maior role in the function of ecosystems.
Floods are a natural process where rising water inundates otherwise dry land. Floodplains provide
storage for floodwaters. which reduces downstream erosion and improves downstream water
quality. Floodplains allow infiltration for aquifer recharge and provide impOrtant habitat necessary
for the survival of many invertebrate. fish and wildlife species. Flood courses can change
naturally. over time. As impervious development covers more land surface and encroaches on
floodplains. damage increases to both the built and natural environments.
The Federal Emergency Management Agency (FEMA) has designated frequently flooded areas as
areas that have a 1 % or greater chance of flooding in any given year. Also known as the 1 DO-year
flood. this level was chosen to manage flooding as a compromise between an economic use of the
land and an understanding of the natural benefits of flooding.
Sea level rise may happen as the result of natural or human activity such as geologic subduction or
global warming. Here in the Puget Sound we experience the effects of both the geologic and
Ordinance 2004-09
2004 Comp Plan Update
Page 36
hydrologic events. Regardless of the cause assigned. cumulative sea level rise has serious
implications for the shorelines and low land areas that are potentiallv affected by beach. bluff
erosion and loss of intertidal zones. These areas serve such purposes as nursery habitat. feeding
grounds for fish and fowl. storm water collection and water filtration
Frequently Flooded Areas
GOAL 1
FL 1: Protect the natural functions of frequently flooded areas.
Discussion: Frequently Flooded Areas are described in +!he existing Environmentally Sensitive
Critical Areas Ordinance inch:ldes as frequently flooded areas as those lands and floodplains
adjacent to streams, lakes, coastal areas and wetlands with a one percent or greater chance of
flooding in any given year (i.e. the 100 year floodplain). as determined by the Federal Emergency
Management Agency (FEMA).
FL 1.1
Minimize public and private losses due to flood conditions by limiting development in frequently
flooded areas of speeial flood hazard as shown on the Flood Insurance Rate Map~.
Discussion: Frequently flooded areas can and do migrate oyer time. Increased development may
affect the level of occurrence and location of frequently flooded areas. The Flood Insurance Rate
Maps adopted by the City were originally produced in 1975 and updated in 1977. Opportunities to
update flood hazard maps should be pursued. as resources become available.
FL 1.2
Control Limit the alteration of natural floodplains, stream channels, and natural protective barriers,
which help accommodate. dissipate. or channel floodwaters.
FL 1.3
Emphasize nonstructural methods, such as setbacks and vegetation, to prevent or minimize flood
damage.
FL 1.4
Public fimds should not be spent to restore degraded structl:H'es when the degradation is caused by
improper siting in a floodplain.
FL 1.~
Public fucilities such as sewer and water lines should be located outside areas of special flood
hazard frequently flooded areas in order to minimize damage to either the public facility or the
natural environment.
GOAL 2
Anticipate and prepare for the consequences of sea level rise.
SLl
Th'; City should work with tribal. federal. state and local agencies to develop a coordinated water
management program that includes issues related to sea level rise.
Ordinance 2004-09
2004 Comp Plan Update
Page 37
Geolo~icallv Hazardous Areas
GOAL 1
GH 1: Protect landslide hazard areas, and erosion hazard areas, aDd steep slopes from the
impacts of use and development for the protection of public safety. property and the
environment.
GH 1.1
Land uses on landslide hazard areas, and erosion hazard areas, and steep slopes should be avoided.
If not possible to avoid, If the hazard caused by development can be mitigated then land use should
be designed to prevent damage to persons or property, and environmental degradation, and to
preserve and enhance existing vegetation to the maximum extent possible. -
DiseussioB: Steep slopes are defined as slopes of 40% or more. Many steep slopes tend to be
Ioeated near streams or shor-elines. The cumulative impaet of repe!ited sediment discharge to
stream systems is a major factor in their degradation. Erosion 100vers dO\VIlstream water quality as
a result ofincreased turbidity, siltation, and depositioR of the eroded material. In addition, removal
of mature vegetation, grading aetivities, aad eOBstruetion of impervious surfaees ean limit a site's
ability to naturally eleanse and recharge lH"ban nmoff. Vegetation filters particles and some
pollutants out of '.vater that flo'.vs over vegetation.
GH 1.2
As slope increases, development intensity, site coverage, and vegetation removal should decrease
to mitigate problems of drainage, erosion, siltation, and landslides.
GH 1.3
In order to protect landslide and erosion hazard areas, aFld steep slopes from damage during
construction and from intrusion following construction, an analysis by a geotechnical engineer
should be conducted.
CM 1.4
The City shall establish guidelines for development ORland which contains landslide hazard areas,
erosion hazard areas, and steep slopes. The guidelines should address:
· Buffer requirements from the edge of slopes subject to landslide or erosion hazards, or
steep slopes.
. Limitations on the size of the f{)otprint of the building and other disturbed areas.
. Location of development on the least sensiti'le portion of the site to minimize slope
disturbance and to preserve the natural land forms, geological features, and yegetation.
GH M 1.4
Roads, driveways, and utility corridors should be constructed to preserve the integrity of the
existing land forms, drainage ways, and natural systems, minimizing impact to the landslide and
erosion hazard areas. Common access drives and utility corridors should be utilized where
feasible.
Ordinance 2004-09
2004 Comp Plan Update
Page 38
GH M 1.5
When clearing, grading, or filling is permitted on sloped areas containing landslide areas, and
erosion hazard areas, or steep slopes, such activity shall be limited to the dry period of the year.
GH h+ 1.6
Any alteration of a landslide hazard area, or erosion hazard area or steep slope should not increase
the rate of surface water discharge or sedimentation, and should not decrease slope stability on
adjacent property. The altered area shall be landscaped to provide erosion control.
GOAL 2
GH 2: Identify areas that are at risk due to seismic activity and ree:ulate activities in these
areas for public safety and property protection.
GH 2.1 The best available science shall be considered in regulating and permitting land use
activities in areas that have a heightened risk from earthquakes. such as liquefaction areas and fault
rupture zones. tsunami or other geological hazards. and in mapping thes.e high-risk areas.
Discussion: The primary tectonic structure of concern for Bainbridge Island is the Seattle fault
system. One surface strand has been identified south of Blakely Harbor; however. it is likely that
this is only part of the system of fault lines. These fault lines result in the need to plan for larger
earthquake acceleration than was previously anticipated.
GH 2.2 Tsunami hazards should be considered in regulating land use activities on Bainbridge
Island.
Discussion: Preliminary tsunami modeling suggests that the southern end of Bainbridge Island is
susceptible to inundation or wave run-up of up to four (4) meters following a large earthquake on
the Seattle fault.
GH 2.3 Seismic activity and the potential for earthquake induced landslides should be considered
in the determination of geologically hazardous areas.
Discussion: Areas that are stable under normal conditions can become landslides during
earthquake events.
GH 2.4 The City should provide information and educational opportunities to the citizens of
Bainbridge Island on the hazards posed by seismic events.
Atmospheric Conditions
GOAL 1
AT 1: Protect and promote clean air: aDd miDimize iDdividual aDd eumulative Doise impaets.
Discussion: Clean air is and acceptable noise leyels are necessary for healthful living. These
policies address the desire to protect the residents of the Island from unacceptable impacts.
Ordinance 2004-09
2004 Comp Plan Update
Page 39
AT 1.1
Maintain high air quality standards through efficient land use patterns and transportation policies.
Promote land use patterns and transportation policies that ensure that the Island's contribution to
regional air quality is consistent with State and Federal standards.
Encourage the retention of existing vegetation and the installation of landscaping In new
development that will provide natural filtration of suspended particulate matter.
Consider the impacts of new development on air quality as a part of the environmental review
process and require mitigation when appropriate.
Cooperate with the Puget Sound Clean Air Agency in providing information to the community
about available and innovative emission controls for residential. commercial. vehicular and light
industrial use. -
AT 1.2
Strive to ensure beneficial indoor air quality in all renovations and new construction of City-owned
facilities. and promote design conditions that enhance beneficial indoor air Quality in private
construction.
}.. T 1.2
Pmffiote air quality tlHough reduction in emissions from traffi!:) and residential, commercial, and
residential uses.
AT 1.3
Deyelop alternati';es to burning vegetation and trees removed during site preparation.
l~. T 1.4
Develop a noise ordinance.
AT 2 Promote the reduction of cumulative noise impacts.
AT 2.1
Review the effectiveness of current noise standards and modify these standards as necessary to
ensure acceptable noise levels.
AT 2.2
Pmmote actions such as equipment modifications and operational requirements that reduce noise
from transportation modes. construction sites. industrial uses. and commercial business
establishments.
A T3 Contribute to ree:ional e:reenhouse e:as reduction efforts.
AT 3.1
Assess municipal. commercial. residential and transportation related greenhouse gas emissions.
AT 3.2
Promote energy conservation measures such as: retrofitting municipal offices. shops. and garages
with high efficiency lighting: converting municipal vehicles to hybrid fuel vehicles as replacement
Ordinance 2004-09
2004 Comp Plan Update
Page 40
or new vehicles are acquired: converting traffic signals to LED: and adopting incentive programs
and design standards that encourage the employment of renewable energy sources and energy
efficient appliances on the Island.
AT4
Preserve and enhance the view of the dark sky bv controlline: e:lare and lie:ht trespass.
AT 4.1
Develop regulations that provide standards for appropriate lighting practices and systems that
will curtail the degradation of the nighttime visual environment.
Greenways
GOAL 1
GW 1: Develop and maintain a Greenways Plan for Bainbridge Island.
Discussion: On Bainbridge Island the "greenways" concept encompasses a variety of terms. The
greenways system is composed of land areas and connector links. The land areas include, but are
not limited to: large open areas, public lands, farmlands, critical areas, forests, shoreline areas, and
parks. The features of the connector links include trail systems, riparian areas, visual or scenic
views of ridge lines, wildlife corridors or any combination of these. In most cases these land areas
and connectors will be public or will be private and encumbered with appropriate conservation
easements (or other instrument) to insure that they will not be significantly altered by future
development.
The greenways system contributes to the preservation of rural character of the Island, provides
important wildlife habitat, improves environmental quality of the Island (Le., water quality, aquifer
recharge, air pollution abatement) preserVes working farms and provides pedestrian, equestrian and
bicycle trails, as well as other recreational opportunities.
GW 1.1
Each Greenway component should incorporate some or all ofthe following:
. Refuge, habitat, and functional migration routes for wildlife
. Trails, free of motorized traffic, that are for use by walkers, joggers, bicyclists, and
equestrians to travel to and from schools, recreation areas, public transportation areas,
commercial areas, and neighborhoods
. Recreation opportunities
. Scenic landscapes and viewpoints
. Large open spaces, farmlands, forests, shoreline areas and critical areas
. Public road ends
. Historic areas
. Buffers of trees and vegetation that help to maintain the rural character of the Island
Ordinance 2004-09
2004 Comp Plan Update
Page 41
GW 1.2
In creating a Greenways Plan, where feasible possible, multiple function characteristics should be
considered and barrier-free trails that are designed and built expressly for access for persons with
disabilities should be provided.
GW 1.3
Encourage the development of city road ends to promote neighborhood access and/or view
corridors to the shoreline. Greenways should include access to the shoreline including road
ends or rights-of-way leading to saltwater. Shoreline access points should be marked
and visible from the shore and water where appropriate for small boat use. Where possible,
waterways should be designated between shoreline points for rowboat and kayak access.
GW 1.4
Tax title strips which are of unknown ownership or owned by Kitsap County should be acquired,
whenever possible, as part of the greenways system.
Discussion: Tax title strips are usually narrow 'Pieces of land that were left over because of an
error in a legal description. a survey. a platting error. or a mis-measurement by the County
Assessor's office. An Island-wide inventory of these lands should be conducted and strips
appropriate for public use should be identified.
GW 1.5
Wildlife corridors should provide connections to larger protected open space and habitat areas.
including public parks and privately held reserves or open space areas.
GW1.6
The trail. open space and recreational components of the Greenwavs and Open Space Plan should
be coordinated with the Non-Motorized Trans{>ortation Plan.
Discussion: See also the Transportation Element. Non-Motorized Transportation Plan.
GW 1.7
Greenwavs should include connections to recreational opportunities and sites of historical interest.
GOAL 2
GW 2: The City and the Bainbridge Island Park and Recreation District shall jointly
develop a Greenways Master Plan that will identify those greenway land areas and connector
links, and other large tracts. The overall goal of the Greenways Plan is to provide several
continuous links, east to west and north to south, to enhance the quality of life for Island
residents.
Discussion: The Bainbridge Island Park and Recreation District and the City of Bainbridge Island
are working cooperatively with Kitsap County to plan a county-wide Greenways system to create,
adopt and implement a Greenways Master Plan. The Kitsap County Greenways project is being
Ordinance 2004-09
2004 Comp Plan Update
Page 42
coordinated through the Regional Planning Council. Three planning area teams have been
designated - North, Central and South Kitsap County. A Bainbridge Island Greenways Group has
been fonned as a subcommittee to the North Area Planning Team. Greenways and Open Space
have been developed as a part of this Plan. (Refer to Figure 12A.)
GW2.1
Promote and encourage the preservation of a greenways system by setting aside oodeyeloped land
tllf"ough conservation easements, land donations land use aetions, such as slibdivision open space
requirements, an open space requirement for new de'lelopments, use of property tax deferral
programs, through the use of property tax reductions. conservation easements. land donations. or
other techniques such as land use actions requiring open space for new development. or acquisition
through purchase with public funds. Encourage and support community-based. non-profit
organizations offering options and alternatives to development in the interest of preserving
desirable lands as a J?ublic benefit.
GW2.2
The implementation of part of the Greenways Master Plan shall be one of the criteria used when
evaluating the preservation of open space as part of clustering, flexible lot design subdivisions,
transfer of development rights (TDRs), and purchase of development rights (PDRs).
GOAL 3
GW 3: The Bainbridge Island Park and Recreation District should develop arid maintain a
trails system that establishes non-motorized access throughout the greenways system of
Bainbridge Island, maximizes public access to greenway land areas, provides increased
recreational opportunities for the public, and provides an alternative to motorized
transportation between residential, public transportation, commercial, schools and
recreation areas. The City should assist in acquisition of trail easements.
Discussion: Trails are an important component of the connector links to provide human access,
where appropriate. Not all greenway connectors will, or should have trials trails. Some areas are
environmentally sensitive or provide wildlife habitat that would cease to exist if human
development were allowed. In some cases the connectors are visual buffers such as trees along
roadsides.
GW 3.1
The multipurpose trail system should serve local and regional users and be linked to the Kitsap
County and re!!ional trail systems. Trail linkages should be provided to the Agate Pass bridge.
between residential areas. public transportation. schools. commercial and Neighborhood Service
Centers. along the Winslow waterfront and recreation areas.
GW3.2
Trails should provide for the needs of a diverse population of differently-abled people engaging in
non-motorized passive and active pursuits including:
. Recreation and nature study
. Exercise
. Shopping
. Commuting to work and school
Ordinance 2004-09
2004 Comp Plan Update
Page 43
Discussion: See also the Transportation Element. Non-Motorized Transportation Plan.
GW 3.3
The trail system should be recognized and maintained by the City or Parks District as distinct from
informal or private pathways.
Discussion: A Trails Plan adopted as part of the Bainbridge Island Park and Recreation District
comprehensive Park and Recreatiofl eomprehensive plan identifies those trails systems recognized
and maintained by the City or Parks Districts as primary trails. Primary trails are distinct from
informal or private pathways. Informal or private pathways should form a secondary systems afld
link to the primary system wher-e feasible.
GW 3.4
Encourage the retention of existing informal or private pathways and the creation of new pathways
which link to the greenways system. These trails should be developed and maintained under joint
public/private partnership, if appropriate, or developed privately.
Discussion: Informal or private pathways should form a secondary system with linkages to the
public system.
GW 3.5
Linkages should be provided to the Agate Pass bridge, between residential areas, public
transportation, commercial and Neighborhood Service Centers, and recreation areas.
GW 3.6
Unopened road rights-of-way should not be vacated, and unopened easements should not be
revoked without a requirement for permanent public trail access. Trails should be planned to avoid
conflict with future road development in these rights-of-way easements.
Discussion: See also the Transportation Element.
GW3.7
New utility rights-of-way and easements should be encouraged to include trail access easements.
Discussion: See also the Utilities Element.
GW 3.8
Existing, utility rights-of-way and easements should be reviewed on a case-by-case basis to
provide trail access.
Discussion: A survey should be conducted of existing utility easements and rights-of-way that
would be appropriate for trail use. This survey should occur in coni unction with implementation of
the Non-Motorized Transportation Plan.
GW 3.9
The trails system should include parking areas at trail heads located on public land, and not
neighborhood areas, unless it is not feasible to provide parking on public land for a trail system.
Trails that connect with the ferry systems should encourage access for bicyclists and walk-on
passengers, and discourage the need to drive an automobile.
Ordinance 2004-09
2004 Comp Plan Update
Page 44
See also GW 3.1
GOAL 4
GW 4: Maintain a system of high quality public parks and recreation facilities on
Bainbridge Island.
GW 4.1
The park system for Bainbridge Island should include neighborhood, community, and regional
parks with sufficient acreage and facilities to meet the standards contained in the Bainbridge Island
Parks and Recreation District Comprehensive Plan.
Discussion: The Comprehensive Park and Recreation Comprehensive Plan prepared by the
Bainbridge Island Pl!fk and Recreation District which is adopted as part of this Plan, contains an
analysis of the existing and proposed future parks and recreation system.
GW4.2
A greenways and open space designation should be created for public parks~ aaddedicated open
spaces and trails.
Discussion: The Greenways and Open Space category is for areas devoted to public recreational
facilities such as parks and trails and areas that have been preserved as open spaces through a
variety of open space methods.
GW 4.3
Promote the use of property tax reductions, conservation easements, and other techniques as an
incentive to preserve desirable lands as a public benefit.
GW4.4
Ensure that future development provides adequate recreational facilities and trail linkages to public
parks and recreational facilities.
GW4.5
Whenever new development adjoins a park site, a vegetative buffer shall be required which shall
include the preservation and protection of existing vegetation, to visually screen the development
year-round from the park.
Ordinance 2004-09
2004 Comp Plan Update
Page 45
BAINBRIDGE ISLAND GREENW A YS AND OPEN SPACE PLAN
GREENWAY MAPS
A Greenways Plan was developed by staff based the Greenways Goals and Policies and the work of
ongoing greenways-related projects (Bainbridge Island Greenways Committee, Bainbridge Island Parks
and Recreation District Trails Committee, Road Ends Advisory Committee, Public Works Transportation
Committee and others). The maps will be coordinated with the Non-Motorized Transportation Plan and
updated as needed to show new greenways opportunities.
The Greenways Plan has an Open Space and Trails component and a Wildlife and View Corridor
component. The Open Space and Trails plan will take shape mainly through ~he acquisition of land, the
development of trails, and the dedication of easements. It is driven largely by land ownership and use.
The Wildlife and View Corridor plan will rely primarily on retainin~ wildlife habitat and natural systems.
Existing regulations and preservation incentives rather than acqUIsition will be the primary tools for
implementing this part of the Plan.
Open Space and Trails Map: This map outlines the accessible part of the greenway which will connect
large, public open spaces with a trail network. It distin~uishes existing opportunities (public land,
dedicated trails, water access, etc.) from potential opportunities for acquisition or trails. This map will be
administered by the Department of Planning and Community Development and updated by resolution of
the City Council without requirement to amend the comprehensive plan.
Existing Opportunities:
Public recreation areas: This is public land dedicated to recreational use. These park lands are the
major open spaces in the publicly accessible part of the Greenways Plan.
Private land with public access: These lands are not publicly owned but do have limited public access
and internal trails. Included here are subdivisions on which trails have been obtained as mitigation for
development impacts. The developments shown have received at least preliminary approval.
Primary trail corridors: This trail network connects the island's large public open spaces along road
rights-of-way. The Plan calls for the improvement of these roads to better accommodate pedestrian and
bicycle traffic. These trails should be separated from traffic (moved onto undeveloped portions of the
right-of-way) as the means become available. Trail easements across private land could also augment or
replace roadside trails.
Established trails (other than those along public right-of-way): The map indicates where there are
public trails across private property, but there is no attempt to map trail networks on property already
designated on the map as public or private open space.
Water access or viewpoint: These are points on the shoreline with public uplands or with access to the
shoreline by way ofa utility corridor. There is not always access to the beach; some are viewpoints only.
Associated public tidelands: Public tidelands are shown where they adjoin public uplands and where
there is potential for public access.
Potential Opportunities:
Planned acquisitions: The City or the Parks District plan to purchase this land as the means become
available. The Greenways Plan supports the acquisition of these properties; they would make tremendous
additions to the greenways network.
Ordinance 2004-09
2004 Comp Plan Update
Page 46
Other land where the City should pursue trails: These are public, utility or institutional lands where we
cannot assume public access. Also included are proposed residential developments through which we hope
to establish public trails.
Potential water access or viewpoint: These locations are being looked into by the Road Ends Advisory
Committee as possible City road ends. It should be noted that this map does not claim public access to
these areas, but rather acknowledges their potential. The Greenways Plan supports the Road Ends
Advisory Committee's work, as the locations shown would help link the trail network to the water.
Wildlife and View Corridor Map: This map delineates critical environmentally sensitive areas, some
important wildlife habitat, and parcels which have some level of protection afforded them by their land use
or ownership. Other areas are delineated for their importance to the visual quality of the island. This map
will be administered by the Department of Planning and Community Development and updated without
requirement to amend the comprehensive plan.
This should be seen as an initial is an inventory map with '.vhieh to start identifying meaningful wildlife
corridors and scenic resources. The Bainbridge Island Wildlife Corridor Map. adopted by resolution of the
City Council. more specifically identifies habitat links to larger protected open space habitat areas. ~
Wwork remains to adequately analyze and catalog vegetation, mteRsity of p6velopment, wildlife habitat
and important viewsheds.
Many of the Wildlife Corridor elements on this map are already committed to open space use or preserved
by conservation easements. Much of the remaining land can be protected through the purchase of
development rights (proposed TDR/PDR program) and the enforcement of existing critical sensitive areas
regulations. The preservation of View Corridor elements will rely on conscientious development, the
purchase of development rights and the pursuit of conservation easements.
WILDLIFE CORRIDOR
Regulated critical sensitive areas: This shows critical environmentally sensitive areas including priority
wetlands, stream corridors, lakes, ponds and steep slopes. Offshore areas include tidelands, Eelgrass beds,
Kelp beds, and Herring and Surf Smelt spawning areas.
Permanent public open space These parks are in public ownership and typically have large areas of
undeveloped land.
Permanent private open space: This includes conservation easements and open space designated in
Flexible Lot Designs, subdiVIsions and short plats.
Current Use open space: These property owners have made a ten year commitment not to develop their
land. This land is much less secure as wildlife habitat.
Farms: Farmland provides valuable habitat because of a low human presence and because of the Edge
Effect it produces in the transition zone between field and forest.
VIEW CORRIDOR
Ridgelines: Ridgelines break up views across the island. Their importance should be considered in the
review of development proposals; a little creative site design can often provide easy alternatives to clearing
a visually significant ridge.
Scenic road corridors: These road corridors are noted for having outstanding buffers to screen the
adjacent development. As parcels are developed along these roads it is important to retain that buffer.
Ordinance 2004-09
2004 Camp Plan Update
Page 47
Aericultural Lands
The protection and support of existing fanus and the preservation of prime agricultural lands and
farms of local significance are important goals of the residents of Bainbridge Island, as evidenced
in the Bainbridge Island Subarea Plan, testimony from public meetings, and community survey.
Farming on the Island provides an economic and nutritional benefit to the community. Equally
important, protection of agricultural lands will enhance the cultural and economic diversity of the
community and help retain the rural character of the Island.
Farm operations on the Island are unique. Unlike many other jurisdictions, farms on the Island are
not located within one geographical area. Instead, over 40 small farms, ranging in size from I acre
to 40+ acres, are mostly dispersed throughout the Island, with some clustering of fanns in a few
locations. The spectalty, high-intensity, very small fanns will continue to be an important adjunct
to farming in the future.
f~eeording to a 1991 land iff/emory, there ar-e appr-oximately 77 paree1s on 686 aeres devoted to
aetive, eommereial farming (:\ single farm may eontain more than one paree1.). Farming aeti';ities
inelude stra-.vberry and raspberry farms, fruit orehar-ds, vineyaFds, '/egetable produee, speeialty
farms sueh as herbs and flowers, goat dairy, tree and holly farms, and livestoek, sueh as lamb,
eattle, and pigs and horse farms. An additional approximately 18 pareels on 165 aeres are used as
aeti';e, non eommereial, pasture land.
Agriculture is one of the most fragile industries in any rapidly growing area. As land values
continue to rise, the threat to small farms on Bainbridge Island increases. Given the nature of
farming on the Island -- small farms dispersed throughout the Island --the City must use creative
solutions to conserving existing fanns and encouraging the creation of new farms.
GOAL 1
AG 1: Conserve and protect the Island's existing agricultural uses bv usine preservation
methods includine aDd eDcouragc the de"lclopmcDt of Dew agricultural uses by USiDg
incentive-based programs.
AG 1.1
Owners of farms not loeated in the Critieal Areas Overlay Distriet, should have the option of
participating in the transfer of development rights (TDRs)/purchase of development rights (PDRs)
program. A set of criteria should be developed to determine farms appropriate for the TDRs
program.
Discussion: The Open Space Goals and Policies section of this Element establish a Critical Areas
Overlay District which establishes a TDR Sending Area. Many of the existing fanns are not
located in the Overlay District. The use of TDRs and PDRs provide farmers a means by which to
utilize the development potential of thdr property and continue to farm. This policy, therefore,
provides a means for a farm operator to opt into the TDR program. There would be a single TDR
program which would include as sending areas those properties located in the TDR Sending Area
Overlay District, as well as those farmers outside of the District who opt into the program.
Ordinance 2004-09
2004 Comp Plan Update
Page 48
AG 1.2
The City should examine whether identifying specific areas on the Island as appropriate for future
agricultural operations and as potential TDR-sending areas would provide viable opportunities for
new and expanded farming operations.
Discussion: Creating a specific area or areas for future agricultural operations aims to limit
conflicts with residential uses in rural areas and would provide an opportunity for farm operations
within the area to share resources: such as, farm equipment, processing facilities, retail sales area,
and road access. Properties located in the overlay district would have no special restrictions
imposed as a result of this designation. The only consequence of such an overlay would be the
incentive to a property owner to restrict future de'/elopment by the use of TDRs or PDRs if the
property is utilized for agricultural purposes. .
AG 1.3
Farming activity should be encouraged as an appropriate use in the open space of clustered
development.
Existing traditional agricultural lands should be included in the. open space of clustered
development.
GOAL 2
AG 2: Minimize conflict between agricultural and non-agricultural uses.
AG2.1
Development adjacent to areas designated as agricultural land should be designed and located so as
to avoid or minimize potential conflicts with agricultural activities.
AG 2.2
Require notification on all plats, development permits, and building permits of the existence of any
registered, agricultural lands within 300 feet of the development.
AG 2.3
The Right to Farm Ordinance shall be maintained.
AG 2.4
The City should cooperate with. the Washington State Extension Service and the Kitsap County
SeiI Conservation ServiceDistrict to facilitate the development of Best Management Practices.
GOAL 3
AG 3: Encourage and support farming as an economically viable option for land use and as
a means to providing diversity of lifestyle.
AG 3.1
Small-scale farming shall be encouraged to adopt Best Management Practices.
AG 3.2
The farming community should work with the County Tax Assessor's office and the City to
educate the community about the availability of the Tax Reduction Program.
Ordinance 2004-09
2004 Comp Plan Update
Page 49
AG 3.3
Elevate and encourage public appreciation and awareness of farms by allowing tours of farms and
farming facilities.
AC 3.3
The City should permit farmers with agricultural operations on 20 acres or more to provide
temporary housing subject to appropriate health and enyironmental r-eviev/. Farmworker housing
shall be located so as to minimize impact on slHTounding land uses. The 20 acre threshold may be
met by an individual farmer or an association of se'/eral agricultural operations.
AG 3.4
Accessory farm buildings should be allowed as an integral component of farming activity.
AG3.5
The City should permit the production, processing, and marldngmarketing of farm products from
Island farms. Processing shall include value-added processing of Island-grown crops.
AG3.6
The City should support the Farmers' Market.
AG 3.7
The parking requirements for agricultural uses should be minimum minimized (Le., number of
parking spaces, paved parking, and landscaping requirements), due to the seasonal nature of the
marketing of farm products.
f..C 3.8
Identify uses which supplement operations and which \vould be eompatible '.vith agrieultural
operations and '.vith uses adjacent to those operations, such as: limited tourism (e.g., small seale
hostels or eOlHltry inns).
Forest Lands
Few, large tracts of second-growth timber remain on the Island and these will likely be converted
to other uses in the near future. As of October. 2002.+ there were approximately ~ 600 acres
classified as timber lands by the Kitsap County Tax Assessor. Bight Twenty-four parcels are
classified as Open Space Forest Land (over -1-20 acres), including the 42-acre Port Madison
watershed, and ~ thirteen are classified as Open Space Timber (less than -1-20 acres).
GOAL 4
DesigDllte tile IsIllDd IlS IlD "..A..rell Liltely to CODven" (AL TC) to DaD forestry uses duriDg the
life of the PIIlD. ID heeomiDg aD AL TC, tile City eaD eODditioD forest prlletiee applieatioDs aD
IlIlIIlDds, usiDg the E8..A.. stllDdllrds.
Encoura2e the retention of forest land and multiple-a2ed forests producin2 commercial
timber. since forest land provides benefits such as wildlife habitat and storm water retention.
Ordinance 2004-09
2004 Comp Plan Update
Page 50
FP4.1
The City should enter into a Memorandum of Understanding (MOU) with the Washington State
Department of Natural Resources which shall establish the Island as an "Area Likely to Convert."
FP 4.~!
The City shall prepare a Conversion Option Harvest Plan (COHP) process, approved by the
Department of Natural Resources, which will establish criteria to review Forest Practices
applications for property owners who want to "convert" their property to non-forestry status and,
yet; are not prepared to develop the property.
FP 4.~~
To the extent forestry activity is retained on the Island, encourage the retention of sustainable
forestry the use of multiple-age mana~ement of commercial forest land on the Island.
Minin2
There are no active mining operations on the Island. Several locations have been reclaimed
including a pit on the comer of Fletcher Bay Road and Johnsonville Road and a pit south of
Lov~een Road adiacent to a parcel now owned by the Bainbridge Island Parks and Recreation
District.
There are only two sites on the Island which have permits from the Washington State Depar-.ment
of Natural Resources (ONR). One site is located at Lovgren Road and Baeklin Hill Road and is
o\vned by the South Bainbridge Water Company. The other site is also located on Lo'/gren Road
and is o'.vned by Kitsap County. Three sites are under reelamation order from the DNR: the
County site, the site at Fletcher Bay Road, and the site on Lo'/green Road, O\vned by Clementz
Construction Co.
MS.!
Rigidly control the excavation of sand and gravel and other minerals.
~
Identify and olassify mineral resouree lands from which extraetion of minerals can be antieipated.
Community Forestry
Goal 1
Bainbridge Island seeks to retain. conserve and steward community forests where people live.
work and learn. through public education and through management and protection measures that
are~sufficient to conserve these resources.
Discussion: A community forest is comprised of the street tree system. trees in parks and on other
public lands. as well as trees on private properties throughout the Island. Bainbridge Island's urban
and rural forests have historically been a source of community identity and civic pride. It is
recognized that. in addition to biological benefits. a community forest provides a significant return
by creating appealing streets and resulting higher property values in the built environment. In
addition. trees and forests provide buffering and screenin~ between differing land uses: reduce
surface water runoff: improve water quality: help maintain soil stability: provide wildlife habitat:
Ordinance 2004-09
2004 Camp Plan Update
Page 5 1
and reduce energy consumption by providing shade and functioning as windbreaks.
CF 1.1
The City shall encourage protection. restoration and maintenance of existing vegetation that has
environmental. wildlife habitat and aesthetic qualities. including tree groves. significant tree stands.
forested hillsides: and vegetation associated with wetlands. stream corridors and riparian areas.
CF 1.2
The City shall utilize various tools to understand and monitor existing conditions and changes over
time onsland-wide tree cover. significant tree groves and significant individual trees.
Discussion: Monitoring tools could include periodic tree inventories to assess the cover and health
of forests and trees.
CF 1.3
In providing information to property owners and as part of the review of development applications.
the City shall encourage property owners to maximize the preservation of trees and to maintain and
enhance the cohesive quality of tree groves through appropriate site design and construction
methods as well as open space dedication of areas that contain these resources.
Discussion: Incentives. such as a building height bonus. could be used to encourage tree
preservation during site design. Additionally. the Guidelines for Commercial and Mixed Use
Proiects including Guidelines for Lynwood Center. Island Center and Rolling Bay should be
updated to incorporate tree preservation practices and policies.
CF 1.4
A community-wide program to educate Island residents about the functions and values of trees
should be developed.
Discussion: The Community Forestry Commission should be supported and maintained to
provide leadership in community outreach. City government staff and diverse community groups
should be encouraged to participate in outreach and monitoring activities.
CF 1.5
Encourage the use of Best Management Practices to protect and enhance community forests.
CF 1.6
Activities that enhance the community's awareness of the value of trees and a community forest
should be encouraged.
Discussion: Focused activities might include celebration of Arbor Day: developin~ a volunteer
tree protection program that identifies and conserves trees that are significant due to size. species.
or historical or cultural importance: and vrovision of expert arborist resources where necessary. A
program. such as a "Heritage Tree Program" would be voluntary on the part of the property owner.
and include criteria that must be met to be considered as a resource impOrtant for recognition and
protection. A Heritage Tree Pro~am might. for example. require that special consideration be
given to preservation of Heritage Trees during site development.
Ordinance 2004-09
2004 Comp Plan Update
Page 52
EXISTING CONDITIONS - OVERVIEW
EBviF9BmeBtallv Sensitive Areas
Critical Areas
The environmental goals and policies are essentially derived from the existing 1989 Bainbridge
.Island Subarea Plan, the 1987 Winslow Comprehensh'e Pkm and the existing ElWironmentally
Sensitive Areas Ordinance adoptee by the City in 1992 as a requirement of the OMA. The
environmental goals and policies address aquatic resources (wetlands, streams, lakes, creeks, tidal
inlets, and mud flats); fish and wildlife habitat; frequently flooded areas; and geologically
hazardous areas.
Oreenways
The Greenways Goals and Policies establish a framework for the Green~ays Plan for the Island.
Agriculture
The Plan seeks to retain and enhance existing farming on the Island and provide additional
opportunities for farming and reaffirms the Right to Farm ordinance. Farmers who wish to sell the
unused development potential of farmland may opt to use TDRs.
The Natural Environment
The Island's natural systems will play an important role in how and where future development
occurs. There are limits to the amount of population growth and physical development that the
natural environment can absorb without threatening public health, welfare, and safety through
environmental degradation. The purpose of the natural systems inventory is to provide the
necessary background information. on existing conditions of the Island in order to develop
appropriate goals and policies that best protect the natural environment, while still allowing
compatible uses to occur. The following will include discussions on topography and geology,
climate, soils, geologically hazardous areas, surface water (including watersheds, lakes, streams
and wetlands), aquifers and aquifer recharge areas. The original reports and surveys from which
this overview was complied can be found in the Bibliography.
Geography of Bainbridge Island
Bainbridge Island is located within the central Puget Sound Basin, east of the Kitsap Peninsula and
west of the City of Seattle. It is approximately 3.5 miles wide and 10.5 miles long, encompassing
approximately 17,778 acres, or 28 square miles, and is one of the largest Islands in Puget Sound.
The Island is characterized by an irregular coastline of approximately 45 miles, with numerous
bays and inlets. At the north end of the Island is a large sand spit called Point Monroe and at the
south end is Restoration Point, consisting of raised bedrock.
The formation of Bainbridge Island was a result of the last ice age 13,000 to 15,000 years ago
when the 3,000-foot-thick Vashon Glacier carved out Puget Sound. The primary shaping influence
on topography and soils on the Island was the glaciation. Elevations on the Island range from sea-
level to 400+ feet. The topography of the Island is generally of low, rolling hills with several
ridges oriented mostly north to south at 250 to 300 feet elevation, which form the Island's 12
Ordinance 2004-09
2004 Comp Plan Update
Page 53
watersheds. The highest point is Toe Jam Hill on the southeast portion of the Island,
approximately 400 feet above sea level.
Soils on the Island are typical of Puget Sound in that dense, compacted, glacial till is present at a
rather shallow depth throughout much of the Island with underlying hardpan. This glacial till is
made up of clay, silt, sand, and gravel, and overlay bedrock in varying thickness across the Island.
There is sedimentary bedrock on the southern part of the Island where soils in some areas are
moderately well to poorly drained. A more extensive discussion of soils and their properties can
be found in the USDA Soil Survey of Kitsap County.
Climate
The climate on Bainbridge Island reflects the moderating influence of Puget Sound and the Pacific
Ocean, and is generally characterized by mild wet winters and warm, dry summers. The average
winter daytime temperature on the Island is 400 to 500F; the average summer daytime temperature
is 700 to 800P. Annual rainfall on the Island varies from 35 to 45 inches.
.
Geologically Hazardous Areas
Geologically hazardous areas are defined by the Growth Management Act as those "areas that,
because of their susceptibility to erosion, sliding, earthquake, or other geologic events, are not
suited to the siting of commercial, residential, or industrial development consistent with public
health and safety concerns." In some cases, the risk to development from geologic hazards can be
minimized or mitigated by engineering design or modified construction practices.
The primary One of the source~ available to identify landslide hazard areas, as well as other
hazardous areas, is the Quaternary Geology and Stratigraphy of Kitsap County, Washington
written by Jerald D. Deeter. The Deeter report identifies and classifies landslide areas and unstable
slopes throughout Kitsap County. The classification system used in the report is similar to the
system used in the Coastal Zone Atlas of Washington. The Deeter report describes critical hazard
areas in terms of geologic age and by steepness of slope (> 15% and >30%). These elassifications
are explained in detail in the legend that aeeompanies the Slope Stability map. Another source
being developed uses Lidar terrain mapping and a draft surface geology map developed by the
United State Geological Survey. This map is currently (2004) being finalized.
Erosion hazard: These are areas identified as having a severe rill and inter-rill erosion
hazard. The Soil Conservation Service defines rill as a steep-sided channel resulting from
accelerated erosion which is generally a few inches deep. Rill erosion tends to occur on
slopes, particularly those with poor vegetative cover. Erosion hazard areas were studied more
extensively to correlate the data from the Deeter report with the information from the Soil
Survey.
Seismic hazard: These are areas subject to severe risk of damage as a result of earthquake-
induced ground shaking, slope failure, settlement, soil liquefaction, or surface faulting.
Natural and artificial uncompacted materials such as clay and silt deposits, sediments in river
deltas, and material used as landfill, generally amplify ground shaking more than
consolidated sediments and bedrock. Current and historic slide areas could be activated by
seismic activity from a major earthquake. On Bainbridge Island, seismic hazard areas are
identified as unstable slopes, recentlhistorical landslide areas and prehistoric landslide areas
and are identified on the Slope Stability map as U, URS, and UOS and are also outlined in
Ordinance 2004-09
2004 Comp Plan Update
Page 54
the Deeter report.
Figure 1 Legend: Slope Stability
STABLE Slopes are generally less than fifteen percent except in areas of
low groundwater concentration or competent bedrock. It includes
rolling uplands and lowlands underlain by very stable material
and also material such as weathered till and deposits such as peat,
that although inherently weak, have no significant slope.
INTERMEDIATE> 15% Slopes are generally steeper than fifteen percent but do not exceed
thirty percent. This includes slopes, without known failures, of
sand and gravel, till, or thin soils over bedrock.
INTERMEDIATE> 30% Slopes are steeper than thirty percent. This includes slopes,
without known failures of sand and gravel, till, or thin soils over
bedrock. .
UNSTABLE Slopes considered unstable are those which because of geologic,
groundwater, slope and (or) erosional factors may show evidence
of past or present movement. These unstable areas are generally
associated with recent slides and it includes areas of landslides
and talus too small or obscure to be individually mapped. Most
unstable areas in Kitsap County are found in steep slopes adjacent
to marine waters, which are exposed to wave attack and generally
contain silt and (or) clay.
UNSTABLE-RECENT This unit includes recent slide areas which are extensive enough
SLIDES to be mapped individually.
UNSTABLE - OLD Includes extensive landslides which have occurred since the
SLIDES Vashon Stage of the Fraser Glaciation. These landslides are
generally overgrown with vegetation and difficult to distinguish
in the field. The use of airphotos and topographic maps aid in the
investigation of these old slides.
Ordinance 2004-09 Page 55
2004 Comp Plan Update
Watersheds
Protection of the integrity of Bainbridge Island's surface waters, which include lakes, ponds,
streams, and wetlands, is crucial in maintaining a high quality of life. Beneficial uses include
drinking water, salmonid and fish habitat, wildlife habitat, recreation, stock, and crop watering.
Surface waters also provide immeasurable aesthetic value to Island residents. This section will
begin with a discussion inventory of watersheds and follow with inventory data on streams, and
wetlands.
A drainage basin, or watershed, is an area of land defined by surrounding ridgetops and where all
precipitation that falls within it eventually drains to a common stream, river, bay, or other water
body. As water from rainfall flows over land in a watershed, it may collect pollutants and
sediments from the land which flow into a stream or other common body .of water. Thus, every
activity that occurs ~thin a watershed has the potential to impact the body of water into which the
watershed drains. In the case of Bainbridge Island, this is Puget Sound, streams, or lakes. (Refer to
Figure 2.)
In 1991, the firm of Kato & Warren undertook the Bainbridge Island Drainage Reconnaissance
Study which identified and evaluated the 12 major watersheds and 45 sub-basins that define the
Island's significant drainage features. These are listed below with the approximate acreage of each.
(Refer to Figure 2)
MaiotDrainag:e Basin Number ofSub--Basiris . -.Approximate Basin Acreal!e
Agate Passage 1 590
J3lakely Harbor 3 1350
.
Eagledale 4 1180
Fletcher Bay 5 2190
Gazzam Lake/Crystal Springs 3 850
Manzanita Bay 4 2090
Murden Cove 4 2100
North Eagle Harbor 7 2100
Pleasant Beach 3 1530
Port Madison 3 1610
South Beach 2 720
Sunrise 3 1310
TOTAL 45 17,620
Except for the North Eagle Harbor sub-basin-4 which encompasses historic Winslow, all other
watersheds and sub-basins on the Island are drained by natural streams and drainage ways. The
existing drainage system consists of wetlands, streams, springs, ditches, and culverts crossing the
Ordinance 2004-09
2004 Camp Plan Update
Page 56
roadways. A few piped drainage systems exist in a several platted areas or near some wetlands.
The natural drainage system does currently remove stormwater, but not without signs of distress
from erosion, siltation, and water quality degradation. A natural drainage system, in order to work
effectively, requires regular maintenance.
The concern for water quality has become one of paramount importance to the City. The declining
quality of water from stormwater runoff, poor agricultural and forestry practices, failing septic
systems, and domestic use of fertilizers and pesticides is threatening the viability of streams,
wetlands, and the surrounding waters of Puget Sound where shellfish beds can become
contaminated. Thus, the City has applied for and has received a grant from the Centennial Clean
Water Fund through the Department of Ecology to obtain additional data on the 12 watersheds and
to formulate a Watershed Action Plan that will establish a detailed action plan to improve water
quality in each of the watersheds. Funding for the Plan began in 1994 and will take two years to
complete.
Wetlands
Wetlands are defined as "those areas that are inundated or saturated by.surface or groundwater at a
frequency and duration sufficient to support, and under normal circumstances do support, a
prevalence of vegetation typically adapted for life in saturated soil conditions" (EP A, 40 CFR
230.3). Wetlands support predominantly hydrophytic vegetation, the underlying material is
predominantly undrained hydric (water-logged) soils, and is saturated or inundated by water for a
period of seven days or more during the growing season each year.
Wetlands playa vital role in providing habitat for fish and wildlife, stormwater retention/detention,
water quality improvement, groundwater recharge and discharge, recreation, opportunities for
scientific research and public education.
In 1991, Sheldon and Associates and Springwood Associates, under a grant from the Department
of Ecology, conducted Phase I of the Bainbridge Island Wetland Inventory. That inventory
identified some 65 wetlands, with roughly 40% of those field-verified. Phase II of the inventory
was conducted by Sheldon and Associates during the fall of 1992, under a grant from the U.S.
Environmental Protection Agency. A total of 212 wetlands were identified, with 157
field-verified. This does not mean all wetlands that exist were inventoried. Since the inventories
were conducted. the City has been updating the maps as information becomes available. The
current wetland maps (2004) show 354 wetlands with a total area of 1.242 acres.
Wetlands are identified by the drainage basin in which they are located, by the U.S.
Fish and Wildlife Service vegetation community classification, and by the category based on the
Bainbridge Island Environmentally Sensitive Critical Areas Ordinance (BIMC 16.20). The
definitions of those categories are included in the legend in the Wetlands Map. (Refer to Figure 3.)
f..s a follow up to the 'Netlands in'lentory, Sheldon & I\ssoeiates, under the same EPi\' grant,
identified the Island's priority \vetlands, Le., those that are determined to ha'/e regional significcmee
and merit permanent protection. Criteria for seleetion as a priority wetland were that a wetland had
to be rated Category I or be greater than 20 acres or associated with a stream. An attempt was
made to identify at least one priority wetland in each of the 12 ',vatersheds. T'Nenty two 'wetlands
were identified as priority and recommended strategies were provided for permanently protecting
them:
Ordinance 2004-09
2004 Camp Plan Update
Page 57
Figure 3 Legend:
Bainbridge Island Wetlands
Category I
Habitat for endangered or threatened fish or animal species or for
poten~ially eradicated plant species recognized by state or federal
agencIes;
High quality native or regionally rare wetland communities with
irreplaceable ecological functions, including sphagnum bogs and fens,
estuarine wetlands, or mature forested swamps; or
Wetlands of exceptional local significance. The criteria for
determining exceptional local significance shall include, but not be
limited to the following factors: Rarity, high aquifer recharge
function, significant habitat or unique educational site; or,
consideration of other specific functional values.
a. Wetlands that do not contain features outlined in category I; and
b. Habitats for sensitive plant, fish or animal species recognized by
federal or state agencies; or .
c. Rare wetland communities listed in subsection I.b which are not high
quality; or
d. Wetland types with significant functions which cannot be adequately
replicated through creation or restoration. These are demonstrated by
the following characteristics:
i. Significant peat systems;
11. Forested swamps that have three canopy layers, excluding
single-species stands of red alder averaging 8 inches in diameter at
breast height or less; or
iii. Significant spring fed systems;
e. Wetlands with significant habitat value based on diversity and size.
i. 5 acres or greater in size, and open water at any time during a
normal year; and 2 or more subclasses or vegetation in a dispersed
pattern;
f. Wetlands contiguous with salmonid fish-bearing waters, including
streams where flow is intermittent; or
g. Wetlands with significant use by fish and wildlife.
Wetlands that do not contain features outlined in category I, II, or IV.
a. Wetlands which do not meet the criteria of a category I or II wetland;
and
b. Isolated wetlands that are less than or equal to one acre in size, and
have only one wetland class, and have only one dominant plant
species (monotypic vegetation); or
c. Isolated wetlands that are less than or equal to two acres in size, and
have only one wetland class and a predominance of exotic species.
b.
a.
c.
Category II
Category III
Category IV
Ordinance 2004-09
2004 Camp Plan Update
Page 58
Streams
Bainbridge Island has as extensive network of small streams and creeks which all eventually empty
directly into Puget Sound or into the bays or inlets surrounding the Island. Streams are created
from either rainfall or groundwater. Those created mainly from rainfall are usually referred to as
intermittent, or as flowing with water only during the annual, rainy seasons. Groundwater streams
usually flow year round.
The Department of Natural Resources has inventoried most of the streams of the state and has
classified them according to WAC 222-16-030. Not all of the known streams on Bainbridge Island
are included in this inventory. .\ more complete inventory vAll be conducted during the data
gathering phase of the Watershed management plamting pmcess. Maior stream locations were
updated based on topography developed from the Lidar data. Not all the streams on the Island
have been classified due to lack of information about them.
Croundwater
On Bainbridge Island, virtually 100% of the potable, or drinking "vater, comes from groundwater
which lies in oodergrolHld reservoirs called aquifers. Most '.'later used on the Island is drawn fmm
wells that penetrate to depths of less than 300 feet. 1.\ few wells as deep as 1,200 f<Jet also produce
water. The Blakely Formation, a bedrook formation, dominates the geology on the southern end of
the Island and limits groundwater production in this area.
.^..quifer systems on the Island have been mapped where there ""ere sufficient geologic and
hydrologic data from wells to ",-,arrant the conclusion that the '.Yells penetrated the same
water bearing strata. Six such aquifers have been identified from which Bainbridge Island draws
its 'Nater. Extensive data concerning these aquifers is ayailable in the Kitsap Cmmty Groundwater
},/tmagcment Plan, Volumes I and II, dated t..priI1991. They are as follows:
},lcadowmeer: This aquif<Jr is a sand and gra'/el system found at approximately 100 feet
above sea leyel to about sea level and, accordingly, is \yell defined in all directions.
Wardwell: This aquifer system contains two aquifers: a "ery deep aquifer at approximately
650 to 975 feet below sea level, and a shallow aquifer located between 75 and 175 feet belm\'
sea level. The boundary of the deep aquifer is 'Nell defined on the southwest edge, but poorly
defined elsewhere. The boundary of the shallower system is poorly defined.
BS}Y1ead: This aquifer system, at the head of Eagle Harbor, is a sand and gravel system and
is encountered fr{)m approximately sea level to 150 f<Jet below sea level. The north and east
bOlHldaries are well defined but the Vlest and south booodaries are poorly defined.
Eagle HarBor: This system, formerly Creosote, is found along the southern shore of Eagle
Harbor is a silty, sand and gravel aquifer encountered in diseontinuous zones from
approximately 600 to 800 feet below sea level. The southern geologic boundary is a bedrock
ridge; the booodary to the west is less dearly defined.
Lynwood Center: This aquifer extends from Lynwood Center on the south end of the Island
north'Nard about one mile. This sand and gravel aquifer is encountered at about 25 to 125
feet below sea level and is poorly defined in all directions.
Gilhertson Fktcher: l\ portion of this aquifer system extends from the main Kitsap
Ordinance 2004-09 Page 59
2004 Comp Plan Update
Peninsula exists on Bainbridge Island. It is located on the Island at approximately 850 to 900
feet below sea level and the b01H1daries are not v,'ell defined.
The quantity of grotHld\yater a'/ailable for use is a funetion of the water balance: ,-vater going into
the system is eq\:lal to ',yater flO'.ving om of the system, plus or mioos the change in storage of the
"later vvithin the system. \Vater going into the system eonsists ofpreeipitation, evapotranspiration
and storm'Water runoff colleetively called recharge. Water flo'.ving out of the system, or
diseharge, coasists of human use and namal discharge. HO'l;ever, the variability of the aat\:lfal
earth system is too great to allow precise kno'.vledge ahom the iadiyidual eomponents of the
balance to the degree requir~d for accurate management of the resource.
The GrOlmdv.'ater ManagemeBt Plan did estimate the "hypothetieal grotHldvlater yield." This is a
simplistic analysis ia which the r~sult is the pr{)duct of the r~eharge rate times the recharge area (in
sCfl:J8fe miles). Because of the inhereBt variability of the data, the estimate of yield ranged from 2.1
to 8.0 million gallons per day. Withdrawal, based on water \:lse data from 1985, was estimated to
be 1.18 millioa gallons per day which is less than the lower estimate of hypothetical gro\:lDdvlater
yiekh
Aquifer Reehsr!e Aress
The idcatificatioR of aquifer reeharge areas is important both from the standpoint of gr{)undwater
quantity and grol:Hldvrater quality. Increased impervious swfaces from inereased development may
red\:lce the level of r~charge a':ailable to an aquifer. In additioa, there are areas that are partieularly
vulnerable to contamination d\:le to geologic, soil, and land use conditions '.Ymca eontribme to high
rates of s\:lfface water infiltfatiofi. .
The Recharge Areas Map (Fig\:lfe 5) was developed by Roger Ste':lart, a Bainbridge Island resident
and geophysicist, based on soil types identified in the Soil Conservation Soil S1:1fYey, geologie
conditions ideBtified in The Kitsap Ceunt)' Groundwater },Wnagement Plf.1n, and the yulnerability
data from the Gr{!)unmtlater }.hmagement Plan vt'hich took into account geology, slopes, land use,
and rainfall on Bainbridge Island. Because the various data sets fr{)m which the map was drawn
are not available at preeisely the same scales, boundaries shown on the map not be firm.
Ordinance 2004-09
2004 Camp Plan Update
Page 60
Figure 4 Legend: Bainbridge Island Stream Types
TYPE 1 All the ..vaters of Puget Sound ",Athin their ordinary high '."'ater mark,
including the salPNater around Bainbridge Island.
TYPE 2 Segments of natural waters which are not classified as type 1 water,
have a high use, and are important from a water quality standpoint
fer.
a. Domestie water supplies;
b. Public recreation;
e. Fish spav.1Hng, rearing or migration or v/ildlife uses;
or which are highly significant to protect \vater quality.
TYPE 3 Segments of natural waters whieh are not classified as Type 1 or 2
- and have a moderate to slight use and are moderately important from
a water quality standpoint for:
a. Domestie water supplies;
b. Public recreation;
e. Fish spawning, rearing or migration or wildlife uses;
or which have moderate value to pmteet \vater quality.
TYPE 4 Segments of natural '.vater no classified as Type 1, 2, or 3 having an
influence on water quality doy,nstream in Type 1, 2 and 3 waters.
These may be perennial or intermittent.
TYPE 5 All other ',vaters, ineluding streams with or without a well defined
channel, areas of peren.rial or intermittent seepage ponds, and natural
~
UNCLASSIFIED Inventoried, but not yet classified
Ordinance 2004-09 Page 61
2004 Camp Plan Update
Figure 5 Legend:
Aquifer Reeharge Areas
DARK BLUE LINE Soils identified in the Soil Conservation Service study of Kitsap
HYDRIC SOILS CoUflty as allowing high or medium. infiltration rates of surface
water. (These are the Type A and B soils ref~rred to In the
J."
grmmd....'ater related sections of the Bainbridge Island Subarea
Plan. ) Factors such as topography, ';egetation and physical
properties of soils have been considered in the SCS classification
scheme.
RED Data taken from the Kitsap County Groood Water Management
HICH Plafl (follm\'s J. Deeter's geologie map). These areas contain
VULNERABILITY surface exposures of sand aad gravel bearil1g strata that liOrmally
AREA lie both above and below the Vashon Till. In places, exposur-es
- show the till missing, and it may be absent else',mere. In such
areas infiltrating w-ater may ha'/e direct and rapid access to
aq1:lifers belo\\' the till. Such aq\iifers suPPly the b1:l1k of the vrater
used on the Island. The actual infiltration in these areas depends
upon topography and other site characteristics.
CREEN Those saad and gra';el exposures that were found in the County
Sf.ND; Sf..ND AND GroNnd Water Plan to ha'/e high vulnerability to pollution, after
CRAVEL genemlized assum.ptions and factor weightings were made
concerning geology, slopes, land 1:l5e, afld rainf-all on Bainbridge
Islafld. This pro'lides an example of ho...., a particular set of
,,:eights and assum.ptions can restrict estimates of vulnerability to
pollution, and sbo\vs the need for adequate characterization of
actual sites.
Fish and Wildlife
The diversity of life on Bainbridge Island can be attributed to the Island's topography and
vegetation. The interior part of the Island contains woodlands, meadows, wetlands and riparian
areas, while shoreline habitats include tidelands, shore lands, tidal inlets, and coastal forests typical
of the estuarine and marine environment of Puget Sound. Because the Island has so much
shoreline, saltwater habitats are a major component of the Island's ecosystem. Oysters, clams,
geoducks, and crabs are found on the tidelands. Many species of shorebirds and waterfowl live
along the shoreline or use the area for a stop-over point during migration.
On the uplands, stands of second-growth Douglas fir, Western red cedar, big leaf maple, and red
alder make up the woodland forests. The forest understory of salal, Oregon grape, huckleberry,
and salmonberry provides habitat for deer, coyotes, raccoons, squirrels, and dozens of bird species.
Pastures and open meadows support open land wildlife, such as pheasant, quail, and rabbits, while
riparian and wetland areas provide cover for fish, birds, mammals, and amphibians. Though there
are no State documented salmon streams on the Island, many citizens report having seen salmon
in some of the larger streams. During Ii review of a development proposal, a salmon bearing
stream was loeated entering Hidden Cove. Salmon usage has been verified in Springridge, Hidden
Cove. Manzanita and Murden Cove.
Ordinance 2004-09
2004 Camp Plan Update
Page 62
The Washington State Department of Wildlife has identified Priority Habitat Species (PHS) on
Bainbridge Island that are classified as threatened, endangered, sensitive, or in need of monitoring.
. They include:
· The bald eagle (State and Federal threatened classification) which is found along
the shores of saltwater and freshwater lakes and streams, and found nesting in
predominantly coniferous forests.
· The great blue heron (State priority habitat status for breeding areas monitored)
typically found at low elevations near all types of fresh and saltwater wetlands, streams,
and shorelines and found usually nesting in colonies in the tallest conifers or deciduous
trees available.
· The pileated woodpecker (State candidate) that inhabits mature and second growth
forests with significant numbers of snags and fallen trees, and usually nest in cavities in
snags or live trees.
Other PHS species sighted by citizens, but not officially documented by the Department of
Wildlife include osprey, river otter, deer, harlequin ducks, and salamand~r.
Fish and wildlife conservation management is defined as managing land to maintain species of
wildlife in suitable habitats within their natural, geographic distribution so that isolated
subpopulations are not created. Growth Management guidelines define the following areas as fish
and wildlife habitat conservation areas that should be considered for designation:
· Areas with which endangered, threatened, and sensitive species have a primary
association
· Habitats and species of local significance
· Commercial and recreational shellfish areas
· Kelp and eelgrass beds
· Herring and smelt-spawning areas
· Naturally occurring ponds under 20 acres and their submerged aquatic beds that
provide fish and wildlife habitat
· Waters of the state
· Lakes, ponds, streams, and rivers planted with game fish by a government or tribal
entity
· State Natural Area Preserves and,Natural Resource Conservation Areas
The Fish and Wildlif.e Inventory Map (Figure 6) ..vas compiled from at least a dozen resources
iFlell:lding the Washington State Departments of Fisheries, 'Nildlife and NaMal Resources, the
Suquamish Tribe inventories, the u.s. Fish and Wildlife Service, the Marine Science Center in
Poulsbo, Public Utility District 11 1, Puget Sound Environmental f..tlas, '1olume 10, the Coastal
Zone Marine i\tlas, thef..udubon Society, and resources from the Plar.ning reference library. In
addition, there was considerable community input '",bien involved reporting sightings .and field
checking.
Ordinance 2004-09
2004 Comp Plan Update
Page 63
Resource Lands
Aericulture
Agriculture is still an important part of life on Bainbridge Island. Throughout the Island there are a
number of small-scale farms ranging from strawberry and raspberry farms to a goat dairy, tree
farms, and organic vegetable farms. There are currentlv (2004) 38 parcels with a total acreage of
222 acres classified as agricultural land for tax purposes. There are many more properties that are
operated as farms that do not meet the reQuirements for tax purposes or are. non-commercial
pasture land. There are oyer 686 acres (comprising 18 farms) devoted to actiye, commercial,
agricultaral activity and over 222 acres (comprising 29 farms) devoted to active, non eommerdal,
pasture land. (Refer to Figure 7.)
Forest Land
Few, large tracts of second-growth timber remain on the Island and these will likely be converted
to other uses in the near future. There are approximately ~ 620 acres classified as timber lands
by the Kitsap County Tax Assessor. -Eight Thirty-eight parcels are classified as Open Space Forest
Land (over -1-20 acres), including the 42-acre Port Madison watershed, and ~ sixteen are classified
as Open Space Timber (less than +-~O acres). (Refer to Figure 8.)
Minine
There are no parcels where mining is the primary operation. One operation on Miller Road may be
doing some mining in coni unction with other construction material handling operations. The pit on
Bucklin Hill Road and the Clemetz pit on Lovgreen Road have been reclaimed. The Kitsap
Countv Pit on Lovgreen Road is currentlv being managed by the Bainbridge Island Park District
and is being studied for other uses.
There are only two sites on the Island '",moh have permits from the '}lashington State Department
of Natural Resources (DNR). One site is located at Loygren Road and Bucklin Hill Road and is
o'.\'ned by the South Baiabridge Water Company. The other site is also located on Loygren Road
and is owned by Kitsap COWlty. Three sites are under reclamation order from the DNR: the
County site, the site at Fletcher Bay Road, and the site on Lovgren Road, O\vned by Clementz
Construction Co. (Refer to Figure 9.)
Ordinance 2004-09
2004 Camp Plan Update
Page 64
Fig ure 1
Bainbridge Island
Slope Stability
N
+"'"
(.. .-
wi. .E
-- ..- . J'
" 1-<'
s
Legend
- Roads
_ Shoreline
~ Inlermellale
D stable
_ Unstable
n ~ ~ ~ ~] Unstable - Old Slide
~ Unstable - Recel1 Slide
_ Slopes" 40%
Source: Stability Oasses - Jerry Deeter, 1979
Slopes> 40% - Udar Digital Elevation Model
00.25.5 1 1.5 2
. . Miles
SJM, 8/27/04
Ordinance 2004-09
2004 Comp Plan Update
Page 65
o 0.30.6 1.2 1.8 2.4
_ _ Miles
SJM. 8/26/04
Figure 2
Bainbridge Island
Watersheds
Legend
- Roads
_ Watershed Boundaries
- Shorefine
Source: Lidar Digital
Elevation Model
Ordinance 2004-09
2004 Comp Plan Update
Page 66
Legend
Figure 3
Bainbridge Island
Wetlands
- Shoreline
Wetlands
CATEGORY
~I
~II
~III
~IV
1::::::1 Not Rated
- roads
o 0.25 0.5
1.5
2
Miles
- -
Ordinance 2004-09
2004 Comp Plan Update
,
\V~r
r-~
s
Source: 1993 Sheldon Inventory
as updated by 51aff
SJM, 8/26/2004
Page 67
Figure 4: Fish Occurrence
Source: Bainbridge Island Nearshore Assessment, Battelle Marine Sciences
Laboratory, Sequim, Washington, 2004
Source:
WA Stale Dept of
Fish & Wildlife. 2001.
Priority Habitats &
Species. WA State
Dept of Fish &
Wildlife: Olympia, WA
City of Bainbridge Island.
Legend
- Surf Smelt Spawn
~ Sand Lance Spawn
Emm Herring Spawn
...... Fish Streams
Sinclair
Inlet
Port
Madison
.
,
,
,
,
"
\
,
,
"
i..._...
f.............
N
i
,
,
,
,
,
,
:
, ,
, ,
Bainb~dge .:....
Isla~ ! ~
..... .
l'\ l
'~ '..:
,
1
.
"
........
-,
.....
"
.. .".-.
! '
Puget
Sound
:~
. .i
-. .:
.1It,
"
Fish Occurrence
Bainbridge Island Nearshore Assessment
Ordinance 2004-09
2004 Comp Plan Update
0. 0.5
,---,
2
MIles
Page 68
Figure 5: Shellfish Occurrence
Source: Bainbridge Island Nearshore Assessment, Battelle Marine Sciences
Laboratory, Sequim, Washington, 2004
N
i
Bainbridge
Island
d
Source:
WA State Dept of Fish
& WiIdIWe. 2001. Priority
Habitats & Species. WA
State Dept of Fish & WildlWe
Olympia. Washington.
WA State Dept of Natural
RelOurces. 2001.
Washington State
ShoreZone Inventory.
WA State Dept of Natural
Resources. Nearshons
Habitat Program: Olympia,
Washington.
Shellfish Occurrence
Bainbridge Island Nearshore Assessment
Legend
lIIIJ] Geoduck
1=-=1 Crab
~. Subtidal Clam
~ Hardshell Clam
- Oysters
o
.............
;;:::/
0.5 1
2
-
Ordinance 2004-09
2004 Comp Plan Update
Page 69
Figure 6: Eelgrass and Kelp
Source: Bainbridge Island Nearshore Assessment, Battelle Marine Sciences
Laboratory, Sequim, Washington, 2004
Port
Madison
Port
Orchard
Bay
Bainbridge
Island
Source:
WA State Dept of
Natural Resources.
2001. Washington
State ShoreZone
Inventory. WA Stale
Dept of Natural
Resources, Nearshore
Habnat Program: Olympia,
Washington.
Anchor Enviommenlal:
Seattle, Washington.
Legend
Eelgrass (Zostera ssp.)
- Continuous
......... Patchy
Kelp (Nereocyslis ssp.)
- Continuous
......... Patchy
00 Area (Approx.)
Eelgrass & Kelp Occurrence
Bainbridge Island Nearshore Assessment
o 0.5
~
N
1
Puget
Sound
2
Miles
Ordinance 2004-09 Page 70
2004 Comp Plan Update
Figure 7
Bainbridge Island
Agricultural Lands
(Tax Status)
N
:... ."
.f:...i ''<
W' ,,~ -l-E'
1'- "
, 'j
"~~"
S
Legend
c=J All Other Uses
Land Use
.. Agricultural Lands
- Shoreline
Source: Kitsap County Assessor's Office
00.26.5 1 1.5 2
_ _ Miles
SJM,8/27/04
Ordinance 2004-09
2004 Comp Plan Update
Page 71
Legend
Tax Parcels
D <all olhervaluilS>
Figure 8
Bainbridge Island
Designated Forest lands
and Open Space Timberlands
PROP_CLASS
_ Designated F ores'and
_ Opon Space Tlmborland
- shortNn.
o 0.25 0.5
1.5
2
Miles
--
Source: Kitsap County' Assessor's Office
Ordinance 2004-09
2004 Comp Plan Update
i\
~-"
\\' i-' ._ t "
".
s
SJM. 8/26/04
Page 72
.~.,
-4
-~
Figure 9
//'
Flood Insurance Rate Map
/-v Arterials
-...- Shoreline
_ lOO-yr flood ara.-ha2ards not dttennincd
_ lOO-yr tlood arca-hazanI& dctc:ranincd
Miniln,u flooding
Pederal Emergency Managc1llCDt Agcm.'Y
Feet
I
o
9000
I
18000
,=f
;;})
Ordinance 2004-09
2004 Comp Plan Update
Page 73
Section 25. The introduction to the Housing Element is amended as follows:
INTRODUCTION
Decent and safe housing is a basic, human need, which has become increasingly unavailable to
many Americans. The median priee of a single family home on Bainbridge Island has risen 51%
between 1988 and 1992. This reality applies increasingly to certain segments of Bainbridge
Island's population as well as to many of those who work on the island. Kitsap County TRENDS
Reports. which tracks the average home sale price in Kitsao County. documents that between 1990
and 2003 the average Bainbridge Island home price escalated dramatically from $232.687 to
$478.000.
The Growth Manag~ment Act (GMA) recognizes the importance of planning for adequate housing
by requiring it as an element in Comprehensive Plans. Adequate housing is addressed specifically
in one of the 13 major goals:
"Housing. Encourage the availability of affordable housing to all economic segments of the
population of this state, promote a variety of densities and housing types, and encourage
preservation of existing housing stock."
The requirements for a housing element which are mandated by the Act are:
"A housing element recognizing the vitality and character of established neighborhoods that: a)
includes an inventory and analysis of existing and projected housing needs; b) includes a statement
of goals, policies, and objectives for the preservation, improvement, and development of housing;
c) identifies sufficient land for housing, and group homes and foster care facilities; and d) makes
adequate provisions for existing and projected needs of all economic segments of the community."
The last item (d) in those requirements is echoed in the Vision for Bainbridge Island;
"...F oremost, Bainbridge Island should preserve the diversity of one of its most precious resources
- its people. The Island should remain a place where the business people, artists, farmers,
newcomers and long-time residents can all find a place to live."
and, General Goals (excerpt):
· Foster the diversity of the residents of the Island, its most precious resource
· Provide a variety of housing choices for all residents
· Provide affordable housing
The main objective in preparing a housing element is to identify and prioritize the community's
housing problems and trends, and to develop short and long-term solutions. On Bainbridge Island,
residential development is the predominant use of land. In 1992. 38% of all the land on the Island
was listed as developed for residential use. In 2003. 41 % of the land on the Island was listed as
developed for residential use. In addition, housing costs are typically the largest expenditure for
most households, while a community's housing stock is its largest long-term capital asset.
The costs of land and housing have risen dramatically over the last two decade~. The composition
of the community in terms of age and income has changed as well. The lack of affordable housing
has resulted in the need for many people who grew up on the Island to look elsewhere.
Furthermore, many people who work on the Island cannot afford to live here, and the number of
Ordinance 2004-09 Page 74
2004 Comp Plan Update
homeless individuals and families is growing.
The Housing Element provides the citizens of Bainbridge Island with an opportunity to establish
goals, policies, and strategies that present solutions to existing problems and provide direction to
future housing development without negatively impacting the existing character of the community.
A major step in the formulation of strategies is to assess our current situation. This is done through
a Housing Needs Assessment that includes documentation and analysis of community
demographics and trends, existing housing stock and condition, and an estimate of future housing
needs, including specials needs populations such as homeless, disabled and domestic violence
victims. This is followed with a summary of the findings of the data, which give direction to the
formation of goals and policies. From these, strategies will are be then developed to direct the
provision of adequate housing for all citizens of Bainbridge Island.
In 2002. the City of Bainbridge Island authorized the development of a comprehensive and up-to-
date housing needs assessment for Bainbridge Island. including an in-depth analysis of affordable
housing needs across all households. This document. The City of Bainbridge Island Housing
Needs Assessment. September 2003. is included as Appendix A. The 2003 Needs Assessment
updated and expanded upon the Housing Needs Assessment completed in 1995. which is included
as Appendix B.
Fair Share HousiDg
Fair Share: Kitsap Regional Plan..1ing Couneil has not addressed this issue as of September 1, 1994.
Section 26. The goals and policies of the Housing Element are amended as follows:
GOALS AND POLICIES
Discussion: In accordance with the definition provided in the Growth Management Act
(WAC365-195-070(6V. the term "affordable housing" as used in the Housing Element refers to
"the adequacy of the housing stocks to fulfill the housing needs of all economic segments of the
population. The underlying assumption is that the market place will guarantee adequate housin~
for those in the upper economic brackets. but that some combination of appropriately zoned land.
regulatory incentives. financial subsidies. and innovate planning techniques will be necessary to
make adequate provisions for the needs of middle and lower income persons."
GOAL 1
Promote and maintain a variety of housing choices to meet the needs of present and future
Bainbridge Island residents aBd Deweemers at aU economic se2DIents, and in all eeoeraphic
areas in a way that is compatible with the character of the Island, and preserves encouraees
.!!!!!!!Lsocio-economic diversity. The City shall partner with Drofit aDd community non-profit
oreanizations and local and reeional private and public entities in carnine out the followine
policies:
Ordinance 2004-09
2004 Comp Plan Update
Page 75
H 1.1
The City recognizes its role in the regional housing market and shall provide for its fair share of
cooperate with the Kitsap Regional Coordinating Council to develop an equitable distribution
strategy for affordable housing.
H 1.2
The City recognizes the need to shall take a proactive role in maintaining and encouraging
economic diversity on the Island by providing affordable housing opportunities to all economic
segments of on Bainbridge Island. Accordingly, the City should hire or designate a Housing
Specialist the appropriate staff effort or organizational entity to assist and advise the community,
landowners, and for profit and non profit organizations private and public entities about options
for affordable housing, financing strategies, and funding sources; develop and assist with the City's
application and approval process for special housing projects; and initiate and support affordable
housing opportunities. .
H 1.3
The City shall bring together partner with representatives of non-profit organizations, the
development community, local lending institutions, elected officials, and the community at large to
form a public private partnership that 'Nill assist in providing affordable housing opportunities to
Island residents assist in meeting affordable housing goals and implementing policies.
Diseussioo: The effeetiveness of public private partnerships has been demonstrated else'.vhere in
providing a broad base of support and expertise in pwviding aff-ordable housing.
H-h4
The City recognizes the need to provide financiflg assistance for affordable housing. Accordingly,
the City ...vill actively pursue funds that may include, but are not limited to, councilmanic bonds,
general obligation bonds, real estate excise tax, grams, aad other available resourees. These fimds
may be used to establish a Housing Trust Fund, '.vmch will be used f-or pur.ehasing land, for
assisting "'lith financing, and for providing infrastructure to support affordable housing OR
Bainbridge Island.
His H 1.4
The City supports the efforts of community non-profit housing organizations and the Kitsap
CQ\lI1ty Consolidated Housing i\UthOrity local and regional public and private entities in
developing and managing affordable housing on Bainbridge Island.
II-l-.6
The City shall monitor the development of housing of all types on the Island and issue a report on
April 15th of each year.
Diseussioo: This is concurrent with the yearly population estimates required by Office of
Financial .Management in the first week of April. The City aad community needs to have a regular
progress report on the proyision of housing in general and the types of housing encouraged in this
element specifically (multi family, affordable, subsidized) in order to adjust policies if the goals
are not being met.
H 1.5 The City shall encourage innovative residential development types and zoning regulations
that increase the variety of housing choices suitable to a range of household sizes and incomes in a
Ordinance 2004-09
2004 Comp Plan Update
Page 76
way that is compatible with the character of existing neighborhoods. Examples of innovative
approaches are cottage housing development. cluster housing development and accessory dwelling
units..
H 1.6.
The City should develop provisions to encourage development and preservation of small to mid-
size single-family housing units. These provisions may include a framework to permit small-unit
housing development known as cottage housing. with increased density in the residential zones
included in the Winslow Master Plan study area (R-4.3. R-3.5. R-2.9) and the Neighborhood
Service Centers. Standards shall be developed for cottage housing development that include. but
may not be limited to. maximum allowable size and density and covenants to limit size in
perpetuity.
GOAL 2
Maintain the stock of existing affordable and rent-assisted housing. In partnership with
eommunity non-profit oreanizations and local and reeional public and private entities the
City shall pursue the followine policies:
IHd
The Islander Mobile Home Park provides affordable housing and its continued preservation should
~be encouraged. Aeeordinglv. T!he City shall develop a strategy for maintaining the ~
ineluding exereisiag its priority rights through the Housing Preservation Section of the Federal
Housing I..ot or other applicable federal or state programs.
H 2.~ !
The City shall develop a continuing strategy fef maiatainiag to maintain the Farm Home Rural
Development Agencv and HUD subsidies on existing rent-assisted housing. which should include
affirmation of the City's interest in eKereisiag its priority rights for purchase thiough the HOl:lsing
Pr-eservatiofl Section of the 1990 Federal Housing :\ct. The primary strategy shall be to support
the Kitsap County Consolidated Housing Authority and non-profit agencies to purchase the units
through the provisions of the 1990 Housing Act.
H2.2
In the event of the potential loss of privately owned subsidized housing. the City will work with the
appropriate public agencies to pursue the preservation of the subsidized units. or relocation
assistance for the residents.
H2.3
Water-based housing (live-aboards) is a viable component of the present and future housing stock
of Bainbridge Island, and shall be subject to applicable environmental protection. seaworthiness.
sanitation and safety standards and authorized moorage.
H2.4
The City shol:lld help provide rehabilitatioa (repair and maintenance) services to shall initiate
and support programs that assist low-income homeowners and seniors to repair, rehabilitate,
maintain and improve accessibility to and within their homes.
Ordinance 2004-09
2004 Camp Plan Update
Page 77
GOAL 3
Increase the supply of marJ{et rate and rent assisted affordable multi-family housing by at
least SO 39 units per year until 2992 and 15 uBits per year, thereafter, until 2012 and 111
marh:et rate, multi family Featal uBits eaeh year until 2012 each year. throue:h the year 2012.
with e:oals based on data provided by the Housine: Needs Assessment and the City's housine:
reports.
Diseussioo: The Housing Needs Assessment f{mnd that: as a percent of all housing, multi family
housing has decreased between 1980 and 1990 (16..1% and 13.7%). The number of renter
households has increased fr-om 22.7% to 24%.. There is a 0% vacancy rate for multi family units
on the Island. If the pr-oportion of renter households eontinues to inerease at.the same rate as in the
1980's, by 2012 approximately 26% of all households (2400) will be renters. f..ssuming 60% of
these households Jiye in multi family units (the 1990 pr-oportion), then there ',yiII be a need for
1440 multi family units by the year 2012, Sinee ther-e is already a shortage of available rental units,
the Housing Element Committee felt that the goal should emphasize more tmits sooner rather than
later to evenly distribute the number of needed units over the 18 year period. Accordingly, the
goal reflects a need f-or 400 additional units behyeen 1992 and 2002, and 150 units between 2003
and 2012 f-or a total 0[550 additional multi family units, both marl(et rate and rent assisted.
H 3.1 The City shall Bencourage new multi-family, rental housing development in a variety of
sizes in areas designated for such use in the Land Use Element. Such a development may be
eligible f-or affordable housing density bonuses based upon the ineome group to be targeted. All
developments are subject to Health District requirements for water and sewage disposal.
H3.2
Accessory dwelling units shall be permitted uses in all residential zones, except at Point Monroe,
the Sandspit (R-6). All other applicable development standards including lot coverage, setbacks,
parking requirements, and Health District requirements for water and sewage-must be met.
Diseussioo: Health District requirements for inspection, upgrade and repair of septie systems for
any type of development OB the shoreline appears to be enough to safeguard this environment.
H3.3
The City shall Bencourage the development agencies whose mission is to develop affordable
housing ef to create new rent assisted subsidized multi-family rental housing by aggressively
pursu~ng Kitsap County Community Development Block Grant Funds, state funds, donations from
private individuals and organizations, public revenue sources and other available funding. .
GOAL 4
Promote and facilitate the provision of the diversity of affordable housing stock that is
dispersed throughout in all geographic ~8od eeoBomie segmeBts of the community.
Ordinance 2004-09
2004 Camp Plan Update
Page 78
Diseussieo: The City should discourage the development of economic enclaves by encouraging
development with a mixrure of housing types. f~ffordable housing should be available throughout
the island.
H 4.1
To encourage the provision of housing that will remain affordable over time. the City shall pursue
effective strategies In order to reduce the land cost component of for-purchase housing, which may
include alternative land use zoning. density bonuses and other incentives. new de':elopments may
be eligible for lip to 50% affordable housing density bonuses in all residential districts (except in
the Critical Area Oyerlay Zones), basea lipon the HUD defined income group to be targeted, as
follows:
.!l:fL.!Q 50% bonus for 1:mits for the extremely low, very 10''''', and low income gr{)ups
ammlable to households ''lith incomes at or belo'?: 80% of median income for Bremerton P~fSA
10% bOmls for 1:lnits for the moderate income gro1:lp
20% bOffi:ls for units for the middle iacome group
10% bonus for 1:Ulits affordable to households with incomes at or below 120% of median
income for the Seattle Bellevue E~;erett PMS.\. .
The follo\'viag additional provisions shall also apply:
1) .^JI affordable units m1:lst be included within the ae';elopment.
2) Developments of 8 or more units (based on underlying density) must provide at
least 10% afforaable ooits.
3) Develof>ments of 50 or more writs (based OR underlying deasity) must proyide at
least 10% affor-dable ooits, which must include a balance among units for the 10'.", moderate, and
middle income groups.
1) 1'Jo density bonuses will be provided for de';elopments in the CritiElal Area Overlay Zone
(TDR sending areas).
5) .\11 applicable development standards inell:lding Health District requirements for adequate
sewer and water facilities must be met.
~
The City should create a frame'.vork that shall permit small unit affordable housing developmeRt,
...vith increased density in selected zones that shall be initially ayailable for p1.H'ehase only by HUD
income qualified hOl:lseholds and 'NOuld re':ert to market Fate thereafter. Standar<ls should include,
but may aot be limited to, maxim1:1ffi allo\vable density aad eoyemmts to limit size of units in
perpetuity.
DiseussieBI This would be modeled somewhat on projects currently in progress in the San Juan
Islands (Morgantown, etc.) and on the Seattle's "cottage housing" proposal and would be excl1:lded
from Policy H 1.7 requiring them to be affordable for 30 years.
H4.2
The City shall encourage housing created by utilizing a mechanism such as a community land
trust.
~
Any noneonforming UflimprO'f'ed lot in eommon o\mership ,'Vith a contiguous lot may be
developed with HUn defined affordable housing provided that:
f~ny lots in eoatiguous ownership BOt <le'/eloped with Hun defined affoF<iable housing
must be eombiaed to eomply 'with BThiC 18.87.950(B)
Ordinance 2004-09
2004 Comp Plan Update
Page 79
-Lot coverage on lots 10,000 square feet or less may not exceed 15%;
- Building height on lots 10,000 square feet or less may not exceed 20 feet; and
-fJl Health District standards for ',vater aad sewage disposal must be met.
Diseussion: This is an exemption from ordinance 91 10 giying ovmers of nonconforming
contiguous lots the option to develop them separately rather then combining them but only with
affordable housing.
H 4.4-4.3
Manufactured homes and manufactured home developments shall be permitted in all residential
districts. A manufactured home development will be subject to all applicable development
regulations of the underlying zone in which it is located including affordable-housing density
bonuses.
H~
f1ff-ordable housing development where allooits are affordable shoeld be exempt from impact fees
and other selected administFati':e deyelopment fees. Exemptions should be based upon standards
that are developed that reflect the income group to be targeted.
II-4.(t
The City shall develop a program f{)r HUn income qualified, first time home beyers to proYide
assistaace in pur-ehasing a home that may inelude, but is not limited to, doVtn payment or second
mortgage assistance, below market rate loans, guaranteed loans, and tax or utility relief.
JI..4.rl
All affordable rental housing ooits created as a result of the policies of this Housing Element shall
remain affordable for a period of 30 years from the time of first occupancy and shall be secured by
recorded agreement and covenant mn.-ling vlith the land, binding all the assigns, heirs and
successors of the applicant.
H4.7.1
:\11 affordable homeo'.vnership units created as a result oftrus Housing Element shall be
initially sold to income qualified households and thereafter subject to a mechanism that is specified
in an appropriate administFative procedure allo'.\ing the City to capture the diff~rence between the
initial appraised value aad the initial sales price plus a prorated share of the appreciation when the
unit is sold at market rate. The City's share of the proceeds shall be placed in its Housing Trust
Nmd:
eOfAL 5
R~'ie"lY and streamline all land use and de"/elopment proeedures.
II-M
The City shall review or modify existing policies, practices, and regulations to expedite project
approval 'Nhile maintaining environmental protections.
H-M
The City shall explore the f-easibility of new regulatory standards and de'/elop administrative
procedur-es to expedite and support the processing of aff{)rdable housing deyelopment applications.
Ordinance 2004-09 Page 80
2004 Comp Plan Update
GOAL 5
Promote and facilitate the provision of rental and for-purchase housinl! that is affordable to
income-qualified households with a variety of income levels.
HS.l
Housing developments where all units are income-qualified to specified income groups should be
exempt from City impact fees and other selected administrative development fees. Exemptions
should be based upon standards that are developed that reflect the income group to targeted.
HS.2
The City shall develop a program for income-qualified. first-time home buyers to provide
assistance in purchasing a home that may include. but is not limited to. down payment or second
mortgage assistance. below market-rate loans. guaranteed loans. and tax or utility relief.
HS.3
All income-qualified rental housing units created asa result of the policies of this Housing Element
shall remain affordable to income-qualified households for a period of not less than 30 years from
the time of first occupancy and shall be secured by recorded agreement and covenant running with
the title of the land. binding: all the assigns. heirs and successors of the applicant.
HS.4
All income-qualified homeownership units created as a result of this Housing Element shall be
sold at a price affordable to income qualified households. These units may be subiect to a
mechanism that is.specified in an appropriate administrative procedure allowing the City to capture
a share of the appreciation if the unit is sold at market rate. The City's share of the proceeds shall
be used toward an affordable housing program.
GOAL 6
Facilitate the siting and development of housing opportunities for special needs populations.
H 6.1
The City should shall facilitate the development of a facility for use as a support the services of
community non-profit organizations and local and regional public or private entities in providing
shelter for temporarily homeless singles and families with children, adolescents and victims of
domestic violence on Bainbridge Island. .^..ppr<>priate service ageacies should be employed to
manage this facility.
H6.2
The City should facilitate shall support the development of programs that ensure that the housing
needs of the developmentally, physically and emotionally disabled are met within the community.
.^..ppropriate service agencies shall be responsible for managing the programs.
H6.3
The City shall support programs that provide assistance to low-income. disabled persons to retrofit
their homes to be more accessible.
Ordinance 2004-09
2004 Comp Plan Update
Page 81
GOAL 7
Utilize the City's bonding capacity and other resources to support the creation of
affordable housing.
H 7.1
The City recognizes the need to provide financinS2: assistance for affordable housing. AccordinS2:ly.
the City will actively pursue public and private funds that may include. but are not limited to, real
estate excise tax, grants, and other available resources.
H7.2
The City in partnership with local agencies producing affordable housing may issue a General
Obligation Bond to increase the production of housing affordable to households at or below
80% of median income for Kitsap County.
H 7.3
The City Council may issue Councilmanic (Limited Tax General Obligation Bonds; also called
councilmanic bonds or nonvoted debt) to support the development of housing affordable to
households at or below 80% of median income for Kitsap County.
H7.4
The City shall establish and maintain a Housing Trust Fund which will be used to support the
development and preservation of affordable housing on Bainbridge Island.
H7.5
The City may purchase and make City-owned land available through 10nS2:-term leases or other
mechanisms for the purpose of creating income-qualified housing, and shall support other public
entities that wish to use publicly-owned land for this purpose.
Goal 8
Provide a periodic report on the status of housing on Bainbridge Island and the
implementation of the Housing Element in order to assess the effectiveness of the housing
goals.
H8.1
The City shall monitor by survey and/or other means, and prepare a report on, the following
aspects of housing:
a) . Housing in general and the types of housing encouraged in this Element, including
affordable multi-family and single family, owned and rented; accessory dwelling units;
subsidized housing; adaptable units; clustered housing and cottage housing.
b) The condition of the local housing market and the number of new housing units, publicly
and privately funded.
Ordinance 2004-09
2004 Comp Plan Update
Page 82
c) The use of density bonuses and the number of for-purchase housing units provided in new
developments.
d) A description of the various initiatives supporting affordable housing, including activities
of community non-profit organizations and local and regional public or private entities.
e) Programs of housing repair and renovation that improve accessibility.
H8.2
The housing report shall be issued at least every five years. in coordination with state-mandated
updates of the Comprehensive Plan. and shall be made available to the public in various ways.
such as notice in the local newspaper. on the City's web page. and on local media outlets.
Section 27. The City of Bainbridge Island Housing Needs Assessment, September 2003, is
adopted as Appendix A of the Housing Element. .
Section 28. The City of Bainbridge Island Housing Needs Assessment, 1995, is relocated
as Appendix B of the Housing Element.
Section 29. The Available Housing Resources, 1994 is relocated as Appendix C of the
Housing Element.
;-:"
Ordinance 2004-09
2004 Comp Plan Update
Page 83
Section 30. The goals and policies of the Water Resources Element of the Comprehensive
Plan are repealed.
Section 31. New goals and policies of the Water Resources Element of the Comprehensive
Plan are adopted as follows:
WATER RESOURCES ELEMENT
INTRODUCTION
Bainbridge Island, as a quasi-enclosed environment, must protect its water resources to ensure that
future generations will have a sufficient quantity of high quality water to support life and natural
habitat on the Island. Thus, it is important to view water resources from a holistic perspective
because of the interdependence of different water types. However, it is challenging to address, for.
example, groundwater, surface water, and aquifer recharge issues in isolation due to the
interrelationship. To address these interrelationships in respect to management of our Island water
resources, a separate Water Resources Element has been developed as follows:
- General water resource management policies
- Groundwater protection policies
- Drinking water policies
- Sanitary sewage disposal policies
- Storm and surface water management policies
-Monitoring and public education policies
Water on Bainbridge Island
Precipitation is the sole source of water for the groundwater and surface water (streams, springs
and wetlands) on Bainbridge Island. All public and private water systems are dependent on
groundwater (wells) as a source of domestic potable water. Aquatic life is dependent on the surface
waters of the Island. F or this reason it is important to protect these water resources. Adequate
protection of this important resource requires an understanding of what can affect the quality and
quantity. Also of great importance is the management of the resource by guarding against potential
impacts and monitoring the resource to ensure that water quality and quantity is in fact maintained
at high standards.
As the local government, the City of Bainbridge Island should be the overseeing agency for the
Island's water resources, working in concert with the federal, state and county agencies that are
charged by law to administer specific aspects of water resource management.
Hydrologic Cycle
From the time Bainbridge Island was formed, water has been endlessly circulating. This circulation
is known as the hydrologic cycle. Surface water is evaporated from the earth by the sun. The water
vapor forms clouds in the sky. Depending on the temperature and weather conditions, the water
vapor condenses and falls to the earth as precipitation. When precipitation falls on the Island, some
of it flows along the surface and into streams or wetlands, some of it is used by plants, some
evaporates and returns to the atmosphere, some sinks into the ground and some flows to the Puget
Ordinance 2004-09
2004 Comp Plan Update
Page 84
Sound. It is important to understand the hydrologic cycle as it relates to our Island. Studies, such
as the City of Bainbridge Island LevellJ Assessment: An Element of the Water Resources Study
(2000, by Kato & Warren, Inc. and Robinson & Noble, Inc.) have been conducted and will
continue to be required to build an understanding ofthe geology and hydrology of our Island.
In understanding the various aspects of the hydrologic cycle on Bainbridge Island, we must look at
the different stages within the cycle. These include the Island watersheds (surface water) and
aquifers (groundwater).
Watersheds
Precipitation once it hits the ground becomes surface water. Surface water flows from high
geographic points to lower elevations collecting in streams and wetland systems within the
watersheds of the Island. Watershed boundaries are determined by the topography of the island
with ridgelines defining the boundaries of separate watersheds. Studies have determined that
Bainbridge Island has 12 separate watersheds. I
Aquifers
The water that flows into the ground moves slowly through layers of soil, sand and rocks, and is
stored in underground spaces called aquifers. The speed at which groundwater flows or infiltrates
depends on the size of the spaces in the soil or rock and how well the spaces are connected.
Aquifers typically consist of gravel, sand, sandstone, or fractured rock, like limestone. These
materials are permeable because they have large connected spaces that allow water to flow through
them. Studies have identified five principal aquifer systems on Bainbridge Island.2
The aquifers of the Island provide the drinking water for the city. Drinking water is extracted from
the ground through piped wells drilled down into the Island's aquifers. Generally the public water
1 Bainbridge Island Watersheds. 1995. Puget Sound Cooperative River Basin Team.
City of Bainbridge Island Level II Assessment: An element of the Water Resources Study. 2000. Kato & Warren.
Inc. Robinson & Noble. Inc.
2 City of Bainbridge Island Level II Assessment: An Element of the Water Resources Study. 2000. Kato & Warren.
Inc. Robinson & Noble. Inc.
Ordinance 2004-09 Page 85
2004 Comp Plan Update
purveyors and large private water purveyors utilize wells from deeper aquifers. However, many
private wells are quite shallow, being drilled to the aquifer closest to the surface. These shallow
wells can be adversely affected by the fluctuations in groundwater levels, going dry when the
aquifer water level falls below the bottom of a shallow well.
Land Use Connection
In the development of policies related to the management of our Island. water resources, it is
important to understand the links between water resources and land use and links between water
quality~ quantity and growth. Most water quality problems are caused by the way land is used.
Developed land allows for rapid runoff and inundation of natural conveyance systems such as
wetlands and streams. Rapid runoff, however, can cause damage through flooding, erosion, and
water-borne contamination. In addition, households create sewage, which, on the majority of
Bainbridge Island, means disposal by on-site, sanitary, sewer septic systems. These systems can
fail and cause contaminants to enter the surface water and/or groundwater. Furthermore, improper
livestock management can add significant fecal contamination to surface water and/or
groundwater. .
Without proper coordination of the regulations that will implement these policy statements,
conflicting signals may be given when dealing with water resource issues. For example, a surface
water problem may be resolved by efficiently collecting and removing all water from the area,
whereas a groundwater recharge issue may require that the water be kept on-site to allow for
infiltration. Another conflict arises when infiltration of storm water competes for space with septic
drain field infiltration systems. There are physical limitations to the rates of infiltration and
absorption based on soil types, which may make it impossible to have both of those facilities on the
same site. Where development occurs in important aquifer recharge areas. s~ecial consideration is
needed to preserve the volume of recharge available to the aquifer and to protect the ground water
from contamination.
A key component of the water resources protection strategy contained in this Element is the
establishment of an adequate monitoring system. The overriding theme, however, that runs
through all of the policies and goals established in the water resource section is the preservation of
water quality and water quantity.
GOAL 1
Protection of water resources is of primary importance to the Island. Therefore, the goal is to
manage the water resources of Bainbridge Island for present and projected land uses,
recoe:nizine: Island water resources are the sole water supplv and Sit that, with future
development on the IslaBd:
. Degradation of groundwater quality and quantity is not allowed.
. Water supplies and systems are efficiently utilized.
. The long-term sustainability of the Island's water resources is maintained.
. The water needs of new development approved under the Comprehensive Plan are
adequately met.
. Adequate data of the water resource is available.
Ordinance 2004-09
2004 Comp Plan Update
Page 86
General Water Resource Policies
WR 1.1
The City shall coordinate with other major private water purveyors, government agencies and
citizens to ensure protection and preservation of water resources and to provide efficient high
quality Island-wide water service.
WRl.2
To foster sustainable water resources, planning, protection, management, monitoring and on-going
education outreach that is based on watersheds and natural systems should be provided by the city
in coordination with appropriate agencies.
WR 1.3
Island ,vater resourees should eontinue to be the sole ""later supply souree in the future.
Groundwater Protection Policies
WR 2.1
To protect groundwater resources, areas identified as high aquifer recharge areas should be
maintained in low impact uses.
Discussion: Low impact uses and low impact development are appropriate for areas with high
aquifer recharge. Low impact uses includes development for buildings, roads or parking that
has a reduced area of impact on the land. Low impact uses do not depend on regular
applications of fertilizers or pesticides. Low impact development is an environmentally-
friendly approach to site development and storm water management, emphasizing the
integration of site design and planning techniques that conserve and protect the natural systems
and hydrologic functions of a site.
WR 2.2
To protect Island groundwater resources, the City shall encourage the development and expansion
of public and private water systems. rather than encouraging proliferation of shallow or individual
residential wells shall be diseouraged.
WR 2.3
The City shall assess the impacts of proposed activities and development on the flow of springs
and streams and levels of wetlands that are either sustained by groundwater discharge or contribute
recharge to groundwater by requiring a hydrologic assessment report, and restricting the activities
or development based on the report, and/or mitigating impacts.
WR 2.4
The City in cooperation with the appropriate regulatory agencies (e.g., Washington State
Department of Health and the Kitsap County Health District) should institute new wellhead
protection procedures.
WR 2.5
For the purpose of protecting surface and groundwater quality, the City, Parks Department and
School District shall develop plans to eliminate the use of biocides on their properties through the
use of integrated pest management techniques.
Ordinance 2004-09
2004 Comp Plan Updatev
Page 87
WR2.6
The City shall promote the use of integrated pest management techniques and the reduction of
pesticide and herbicide use within the City boundaries.
Drinkinf Water Service Policies
WR 3.1
Development of new public water sources and systems or expansion of existing systems shall not
reduce the quantity or quality of existing water supplies below naturally sustainable levels.
WR3.2
The City may elect to facilitate small water system management services by applying to the
Department of Health to be an approved Satellite System Management Area (SMA).
WR3.3
New developments in previously unclaimed water service areas may be required to dedicate public
water systems to the City if the system meets City standards and. the City determines it is
appropriate to accept, own and operate such systems.
WR3.4
Engineering specifications of new public water systems and expansions or improvements to
existing public water systems to be located within public right-of-ways shall meet standards set
forth by the City.
WR3.5
Water system infrastructure, which may provide water supplies exceeding local needs, shall not be
used to justify development counter to the City's Comprehensive Plan.
WR3.6
The City's water service areas shall be depicted on a map administered by the Public Works
Department.
Modification to the City's water service area by the Public Works Director shall consider the
following:
A. There is sufficient capacity to serve the area; and
B. The. service area modification does not limit the system from providing service to targeted
growth areas; and
C. Modification will serve a public need or the water system will benefit by such modification;
and
D. An analysis of the cumulative impacts to the water system resulting from providing service on
an individual basis to single parcels beyond the current service area is provided.
Discussion: The Public Works Department will develop a two-level review and approval process
for amendments to the City water service areas. Major expansions of an area-wide basis will
require a City Council decision, while minor service extension to individual properties served off
existing or planned water lines will be a Public Works Director's decision.
Ordinance 2004-09
2004 Comp Plan Update
Page 88
WR3.7
All purveyors of public water systems shall evaluate modifications to their system boundaries
based on the criteria provided in WR 3.6.
GOAL 2
Ensure that sewage is collected, treated, and disposed of properly to prevent public health
hazards and pollution of groundwater, and surface water, including waters of the Puget
Sound, and to promote recharge of the waters of Puget Sound.
Sanitary Sewer On-Site Systems Policies
SSP 1.1
Properly designed and maintained on-site wastewater disposal systems that are approved by the
Kitsap County Health District or the State Department of Health are a long-range solution to
sewage disposal in most areas of the Island. However, there may be ar~as of the Island determined
by the Kitsap County Health District to be unsuitable for on-site wastewater disposal systems due
to site conditions (such as steep slopes, geological or soil conditions, lot size, or proximity to
sensitive bodies of water.)
SSP 1.2
Regulations and procedures of the Washington State Department of Health and the Kitsap County
Health District shall apply to all on-site disposal systems. The City shall work with these agencies
to assure regular maintenance and repair of all sanitary sewer and on-site systems located on the
Island.
SSP 1.3
Certification of adequate design and proper operation of septic systems shall be required prior to
issuance of permits for remodeling of existing buildings.
SSP 1.4
Prior to issuance of a building permit, on-site drainfield and reserve areas should be identified and
marked, and a protection plan approved for any building lot.
SSP 1.5
The City shall request notification of all waivers or variances of Kitsap County Health District
requirements, such as modification of setbacks, vertical separation, minimum lot size, reserve
drainfield, etc., prior to issuance and subsequent modifications by the Health District of an
approved Building Site Application.
SSP 1.6
Kitsap County Health District approved alternative systems, such as sand filters, aerobic treatment,
composting toilets, living-systems, etc. should be encouraged for sites where conventional on-site
systems are not suitable or feasible.
SSP 1.7
Regulations shall require coordination between the on-site septic and storm drainage disposal
systems designs to ensure the proper functioning of both systems.
Ordinance 2004-09 Page 89
2004 Comp Plan Update
SSP 1.8
The City shall assist the Kitsap County Health District in developing a program to require proper
maintenance of all on-site waste disposal systems in order to reduce public health hazards and
pollution. This program shall include periodic system inspection and pumping when necessary.
SSP 1.9
The City and the Kitsap County Health District should work together on a collaborative program to
fund and pursue grants or low-cost loans for low and moderate-income households to repair failed
septic systems.
SSP 1.10
On-site waste disposal systems serving more than one household should be allowed only with
assurance of proper design, operation, management and approval from the Health District.
SSP 1.11
The City may provide the service of operation and maintenance management for approved large
on-site sanitary sewer systems (LOSS) or community sanitary sewer systems in coordination with
the Kitsap County Health District.
SSP 1.12
The City should support the Kitsap County Health District in establishing a public education
program to foster proper construction, operation, and maintenance of on-site septic systems.
SSP 1.13
The City should support the Kitsap County Health District in developing and maintaining an
ongoing inventory of existing on-site disposal systems to provide needed information for future
studies.
Public Sanitary Sewer Policies
SSP 2.1
Public sewer service should be provided for areas designated in the Comprehensive Plan, including
Winslow and the City-contracted service areas of Sewer District 7. Such public sewer service shall
not be used to justify development counter to the Comprehensive Plan.
SSP 2.2
In public sewer system service areas, new construction should provide for eventual connection to
public sewer systems.
SSP 2.3
The City sewer service area for the south end of Bainbridge Island (contracted service areas of the
Sewer District 7) is shown on Figure 2B. Emergency service or other minor modifications to
Figure 2B, which are within the existing sewer facility capacity, may be allowed with approval by
the City Council, but major service area expansions that require a facility capacity analysis shall be
evaluated under Policy SSP 2.7.
Ordinance 2004-09
2004 Comp Plan Update
Page 90
SSP 2.4
The service area for the Winslow Sanitary Sewer System shall be the area designated in Figure 2.
Emergency service or other minor modifications to Figure 2, which are within the existing sewer
facility capacity, may be allowed with approval by the City Council, provided that such extensions
serve areas that have an environmental need for sewer due to 1) a high number of documented
failing septic systems; or 2) proximity to sensitive bodies of water that are unsuitable for on-site
septic systems according to the Kitsap County Health District. Major service area expansions that
require a facility capacity analysis shall be evaluated under Policy SSP 2.7.
Discussion: An emergency requiring sewer connection is defined pursuant to the regulation and
guidance of the Department of Health.
SSP 2.5
Sewer connections shall not be mandated for uses with existing septic systems that are fully
functioning and mafntained, provided that the use does not change.
SSP 2.6
Those properties receiving new public sewer service shall pay a proportional share of the cost
for providing that service.
(Alternative: Funding for public sewer facilities will be paid primarily by users, in accordance
with Capital Facilities Policy CF 1.12)
SSP 2.7
Public Sewer Facilities Planning and Major Improvements
A. When the existing capacity of public sewer facilities reaches the threshold set for mandatory
evaluation of the treatment plant as established by regulatory agencies, planning to address
the shortfall in sewer facility capacity shall be initiated. The Public Works Department, in
consultation with the Planning and Community Development Department, will perform the
preliminary planning on the methods of providing sewer service utilizing a public
participation process. The planning will include evaluation of the following:
1. Feasibility of alternatives to large sewer facilities;
2. Operational changes to the existing public sewer facility;
3. Expansion of the existing sewer facility; and
4. Siting of a new public sewer facility.
B. In developing alternatives for providing sewer service, the Public Works Department shall:
1. Investigate alternatives to modifications of existing or placement of new sewer facilities
that would be satisfactory to the regulatory agencies for their consideration;
2. Prepare a comparative analysis of alternatives, including a capacity analysis of the
existing facility; and
3. Develop costs and alternate financing methods for the feasible alternatives.
C. A comprehensive plan amendment will be necessary if new sewer service areas are
proposed for a new public sewer facility or major expansion of an existing public sewer
facility.
1. In planning and establishing a new service area for a new public sewer facility or major
expansion of an existing public sewer facility that provides additional service, service
Ordinance 2004-09 Page 91
2004 Comp Plan Update
area boundaries will be evaluated using the following considerations in descending
order of importance:
(a) Areas that have an environmental need for sewer due to 1) a high number of
documented failing septic systems; or 2) proximity to sensitive bodies of water
that are unsuitable for on-site septic systems according to the Bremert{)n -Kitsap
County Health District.
(b) Areas used as or planned for development that serves a public need, such as a
public school.
(c) Areas designated for commercial and mixed use.
(d) Areas designated for residential use at densities of four units to the acre or
greater.
(e) Areas planned for an increase in density through a special planning area
process.
2. The boundaries of new public sewer service areas shall be based on consideration of the
topography, public street system, lot layout and other factors, to form a reasonably
contiguous service area boundary.
SSP 2.8
Re-use of treated wastewater for irrigation, fireflow, and other non-potable uses should be
considered in the planning and design of treatment facilities. These facilities shall be consistent
with health and safety considerations and evaluate financial impact to ratepayers and taxpayers.
Ordinance 2004-09
2004 Comp Plan Update
Page 92
Stormwater Management and Protection
GOAL 3
Stormwater runoff shall be managed comprehensively to:
· protect property from flooding and erosion;
· protect streams and shorelines from erosion and sedimentation to avoid the degradation
of environmental quality and natural system aesthetics;
· protect the quality of groundwater, surface water, and the waters of Puget Sound; and
· provide recharge of groundwater where appropriate.
SD 1.1
The City shall maintain a comprehensive storm drainage plan which: _
· Identifies and ranks existing and potential problems at the drainage basin level.
· Proposes solutions to those problems and a basin level implementation plan.
· Identifies location of major conveyance and regional retentionldeteJ}.tion facilities.
· Recognizes the importance of natural systems and receiving waters and their preservation and
protection.
· Provides a strategy for implementation and funding.
· Sets design and development guidelines.
SD 1.2
The City should plan watershed management approaches to provide improved performance,
maintenance, and cost efficiency. Wherever possible, facilities should be considered as a multi-
functional community resource, which provides additional public benefits such as recreational,
habitat, cultural, educational, open space, and aesthetic opportunities.
SD 1.3
The City shall require new development to provide both on-site improvements and
off-site improvements necessary to avoid adverse downstream water quality and quantity impacts.
SD 1.4
Where appropriate and feasible, infiltration of stormwater is preferred over surface discharge to
downstream system. The return of uncontaminated precipitation to the soil at natural rates near
where it falls should be encouraged through the use of detention ponds, grassy swales, and
infiltration facilities.
SD 1.5
Storm water systems shall be encouraged to provide for removal of pollutants and sediment through
bio-filtrationor other means, where appropriate and feasible.
SD 1.6
Zoning and development design standards should mInImIZe disruption and/or degradation of
natural drainage systems, minimize impervious areas by restricting site coverage, and encourage
site permeability through retaining natural vegetation and buffers, and specifying use of permeable
materials.
Ordinance 2004-09
2004 Comp Plan Update
Page 93
SD 1.7
Industrial, commercial, and agricultural land uses should be encouraged to manage surface water in
a manner which prevents pollutants from entering ground or surface waters.
SD 1.8
The City should consider a program of retrofitting existing roads with water quality and quantity
storm water system improvements in order to minimize pollution of natural drainage systems and
the waters of the Puget Sound resulting from runoff of roadways.
Monitorine Policies
Ml.l
The City should institute a comprehensive program of water resource data gathering and analysis.
Such. a program shall include geologic studies and monitoring of static water levels, water use,
water quality, surface water flows, and acquisition of other data as necessary.
Ml.2
Periodic monitoring and reporting of water quality and quantity of public water systems3 is
required by the Bremerton Kitsap County Health District. Single units shall be encouraged by the
City to provide well data to the Kitsap Public Utility District and the Department of Health
regarding water level recordings, quality degradation, etc.
M1.3
The City should support the Bremerton Kitsap County Health District in developing a-program for
proper maintenance of on-site waste disposal systems in order to reduce public health hazards and
pollution. This program should include periodic system inspection and pumping when necessary.
M1.4
The City should support the Kitsap County Health District in developing and maintaining an on-
going inventory of existing on-site disposal systems to provide needed information for future
studies.
Public Education Policies
PE 1.1
The City, special districts, and water purveyors will develop and implement a comprehensive
public education program in water resource management and protection. The program should
address all aspects of water conservation and groundwater protection, including septic systems
maintenance, spill management and non-point pollution impacts from farm animal/agricultural
activities, and homeowners maintenance practices.
3 A public water system is defined as a system with two or more hookups.
Ordinance 2004-09
2004 Comp Plan Update
Page 94
PE 1.2
Water conservation should be aggressively pursued by the City to promote the efficient use of
water and to protect the resource. Water conservation programs should encourage the use of
vegetation that prevents soil erosion, protects habitat for wildlife, retains surface water for
recharge, and which does not require additional water during normally dry months.
PE 1.3
Water re-use and reclamation will be encouraged to serve as a supplementary source for high-
water users such as industry, parks, schools, and golf courses, as approved by the Washington State
Department of Health.
PE 1.4
The City would develop a program that encourages homeowners to reduce impervious surface area
and explore innovatiye methods for recapturing and reusing surface water runoff and grey water, as
approved by the Washington State Department of Health and the Kitsap County Health District.
PE 1.5
The City should support the Kitsap County Health District in establishing a public education
program to foster proper construction, operation, and maintenance of on-site septic systems.
Section 32. Figure 2 of the Water Resources Element of the Comprehensive Plan is repealed.
Section 33. New Figure 2 is added to the Water Resources Element ofthe Comprehensive Plan as
presented in Attachment A.
Ordinance 2004-09
2004 Comp Plan Update
Page 95
~
l.U
l-
t/)
w>-
I-en
<(0:
ol.U<(
.Q:; ~ w
-wo:
zen<(
l- <( >- LU
u......J 0: U
-4 c... 4 -
o:::a..\-'>
o~ - 0:
.-Zw
O<(cn
ucn
N3
00
0....J
N(/)
Z
-
3:
<(
w
~ w
z
W .::i
u UJ
:> Q:
Q: 0
W :I:
en (/)
N
Q)
~
~
....
~
I
l
I
i
- l'
. : I
.' ".;
i< .
~
Ot-
Zz
<tw
....J1:
!!1-
w~
C)<t
00...
_w
~O
al~
Zz
<C-
c:n~
W
u..W
oz
)-C>
t-Z
UW
(I
Page 96
Ordinance 2004-09
2004 Comp Plan Update
--,-_.~--,--_..------ <-
Section 34. The delineation and classification of the aquifer recharge areas found in the Land Use
Element of the Comprehensive Plan, including Figure 5, are repealed.
Section 35. New delineation and classification of the aquifer recharge areas of the Comprehensive
Plan, including Figure 5, are adopted in the Water Resources Element as follows:
Groundwater
Groundwater is the sole source of drinking water on Bainbridge Island. It is found in underground
reservoirs called aquifers. An aquifer is defined as a permeable sand and/or gravel formation that is
capable of yielding a significant amount of water to a well. Wells on Bainbridge Island penetrate
several distinct aquifers to allow withdrawal of drinking water by individual homeowners and
municipal water purveyors. Most individual household wells penetrate to depths of less than 300
feet. Some residents are still using hand-dug wells less than 40 feet deep, completed in the
permeable sediments known as the Vashon Recessional Outwash. Groundwater found at this level
also feeds the base flow for Island streams. High capacity wells have been drilled as deep as 1,200
feet to find adequate marketable quantities of water for public and privfl.te water purveyors. While
few in number, these wells produce a large portion of the Island's potable water. The Blakely
Formation, a sedimentary bedrock formation, dominates the geology on the southern end of the
island and limits groundwater production in this area.
Aquifer systems on the Island have been mapped where there is sufficient geologic and hydrologic
data available to define them. Our understanding of the Island's water resources has been
enhanced through the City of Bainbridge Island, Level II Assessment4 prepared by Kato & Warren
and Robinson Noble. The following information on existing conditions was drawn from the Level
II Assessment by hydrogeologists and Bainbridge Island residents Doug Dow, Russ Prior and
Mark Shaffer and is subject to change with further study. These aquifers are described in detail in
the Kitsap County Groundwater Management Plan, Volumes I and II, dated April 1991 and more
recently in the Level II Assessment. Brief descriptions of each aquifer system identified are as
follows:
Perched Aquifer (P A): The Perched Aquifer is a sand and gravel aquifer system under the
major upland areas; it is found above 200 feet elevation and averages 90 feet in thickness. This
aquifer underlies nine square miles (33%) of the Island's land surface and serves a number of
domestic wells, with yields averaging 16 gpm. It is recharged from leakage through overlying
sediments and discharges through underlying sediments into deeper aquifers or through springs
where the aquifer intercepts land surface.
Semi-Perched Aquifer (SPA): The Semi-Perched Aquifer is found under approximately 20
square miles (73%) of the land surface and averages about 30 feet in thickness. Where identified,
it is found between 20 feet below and 100 feet above sea level. Approximately 25% of the
domestic wells on the Island obtain an average of 19 gpm from this aquifer. However,
uncharacteristically high yields from wells completed for Meadowmeer provide local yields over
300 gpm. The aquifer is recharged from leakage through overlying sediments and discharges into
deep cut stream valleys, deeper aquifers, or to Puget Sound.
4 Subtitled; An Element of the Water Resource Study, dated December 2000
Ordinance 2004-09
2004 Comp Plan Update
Page 97
Sea Level Aquifer (SLA): The Sea Level Aquifer underlies 85% (23.5 square miles) of the
Island's land surface but is noticeably absent south of Blakely Harbor where bedrock is found
above sea level. The aquifer's average thickness is 110 feet. It is found from 40 feet above to 230
feet below sea level. The Sea Level Aquifer is the Island's primary aquifer system supplying water
to approximately 53% of island wells. Several of the Island's larger water purveyors obtain yields
of more than 300 gpm from this aquifer. The average yield to the majority of (domestic) wells is
20 gpm. The aquifer accepts recharge from leakage through overlying sediment with natural
discharge into Puget Sound. The City's wells at the head of Eagle Harbor are completed in the
SLA.
Glaciomarine Aquifer (GMA): The Glaciomarine Aquifer is the shallower of the two deep
aquifer systems present below Bainbridge Island. The data available confirms estimates a depth of
400 to 760 feet below sea level under approximately 9.5 square miles (35%) of the Island and an
average thickness of 120 feet. This aquifer may exist under a greater portion of the Island but lack
of exploration precludes a definitive analysis. Only 2% of island wells penetrate this fine-grained
aquifer which yields an average of 18 gpm. Notable wells completed in the GMA are the City's
Taylor Avenue well and the old and new wells completed at the form~r creosote plant site at Bill
Point. Recharge to the aquifer is obtained through leakage from overlying sediments. Discharge is
likely to deeper areas in Puget Sound.
Fletcher Bay Aquifer (FBA): The Fletcher Bay Aquifer is named for a pair of wells drilled
into the deep aquifer system near Fletcher Bay. Several other wells are also completed in this
permeable sand and gravel formation found from 690 to 1,280 feet below sea level. Because very
few wells penetrate to this depth the extent of the aquifer is not well defined. The aquifer is
believed to underlie 55% (15 square miles) of the island mainly in the north central area. The City
obtains the majority of the drinking water for the Winslow water system from the FBA through
their Fletcher Bay and Sands Road wells. Yields from this aquifer average 330 gpm. Because of
the depth of this aquifer, it has been theorized that it is connected to a similar aquifer identified at
this depth on the Kitsap Peninsula. However, this connection has not been proven and recharge to
the FBA has been assumed to originate on the island through leakage from overlying sediments.
Water Budget
Understanding the island's water budget requires a look at the components of the water system.
These components are defined as:
Precipitation: (rain or snow);
Evapotranspiration: or the combined amount of water that evaporates directly from the
surface, plus the amount that is taken up by vegetation and transpired back into the air;
Runoff: or the amount of water that flows directly off the Island via streams;
Recharge: or the amount of water that infiltrates into the aquifer and;
Discharge: or well pumpage, springs, streams and direct discharge into Puget Sound.
Although the variability of the natural system is great, educated assessments of the individual
components are commonly used to predict sustainable use of the groundwater.
All water entering the island's natural water system originates as precipitation. Only a portion of
the precipitation is available for recharge because some of it exits the system before it percolates
into the ground. Water exits the system through evapotranspiration, surface runoff and discharge.
The quantity of groundwater available for use is a function of the water balance: water entering the
Ordinance 2004-09
2004 Camp Plan Update
Page 98
system is equal to water flowing out of the system, plus or minus the change in storage of water
within the aquifer.
Precipitation on Bainbridge Island averages about 35 inches per year. In the absence of 'more
precise water budget data it is generally thought that one-half to one-third of all precipitation is lost
through evaporation from surface water and evapotranspiration from trees, plants, and grass. It is
estimated that approximately one-quarter to one-third of the precipitation is discharged to springs
and stream flow or directly to Puget Sound.
The remaining precipitation infiltrates the surface sediments through direct absorption,
supplemented to some extent through onsite storm water infiltration, to recharge the Island aquifers.
An unknown quantity of recharge is discharged from the Perched and Semi-Perched Aquifer, and
to a lesser extent the Sea Level Aquifer providing (base) stream flow for fish and other wildlife.
However, only a portion of the remaining recharge that reaches the major aquifers is available for
use without seriou&. disruption of the hydrologic system. Withdrawing too much water will cause
aquifer water levels to decline and may cause seawater intrusion into the Sea Level Aquifer and
deeper aquifers.
A simplistic approach for determining the "hypothetical groundwater yield" is the product of the
general recharge rate times the recharge area (27.5 square miles or 17,600 acres) producing a
volume of water in acre feet per year. The Level II study provided a hypothetical groundwater
recharge of 19,000 acre feet per year (afy). However, it is recognized that the sustainable yield of
an aquifer can be more accurately determined by monitoring aquifer water levels for many years.
Such monitoring would include: flow metering of typical wells for water use or measurement of
surface water diversions; well water level monitoring; and stream flow monitoring. Management
of the groundwater resources of Bainbridge Island will require balancing withdrawals from
specific aquifers to sustainable water levels. Actual sustainable withdrawal rates are unknown.
Aquifer Recharge Areas
Springs and streams reflect a natural system of discharge for island ground water. All of the
remaining land surface (except for portions of the southern end of the island) serves as aquifer
recharge area. Soil type, slopes, vegetative cover and impervious surfaces significantly affect the
distribution recharge. The identification of aquifer recharge areas is important both from the
standpoint of groundwater quantity and quality. Aquifer recharge areas have geologic and soil
conditions which allow high rates of surface water infiltration which also means they are
particularly susceptible to contamination. Increasing impervious surfaces through development
reduces the amount of recharge available to the island aquifers. At the same time runoff from
impervious surfaces in developed areas contains increased contaminants. Efforts to protect and
preserve the Island's natural water supply are warranted, as the resources that would be required to
clean up after contamination or to secure a new source would be prohibitive.
Where development overlays aquifer recharge areas special considerations need to be made to
preserve the volume of recharge available to the aquifer and to protect the ground water from
contaminates such as nitrates, biocides and heavy metals found in septic systems and stormwater
runoff. The most extensively used aquifer underlies 85% of the island and occurs under all zoning
classifications.
Ordinance 2004-09
2004 Comp Plan Update
Page 99
The Recharge Areas Map (Figure 5) was developed by Russ Prior with assistance from Mark
Shaffer, Doug Dow and Kitsap County PUD. This recharge map is based on a spreadsheet model
produced by Robinson and Noble for the Level II Assessment (December 2000). Figure 5
identifies high, moderate and low aquifer recharge areas on Bainbridge Island. Generally, recharge
depends on the ease with which precipitation can move from the land surface to the aquifer based
on the types of conditions in the area. The elements used in the Level II spreadsheet model
include: amount of rainfall, surficial soil types (based on USDA, Soil Survey of Kitsap County),
slope, ground cover and water holding capacity.
Figure 5 Legend: Aquifer Recharge Areas
Red Indicates areas with greater than 20 inches of infiltration into the
groundwater system per year. Generally, areas with high
Highly Susceptible recharge have permeable surficial soils and shallow slopes.
Recharge Area
Purple Indicates areas with between 10 and 20 inches per year of
Moderately Susceptible infiltration into the groundwater system. This classification
includes many areas underlain by Vashon till, which allows
Recharge Areas significant quantities of infiltration.
.
Gray Indicates an area with less than 10 inches per year of infiltration
Low Susceptibility into the groundwater system. Generally, areas with low recharge
Recharge Areas have surficial soils of low permeability and steep slopes
Ordinance 2004-09 Page 100
2004 Camp Plan Update
"
i!
..
'!?
f
i
.;;,
g
iJl
[\
"'
~
Figure 5:
Reclwge
D Low
II1II Moderaie
_ t"gh
< :10"per year
10".20'. pef y..r
:> 20" per year
N
.-Jfr-
fil P"IJ'l1 Sound
Streams
Roatls
Fell)' Rou!..
8Ul"ICQ-R~ue d,*, hlfttllllll'Mi'CllV aI,Bslnb,rfdge 1nlilIitJ, Levell! ASSeS$lntlnt~OOlnlJo!:f 2000
ntblo dum b.'ilrQJtOO OYor u 6-h IfJsO!uMOnOEMko!fF.lhB Pugot SOund UDAll COllSOlhunl
! lit1mullullS: "{his fedm;gll) lJatu Ii tio&el,i an j)spre;W8heel nwOOl prtHlUtllUd uj the lc~llI j~$:;~SltllWl~, \Yhl'.~h
I WlI$, Mtgou~ietel\(fd. MmklIi1alnwilaltQIIswftllld In AtIWCat.I 'In ill OEM as 3<:WOltcly 31> ~J>5ib/i;;!. L~l"G.aflum
J i{htNm am Ihuli ijtnit~d bV Ih9 tJrlglnnl dilltt. Some ,tte.'s, Il8JJl!clitly.~!ufl~ ~~ti__~I.~~a~IlO.. may Jlol b1:- rn".t.LH\lhl'
1 :40,000
Ordinance 2004-09
2004 Comp Plan Update
Figure 5 - Water Resources Element
Page 101
Section 36. A new section is added to the Existing Conditions of the Water Resources Element as
follows:
2004 Update to Water Resources Element
EXISTING CONDITIONS AND FUTURE NEEDS
Bainbridge Island is a quasi-enclosed environment that requires a holistic perspective be utilized to
understand the interdependence between groundwater, drinking water, sanitary sewage disposal,
storm and surface water. The following outlines the present conditions and understanding of the
water resources of the Island and the future needs for protection and utilization of these resources.
GROUND WATER CONDITIONS
Groundwater
Groundwater is the sole source of drinking water on Bainbridge Island. It is found in underground
reservoirs called aquifers. An aquifer is defined as a permeable sand anO/or gravel formation that is
capable of yielding a significant amount of water to a well. Wells on Bainbridge Island penetrate
several distinct aquifers to allow withdrawal of drinking water by individual homeowners and
municipal water purveyors. Most individual household wells penetrate to depths of less than 300
feet. Some residents are still using hand-dug wells less than 40 feet deep, completed in the
permeable sediments known as the Vashon Recessional Outwash. Groundwater found at this level
also feeds the base flow for Island streams. High capacity wells have been drilled as deep as 1,200
feet to find adequate marketable quantities of water for public and private water purveyors. While
few in number, these wells produce a large portion of the Island's potable water. The Blakely
Formation, a sedimentary bedrock formation, dominates the geology on the southern end of the
Island and limits groundwater production in this area.
Aquifer systems on the Island have been mapped where there is sufficient geologic and hydrologic
data available to define them. Our understanding of the Island's water resources has been
enhanced through the City of Bainbridge Island, Level II AssessmentS prepared by Kato & Warren
and Robinson Noble. The following information on existing conditions was drawn from the Level
II Assessment by hydrogeologists and Bainbridge Island residents Doug Dow, Russ Prior and
Mark Shaffer and is subject to change with further study. These aquifers are described in detail in
the Kitsap County Groundwater Management Plan, Volumes I and II, dated April 1991 and more
recently in the Level II Assessment. Brief descriptions of each aquifer system identified are as
follows:
Perched Aquifer (P A): The Perched Aquifer is a sand and gravel aquifer system under the major
upland areas, it is found above 200 feet elevation and averages 90 feet in thickness. This aquifer
underlies nine square miles (33%) of the Islands land surface and serves a number of domestic
wells, with yields averaging 16 gpm. It is recharged from leakage through overlying sediments
and discharges through underlying sediments into deeper aquifers or through springs where the
aquifer intercepts land surface.
Semi-Perched Aquifer (SPA): The Semi-Perched Aquifer is found under approximately 20 square
miles (73%) of the land surface and averages about 30 feet in thickness. Where identified, it is
5 Subtitled; An Element of the Water Resource Study, dated December 2000
Ordinance 2004-09
2004 Camp Plan Update
Page 102
found between 20 feet below and 100 feet above sea level. Approximately 25% of the domestic
wells on the Island obtain an average of 19 gpm from this aquifer. However, uncharacteristically
high yields from wells completed for Meadowmeer provide local yields over 300 gpm. The
aquifer is recharged from leakage through overlying sediments and discharges into deep cut stream
valleys, deeper aquifers, or to Puget Sound.
Sea Level Aquifer (SLA): The Sea Level Aquifer underlies 85% (23.5 square miles) of the Island's
land surface but is noticeably absent south of Blakely Harbor where bedrock is found above sea
level. The aquifer's average thickness is 110 feet. It is found from 40 feet above to 230 feet below
sea level. The Sea Level Aquifer is the Island's primary aquifer system supplying water to
approximately 53% ofIsland wells. Several of the Island's larger water purveyors obtain yields of
more than 300 gpm from this aquifer. The average yield to the majority of (domestic) wells is 20
gpm. The aquifer accepts recharge from leakage through overlying sediment with natural
discharge into Puget_ Sound. The City's wells at the head of Eagle Harbor are completed in the
SLA.
Glaciomarine Aquifer (GMA): The Glaciomarine Aquifer is the shallower of the two deep aquifer
systems present below Bainbridge Island. The data available confirms estimates a depth of 400 to
760 feet below sea level under approximately 9.5 square miles (35%) of the Island and an average
thickness of 120 feet. This aquifer may exist under a greater portion of the Island but lack of
exploration precludes a definitive analysis. Only 2% of Island wells penetrate this fine-grained
aquifer which yields an average of 18 gpm. Notable wells completed in the GMA are the City's
Taylor A venue well and the old and new wells completed at the former creosote plant site at Bill
Point. Recharge to the aquifer is obtained through leakage from overlying sediments. Discharge is
likely to deeper areas in Puget Sound.
Fletcher Bay Aquifer (FBA): The Fletcher Bay Aquifer is named for a pair of wells drilled into the
deep aquifer system near Fletcher Bay. Several other wells are also completed in this permeable
sand and gravel formation found from 690 to 1,280 feet below sea level. Because very few wells
penetrate to this depth the extent of the aquifer is not well defined. The aquifer is believed to
underlie 55% (15 square miles) of the Island mainly in the north central area. The City obtains the
majority of the drinking water for the Winslow water system from the FBA through their Fletcher
Bay and Sands Road wells. Yields from this aquifer average 330 gpm. Because of the depth of
this aquifer, it has been theorized that it is connected to a similar aquifer identified at this depth on
the Kitsap Peninsula. However, this connection has not been proven and recharge to the FBA can
only have been assumed to originate on the Island through leakage from overlying sediments.
Hvdrololdc Cvcle and the Water Budeet
Water is endlessly circulating on Bainbridge Island within the hydrologic cycle. Understanding the
Island's water budget requires a look at the components of the water system. These components
are defined as:
Precipitation: (rain or snow);
Evapotranspiration: or the combined amount of water that evaporates directly from the surface,
plus the amount that is taken up by vegetation and transpired back into the air;
Runoff: or the amount of water that flows directly off the Island via streams;
Recharge: or the amount of water that infiltrates into the aquifer and;
Discharge: or well pumpage, springs, streams and direct discharge into Puget Sound.
Ordinance 2004-09
2004 Comp Plan Update
Page 103
Although the variability of the natural system is great, educated assessments of the individual
components are commonly used to predict sustainable use of the groundwater.
All water entering the Island's natural water system originates as precipitation. Only a portion of
the precipitation is available for recharge because some of it exits the system before it percolates
into the ground. Water exits the system through evapotranspiration, surface runoff and discharge.
The quantity of groundwater available for use is a function of the water balance: water entering the
system is equal to water flowing out of the system, plus or minus the change in storage of water
within the aquifer.
Precipitation on Bainbridge Island averages about 35 inches per year. In the absence of more
precise water budget data it is generally thought that one-half to one-third of all precipitation is lost
through evaporation from surface water and evapotranspiration from trees, plants, and grass. It is
estimated that approximately one-quarter to one-third of the precipitation is discharged to springs
and stream flow or directly to Puget Sound.
The remaining precipitation infiltrates the surface sediments tprough direct absorption,
supplemented to some extent through onsite storm water infiltration, to recharge the Island aquifers.
An unknown quantity of recharge is discharged from the Perched and Semi-Perched Aquifer, and
to a lesser extent the Sea Level Aquifer providing (base) stream flow for fish and other wildlife.
However, only a portion of the remaining recharge that reaches the major aquifers is available for
use without serious disruption of the hydrologic system. Withdrawing too much water will cause
aquifer water levels to decline and may cause seawater intrusion into the Sea Level Aquifer and
deeper aquifers.
Hypothetical groundwater (aquifer) yield
A simplistic approach for determining the "hypothetical groundwater yield" is the product of the
general recharge rate times the recharge area (27.5 square miles or 17,600 acres) producing a
volume of water in acre feet per year. The Level II study provided a hypothetical groundwater
recharge of 19,000 acre feet per year (afy). However, it is recognized that the sustainable yield of
an aquifer can be more accurately determined by monitoring aquifer water levels for many years.
Such monitoring would include: flow metering of typical wells for water use or measurement of
surface water diversions; well water level monitoring; and stream flow monitoring. Management
of the groundwater resources of Bainbridge Island will require balancing withdrawals from
specific aquifers to sustainable water levels. Actual sustainable withdrawal rates are unknown.
Aauifer Rechar~e Areas
Springs and streams reflect a natural system of discharge for Island ground water. All of the
remaining land surface (except for portions of the southern end of the Island) serves as aquifer
recharge area. Soil type, slopes, vegetative cover and impervious surfaces significantly affect the
distribution recharge. The identification of aquifer recharge areas is important both from the
standpoint of groundwater quantity and quality. Aquifer recharge areas have geologic and soil
conditions which allow high rates of surface water infiltration which also means they are
particularly susceptible to contamination. Increasing impervious surfaces through development
reduces the amount of recharge available to the Island aquifers. At the same time runoff from
impervious surfaces in developed areas contains increased contaminants. Efforts to protect and
preserve the Island's natural water supply are warranted, as the resources that would be required to
clean up after contamination or to secure a new source would be prohibitive.
Ordinance 2004-09
2004 Comp Plan Update
Page 104
Where development overlays aquifer recharge areas special considerations need to be made to
preserve the volume of recharge available to the aquifer and to protect the ground water from
contaminates such as nitrates, biocides and heavy metals found in septic systems and storm water
runoff. The most extensively used aquifer underlies 85% of the Island and occurs under all zoning
classifications.
The Recharge Areas Map (Figure 5) was developed by Russ Prior with assistance from Mark
Shaffer, Doug Dow and Kitsap County PUD. This recharge map is based on a spreadsheet model
produced by Robinson and Noble for the Level II Assessment (December 2000). Figure 5
identifies high, moderate and low aquifer recharge areas on Bainbridge Island. Generally, recharge
depends on the ease with which precipitation can move from the land surface to the aquifer based
on the types of conditions in the area. The elements used in the Level II spreadsheet model include
amount of rainfall, surficial soil types (based on USDA, Soil Survey of-Kitsap County), slope,
ground cover and water holding capacity.
Aquifer recharge areas have been mapped for the Island using available assessment information
described in the Level II Assessment. The mapping identifies high,' moderate, and low aquifer
recharge areas in accordance with the following definitions:
ow
Aquifer Concerns
The Island has many shallow and deep aquifers, some of which may be connected vertically as
well as horizontally. No data has been developed to date to determine how much water can be
withdrawn from any of the Island aquifers without causing over-drafting. Monitoring is important
to further our understanding of the Island's aquifer systems.
Based on current water quality data, the 2000 Bainbridge Island Level II Assessment concluded
there. was no evidence of extensive seawater intrusion on the Island nor was there evidence of
increasing salinity.
Ordinance 2004-09
2004 Comp Plan Update
Page 105
DRINKING WATER CONDITIONS AND FUTURE NEEDS
Backfround
Bainbridge Island's potable water is provided from well water supplies drawn from the Island's
aquifers - no water is obtained from off-Island sources.
Domestic drinking water is supplied by the City of Bainbridge Island, North Bainbridge Water
Company, South Bainbridge Water Company, numerous smaller public water systems (two or
more hook-ups), and over 1,000 private single-dwelling wells. Information was obtained from the
Bainbridge Island Water System Plan, prepared for the Winslow Water System by R.W. Beck and
Associates in 1993 (updated by Gray & Osborne), the 1992 Kitsap County Coordinated Water
System Plan (CWSP), the Kitsap County Groundwater Management Plan, 1991 (GWMP), and the
Bainbridge Island Level II Assessment, 2000, completed by Kato & Warren working with
Robinson & Noble.
Under the federal "Clean Water Act, the State required regional planning administered by the
Department of Ecology and the Department of Health. Through this process, Kitsap County
Council declared Bainbridge Island to be a Critical Water Supply Servke Area in accordance with
state authorizing statutes. The declaration invokes the Public Water System Coordination Act that
requires procedures be established, subject to county approval, to identify all existing and future
service areas for public water utilities.
The County Council, in accordance with the Act, established exclusive water utilities service areas
throughout the county with minimum domestic supply and fire flow requirements and standards
for construction of temporary and permanent improvements. All developments must abide by
Kitsap County and Bainbridge Island standards and the standards that the authorizing water utility
may append within the service areas, regardless of whether the user will connect to the system at
the time of development. Projects that propose to use satellite or stand-alone water supply systems
for an interim period must also abide by the standards and agree to contract the operation of the
system from the designated water purveyor. The CWSP is currently being updated and is expected
to be approved and adopted in late 2004 or early 2005.
Level of Service: The levels of service are the minimum design standards and performance
specifications provided in the 1992 Kitsap County Coordinated Water System Plan. Fire flow
requirements are adopted by ordinance and based on zoning and type of construction. Residences
can satisfy deficiencies by installing individual sprinkler systems. Levels of service are as follows:
Pressure 30 pounds per square inch (psi) residual
Pipe sizing 8-inch minimum diameter where a fire system is required
Storage "Sizing Guidelines for Public Water Systems"
Quality Federal and State minimum standards
Fire flow Residential zone R.04 & R.l = 500 gallons per minute (gpm) or sprinkler
Fire flow Residential other zones = 1,000 gallons per minute (gpm) or sprinkler
Fire flow Commercial & LM = 1,000 gallons per minute or don't build
Source: 1992 Kitsap County Coordinated Water System Plan (CWSP) - currently being updated in 2004.
Ordinance 2004-09
2004 CompPlan Update
Page 106
Island Water Sources
According to Kitsap Health District records, approximately 170 water purveyors or systems on
Bainbridge Island provide consumptive water - of which, 5 systems serve more than 100
connections. The largest purveyors are the City of Bainbridge Island, North Bainbridge Water
Company, South Bainbridge Water Company - and then numerous smaller public water systems
(2 or more hook-ups) and other 1,000 private single-dwelling wells. The number of Group A and
B systems are listed below and a summary of systems with more than 100 connections.
Group A systems
Group B systems
15 or more connections
<15 connections
44
124
Kitsap County Health District records indicate there are approximately 168 water systems on the
island which have 2 or more household connections. There are 44 Group A systems with 15 or
more connections, ~d 124 Group B systems with less than 15 connections.
Capacity
System
ea owmeer
PUD # 1 (North
Bainbrid~e )
South Bambrid~e
City of BainbrIdge
Island
Tota , 8, 04 " 4,5 7,0 0
Capacity: ERU = equivalent residential units, Supply in gallons per day (gd) storage in gallons.
Source: 2004 Draft Kitsap County Coordinated Water System (CWSP) Update.
Connections
ERU
7
1,646
788
2,100
2,028
1,114
4,727
Supply
5 ,
450,000
900,000
1,000,000
Storage
2 ,
860,000
562,000
2,910,000
According to the Draft 2004 Kitsap County Coordinated Water System Plan (CWSP) Update,
Island sources have a combined "water rights" annual capacity (Qi) of 9,260,000 gallons per day
(gpd) and an instantaneous quantity (Qa) capacity of 16,730,000 gallons per day (gpd).
Water records licants
Bainbrid e Island 28
Permit/certificate i- d
Ground water 16,730,000
Permit/certificate Qi- d
Surface water 0
Total 9,260,000 16,730,000
Qa=annual quantity in acre-feet per year (afy), Qi=instantaneous quantity in gallons per minute
(gpm) or gallons per day (gpd)
Source: Draft 2004 Kitsap County Coordinated Water System Plan (CWSP) and Washington State
Department of Ecology's Water Right Application Tracking System (WRATS), December 2001
It should be noted, that the "water rights" listed above do not reflect actual current usage of the
water resource - they only identify the potential maximum legal appropriations that can be made
under the water rights granted by the Washington State Department of Ecology (DOE).
Most existing water systems were established under state and local guidelines and for the most part
provide high quality water at an adequate pressure and flow rate. Because of the high number of
systems on the island, however, there are likely to be systems that are not in compliance with
Ordinance 2004-09 Page 107
2004 Comp Plan Update
Washington State Department of Health (DOH) water quality requirements, and may not meet
minimum requirements for pressure and reliability. Many of the smaller systems have poor or
nonexistent fire protection due to the cost of providing large diameter pipes and storage tanks.
Wells
The majority of the systems on the island take water from wells or spring systems. Bainbridge
Island wells penetrate several of the aquifers identified above to withdraw drinking water for
individual homeowners and municipal water purveyors. Most individual household wells penetrate
to depths of less than 300 feet. Some residents are still using hand-dug wells less than 40 feet deep,
completed into the permeable sediments known as the Vashon Recessional Outwash. Groundwater
found at this level also feeds the base flow for island streams.
High capacity wells have been drilled as deep as 1,200 feet to find adequate marketable quantities
of water for public and private water purveyors. While few in number, these wells produce a large
portion of the island's potable water. The Blakely Formation, a sediment bedrock, dominates the
geology on the southern end of the island limiting groundwater production in this area.
According to the 1996 Kitsap County Groundwater Management Plan (GWMP) Update,
Washington State Department of Ecology (DOE) has approved permitted water rights for
3,580,000 gallons per day (4,008 acre-feet per year). Private wells that produce less than 5,000
gallons per day are exempt from permit filing requirements.
Well-Head Protection
A well-head is the area defined around a well site that denotes the amount of time it would take
contaminants to enter the surface or subsurface surrounding the well or well field to reach the
underlying water resources.
In 2003 the City completed a wellhead protection plan for the City-owned well sites only,
including land use restrictions. The Washington State Department of Health has approved the plan.
Island Water Qualitv
A 1986 water quality survey conducted by Kitsap County indicated 77% of the county population
was served by a Class I system providing more than 100 connections or a Class 2 system
providing from 10-99 connections. Of the systems surveyed by Kitsap County, 50% of all systems
in each class failed to submit any or all of the bacteriological samples.
Because of the number of systems on Bainbridge Island, Kitsap County concluded that there are
likely to be numerous systems that may not be in compliance with Washington State Department
of Health (DOH) requirements.
Ordinance 2004-09
2004 Comp Plan Update
Page 108
Beginning in July 1993, Bainbridge Island established a lead and copper monitoring program
based on federal Environmental Protection Agency (EPA) regulations that required tap water
samples from high-risk homes.
Island Water Requirements
The Kitsap County Coordinated Water System Plan (CWSP) developed future water usage
projections and water requirements for Bainbridge Island using different per capita consumption
rates and peaking factors for the rural, semi-urban/rural, and urban areas.
According to the CWSP projections, the water requirement will grow from 1,800,000 gallons per
average day in 1995 to 2,430,000 by the year 2012 when the island population reaches 24,280
persons. The drinking water requirement will depend on whether the actual capacity of a
"hypothetical aquifer" can yield 4,800,000 gallons per day or 8,000,000 gallons per day. The lower
capacity will require Island water purveyors to generate additional water sources, the latter
indicates the Island has a more than sufficient reserve.
1995
2002
2012
17,800
1,800,000
5,420,000
1995
4,800,000-
8,000,000
3,600,000
1,200,000-
4,400,000
demand 1,800,000
capacity (600,000)-
available/required 2,600,000 2,420,000 1,970,000
Assumes 100 gallons per capita per day (gpcd) for rural areas and 140 gallons per capita per day
(gpcd) for semi-urban/rural areas with a 3.0 peaking factor and 175 gallons per consumptive day
(gpcd) for urban areas with a 2.3 peaking factor.
Source: Kitsap County Coordinated Water System Plan (CWSP) updated for current population
estimates.
Less water ri ts
Water available
20,527
1,980,000
5,960,000
2002
4,800,000-8,000,000
Winslow Water System
The City of Bainbridge Island owns the Winslow Water System that serves an area similar to the
historic. Winslow city limits plus the area served by the Fletcher Bay well.
In 1993 and 1995, RW Beck & Associates prepared and updated a Bainbridge Island Water
System Plan in accordance with Washington State Department of Health (DOH) requirements as
part of the Kitsap County Coordinated Water System Plan (CWSP). The City is updating the city
water system plan, which will examine the service facility and demands and make updates
necessary .
Ordinance 2004-09
2004 Comp Plan Update
Page 109
Winslow drinking water capacity
Under Washington law, water purveyors including the City of Bainbridge Island, need water rights
to be assured that the city can continue to provide water to resident users. The City has "primary"
water rights for 3,456 acre-feet ;eer year and an "allocated instantaneous capacity for 2,564 gallons
per minute (gpm) or about 6010 over the city's present capacity. The Winslow system has an
estimated total yield of2,564 gallons per minute (gpm).
According to a 1995 survey by RW Beck, the Winslow Water System currently serves 3,500
equivalent residential units (ern) or a population of 6,500. At a peak day demand of 570 gallons per
dwelling unit, existing supplies could service the demand for 4,000 dwelling units or
approximately 7,900 residents - or enough to accommodate a build-out population under existing
zoning to the highest allowable density (R-28).
According to the Draft 2004 Kitsap County Coordinated Water System Plan Update, in 2000 the
Winslow Water System produced 263,630 gallons of water, selling 205,490 gallons or 78%, of
which 143,890 gallons or 55% of the productIOn was sold to residentIal users.
Year 2000 Annual
sales
Single family residential 107,280
Multifamily residential 36,610
Commercial/industrial 53,590
Irrigation 8,020
Total sold 205,490
I Wholesale 0
Non-revenue 58,150
Total 263,630
Source: Draft 2004 Kitsap County Coordinated Water System Plan (CWSP) Update
The Winslow system has an estimated total yield of 1,690,000 gallons per minute (gpm) or
2,400,000 gallons per day (gpd) from the 3 main well sources based on City records. The wells
have not experienced unusual draw downs, through recent reports indicate a higher than normal
sand content in the water from Fletcher Bay well possibly requiring installation of a sand trap.
Well Permit- Qi QA
Control
Head of Bay #IA GI-24349C 224 200
Head of Bay #2 & #3 C-5597-A 88 55
Head of Bay #4 & #5 C-7410-A 336 300
Head of Bay $6 GI-22248C 160 75
Fletcher Bay GI-20706C 1168 730
Sands Avenue # 1 G 1-25264C 336 300
Sands Avenue #2 GI-25614P 564 564
Lower Weaver # 1 C-3170-A 160 100
lower Avenue #2 & #3 C-3171-A 80 50
Commodore G 1-23678C 32 120
Commodore C-6025-A 32 20
Wing Point Well C-I0II-D 11 7
Win Point Well C-3786-A 21 13
Winslow Fox Well C-4786-A 48 30
Winslow (Surface Water C-7943 196 0
Ri t
Total 3,456 2,564
Ordinance 2004-09 Page 11 0
2004 Comp Plan Update
Capacity and yield in gallons per minute (gpm)
Source: Public Works Department
Head of the Bav wells - include 7 wells located at the west end of Wyatt Avenue ranging in size
from 6 to 10 inches in diameter, between 100 and 150 feet deep, and 40 to 100 gallon per minute
capacities. The City uses wells number 1, lA, 2, 3,4,5, and 6. Well water is pumped to a central
10,000-gallon tank at the Head of the Bay and then chlorinated and pumped mto the upper zone.
The booster pump has two 40-horsepower pumps, with a total capacity of 94 gallons per minute
(gpm) that can be used to pump into the lower zone. The pumps are not currently used.
Lower Weaver well - is located at the northeast comer of Weaver Road NW and Shepard Way
about 2,000 feet east of the Head of the Bay at a depth of 150 feet with a 12-inch casing located 95
feet below grade. The well can produce 60 gallons per minute (gpm) of water high in sulfates, and
thus of limited drinking quality. The well is used to provide contractors with non-potable water.
Sands Avenue wells - are located on the west side of Sands Avenue about midway between High
School Way NE and New Brooklyn Road. The first well, drilled in 1989, is 1,023 feet deep with an
8-inch casing rated-to produce 200 gallons per minute (gpm). The second well, drilled in 1990, is
1,055 feet deep with a 12-inch casing rated to produce 600 gallons per minute (gpm) with a water
right perfected in early 1995. Well water is clilorinated at the well sites and pumped to the high
zone storage reservoirs.
Fletcher Way well- was purchased from Kitsap County PUD Number 1. The well, drilled in 1977,
is 1,550 feet deep with a 12-inch casing, pumped to a 40,000 gallon, below-grade reservoir, and
cWorinated on-sIte. Well water is pumpea along New Brooklyn Road to tlie City's high zone
storage tanks on the High School property. Water entering the Winslow area is measured at a meter
near the intersection of Sportsman Club Road and New Brooklyn. The well also serves
approximately 90 homes in the Fletcher Bay area. .
Winslow Drinking Water Requirements
Washington State Department of Health (DOH) source production standards require a minimum
800 gallons per day (0.556 gallons per minute) per equivalent residential unit (ERU) connection
for areas to be provided with residential, commercial, and industrial potable water and fire flow.
Maximum day demand is defined as the greatest volume of per-day flow into the system for any
day of the year.
2012
8,268
9,565
1,297
16%
675
5,580,900
6,456,375
Ordinance 2004-09
2004 Comp Plan Update
Pagel 11
Winslow Distribution
Over 20 miles of 1 to 12 inch diameter asbestos cement, ductile iron, and PVC pipes distribute the
City-owned water system. Most of the system is 6-inch or less asbestos cement pipe - at least 8-
inch ductile iron and PVC pipe are used for replacement pipe projects and new system additions.
Pipe that is less than 6-inch in diameter creates pressure problems during high demand periods in
the summer. Pressure problems are most evident in the eastern part of Winslow near Wing Point
and the golf course where the pipe diameters are less than 4-inches, causing significant head-loss in
the system.
The water distribution system is divided into low and high-pressure zones. The low-pressure zone
is located generally south of Knechtel Way, running along the bay including Wing Point and the
Yeomalt Point area up to about 110 feet in elevation.
The high-pressure zone is located north of the low zone and is supplied by gravity from the
Commodore Lane -Standpipes. The high-pressure zone serves areas above 110 feet in elevation,
and based on the minimum operating level of the Commodore Lane standpipes, can serve up to
approximately 210 feet in elevation. .
The 2 pressure zones are connected by pressure-reducing values on Madison, Ericksen, and Grow
A venue that allow the high zone to fill the lower zone reservoirs.
A hydraulic modeling and operational analysis of the Winslow water system identified the
following deficiencies in the existing distribution system:
H draulic Deficiencies
Areas with elevations above 145 feet in the low zone - have pressures below the minimum 30
pounds per square inch (psi) requirement. Low zone reservOIrs would have to remain full to
maintain the 30 psi requirement in areas of the low zone with elevations between 145 to 160 feet.
Areas in the high zone near the reservoirs - drop just below the 30 pounds per square inch (psi)
requirement under 2012 peak hour demand conditions.
Isolated residential areas - are unable to meet the 1,000 gallon per minute (gpm) fire flow
requirement while maintaining 20 pounds per square inch (psi) system wide.
Isolated light manufacturing areas - are unable to meet the 1,500 ~allon per minute (gpm)
requirement while maintaining 20 pounds per square inch (psi) system Wide.
Source:2003 Wins ow Water System Engineering Program Anaysis
Winslow Storage
Three storage reservoirs equalize water flows and provide standby supply in case of source
interruption and fire flow demands. The 2 primary storage reservoirs with capacities of 1,000,000
and 1,500,000 gallons are located in the high zone next to the Bainbridge Island High School.
In addition, a 10,000-gallon reservoir is located at the Head of the Bay Well Field at an elevation
of 18 feet. The low elevation of the reservoir requires the water to be pumped from the reservoir
into either the high or low- pressure zones.
Ordinance 2004-09
2004 Camp Plan Update
Page 112
Total
Useable
Overflow
elevation
330
330
230
230
Resenroir stora e ca aci ca aci
High School 1,000,000 610,000
High School 1,500,000 0
Grand A venue 300,000 160,000
Knechtel Wa 200,000 0
Total 3,000,000 770,000
Source: Draft 2004 Kitsap County Coordinated Water System Plan (CWSP) Update
Storage Requirements
Water is stored to 1) equalize storage to provide water to meet peak flows during a maximum day,
2) provide fire flow storage to meet fire demands, and 3) standby storage in case of an interruption
in the source of supply due to power failure, pipeline rupture, or contamination.
Storage requirements are determined by the variation in daily demand as well as the capacity of the
pumps supplying the reservoirs. Storage requirements are also affected lJy the capacity of the water
source, system reliability, and the peak day fluctuations in demand.
Equalizing Storage Requirements - are typically 25% of the peak-day demand for diurnal water
demand curves and pump capacities equal to the peak-day demand. As pump capacities increase
relative to the peak demand, the equalizing storage requirements decrease. Regardless of pump
capacity, however, most water storage systems function better with some equalizing storage with a
minimum requirement usually about 10% of the peak-day demand. For Winslow's water storage
planning requirements, equalizing storage was assumed to be 20% of the peak-day demand.
Fire Flow Storage Requirements - are defined by the Insurance Service Office (ISO) represented
in Washington State by the Washington Survey & Rating Bureau. Water requirements for fire
fighting purposes are specified in the rate of flow in gallons per minute for a minimum amount of
time in minutes. The Bureau recommends storage be provided to supply the following fire flows:
RuraVtransitional areas - 500 gallons per minute for 60 minutes,
Urban/suburban areas_- 1,000 gallons per minute for 60 minutes.
Schools - 3,000 gallons per minute for 180 minutes,
Winslow - 3,000 gallons per minute for 180 minutes.
Insurance Service Office (ISO) standards are determined on a building or area basis and account
for the' specific types of construction material, floor area, and other factors. Generally, peak fire
flow requirements for buildings found within an urban area vary from 1,500 to 3,000 gallons per
minute (gpm) for 2-3 hour duration.
Standby Storage ReQuirements - are estimated to meet demands during an emergency when a
pump station is out of service, during failure of a transmission line, or during other interruption of
supply. Washington State Department of Health (DOH) requirements for storage, when there is a
single source of supply, are 800 gallons per dwelling unit. The standby storage requirement may be
reduced per dwelling unit if there are multiple sources available in the event the single largest
supply source is out of service though the minimum requirement is 200 gallons per equivalent
residential unit equivalent. Winslow's supply is sufficient to allow a storage requirement of 200
gallons per equivalent residential unit.
Ordinance 2004-09
2004 Comp Plan Update
Page 113
Comvosite Requirements - Bainbridge Island water storage requirements accounting for
Washington State Department of Health (DOH) connection standards, equalization storage
requirements, and minimum fire flow needs is 1,700,000 gallons. At the current time, Bainbridge
Island has 3,000,000 gallons of usable storage capacity or 1,300,000 more gallons than the storage
requirement for the year 2012 needs.
However, due to limited pressure problems, only 275,000 gallons of this storage capacity can be
considered actually available until or unless the City replaces the undersized distribution pipelines
in the system.
2012 Need
4,060
Winslow Water System Plan Recommendations
Many of the recommendations provided in the 1995 R.W. Beck and Associates study of the Water
System Plan have been implemented.
Additional water storage should be added to the system. The preferred locations are above the
downtown area in the low zone, and on a high knoll north of New Brooklyn Road between
Fletcher Bay and Bainbridge High School in the high zone. The recommended high zone location
would allow use of a lower profile ground-level tank rather than a standpipe or elevated tank.
An 8-inch line should be installed along Sands Avenue between the well and New Brooklyn Road.
A wellhead protection program has been developed including a hydrogeologic delineation of each
well's influence zones.
Undersized (under 6-inch in diameter) distribution pipes should be replaced to correct pressure
problems in the system and increase utilization of the existing water storage capacity and modeling
results including:
.. a 12-inch replacement line on Winslow Way between Grow and Ferncliff for downtown
business district fire flow requirements,
. a 12-inch replacement line on Madison, and
. a 8-inch replacement line service Wing Point
Water System Financinl! Costs and Charees
Under state law, water utilities may charge new service hookups the full cost of the connection
plus a system "participation fee" to purchase a share of the capital cost of the system.
Ordinance 2004-09
2004 Comp Plan Update
Page 114
Rockaway Beach Water System - Taylor Avenue Well
In 1995 the City acquired a water system providing water to 65 residences at Rockaway Beach. As
part of the acquisition, the City replaced the system's original well in a Superfund site. The
replacement system was provided by the City with funding from a local improvement district
(LID) and grants from the US Environmental Protection Agency (EP A) and Washington State
Department of Ecology (DOE).
The Taylor Avenue Well (permit #GI-26704P) has rights for 34 acre-feet per year (Qi-afy) and is
currently pumped at 80 gallons per minute (QA-gpm).
All Other Water Systems
The existing water systems were presumably established under state and local guidelines and for
the most part, provide high quality water at an adequate pressure and flow rate.
Because of the number of systems on Bainbridge Island, it is concluded that there are systems on
the Island that may not be in compliance with Department of Health requirements, and may not
meet minimum requirements of pressure and reliability. It is also concluded that many 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.
Ordinance 2004-09
2004 Comp Plan Update
Page 115
SANITARY SEWAGE DISPOSAL CONDITIONS
AND FUTURE NEEDS
Existin~ Facilities
Bainbridge Island has one treatment plant serving the Winslow service area in addition to a
package wastewater treatment plant which serves Messenger House, a nursing home and the
Kitsap County Sewer District No.7 treatment plant, servicing customers within the District's
service area at the south end of the Island. The City also serves a sewer service area at the south
end through an agreement with District No.7. All other areas of the Island are served by on-site
disposal systems.
Winslow
Bainbridge Island has a wastewater treatment plant that provides secondary treatment for the
Winslow area.
Co ectlOn
Treatment
LOS
The sewer collection lines and pumping stations have adequate capacity to convey projected
wastewater requirements to the treatment plant through the year 2012 assuming the Winslow area
grows at a 6% annual rate. However, wet season pumping data should be continuously collected to
determine the impacts on peak hourly rates of wet weather, differing area population growth rates,
and the aging of the collection system.
The Winslow wastewater treatment plant is a secondary treatment facility designed to provide
sewage treatment for an effective population of 10,000 residents.
The plant was upgraded in 1996 to meet design capacity treatment and allow some expansion
beyond. The City also added emergency generators and telemetry to the system to reduce demands.
Pump stations have also been taken out of service, where possible to further reduce system costs.
The City system has seasonal stormwater inflow and infiltration problems, reducing treatment
capacity. The City acquired a television camera in 1997 to monitor inflow locations, and initiated
an effort to correct infiltration problems in the years following. Subsequent improvements have
reduced the severity of inflow peaks.
Kitsap Sewer District No. 7
Kitsap County Sewer District No.7 was established in the early 1960's to take over the sewer
system built by the military in 1900. In 1997, the District completed a secondary sewage treatment
facility with design capacity of over 400 connections, an outfall, and major interceptor lines. The
Ordinance 2004-09
2004 Comp Plan Update
Page 116
District Service Area includes approximately 450 acres serving 68 dwelling units on the south end
of Bainbridge Island in the Fort Ward area, in addition to providing treatment to Lynwood Center
and other southend properties through an interlocal agreement with the City of Bainbridge Island.
According to the District's 1990 Comprehensive Sewer Plan, most of the collection system was
undersized under Washington State Department of Ecology (DOE) standards with maintenance,
location, and infiltration/inflow problems. An interim treatment plant was built in 1987 consisting
of on-line septic tanks and a chlorination-detention tank located next to the outfall into Rich
Passage. The facility was not adequate to provide secondary treatment in accordance with
Washington State Department of Ecology (DOE) requirements. Consequently, the District was
under order by the Superior Court of Washington to construct a secondary treatment plant.
In 1997, the district built a new treatment plant, a new outfall, and major interceptor lines that can
serve approximately 400 dwelling units equivalent to a population of 1,061 residents. Under an
inter-local agreem~nt with the City, the system was extended in 1998 to connect the Lynwood
Center area where the Kitsap County Health District had deemed prior sewage disposal to be
inadequate.
District 7 is updating its comprehensive plan to include:
.
Wastewater treatment plant upgrade to increase reliability and decrease maintenance and
operations costs,
Continuing program to reduce stormwater inflows,
Access to public records as a public facility, and
Coordination with the city on available wastewater treatment capacity.
.
.
.
The existing sewer system consists of about 6,850 feet of 6-inch diameter and 8-inch diameter
main lines and an additional 2,000 feet of 4-inch diameter laterals. According to the District's 2003
Comprehensive Plan, some of the collection system remains undersized since the upgrade of the
plant, based on Washington State Department of Ecology Standards.
South End Sewer District
The City entered into an agreement with Sewer District #7 to provide sewer treatment for specific
south end properties located outside the District's service area. The City defined a service area and
performs operation and maintenance for approximate total of 80 hook-ups to properties in Emerald
Heights, North Pleasant Beach, Blakely School, Rockaway Beach, and Point White. The utility
extension from the District #7 plant is being constructed under a local improvement district
(LID).The City maintains a lift station at Lynwood Center as part of the operation to this service
district.
Ordinance 2004-09
2004 Comp Plan Update
Page 117
All Other Areas of the Island
The remaining population of the Island is served by on-site sanitary sewer disposal systems. Kitsap
County estimates roughly 4,600 on-site septic systems are on the island, of which an estimated
11 % may be failing or near failing, causing contamination of surface and ground water.
New on-site systems are built to Kitsap County Health District requirements. The Health District
currently requires a minimum lot size of 12,500 square feet to qualify for on-site septic drain fields.
The District requires additional treatment plants or expansion of current service areas for densities
above 3 dwelling units per acre though community operated drain fields may be allowed under
certain conditions.
Ordinance 2004-09
2004 Comp Plan Update
Page 118
Seweral!e Facilities Analvsis and Future Needs
Projecting quantities and loadings of wastewater is usually done on a per capita basis for domestic
flows. If industrial users are anticipated, specific limitations of the type of wastes allowed into the
system are usually set. Pretreatment of the industrial flows may be required to keep the parameters
of the wastewater within acceptable levels (Le., domestic). Industrial flows can be couched in
terms of population equivalents.
Winslow Wastewater Treatment Facility
According to the 1992 Facilities Plan, the existing sewers have ample capacity to convey the
projected wastewater to the treatment plant through the year 2012. This capacity is available
because the minimum size for sewers is 8 inches in order to prevent plugging and allow access for
servicing equipment. One sewer in Basin 2 was identified where the projected peak flow is 6 %
greater that the se~er capacity. However, the planning methods used for this analysis were
conservative and it is likely that the future peak flow will never exceed the capacity of the sewer.
Pumping Stations
The capacities of each of the pumping stations were compared to the existing and projected flows
they are required to pump. During wet weather periods, the peak hourly flow rates will exceed the
daily average flow rate by a factor of approximately 2 to 1 based on examination of plant flow
charts.
Present indications are that the capacity needs of the system can be met through the year 2012 with
the existing pump stations. However, wet season data must be continuously kept to provide
ongoing information related to differing growth rates and deterioration of the collection system.
Sewage Treatment Plant
The existing treatment plant was designed to accommodate an effective population of 10,000. The
Brown and Caldwell study determined that the plant is functioning at about 30% to 35 % of its
design capacity. An upgrade of the treatment plant to bring it up to design capacity was completed
in 1996.
The 2002 Esveldt Reliability and Redundancy Engineering Report recommended upgrades to the
Winslow plant. The Washington State Department of Health (DOH) renewed the Winslow
Wastewater Treatment permit in 2003. The City has installed new effluent pumps and improved
treatment by installing an ultraviolet treatment disinfection system in order to comply with lower
chlorine residual values of the Department of Ecology NPDES permits and as recommended by the
engineering report.
Future Needs
The existing sanitary sewers in the Winslow system have adequate capacity to accommodate a
projected increase in population to 7,112 by the year 2012. This growth is anticipated within the
historic Winslow area which is generally consistent with the existing sanitary sewer service area.
Wastewater flow projections are developed based on the projected population increase in the
service area and compared to the capacity of the existing trunk sewers and pump stations. Basin 2
was identified as potentially having flows of 6 percent greater than the sewer capacity. However,
the planning methods are conservative and it is likely that the future peak flow will never exceed
the capacity of the sewer. See Appendix B for complete details of the amendment to wastewater
Ordinance 2004-09
2004 Comp Plan Update
Page 119
facility plan.
The Winslow Treatment Plant was required to upgrade the plant to meet Washington State
Department of Health (DOH) standards for reliability and redundancy. The 2002 Esveldt
Reliability and Redundancy Engineering Report recommended upgrades to the Winslow plant.
The Washington State Department of Health (DOH) renewed the Winslow Wastewater Treatment
permit in 2003. Further improvements may need to be completed as recommended in the Esveldt
report. Such improvement projects are presented annually in the six-year Capital Facility Program
(CFP).
Kitsap Sewer District No.7
The Kitsap County Sewer District (KCSD) No.7 analyzed the sewer system and concluded that
hydraulic capacity exists to serve the current customers, but that problems of maintainability,
location and infiltration/inflow exist.
Sewage Treatment .
Existing treatment is available through the septic tanks and chlorination system. Under order by
the Superior Court of Washington to construct a secondary treatment plant as required by the
Washington State Department of Ecology (WSDOE), the District completed an upgrade in 1997.
All Other Areas
There is no data on the reliability or proper functioning of the private, on-site disposal systems.
Policy SSP 1.6 would establish a program that would require regular maintenance of on-site
systems and, in so doing, would develop an inventory of these systems.
Figure 2 - Winslow Sanitary Sewer System
Figure 3 - Kitsap County Sewer District No. 7
Ordinance 2004-09
2004 Camp Plan Update
Page 120
SURFACE WATER CONDITONS
Surface water drainage (stormwater) is generated when rain fall encounters hard or impervious
surfaces. Most stormwater is intercepted and evapotranspirated by vegetation in a natural state.
Plant root systems hold the soil in place and absorb most excess moisture.
The amount of storm water runoff generated from road, roof, parking lot, and other impervious
surfaces created by urban developments can be of a higher volume than what existed in the natural
state. Peak flows that follow immediately after a storm can be much greater than existed when the
land was in a natural state with vegetative cover.
The volume of storm water generated by impervious surfaces has tremendous force and can cause
erosion if allowed to flow into natural drainage systems provided by streams and wetlands.
Stormwater can loosen soil and stream banks in the natural drainageway causing suspended
particulates to flowjnto other bodies of water.
Excessive storm water runoff may cause streams to expand and qverflow, creating flooding
conditions on adjacent lands. Any sedimentation will eventually drop as the water slows down and
loses its force, causing siltation and the degradation of wetlands, particularly of salmon spawning
habitat.
Stormwater runoff from driveways and parking lots also transports pollutants such as gas and oil as
well as residues from pesticides, fertilizers, and other chemicals used in lawn care, as well as
animal waste in agricultural areas. Non-point source pollution accumulates as water runs over hard
surfaces and is carried to the nearest body of water.
Watersheds
Surface water flows from high geographic points to lower elevations collecting in streams and
wetland systems within the watersheds of the Island. Watershed boundaries are determined by
Island topography where ridgelines define the separate boundaries. Bainbridge Island is composed
of 12 basins and 45 sub-basins that drain an area of approximately 17,620 acres.
Watershed
Sub-
basins
Acres
Agate Passage 1 590
Blakely Harbor 3 1,350
Eagledale 4 1 ,180
Fletcher Bay 5 2,190
Gazzam Lake/Crystal Springs 3 850
Manzanita Bay 4 2,090
Murden Cove 4 2,100
North Eagle Harbor 7 2,100
Pleasant Beach 3 1,530
Port Madison 3 1,610
South Beach 2 720
Sunrise 3 1,310
Total (12 basins) 45
Source: 2000 Bainbridge Island Level II Assessment
17,620
Ordinance 2004-09
2004 Comp Plan Update
Page 121
The watersheds feed into 43 miles of mapped streams that generally lack reliable hydrologic data.
It is estimated that about 50% of the streams are perennial and the other 50% are intermittent.
Land cover
The dominant land cover on the Island is tree-covered, amounting to 12,849 acres or 73% of the
Island - which includes home sites when the cleared area is less than 1 acre. Grass and shrub cover
account for 20% of the Island land cover, located in valley bottoms and also on small parcels in all
watersheds. Developed areas with impervious surfaces cover about 6% of the Island, mostly in
Winslow town center.
Acres
Percent
Land use
Residential
Commercial/light manufacturing
Agricultural
Forest land
Recreation land
Transportation corridors
Public facilities
13,002
325
1,155
385
1,300
1,084
350
17,601
75%
2%
6%
2%
7%
6%'
2%
100%
Total
Source: 2000 Bainbridge Island Level II Assessment
Storm Drainaee Conditions -Existine Facilities
Island watersheds and sub-basins are drained by a combination of natural stream channels,
roadside ditches, and piped collectors in the Winslow urban area. The existing system removes
stormwater but is subject to erosion, siltation, and water quality degradation problems. The
incomplete or obstructed nature of the natural drainage system has also created a number of wet
areas and flooding of private property and failing roadways.
Stormwater is managed in the Winslow area by a combination of piped collectors, roadside
ditches, and natural stream channels. Analysis previously conducted for the City of Winslow
(Storm Water Drainage Plan, 1985) concluded that the 1985 build-out scenario for Winslow would
accommodate the 2012 population of 7,112 with the improvements recommended at that time.
Except for the primarily piped system in the Winslow area, all other watersheds and sub-basins on
the Island are drained by natural streams and roadside ditches. A complete description of
Bainbridge Island watersheds and sub-basins can be found in the City of Bainbridge Island Surface
Water ManagementPlan, by Kato and Warren (2001).
The following drainage problems have been identified as a result of the Island's natural stormwater
drainage management system:
. Erosion of private property,
. Erosion of drainage-ways,
. Siltation on the beach, in wetlands, and in the streams,
. Slides caused by misdirected runoff,
. Excessive wetness due to springs or lack of drainage,
. Steep banks with subsequent erosion risks, and
Ordinance 2004-09
2004 Comp Plan Update
Page 122
. Blocked or incomplete drainage-ways.
The largely natural drainage system that has been developed on the Island is labor intensive,
requiring a great deal more routine maintenance that would be required of a more highly developed
piped system. City crews are hard-pressed to provide adequate drainage maintenance to the more
than 120 miles of roadways and hundreds of road culverts and driveway crossings in the system.
Storm Drainaee Requirements
Storm water runoff and flows are calculated as a function of the watershed area, the amount of
impervious surface, the type of collection system in place, soils types, topography, and storm
intensity and duration. Normally, as development occurs, the amount of impervious surface area
increases and the collection of runoff can be more efficient. Runoff rates, if not controlled, will rise
dramatically, and can be 10 times more than that of a natural, undeveloped site.
Rainfall events, d~tention and piping design criteria, and pollutant controls determine storm
drainage protection capacity requirements. Storm drainage capacity estimates must account for the
use of natural systems versus piping alternatives, the sensitivity of na~al systems, desired levels
of protection against flood damage, and protection of the receiving waters quality.
The City updated the City of Bainbridge Island Surface Water Management Plan (formerly the
1985 Winslow Storm Water Drainage Plan) to include the entire Island and consider water quality
as well as water quantity issues by Kato & Warren in 2001.
Existine Capacity
Capacity for storm drainage systems is established by selecting rainfall events, detention and
piping design criteria, and pollutant controls and thereby establishes the protection levels. As an
example, the criteria selected may be a detention volume to hold a 25-year storm event. The level
of protection would be surpassed when the 25-year storm volume is surpassed and the detention
facilities do not have enough capacity to hold the storm runoff.
Capacity determinations are made based on criteria such as use of natural systems versus use of
pipes, sensitivity of natural systems, desired levels of protection against flood damage, and
protection of receiving water quality.
A detailed, hydrologic study was performed as part of the 2001 Surface Water Management Plan
and produced data on the natural storm drainage release rates. These data were used to develop the
requirements of Ordinance 98-31 which requires the control for stormwater runoff from new
development and sets the level of service.
In those sub-basins where pipelines and other capital improvements are planned or constructed, the
ordinance allows a reduction in storage and an increase in the runoff rate, provided the
development contributes monies representing the property's share of downstream drainage
facilities.
In addition to the water quantity issues brought up by the Department of Ecology, there are also
water quality best management practice guidelines. These guidelines are directed toward the
development of bio-filtration channels for sedimentation and erosion control practices. There are
also recommendations as to regular maintenance of these facilities.
Ordinance 2004-09
2004 Comp Plan Update
Page 123
STORM AND SURFACE WATER MANAGEMENT
FUTURE NEEDS
Future Needs
Runoff and flow calculations are a function of the watershed area, the amount of impervious
surface, the type of collection systems in place, soils type, topography, and storm intensity and
duration. Normally, as development occurs, the amount of impervious surface area increases and
the collection of runoff can be more efficient. Runoff rates, if not controlled, will raise
dramatically. In fact, amount of runoff from a developed parcel with significant impervious area
can be as much as ten times that of a natural, undeveloped site. Guidelines that require individual
or regional detention or infiltration can reduce runoff impacts.
Land use and development density affect the drainage volumes and rates. Flows can be modeled
for various storm events using mathematical formula that account for land use types. For various
build-out scenarios.. runoff impacts can be developed.
Conceivably, Bainbridge Island could develop a dependency on privat~ly installed and maintained
storm water detention facilities that discharge into natural systems. This is much like the concept of
privately owned and operated, on-site, septic drainfields in place of collection and treatment of
sanitary sewer flows. In this approach, capital requirements would focus on the downstream
sections and, particularly, at roadway crossings and under other filled drainageways. Development
in some watersheds may be more organized than others and structural facility needs could
intensify. In addition, bypass system pipes that route high velocity and high volume runoff around
natural systems may be required.
Storm Drainage Requirements
Rainfall events, detention and piping design criteria, and pollutant controls determine storm
drainage protection capacity requirements. Storm drainage capacity estimates must account for the
use of natural systems versus piping alternatives, the sensitivity of natural systems, desired levels
of protection against flood damage, and protection of the receiving waters quality.
A detailed, hydrologic study was performed as part of the 2001 Surface Water Management Plan
and produced data on the natural storm drainage release rates. These data were used to develop the
requirements of Ordinance 98-31 which requires the control for storm water. runoff from new
development and sets the level of service. Ordinance 98-31 allows a reduction in storage and an
increase in the runoff rate in sub-basins where pipelines and other capital improvements are
planned or constructed - provided the development contributes monies representing the property's
share of downstream drainage facilities. Stormwater Ordinance 98-31 defines policies that
establish exacting performance standards governing the release of storm water runoff, fertilizer,
herbicide, and other pollutants from ground improvements, oils, greases and other pollutants from
impervious surfaces. The standards control adverse impacts associated with land development and
reduce surface and ground water pollution potentials under best management practices and
assigned maintenance responsibilities for private and publicly owned storm water management
facilities. Revisions to the storm water ordinances are currently underway to address the amended
Washington State Department of Ecology stormwater management manual.
Development plans and project funding for stormwater system improvement projects as
recommended in the 2001 Surface Water Management Plan, are presented annually in the six-year
Capital Facility Program (CFP).
Ordinance 2004-09
2004 Camp Plan Update
Page 124
The City's Department of Planning and Community Development has completed an inventory of
natural features on the Island including streams, lakes, wetlands, steep slopes, and slide prone
areas. These sensitive areas are an important aspect of the natural drainage system.
Figure 4 - Watersheds of the City of Bainbridge Island
Ordinance 2004-09
2004 Comp Plan Update
Page 125
Section 37. The Introduction, Goals and Policies, Level of Service, Existing Conditions
and Deficiencies, Future Needs, Financing Plan and Figures (pages 1 through 53) of the
Transportation Element are repealed:
Section 38. A new Transportation Element is adopted as follows:
'T:RA: ':: :" ",N""::;'S;"':;;;~:~~(;;:/;;':;:'A~::'~:,;?fl:<~N'\ ~~{~I'~;; ';;Mh'If#N:;:,~i." .,
.' ,>' ~:; " "_,,':';:;;:, - - _13~}~'W:; ,'\ ,i.,:::._ _ ,;:_I~;i;-W:<._:\~tEi:~ l:ii':. ;-E~,_:'t;:il':::~\::,~j_:/'
-ff ',;.".,: ~- -;:":,::,,,;. " . ~~ ~';. - :,,'
--~: ;.",;.'
INTRODUCTION
The most significant transportation priority for Bainbridge Island residents is the desire for a
convenient and safe transportation system which strongly emphasizes alternatives to the
automobile (transit, bicycle, and pedestrian) and yet retains the character of the Island - narrow,
winding roads traversing forested, agricultural, and shoreside areas.
The 2004 update of the Transportation Element was guided in part by a Steering Committee.
Members of the Island-Wide Transportation Study (IWTS) Steering Committee included a
former mayor; a former City Council member; representatives from Team Winslow and the
Municipal League; and citizens representing bicycling, traffic engineering, and community
interests. Following an initial organization meeting, the steering committee was expanded to
include representatives from Kitsap Transit, Bainbridge Island Fire Department, School District,
Kitsap County, Suquamish Tribe, the Washington State Department of Transportation, and
Washington State Ferries. The Steering Committee was responsible for the identification of
transportation issues, update of the goals and policies, development of level of service standards,
and recommendations for major transportation issues. A full account of the Steering Committee
recommendations for future study and actions can be found in the Island-Wide Transportation
Study (IWTS), February 2004, which serves as the basis for the State requirements for this
Element.
The draft goals and policies of the IWTS were reviewed by the Planning Commission in May
2002, and forwarded to the City Council's Public Works and Transportation Committee and
Land Use Committee. The draft study was completed in July 2003 and shared with the Planning
Commission and City Council in a joint workshop. The Council appointed a working group
made up of three Council members and three Planning Commissioners to review the study.
Several changes were made to clarify and augment the study. The study then went back to
Council for public review and was accepted by the City Council on February 4,2004.
The IWTS addresses and provides a detailed analysis of a variety of transportation issues
affecting the community. Elements of the IWTS have been extracted to serve as the
Transportation Element update to the Comprehensive Plan.
Ordinance 2004-09
2004 Comp Plan Update
Page 126
During development of the Element, conditions and issues that face the City of Bainbridge
Island's transportation system were identified. Of primary concern was how future growth will
affect the community, and how to preserve the character and livability of Bainbridge Island as
traffic growth continues and the need for transportation improvements increases.
The following list briefly describes some of the community's transportation issues:
. Environmental impacts - The City has many environmental qualities that should be
maintained. The community is concerned that these resources may be adversely
impacted or lost to future roadway expansion and widening.
. Neighborhood traffic impacts - The growth of traffic on Bainbridge Island, particularly
in the Winslow sub-area, has resulted in more vehicles on the street system. Increasingly,
these impal;ts are felt on streets adjacent to major corridors. Residents of these streets
feel that the impacts of high traffic volumes and travel speeds need to be controlled to
maintain the quality of the neighborhood.
. Roadway standards - New roadways and reconstruction of older roadways must be
built to an assigned set of engineering standards to ensure safety and mobility. These
include the construction of appropriate roadway shoulders, along with the construction of
bicycle and pedestrian facilities.
. Roadway classification - The City classifies its roadways to describe the function of the
roadway (volumes, types of vehicles, etc.), to prioritize the allocation of resources for
improvements, and for securing certain types of funding for operation and maintenance.
. Roadway congestion - Traffic on Island roadways, particularly on SR 305 and within
Winslow, can result in a variety of other issues such as making it difficult to get around
by automobile, traffic spilling over into adjacent neighborhoods, and making it more
difficult for transit and non-motorized users.
. Roadway connectivity - Bainbridge Island's roadway system has few roadways that
contribute to the development of a "network." Many parts of the Island have only a
single way to access the area, such as the Point White/Crystal Springs or Agatewood
areas. Mobility, emergency access, emission reduction, and circulation can all be
improved with better roadway connections.
. Roadways and intersections of concern - There are some Island locations where there
has been a history of or a potential for accidents. The perception of these locations as
unsafe may also reduce use by non-motorized users who want to avoid a roadway or
intersection that is uncomfortable for walking or bicycling.
. SR 305 - A focus of the community's concerns surrounds the future of the SR 305
corridor. While the existing configuration of two lanes is adequate during off-peak
hours, peak hour traffic coupled with surges from exiting ferry activities have resulted in
high levels of congestion at multiple locations. This affects Island residents and off-
Island commuters using the corridor, and increases the difficulty of cross-Island travel.
Ordinance 2004-09 Page 127
2004 Comp Plan Update
· Ferry traffic - Congestion related to ferry loading and unloading creates surges on
Island roadways every 45 to 50 minutes. In the afternoon hours, impacts from ferry
activities can snarl area traffic and cause traffic delays. The effects of ferry traffic are
greatest on roadways nearest the ferry terminal and diminishes with distance except along
the SR 305 corridor.
· Transit service - Kitsap Transit has worked hard to improve transit services throughout
the Island. The community would like to see if transit could be expanded during non-
peak hours to outlying areas and provide improved service levels in areas such as
Winslow to aid in downtown circulation.
Ordinance 2004-09
2004 Comp Plan Update
Page 128
GOALS AND POLICIES
TRANSPORTATION VISION
Provide a safe, dependable, properly maintained, fiscally and environmentally responsible
multimodal transportation system that is consistent with and supports the other Elements of the
Comprehensive Plan. The transportation system should respect community character,
environment, and neighborhoods; improve mobility and safety; minimize impacts from regional
facilities; and promote use of transit and non-motorized travel. The system needs to be
regionally coordinated, adequately financed, and community supported.
GOAL 1: COMMUNITY CHARACTER
Develop transportation improvements that respect the Island's natural and historic
character and are consistent with both the short- and long-term vision of the
Comprehensive Plan.
TR 1.1 Scenic resource protection
Protect the Island's unique scenic resources along non-urban transportation corridors; require
broad greenbelts and trees to screen parking and unwanted views and buffer noises between the
roadway and development as identified in the Land Use Element.
TR 1.2 Road development guidelines
Encourage the appearance of winding, narrow roadways serving less densely developed areas
through the provision for and retention of appropriate roadside vegetation and trees, and
following of the natural topography whenever possible.
TR 1.3 Street design guidelines
Reflect the more urban nature of roadways within the Winslow Planning Area and within
neighborhood centers by encouraging, where appropriate:
. crosswalks and sidewalks
. street trees and landscaping
. traffic-calming strategies and devices
. on-street public parking
. accommodations for transit stops and facilities
. bike facilities
. street lighting
Ordinance 2004-09
2004 Comp Plan Update
Page 129
TR 1.4 Street lighting guidelines
Minimize the use of street lighting outside of Winslow, except to address safety issues and where
identified by the community in special planning areas.
TR 1.5 SR 305 scenic character
Retain the scenic character of SR 305 by minimizing the placement of signs, discouraging new
access points, and maintaining vegetative buffers.
GOAL 2: ENVIRONMENT
Develop, operate, and maintain a transportation system that respects the natural
environment, including the quality of the Island's air, water, and natural habitat.
TR 2.1 Environment sensitivity
Minimize impacts of road construction on environmentally sensitive areas; minimize damaging
runoff and pollution from road use and maintenance; implement programs that encourage the
planning of low-maintenance, vegetated groundcover and trees along roadways.
TR 2.2 Utilities
Where possible and consistent with the Utilities Element, the City shall require the
undergrounding of overhead utilities to reduce the need for removal and maintenance of native
vegetation.
TR 2.3 Air quality
Develop transportation plans and programs that improve traffic flow and consider the impact to
air quality and support county, regional, and state air quality goals and requirements.
TR 2.4 Wildlife corridors
Minimize transportation impacts to identified wildlife corridor crossings so that adequate
linkages for animal movement between habitat areas are maintained.
GOAL 3: NEIGHBORHOODS
Consider the special needs of neighborhood safety, pedestrian and bicycle facilities, transit
use and facilities, and traffic flow in the development of transportation improvements that
affect neighborhoods.
TR 3.1 Neighborhood cut-through traffic
Protect residential neighborhoods from the impacts of cut-through motor vehicle traffic by
providing appropriate connecting routes and impact-minimizing design features for new
developments and applying appropriate traffic-calming measures to control vehicle volumes
while maintaining emergency vehicle response times.
Ordinance 2004-09
2004 Camp Plan Update
Page 130
TR 3.2 Neighborhood street development
Establish roadway standards to enhance the character of neighborhoods by providing appropriate
street width, lighting for safety, curb cuts, pedestrian and bicycle facilities as consistent with the
Comprehensive Plan.
TR 3.3 Neighborhood circulation
Develop a circulation and access management plan for neighborhoods and Neighborhood
Service Centers so that as properties develop, connectivity and circulation are maintained, cut-
through vehicle traffic is discouraged, and appropriate speeds are encouraged, while maintaining
access and response times for emergency vehicles.
TR 3.4 Winslow street visualization plan
Develop a comprehensive physical and visual street plan for Winslow that addresses the
character and needs of each street, the interface between streets, and the influence of adjoining
land use development on street character, including amenities and other design features.
GOAL 4: OPERATIONS AND MOBILITY
Improve the operation and mobility of the Island's transportation system through the
identification and implementation of system improvements that maintain Level of Service
(LOS) standards and meet the Comprehensive.Plan goals.
TR 4.1 Road development guidelines
Construct, modify, and maintain roads to: I) meet safety needs, 2) provide for transit, pedestrian
travel, and bicycling, 3) correct LOS deficiencies, 4) improve connectivity and emergency
response times, and 5) meet Comprehensive Plan goals, including Goal I and supporting policies
that address community character.
TR 4.2 Street design guidelines
Set street design guidelines that use universal design principles; establish street widths; reflect
the desired vehicle speeds; accommodate bicycle, pedestrian, and transit uses; and provide for
emergency vehicle access while also considering community character.
Discussion: The use of "universal design principles" refers to design options such as
meandering paths or extending ramps to mitigate curb cuts and grade changes in
walkways.
TR 4.3 Roadway classifications
Set appropriate roadway classifications that consider designated land uses and the intent of the
Comprehensive Plan, especially Goal I and supporting policies that address community
character; and consider vehicle usage and traffic operations, such as bicycle, pedestrian and
transit uses that are supported by the LOS standards established in this Element.
Discussion: Roadways are classified by use and then each classification is assigned a
level of service standard (see policy TR 4.4), which in turn is used to assess the impacts
of new development (see policy TR 4.6) on roadway function.
Ordinance 2004-09 Page 131
2004 Comp Plan Update
TR 4.4 Roadway LOS
Establish Level of Service standards for all Bainbridge Island transportation facilities, including
non-motorized, using the best industry standards that measure all modes of travel, the
performance of the existing transportation system, quantify the traffic impacts of future
development, and prioritize improvements to the transportation system.
Discussion: Any effort to establish LOS standards for City transportation facilities must
incorporate State and County facilities, the LOS designations for those facilities, the
integration of the traffic patterns on those facilities and impact on City transportation
facilities. The City will actively work to create the highest degree of consistency
between LOS standards for all transportation systems and facilities. See also: Policy 6.1
(SR 305 LOS) and Policy 8.1 (Kitsap County Transit LOS).
The City will research tools for establishing industry-accepted LOS standards, including
the current edition of the Institute of Transportation Engineers (ITE) System Manual, and
work toward the highest degree of integration for all modes of transportation when
developing level of service standards.
TR 4.5 Concurrency management
Follow the City's concurrency ordinance and determine the expected transportation impact of
proposed development on the available capacity of the roadway system. Before issuing a
"concurrency certificate" or development approval for any proposed land use application, the
City shall: a) ensure compliance with State Law which requires that there are adequate
transportation facilities or that improvements are scheduled and funded for completion within 6
years, and b) address the cumulative transportation impacts of future development.
Discussion: The Public Works Department is responsible forthe review of traffic studies
that analyze the anticipated impacts for proposed land use actions. If the development
will adversely affect the established LOS, the City Engineer will apply the required
conditions necessary for infrastructure improvements that mitigate the anticipated
impacts of the development. These conditions would then become part of the
requirements for project approval.
Cumulative impacts are the impacts on the environment which result from the
incremental impact of the action when added to other past, present and reasonably
foreseeable future actions. Cumulative impacts should be considered as part of the
concurrency review.
TR 4.6 Access management
Develop access management programs to control the location and number of curb cuts.
TR 4.7 Truck corridors
Designate truck corridors to allow the efficient movement of goods and freight within the
transportation system.
Ordinance 2004-09
2004 Comp Plan Update
Page 132
TR 4.8 Island mobility
Identify and support improvements that will improve connectivity across SR 305.
TR 4.9 Acquisition of transportation facilities
Secure easements or other land dedication for transportation facilities through development
mitigation, donation, tax incentives/exception programs, or direct acquisition.
TR 4.10 LOS reassessment
If the adopted LOS standard cannot be maintained due to funding shortfalls, conflicting priorities
with other policies, or other events, the City shall evaluate and revise the adopted LOS standard,
restrict land use development as required, or institute other actions consistent with LOS
reassessment strategy described in the Island-Wide Transportation Study.
GOAL 5: SAFETY AND MAINTENANC,E
Support the safe use of the transportation system by maintaining the roadway system and
including necessary safety enhancements in transportation improvement projects.
TR 5.1 Maintenance is a priority
Include transportation projects in the Capital Facilities Plan and adequate operation and
maintenance funding in the City budget to ensure that the transportation system infrastructure is
maintained in a safe and usable condition.
TR 5.2 Street lighting guidelines
Provide street lighting to address safety issues. Light design and placement should minimize
glare and light spillage, and maximize visibility of pedestrians and bicyclists.
GOAL 6: SR 305 I THROUGH TRAFFIC
Coordinate with WSDOT to ensure that state facility improvements meet the goals of the
Bainbridge Island transportation vision and Comprehensive Plan, and minimize impacts to
the local transportation system.
TR 6.1 SR 305 LOS standard
Adopt the Level of Service standard for SR 305 and the adjoining City facilities. Work with the
State to facilitate the flow of traffic Island-wide, including commute traffic and cross-Island
traffic and integrate the state-owned facilities into the City transportation plan.
TR 6.2 Bridge restrictions to Island
Oppose any proposal to construct any new bridges to Bainbridge Island.
Ordinance 2004-09
2004 Comp Plan Update
Page 133
TR 6.3 SR 305 improvements and safety
Support incremental improvements for SR 305 to reduce congestion and improve safety for
through traffic, local traffic, non-motorized and transit users. These improvements should
particularly address congestion and safety of cross-highway vehicle and non-motorized traffic
and provision of a safe bicycle corridor along all sections of SR 305.
TR 6.4 Park-and-Ride facilities
Encourage the development of park-and-ride lots near commuters' point of origin throughout
Kitsap County in order to minimize traffic impacts along SR 305.
TR 6.5 Impact to State facilities
Evaluate the Comprehensive Plan's land use designations to assess their impact on all roadways,
including State-owned facilities, and include as part of the Transportation Element.
TR 6.6 Improvements to off-Island State facilities
Encourage off-Island projects that will mitigate on-Island congestion to SR 305.
GOAL 7: FERRY SERVICE
Coordinate with WSF and other possible providers to operate ferry service to Bainbridge
Island that meets local service and commuter needs, coordinates with all travel modes, and
provides equitable regional service.
TR 7.1 Parity of ferry services
Support efforts to expand or create new ferry services from Bremerton, Kingston, and
Southworth in order to equalize the service of each ferry route and create more balanced peak
hour travel times, and provide ferry capacity close to user's origin and destination.
TR 7.2 Ferry priority
Support the ferry system efforts to maximize the convenience of pedestrian, bicycle, transit, and
HOV use on ferry runs through providing priority status and improvement to encourage non-
SOY use.
TR 7.3 Passenger ferry options
Encourage innovative service options for foot ferry passengers such as water taxi and passenger
ferry service to and from various areas of the Puget Sound region.
Ordinance 2004-09
2004 Comp Plan Update
Page 134
GOAL 8: TRANSIT
Encourage the use of public transit and encourage transit agencies to operate and maintain
local and regional transit service and facilities that reduce the need for single-occupant
vehicles and support the needs of transit-dependent users.
TR 8.1 Transit LOS
Encourage a transit LOS standard that identifies deficiencies and program improvement needs as
defined in the Kitsap Transit Plan.
TR 8.2 Public transit ferry access
Support actions from Metro, Sound Transit, Kitsap Transit, or other appropriate agencies that:
. Improve public transit from the Seattle ferry terminal directly to popular destinations in
the Seattle metropolitan area, as well as Sea- Tac Airport.
. Promote the availability of public transit service to ferry oommuters and for special
events.
. Evaluate how to improve the utility of the waterfront streetcar line for ferry commuters.
. Adjust bus schedules to meet ferry arrival and departure times and improve service
throughout the day and during evening hours.
. Provide information on the ferryboats and at the ferry terminals regarding transit options.
TR 8.3 Multiple-use park-and-ride lots
Encourage park-and-ride use of multiple-use lots such as those located at churches, near transit
connections or other locations and promote the use of those lots to Island residents.
TR 8.4 Expansion of Island transit
Support the expansion of Island transit services that target:
. Ferry commuters;
. Non-ferry commuters, including Island employees;
. Connection of High School Road and Winslow Way;
. Non-commuter travel to other Kitsap County service and employment areas;
. Intra-Island connection to Neighborhood Service Centers and residential areas; and
. Transit dependent access, including addressing the access needs of youth, the elderly and
disabled transit users.
GOAL 9: NON-MOTORIZED
Facilitate the implementation of the goals and policies of the City of Bainbridge Island
Non-Motorized Transportation Plan (NMTP).
TR 9.1 Non-Motorized mobility and connectivity
Provide a non-motorized transportation system, consistent with the policies of the NMTP Goal I,
which effectively serves the needs of pedestrian, bicycle, and equestrian users and encourages
Ordinance 2004-09 Page 135
2004 Comp Plan Update
non-motorized travel and provides a continuous network of attractive sidewalks, footpaths,
multi-purpose trails, and bikeways throughout the Island that are also connected to regional
systems.
TR9.2 Non-Motorized design and construction
Develop non-motorized design standards that provide safe and efficient access, encourage use
and mobility, and are appropriate to the location and needs of the immediate area, consistent with
the policies ofNMTP Goal 2.
TR 9.3 Non-Motorized safety and maintenance
Promote the safety of non-motorized users through effective transportation improvements,
maintenance operations and enforcement, following the policy direction ofNMTP Goal 3.
TR 9.4 Non-MotQrized community education
Improve the safe use of non-motorized and roadway facilities by non-motorized and motorized
users through continuous community education ofNMTP Goal 4.
TR 9.5 Non-Motorized implementation
Provide mechanisms for funding, prioritizing and implementing the non-motorized transportation
system plan ofNMTP Goal 5.
GOAL 10: MUL TIMODAL
Encourage the development of an integrated multimodal transportation system that
provides a range of transportation alternatives and increases the through movement of
people.
TR 10.1 SOY parking restrictions
Use fee structure and space allocation programs to discourage Single Occupancy Vehicle (SOV)
parking at City-controlled parking facilities.
TR 10.2 HOV parking
Develop parking and other programs that encourage High Occupancy Vehicle (HOV) use,
including expanding carpool and van pool parking serving the ferry terminal.
TR 10.3 SOY reduction programs
Support employers on the Island in developing and implementing programs that reduce SOY use,
promote HOV and non-motorized transportation use, and extend trip reduction incentives to
employers with fewer than 100 employees.
TR 10.4 SOY avoidance evaluation
The prioritization and scheduling of roadway improvement and maintenance projects shall
consider the inclusion of multimodal enhancements as a criterion.
Ordinance 2004-09
2004 Comp Plan Update
Page 136
GOAL 11: REGIONAL COORDINA liON
Coordinate with the local, regional, and state, public and private organizations that
promote regional transportation improvements and services that are compatible with the
community's vision as expressed in the Comprehensive Plan.
TR 11.1 Agency cooperation
Participate in regional coordinating functions with Kitsap County, Kitsap Transit, Washington
State Ferries, Kitsap Regional Coordinating Council, Puget Sound Regional Council, and the
Washington State Department of Transportation and other appropriate public transportation
agencies and user groups.
-
TR 11.2 Regional planning
Support regional studies that describe and identify the impacts of regional traffic on the Island's
transportation system.
TR 11.3 Jurisdictional coordination
Work to ensure that the transportation system is planned and operated in coordination with
adjoining jurisdictions, Kitsap County, and the Washington State Department of Transportation.
GOAL 12: TRANSPORATION FINANCING
Prepare a fiscally responsible cost-effective transportation financing plan that optimizes
the use of City funds and leverages other funding sources.
TR 12.1 Developer LOS requirements
Require all new and expanded development to maintain the adopted Transportation LOS
standard, and to meet multimodal non-motorized standards as they are adopted. The pro-rated
cost of any improvements needed to maintain the adopted LOS shall be the responsibility of
developers.
TR 12.2 Developer participation
Require new and expanded developments to construct or participate in the funding to upgrade
unimproved roadways to City standards.
TR 12.3 Funding from others
Aggressively seek available County, State, and Federal money to fund projects that meet the
overall Island's transportation objectives and facilitate the formation of Local Improvement
Districts.
TR 12.4 Advance system planning
Ensure that the Island's transportation improvement plan accounts for forecasted population
growth and has revenue sources sufficient to build and maintain it.
Ordinance 2004-09
2004 Comp Plan Update
Page 13 7
TR 12.5 Preservation of existing system
Mandate that the maintenance and repair of the existing transportation system is a high priority
when making funding allocation decisions.
TR 12.6 Traffic Impact Fee
Evaluate the development of a traffic impact fee for mitigating the impacts of future
development.
Discussion: In order to have a more complete picture of the impacts of new development and to
extend the City's concurrency ordinance, a "Cumulative Impact Analysis" is recommended in
order to develop a Traffic Impact Fee program. See TR 4.6.
GOAL 13: COMMUNITY INVOLVEMENT
Ensure involvement and input from the citizens at all stages of significant transportation
projects and decision-making that affect Bainbridge Island.
TR 13.1 Citizen involvement
Provide citizen opportunities for reviewing transportation plans and documents to give an
opportunity for public comment and ensure consistency with the community vision.
TR 13.2 Participation in regional decision-making
Insist on early and full City participation in regional transportation decisions affecting the Island.
Such participation should include City and community representation in the decision-making
process and public meetings on the Island.
TR 13.3 Public education
Educate and inform the public on the proposed methods and potential alternatives that address
identified transportation issues.
Ordinance 2004-09
2004 Comp Plan Update
Page 13 8
Transportation Element Utilization
The Transportation Element is a tool for the City to aid in decision-making in all aspects of
transportation planning, scheduling, and budgeting. The Transportation Element will guide the
City in making decisions regarding public expenditures, improvements, and developments. City
staff will use the Transportation Element to establish budgets and plan improvement projects.
The Transportation Element will also be used to ensure consistency between land use actions and
the City's transportation plans and policies.
Other agencies, such as the State Department of Transportation, Kitsap Transit, and Kitsap
County, will use the Transportation Element to coordinate their actions with Bainbridge Island to
address regional transportation issues and projects. Developers and businesses may also use the
Transportation Element to assess project feasibility, make investment decisions and develop
individual projects.. Transportation providers should consult the Transportation Element to
coordinate their services with transportation facility design and operation, and the general public
can use the Transportation Element to become better informed about the City's transportation
plans.
Transportation issues are among the top concerns for Bainbridge Island residents since Island
roadways serve two equally important purposes. Not only do the roadways provide mobility,
they also enhance the character of the Island. Much of the concern over transportation is related
to the future of State Route 305, which serves not only Bainbridge Island, but also functions as a
regional facility connecting Seattle and the Island ferry terminal with the Kitsap and Olympic
Peninsulas.
An integrated part of this Transportation Element is the Non-Motorized Transportation Plan
(NMTP), adopted by the City Council in 2002. The NMTP provides a comprehensive long-
range plan for developing and promoting the use of non-motorized transportation systems.
Reauirements for a Transportation Element
The Growth Management Act (GMA) mandates linking transportation planning directly to land
use decisions and requires a financial structure that supports transportation planning through
development of a capital facilities plan and the Transportation Element. The GMA legislation
further requires each city planning under the GMA to establish a procedure that enables the city
to ensure that adequate transportation facilities are available to serve new developments
concurrent with the development.
The Transportation Element must include an inventory of the existing transportation system, a
determination of existing deficiencies of the system, and the need for future improvements to the
system. There must be a plan for bringing into compliance any existing facilities or services that
are below established Level of Service (LOS) standards and for providing expansion of facilities
and services to meet future needs at established levels of service. The strategy must be
financially sound; planned needs must be financially feasible and there must be a six-year capital
facilities plan. Lastly, the City's Transportation Element and the Transportation Element for
Kitsap County and the regional transportation plan, as well as the long-term plans of the
Washington State Ferry System (WSF), Washington State Department of Transportation
(WSDOT), and Kitsap Transit must be consistent with each other.
Ordinance 2004-09 Page 139
2004 Comp Plan Update
In 2001, the firms of Johnson, Davies and Lathrop, LLP, TModel Corporation, and Cascade
Design Collaborative were hired as the consultant team to help develop an Island- Wide
Transportation Study (IWTS) that would provide the information required for and is the basis of
the Transportation Element in this 2004 Comprehensive Plan update.
The City of Bainbridge Island Transportation Element contains transportation goals and policies
designed to serve the City of Bainbridge Island's needs through the year 2022 in accordance with
the requirements of the GMA. In addition to this Element, the City will facilitate broad-based
public discussion and decision-making through ongoing processes such as the development of
the six-year Capital Improvement Plan, implementation of the Winslow Master Plan,
coordinating with the State, NMTP Advisory Committee, Neighborhood Planning Committees,
and community meetings to address issues related to the ferry system and the use ofSR 305.
Interaovernmental Coordination
The City of Bainbridge Island is part of a larger region that includes local governments, adjacent
counties, the state, and the federal government. Travel between the City and other jurisdictions
has increased significantly over the past decades and will continue to increase in the future.
Because the pattern of travel and development within Bainbridge Island is affected by regional
patterns, the City's Transportation Element must be cognizant of the plans and policies that
guide transportation and development throughout the region.
The regional transportation system should operate as one integrated system. A well integrated
transportation system is encouraged by state and federal legislation requiring cooperation in
planning and developing transportation facilities and services.
The transportation planning process for Bainbridge Island includes review and coordination of
the jurisdictional transportation policies of those agencies closely associated with or which
include the City of Bainbridge Island.
The City participates in a variety of regional planning groups both on the Kitsap and Seattle sides
of p'uget Sound to reflect the City's unique position between the two areas. Specifically, staff
participates in the Puget Sound Regional Council (PSRC) on transportation issues. The PSRC is
the four-county entity in the Puget Sound area responsible for regional transportation planning,
including distribution and management of federal transportation funds. Staff also participates on
several PSRC committees, notably the Regional Project Evaluation Committee, and elected
officials serve at the executive level. Parallel to and providing information to the PSRC is the
Kitsap Regional Coordinating Council (KRCC). Staff serves on the committees and elected
officials serve on the board of this organization as well. This is where county-wide issues are
discussed and planning policies developed. In addition, Kitsap County is part of Peninsula
Regional Transportation Planning Organiation (pR TPO)' serving the four counties on the
Olympic and Kitsap peninsulas. Although the City is not eligible for funding through this entity
(receiving funds through PSRC), it provides an opportunity to coordinate transportation issues
with the Olympic Peninsula counties. Through these and other efforts, the City shares
information and coordinates planning with federal, state, county, other city, and transit agencies.
State and federal policies and legislation have been reviewed, and their requirements have been
considered in the development of the City's Transportation Element.
Ordinance 2004-09
2004 Comp Plan Update
Page 140
Federal Policy: The federal Transportation Efficiency Act (TEA 21) emphasizes development
of a national transportation system that encourages a multi modal approach to transportation
facilities and services. Such a multimodal approach would use each travel mode to its best
advantage to provide a balanced system which satisfies transportation needs in the most efficient
manner. Emphasis is placed on efficiency, economy, and environmental concerns. The federal
funding programs in TEA 21, allow local areas to use highway funds for transit and/or non-
highway travel purposes. Under TEA 21, large urban areas, such as the Puget Sound region are
designated as "transportation management" areas. Regional transportation plans are required to
identify an integrated multimodal system to address travel needs.
The City of Bainbridge Island's Transportation Element is consistent with TEA 21 in its
multimodal approach for transportation improvements, its attention to demand management, and
its integration with _transit and other transportation plans.
State Policy: The Washington State Department of Transportation has developed a
comprehensive, statewide transportation plan, entitled "Washington's Transportation Plan
(WTP). The State coordinates with city, county, and regional jurisdictions to develop a
Transportation Policy Plan, which is intended to provide long-term direction for transportation
issues throughout the state. This Transportation Element will provide direction for the State as it
allocates funds for capital improvements. This direction will help to ensure that the City's
priorities and needs are addressed. SR 305 is designated as a Highway of Statewide Significant
(HSS), subject to specific State laws and would be subject to a special planning process before
any changes to the facility were made.
Regional Policy: Regional transportation policy and direction are included in the "Vision 2020"
Plan, and the Metropolitan Transportation Plan "Destination 2030" (MTP), both adopted by the
Puget Sound Regional Council (formerly Puget Sound Council of Governments) of which the
City is a member. The Vision 2020 Plan calls for containing growth, limiting the extent of
sprawl, allowing for open spaces, and concentrating new employment into activity centers. The
Plan emphasizes the movement of people through increased transit and ridesharing investments,
including High Occupancy Vehicle (HOV) lanes on regional highways. The Metropolitan
Transportation Plan sets the transportation plans and policies over a 30-year period, with the
emphasis on the first 20-year time frame, and identifies regional improvements.
Other regional plans utilized in the development of the City's Transportation Element include the
Kitsap Transit Plan and the Transportation Demand Management Program, along with
Countywide Planning Policies. By integrating the Kitsap Transit Plan and the Transportation
Demand Management (TDM) Program improvements, the City can encourage higher levels of
transit and ride sharing as well as help improve the operating environment for transit.
Kitsap County Plans: Kitsap County has the responsibility to maintain and fund improvements
to County roadways. The County's 1998 Capital Facilities Plan identifies a number of
improvements to County-owned roadway facilities; however, none of these improvements
directly impact the Bainbridge Island roadway system.
Kitsap Transit Plans: Kitsap Transit is aggressively looking to developing future alternatives
Ordinance 2004-09
2004 Comp Plan Update
Page 141
to expand transit throughout its service area. Kitsap Transit has considered a variety of
approaches including dedicated high-capacity bus service, passenger rail or monorail service,
and passenger ferry services.
The Bainbridge Island Transportation Element is consistent with Vision 2022 and the Kitsap
Transit Plan. Travel forecasts for SR 305 and the ferry system were based on available land use
projections from the Puget Sound Regional Council. The City's Transportation Element
emphasizes a multimodal approach to travel, including efforts to increase transit and rideshare
travel modes and reduce reliance on private vehicles.
Local Policy: Bainbridge Island's Transportation Element provides information to help local
jurisdictions such as Kitsap County and Kitsap Transit make transportation decisions. It
provides other jurisdictions with an understanding of the City's transportation priorities. The
Plan also includes policies to encourage coordination with local jurisdictions in the planning and
implementation of transportation improvements. The City provides comments on the County's
Comprehensive Plan and addresses consistency between the pty's and the County's
Transportation Elements.
Specific Planning Efforts: Ongoing planning efforts which may influence the City's
Transportation Element are currently in various stages of completion. As these plans continue to
develop, close coordination between the responsible jurisdictions and the City is necessary to
ensure consistency.
These efforts include:
PSRC Transportation Plan, the Metropolitan
Transportation Plan (MTP), including both Vision
2020 and Destination 2030
Kitsap County Greenways Plan
Bainbridge Island Ferry Terminal Zone Plan
Kitsap Transit Long Range Plan
WSDOT Washington's Transportation Plan (WTP)
SR 305 Corridor Analysis Study
The Statewide System Plan (component of the WTP)
Kitsap County Transportation Plan
WSDOT Puget Sound Investment Program
Ferry Terminal Study
PR TPO Regional System Plan
Winslow Master Plan
Ordinance 2004-09
2004 Comp Plan Update
Page 142
Facilitv Inventorv
The roadway system is designed for the movement of people and goods throughout the
community. Major regional transportation features of the Island include the Washington State
Ferry Tenninal, which connects Bainbridge Island to downtown Seattle; and State Route 305,
which connects the Island to the Kitsap and Olympic Peninsulas.
Roadway Inventory
State Route 305 is the State's primary connection (via the WSF ferry) between Seattle and the
Kitsap Peninsula and provides an important north-south connection for Island travel. The State
system is supported by the City roadway system that connects residential areas to each other, the
highway, retail and employment areas. The City's arterial, collector, and residential street
system provide roadway connections and access to properties within the City.
The City's roadway system consists of approximately 119 miles of paved roads, and another 20
miles of unpaved roads. The City maintains a geographic infonnation system (GIS) that includes
the roadway system. There is also a database containing characteristics for each roadway
segment, including length, functional classification, posted speed, sidewalks, transit and bicycle
facilities. In addition, traffic volumes have been collected for most of the arterials and collectors
in the system. Inventory infonnation is included in the IWTS, Appendices A and C. An
inventory of SR 305 provided by WSDOT is found in the IWTS, Appendix B. Bicycle and
pedestrian facilities are inventoried in the Non-Motorized Transportation Plan.
Transit Service
There are Island-wide commuter connections to the ferry tenninal and shuttle bus services within
the Winslow core. Kitsap Transit provides all transit services within the city limits of Bainbridge
Island. Kitsap Transit provides a variety of services and programs including fixed route service,
paratransit, vanpool programs, rideshare programs, and park-and-ride lots.
Twelve transit routes serve Bainbridge Island providing service mainly to and from the Winslow
ferry terminal. Table 8-3, Kitsap Transit Services, found in the IWTS provides details about the
origins and destinations of the routes, the 2001 ridership levels, hours of operations, and service
frequency. Most service is provided to meet peak morning and evening demand related to ferry
terminal and employment travel, with little or no mid-day service. Service also tends to be one-
directional with transit vehicles "deadheading" back to meet the demand from arriving ferry
passengers. The exception.is #101 (Ferncliff Shuttle) that runs every 45-60 minutes throughout
the day, serving the Winslow core area.
Washington State Ferry Operations
The Seattle/Bainbridge Island ferry provides 48 weekday crossings between Bainbridge Island
and the Coleman Dock. The 35-minute crossing covers 8.6 miles and connects Bainbridge
Island and the SR 305 corridor with downtown Seattle and the Interstate 5 and 90 corridors.
Two jumbo Mark II Class auto/passenger ferries, the M/V Tacoma and M/V Wenatchee, serve
the route connecting the 1-90 corridor to SR 305. Each vessel has a travel speed of28 knots, and
maximum capacity for 2,500 passengers, 218 vehicles and 60 commercial vehicles.
Ordinance 2004-09
2004 Comp Plan Update
Page 143
Air Transportation
Bainbridge Island does not have any airport facilities in the City. The nearest airport is the
Bremerton National Airport in Bremerton, operated by the Port of Bremerton. This general
aviation airport does not currently have scheduled service, but has in the past been served by
Harbor Airlines. Seattle-Tacoma International Airport, located south of Seattle in the City of
SeaTac, is a major full-service air facility.
Land Use/Transportation Linkaae
This Transportation Plan focuses on transportation improvements that are required by the year
2022, and state and regional legislation and policies lay a solid foundation for this approach. The
land use plan is critical in creating an environment where transit, other ridesharing modes, and
non-motorized travel modes serve travel demand in an attractive, efficient, and cost-effective
manner. Land use and transportation planning should be closely integrated and conducted on a
regional and local revel, in order to find better, long-range solutions for mobility on Bainbridge
IsI~md.
Land Use Forecasts (2008 and 2022)
This section identifies the land use forecast method and results that are used to identify the future
needs and deficiencies of the transportation system. Two time periods were studied: 2008,
representing the short-term, six-year planning period, and 2022, representing the long-term,
twenty-year planning period. The 2008 study year corresponds with the current planning cycle
used for preparing the annual Transportation Improvement Program at the time of development
of the IWTS. The 2022 period corresponds with the Growth Management Act requirement.
Growth in households is assumed to occur at an annual rate of approximately 2 percent per year
during the planning period. Employment growth is expected at 1.2 percent per year. The 2008
forecasts assumed a moderate rate of growth throughout the Island with the greatest employment
growth in the retail and services sectors and the residential housing growth occurring in areas
where the greatest potential for new housing under the existing zoning could occur. The 2022
forecasts were based on a straight-line projection of growth for each TAZ, assuming that the
distribution of employment and housing would be proportionate to the buildout scenario.
A modified straight-line projection between the baseline and buildout condition was used to
develop the land use forecast. Table 4-7 of the IWTS describes the forecast population for each
forecast year, the change in population, and the proportion of the buildout year population.
These ratios (proportion of buildout) were applied to the change in households and employment
assumed in the buildout projection to forecast households and employment for 2008 and 2022.
Table 4-8, 2008 and 2022 Forecasts, found in the IWTS, shows the residential and employment
forecasts used in the transportation study.
Future traffic conditions were estimated for 2008 and 2022, using the results of the land use and
employment forecasts, assumed trip generation, and the calibrated model. Appendix G of the
IWTS provides a detained explanation of the transportation modeling process and assumptions.
The changes in housing and employment expected in the City's Comprehensive Plan by the
study year 2008 were programmed into the traffic model to prepare the 2008 traffic forecast.
Ordinance 2004-09
2004 Comp Plan Update
Page 144
Results were then analyzed to determine where LOS would be expected to fall below the
minimum LOS threshold, and mitigating improvements were added to the model to correct those
deficiencies.
Level of Service
Locally Owned Arterials
The traffic model was developed and then calibrated using a process that compares the actual
counted roadway volumes and predicted volumes based on the land use data. The calibrated
model and intersection analysis software was used to determine the 2002 LOS for the
intersections on the Island. Several intersections in the Winslow area had improvements planned
that were included in the analysis even though they were not in place in 2002 because they
would be in place prior to the short-term forecast year. Figure 4-2 of the- IWTS shows the Level
of Service (LOS) standards identified for the Island.
The LOS for locally owned arterials are as follows:
Urban Zone: Secondary Arterial - LOS D (applies to roadways and intersections in the most
developed areas of the City, mainly the greater Winslow area).
Neighborhood Service Centers Zone: Secondary Arterial - LOS D (applies to roadways and
intersections within the City-defined Centers of Rolling Bay, Island Center, and Lynwood
Center).
Sub-Urban Zone: Secondary Arterial - LOS C (applies to roadways and intersections in areas
outside of the Winslow core and the NSC - the remainder of the Island).
Figures 4-4 and 4-5 of the IWTS show the 2002 LOS for the Island as a whole and for the
Winslow area. The LOS for each intersection is shown by approach, and overall in IWTS Table
4-6. The analysis shows that overall intersection LOS for each of the study intersections in the
Urban, NSC, and Sub-Urban Zones meets or exceeds the minimum LOS standard and are not in
need of improvement. However, the intersections at Wyatt Way and Madison Avenue, and High
School Road and Sportsman Club Road, each have an approach that is below the minimum
standard, although an improvement is not immediately necessary as the overall LOS is
acceptable. On SR 305, the intersections at Suquamish Road, Seabold Road, Hidden Cove Road,
Day Road, Sportsman Club Road, and North Madison Avenue all fail to meet the minimum
standard of LOS D-mitigate, used for state planning purposes. Planned improvements and other
possible projects to improve roadway levels of service are discussed under the "Actions to
Sustain LOS" and "Future Needs" sections of this Element.
State Route 305
A Highway of Statewide Significance (HSS), the LOS standard for SR 305 is set by the
Washington State Department of Transportation under RCW 47.06.140. The HSS designation
requires that SR 305 be evaluated using an LOS Standard designated by WSDOT. While
WSDOT internally evaluates roadways using its own methodology, WSDOT has assigned a
level of service standard for SR 305 as LOS D-mitigate for City planning purposes. Generally,
Ordinance 2004-09
2004 Comp Plan Update
Page 145
this standard requires mitigation when the peak period operation of the state facility falls below
LOS D-Mitigate. .
The traffic analysis (described in Chapters 4 and 5 of the IWTS) shows that current conditions on
SR 305 do not meet the WSDOT minimum LOS D-mitigate planning standards, and future
traffic will be even worse~ By 2008, the increase in traffic on SR 305 is expected to result in
significant deterioration of LOS because of a lack of roadway capacity. By 2022 the highway
will fail LOS standards along nearly the entire length of the Island. The expected level of service
for the highway without improvement - described as the "No Action alternative" - are shown for
the 2002, 2008, and 2022 years in Figures 5-1, 5-,2 and 5-3 of the IWTS.
The problem is most severe at the north end of the study area, where there are large back-ups
beginning at the Suquamish Way intersection and Agate Pass Bridge. This creates a barrier to
east-west traffic across the highway.
Seattle-Bainbridge Island Ferry
Washington State Ferries (WSF) uses the length of wait (counted as the number of boats) as the
measure of the Level of Service for ferry services. Delays are tracked for weekday and
weekends during each of the four seasons at each ferry terminal. The Kitsap Regional
Coordinating Council and Peninsula Regional Planning Council have made recommendations to
WSF for establishing LOS standards. Table 8-2 of the IWTS, lists the ferry LOS criteria applied
by WSF to ferry operations by passenger type.
For Bainbridge Island, the level of service standard is a maximum wait of two boats for auto
traffic and zero boats for HOV and non-motorized travel. No standard has been set for freight
and goods movement for the Seattle-Bainbridge Island run as this is not intended to be a major
freight corridor.
According to WSF's 2001 Boat Wait Measurements Technical Memorandum, the average boat
wait for 2001 at the Seattle-Bainbridge Island run during a weekday p.m. peak hour for autos is
0.7 boats (33 minute wait). This is comparable with the Edmonds-Kingston wait of 0.7 boats (27
minute wait), and with the less frequently scheduled Seattle-Bremerton run 0.5 boats (37 minute
wait). All of the runs fall within the LOS standard adopted by the State.
Action to Sustain level of Service on local Facilities
Forecast
2008 Traffic Forecasts
The IWTS traffic model provided a representation of the expected traffic under 2008 conditions.
Results of the 2008 forecast show some minor intersection problems in the Urban Zone around
Winslow and heavy congestion and poor LOS along SR 305. The 2008 LOS is shown in Figures
4-6 and 4-7 of the IWTS.
Ordinance 2004-09 Page 146
2004 Comp Plan Update
Programmed Improvements (2002-2008)
A number of improvements scheduled in the 2003 Capital Improvement Program are to occur
prior to 2008. These programmed improvements have been added into the 2008 transportation
model forecast and assumed in the LOS calculations.
The following improvements are assumed to be in place by 2008:
. Madison A venue/SR 305 - The intersection control will be changed to a signal. Turn
lanes for left turning movements will be added for the northbound, southbound, and
eastbound approaches.
. Winslow Way/Madison Avenue - The intersection channelization will be revised to
allow a dedicated right turn on the westbound approach. This win change the westbound
left turn lane to a share left-through lane.
. Winslow Way/Ericksen Avenue - An intersection control improvement will be added to
this intersection.
In addition to the roadway improvements, 25 non-motorized improvements are recommended in
the NMTP, Table 5-1, for construction during this period. None of these projects will add to the
vehicular capacity of the roadway. However, they may tend to decrease vehicle volumes by
making more attractive routes for pedestrians and bicyclists, thereby reducing the volume of
vehicles.
LOS Forecast
On Bainbridge Island the roadway LOS generally does not fall below the minimum standards.
On SR 305, the intersections at Suquamish Road, Agatewood Road, Seabold Road, Hidden Cove
Road, Day Road, and Sportsman Club Road all fail to meet the minimum standard.
By the 2008 forecast year, the SR 305 corridor has potential capacity issues along the following
segments:
. Northbound State Route 305 - Northbound from Lovgren Road to Suquamish Road
. Northbound State Route 305 - Northbound from Sportsman Club Road to Koura Road
Other sections of poor LOS on SR 305 may be related to a lack of roadway capacity, caused by
long delays at signalized intersections, or a combination of both factors.
The traffic model developed for the IWTS was used to identify locations where intersections may
be the cause of poor operations. Table 4-9 of the IWTS shows the results of the 2008 study year
analysis. Without mitigation, one intersection in the Urban Zone - Wyatt Way/ Madison Avenue
- and one intersection in the Sub-Urban Zone - High School Road! Sportsman Club Road - fail
to meet the minimum LOS.
Ordinance 2004-09
2004 Camp Plan Update
Page 147
2022 Traffic Forecast
The analysis of 2022 traffic conditions provides a long-range view of how the roadway system
will operate on the Island. Significant growth and development is expected during this time
period according to the City's Comprehensive Plan. The traffic model uses the increased amount
of housing and employment to forecast expected travel demand. The increase in traffic volumes
would impact the roadway system, particularly SR 305, causing many intersections and roadway
segments to fall below the minimum LOS requirements.
Programmed Improvements (2008-2022)
No improvement projects have been programmed into the traffic model to be constructed
between 2008 and 2022 because none have been included in planning documents beyond the six-
year period for either City or State facilities in the study area.
LOS Forecast _
Analysis of the expected traffic. in 2022, shown in Figures 4-8 and 4-9 of the IWTS, shows that
most of the City's roadway system would continue to meet the minimum LOS standard and
roadway system in Winslow, including SR 305 intersections, generally operate at acceptable
levels. However, SR 305 would have many areas with substandard LOS, both on roadway
segments and at intersections. The intersection LOS away from SR 305 can be mitigated with
improvements. The problems on SR 305 are much more significant and would require an
extensive improvement program to correct.
Without mitigation, three intersections in the Urban Zone, one intersection in the Sub-Urban
Zone, and one intersection in the NSC Zone fail to meet the minimum LOS standards. In 2022,
the Winslow Way/Madison Avenue and Wyatt Way/Grow Avenue intersections would be at
LOS F without improvement. The Wyatt Way/Finch Road intersection would be at LOS D, and
the New Brooklyn Road/Miller Road intersection would be at LOS E without improvement
because of the relatively low traffic volumes, other than on SR 305. Outside of the highway
corridor, most roadway links operate at an LOS A or LOS B.
By 2022, the increase in traffic on SR 305 is expected to result in significant deterioration of
intersection operations because of lack of roadway capacity. Excessive delay would occur at
nearly all of the intersections north of High School Road. The intersections at SR 305 and
Suquarnish Road, Agatewood Road, Seabold Road, Day Road, and Lovgren Road would all be at
LOS F. The intersections at Madison Avenue and Winslow Way would be LOS E. Only the
intersections at Hidden Cove Road, Sportsman Club Road, and High School Road would meet
the minimum standard with an overall intersection LOS D-mitigate, mainly because of
previously recommended improvements. However, the City roadways approaches on those
intersections would all fail to meet the LOS D-mitigate standard. The poor operation of the
highway would cause it to act as a barrier to cross-Island traffic, impacting operations of the
City's roadway system as a whole.
Ordinance 2004-09
2004 Comp Plan Update
Page 148
Future Need
City Mitigation 2002-2008
No roadway segments in the City's system fail to meet mInImum LOS standards. For
intersections in the City's roadway system where the expected LOS is below the minimum
standard, the following mitigation is proposed:
. Wyatt W ay/Madison Avenue - An intersection control improvement such as a signal or a
roundabout would improve the intersection LOS to A. The intersection will be studied to
determine what specific improvement should be constructed.
. High School Road/Sportsman Club Road - an intersection control improvement such as a
signal or a roundabout is proposed for this location. The improvement would result in
LOS A at -this location. The intersection will be studied to determine what specific
improvement should be constructed.
SR 305 Mitigation 2002-2008
No specific action is identified for major improvements on SR 305 to address exceeding the
LOS. Further study and community involvement is recommended to determine the appropriate
action. The modeling showed that intersection work and widening of the highway, including at
the Agate Pass Bridge would meet LOS D-mitigate, but a solution improving highway crossing,
access and more transit to avoid widening is desired.
City Mitigation 2022
Improvement to intersection channelization and/or intersection control can mitigate the
substandard LOS at all of the City intersections. The following projects are proposed to improve
LOS at the four identified substandard intersections:
. Winslow Way/Madison Avenue - An intersection control improvement such as a signal
or a roundabout would improve the intersection LOS to D. The intersection will be
studied to determine what specific improvement should be constructed. At a minimum a
northbound right-turn lane would be required on Madison.
. Wyatt Way/Grow Avenue - Intersection channelization to provide turning movement
separation on all approaches is proposed for this location. The improvement would result
in LOS D at this location.
. New Brooklyn Road/Miller Road - A northbound left-turn lane on Miller Road IS
proposed for this location. The improvement would result in LOS C at this location.
. Wyatt Way/Finch Road - An intersection control improvement is proposed for this
location. The intersection will be studied to determine what specific improvement should
be constructed. The improvement would result in LOS B at this location.
Ordinance 2004-09
2004 Comp Plan Update
Page 149
For 2022 forecast year, SR 305 is expected to fall below the minimum LOS standard for nearly
the entire length of the study area, except in the Winslow area south of High School Road. No
roadway segments in the City's system are expected to have substandard LOS. SR 305 corridor
potential capacity issues include the following segments:
. Northbound State Route 305 - Madison A venue to Suquamish Road
. Southbound State Route 305 - Suquamish Road to Madison A venue
SR 305 Mitigation 2008-2022
Continue mitigation that is planned in 2002-2008.
Transportation Demand Manaaement
Bainbridge Island Programs
There are many TDM programs currently in effect on Bainbridge Island. Agencies and major
employers have implemented these programs to discourage the single use of single occupant
vehicle (SOV) trips during commute periods.
Agency-Based Programs
The City of Bainbridge Island, Kitsap Transit, and Washington State Ferries have programs that
encourage the use of transportation alternatives to the SOY.
Examples ofTDM Programs promoted by these agencies include:
. Ferry Terminal Parking Restrictions - The City has a limited amount of parking at the
ferry terminal and charging an hourly or daily fee reduces the number of persons who
drive to access the ferry. As parking becomes more difficult or expensive, fewer drivers
will desire to use the parking areas. On the other hand, restricted parking may increase
the amount of drop-off/pick-up activity at the terminal or encourage parking in adjacent
neighborhoods.
. Commercial Parking Tax - The City has charged a tax on commercial parking lots
since 1999 that provides funds for the City's general fund. This tax, if added to the
parking fee, increases the out-of-pocket costs for automobile commuters, encouraging
ridesharing, non-motorized travel, and transit use.
. Carpool Parking Areas - The City provides reserved parking areas for carpools at its
ferry terminal lot. Providing reserved spaces or reduced parking rates encourages drivers
to form carpools, increasing the occupancy of vehicles.
. Rideshare Programs - Programs that promote the formation of carpools and vanpools
can increase the rate of vehicle occupancy by increasing the number of persons moved
during peak times. Kitsap Transit has a program to match interested commuters into
carpools and vanpools using the RideshareOnline.com database.
. Van pool Programs - Kitsap Transit also administers a vanpool program that provides
vans for commuters for a monthly fee. WSF provides additional incentives to registered
Ordinance 2004-09
2004 Comp Plan Update
Page 150
carpools and vanpools who receive preferential boarding. Vanpools also receIve a
reduced ferry rate.
. Land Use Policies - The City's promotion of higher-density residential development in
the Winslow area promotes increased opportunities for residents to walk or use the bus
service rather than drive.
. Parking Restrictions and Enforcement - The development and enforcement of parking
policies and rules may reduce undesired parking behaviors, such as in neighborhoods
adjacent to the ferry terminal area. Types of parking restrictions include hourly parking
limits, residential parking zones, and area re-parking restrictions.
. Carsharing Program - A carsharing program allows people to have access to a vehicle
that they rent on an hourly and/or mileage basis. This type of program reduces vehicle
ownership, encourages transit and non-motorized travel, and lowers overall driving
behavior. A Seattle-based carsharing program (Flexcar) has expanded to Bainbridge
Island with .cars located at the ferry tenninal.
Employer-Based Programs
Major employers (100 or more employees) are required by the State's Commute Trip Reduction
law to promote ride sharing and transit use by developing in-house incentive programs that
encourage employees to use ridesharing, transit use, and non-motorized travel. Kitsap Transit
administers the program within the county. According to Kitsap Transit data, there are two
Island employers who have fonnal CTR programs. Each major employer is required to
designate an in-house coordinator and develop a Commute Trip Reduction Plan indicating how
the employer will meet the required trip reduction targets. Some of the examples of employer-
based programs in use include:
. Transit subsidies - Employers can provide or partially subsidize the cost of monthly
transit passes to their employees.
. Flextime programs - Employees are allowed to shift their work schedule to avoid travel
during peak travel periods, or to meet transit schedules.
. Telecommute programs - Employees are allowed to work from home offices in order to
reduce the amount of commute travel.
. Guaranteed Ride Home Program - This program provides employees who commute
by transit, carpool, vanpool, bicycle, or foot a free taxi ride in the event they need to
return home on an emergency basis during mid-day and late evening hours.
. Commute Subsidies - Employees are eligible for a monthly subsidy if they commute by
transit, bicycle, foot or carpool to work.
Concurrency
The City of Bainbridge Island adopted Transportation Concurrency Ordinance #2001-09 in April
2001. This action added Chapter 15.32 Transportation Concurrency, to the Bainbridge Island
Municipal Code. The ordinance establishes the requirements, procedures, test, and appeals
process for establishing whether a new development meets concurrency within the City of
Bainbridge Island.
Generally, certain pennit applications that exceed the adopted thresholds (15.32.030) must
submit necessary documentation to the City Engineer, who conducts the concurrency test. The
Ordinance 2004-09
2004 Comp Plan Update
Page 151
concurrency test determines if the addition of the proposed development will exceed the Level of
Service Standard adopted in the Transportation Element of the Comprehensive Plan. If the
application passes the test, a certificate of concurrency is submitted with the development permit.
Otherwise, the applicant may revise the project or appeal the test following the provisions of the
appeals process (15.32.070). The City is required to produce an annual report summarizing the
current level of service on the City's roads; identifying significant current and future
development activities; and identifying where changes in the six-year Capital Improvement
Program and Capital Facilities Plan are needed.
FundinQ
Funding Capabilities
The City of Bainbridge Island has implemented a variety of revenue sources and financing
mechanisms to fund City services and capital improvements. One indication of the City's
funding capability is the analysis of historic revenue sources.
Table 9-1 of the IWTS summarizes the revenue sources from 1999 to 2002 for the City's "Streets
Fund," Capital Project Grants, and for overall City revenues. The City has had a steady growth
in the Street Fund Revenue, the majority of which comes from its share of the Motor Vehicle
fuel tax and fees collected on City-owned parking lots. Over the last few years, the City has
aggressively pursued transportation grant- funding from State and Federal sources for 2002.
Additional funds are available from Current Expense Fund revenues that the City uses to
supplement transportation revenues to pay for operating costs such as salaries, benefits, and other
associated costs.
Overall, the City has annual revenues of more than $20 million. The City's 2003 budget
projected an overall increase in revenue of 7.0% from 2002 assuming a slow economy through
2004. In addition, the City has additional bonding capacity for issuing bonds, pending voter
approval and the City's financial rating. As of December 31, 2002, the City is at 38.8% of its
general obligation bond limit (requiring a popular vote) and has used none of its limit for special
levy bonds that could be used for transportation projects (requiring a 60% majority vote).
Proposed Sources of Funding
The development of a transportation development plan identifies a schedule for planned
expenditures over a six-year period. Table 9-2 of the IWTS lists the improvements recommended
in this study, and includes project location, estimated cost, and estimated schedule. In the first
section are projects developed to mitigate LOS deficiencies as described in detail in Chapter 4 of
the IWTS. Many of these are projects that have already been identified in the 2003-2008 Capital
Facilities Plan (CFP) approved December 18, 2002. The six-year CFP also provides information
on funding identified for short-term projects which are based on availability of City funds,
project need and priority status, and other available funding opportunities.
Funding for the projects needed to meet LOS standards will come primarily from local funding
sources. State and Federal grants, as well as contributions from WSDOT for highway-related
projects, will need to be aggressively pursued to secure adequate funding for studies and
construction improvements.
Ordinance 2004-09
2004 Camp Plan Update
Page 152
The implementation of the 6-year and 20-year plans depends on the availability of transportation
funds. Potential funding sources include General Funds, Grants, General Obligation Bonds,
Developer Contributions, Impact Fees, Local Improvement Districts, and User Fees.
Reassessment Strategy
The Growth Management Act requires that jurisdictions develop a reassessment strategy in the
event that funding shortfalls occur that limit the City's ability to carry out the transportation
improvement plan. In the event that the City cannot fund the transportation capital
improvements needed to maintain the adopted roadway LOS standards (as identified in the Level
of Service section), then the City shall take one or a combination of the three following actions
as directed by the City Council:
1. Phase proposed land developments that are consistent with the City's land use plan until
such time as adequate resources can be identified to provide adequate transportation
improvements.
2. Reassess the City's transportation financing strategy to identify additional funding
opportunities with federal and regional grants and funding programs, and through the
development of new partnerships with WSDOT, Kitsap County, and the private sector.
3. Reassess the City's adopted roadway LOS standards to reflect service levels that can be
maintained under the known financial resources.
Section 39. The Glossary (page 13) of the Comprehensive Plan is amended by adding the
following term and definition:
Universal Design: The designing of products and environments to be usable by all people, to the
greatest extent possible, regardless of age, size, or abilities.
Ordinance 2004-09
2004 Comp Plan Update
Page 153
Section 40. The Capital Facilities Element Policies CF 1.3, CF 1.5, CF 1.10 and CF 1.13 of
the Comprehensive Plan are amended as follows:
CF 1.3
The City shall ensure that those facilities and services necessary to support development shall be
adequate to serve the development at the time the development is available for occupancy or use,
without decreasing levels of service adopted by this plan. If funding for capital facilities falls short
of meeting needs in the six-year Capital Improvement Plan, the City shall review the
Comprehensive Plan and make necessary adjustments to the six-year Capital Improvement Plan
while taking into consideration fiscal conditions and service quality to existing residents.
CF 1.5
The City shall maintain a six-year financing plan to finance needed capital facilities within
projected funding ..capacities and based on adopted level of service standards. The six-year
financing plan shall be updated annually and shall include early opportunities for public
participation in the decision process. aBEl-pPlanned capital expenditures ,shall be appropriated in the
City's annual budget. In case of emergency, the six-year financing plan and budget covered by the
plan may be amended more frequently.
CF 1.10
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. The City shall strive to coordinate with the other public entities during the
annual update to the Capital Facilities Plan.
CF 1.13
The capital facilities identified in the elements of the Comprehensive Plan and Winslow Master
Plan contained in the Subarea section of this Plan shall be included in this Capital Facilities
Element and the Winslovi capital facility Reeds shall be included in subsequent six-year financing
plans.
While the Winslo\\' Master Plan establishes a priority of capital facilities by indicating those
projects to be funded during the first Six year CIP as identified in the Master Plan, cContinued
prioritization of capital facilities projects identified in the Comprehensive Plan and Winslow
Master Plan should be based on the following criteria:
. Is it vulnerable to preemption (e.g. land acquisition or development by other parties)?
. Does it further the goals of the Comprehensive Plan?
. Can it be combined or sequenced with other City or government agency projects to provide the
best cost effectiveness?
. Does it provide the least cost/highest impact public benefit?
. What is the funding source? Is it eligible for grants? Paid for in whole or in part by
development fees?
. Is the project needed to accommodate growth or retain the established LOS or existing
conditions?
. Can the proiect be completed with minimal environmental impact?
Ordinance 2004-09
2004 Comp Plan Update
Page 154
Section 41. The Introduction to the Utilities Element of the Comprehensive Plan is amended as
follows:
INTRODUCTION
The Growth Management Act requires all comprehensive plans to include a utilities element
consisting of the general location, proposed location, and capacity of all existing and proposed
utilities, including but not limited to electrical lines, telecommunication lines and natural gas lines
(RCW 36.70A.070(4)). For the City of Bainbridge Island, these utilities are provided by the City
of Bainbridge Island, state regulated utilities, federally licensed communications companies, and a
municipally franchised cable television company.
The utility services provided by the City of Bainbridge Island provides some are sewer and water
services. Other public and privately held water districts and sewer districts (Sewer District #7) in
the City purveyors on the island also provide services to residents of the City the citizens of
Bainbridge Island. Private households provide for a large percentage of the City's utility
infrastructure with individual and on-site wells and septic systems. Water and sewer utilities and
storm water infrastructure are discussed in detail in the Water Resources Element.
A private corporation based on the island provides solid waste disposal and recycling services to
residents and businesses and is regulated by the Washington Utilities and Transportation
Commission (WUTC).
The electric utility that serves the City is Puget SotHld Power & Light (puget Power). There are no
natural gas utility services currently available in the City. Howeyer, if and vAten there are plans for
natural gas facilities on Bainbridge Island, the City ':All ,york '.vith Cascade Natural Gas to proyide
this utility serviee to the citizens of the City.
Regional telephone and electric utilities serve the City of Bainbridge Island. Telephone utilities are
proyided by U.S. West Communications. The electric and telephone utilities are regulated by the
Washington Utilities and Transportation Commission (WUTC).
A variety of Ffederally licensed cellular telephone communication companies currently serve the
City include U.S. 'Vest (Nev: Vector Group) and Cellular One Verizon. f..T&T. Nextel and Sprint.
There are currently no cellular towers or facilities il'l the City; hO'Neyer both companies have
proposals to build facilities in the future. Cable television services are provided on Bainbridge
Island by Northland Cable a regional provider and by one local company.
Section 42. Utilities Element Policies U 1.1 through Ul.12, Goal 5 and Policy U 5.3,
Policies C 1.3 of the Comprehensive Plan are amended and new Policies U 1.1 and C 1.4 are added
as follows:
U 1.1
TiieCitv shall develop a comprehensive plan for the undergrounding of all island distribution and
communication utility lines using an incremental approach that prioritizes the work and maximizes
Ordinance 2004-09
2004 Comp Plan Update
Page 155
opportunities with new construction. FiBRB@iBg Costs would be in accordance with rates,
regulations and tariffs on file with the Washington Utilities and Transportation Commission.
U 1.1.2
The City shall encourage require undergrounding:
a) For distribution. service and communication lines within all new subdivisions; and
b) For new service lines on property where new construction or extensive remodeling is
occurring; and
c) For new distribution and communication lines on existing rights-of-way where there are no
existing overhead utilities~ undergrounding is required.
Discussion: Utility lines include distribution lines. which are the main lines often located within
public rights-of-way. and services lines. which feed off of the main or distribution lines and are
often placed on private property. .,
U 14.3
The City shall encourage require undergrounding of all existing utility lines, especially in
residential areas, by the utility providers in accordance with applicable rates, regulations and
tariffs. The City shall cooperate with the formation of local improvement district's (LID's) to
underground existing lines.
U 1~.4
The City shall promote the location of compatible utility distribution facilities in shared trenches
and coordination of construction timing to minimize construction-related disruptions to the public
and to reduce the cost of utility delivery to the public.
U lr4=~
The City shall require screening and/or architecturally compatible integration of all new above
ground facilities (other than utility lines). Utility facilities shall be designed, constructed and used
in a manner which minimizes visual incompatibility with adjacent land uses.
Ul~~
The City shall encourage directional pruning of trees and phased removal and replacement of
improperly located vegetation planted in the right-of-way. Pruning and trimming of trees should
be performed in an environmentally sensitive and aesthetically acceptable manner and according to
professional arboricultural specifications and standards.
U 1.'=1
The City shall facilitate the conversion to cost effective and environmentally sensitive alternative
technologies and energy sources.
U1.~
The City shall facilitate and encourage conservation of resources.
U 1.8=2
The City shall require all utility facilities to be fully enclosed in buildings/structures where
appropriate, which are aesthetically compatible with the area in which they are placed and are
landscaped accordingly.
Ordinance 2004-09
2004 Comp Plan Update
Page 156
U I.!) 10
Utilities development and improvement of utilities shall be compatible with the natural constraints
of slope, soil, geology, vegetation, wildlife habitat and drainage.
U LIt} 11
When adverse impacts to the environment are considered likely as a result of a utility project, the
City shall use.a preferred order of mitigation (avoid, minimize, rectify, etc.).
U 1.~ 12
All utility projects shall consider the following criteria when siting new facilities:
· land use compatibility
· plan designation for surrounding areas
· environmental impacts and opportunities to mitigate impacts
· effect on agricultural, forested timber lands; critical areas; historic, archaeological and cultural
sites
· effect on designated open space areas
· indirect and cumulative impacts
· costs
· potential health impacts
· visual/aesthetic impacts
· property values
· screening/architectural compatibility
U l.ta 13
The City shall periodically review the state of scientific research on EMF or other health concerns
and make changes to policies if the situation warrants.
GOAL 5
The City shall encourage cooperation with other jurisdictions in the planning and
implementation of multi-jurisdictional utility facility additions2 aB4 improvements and
emereencv reSDonse.
U5.1
Decisions made regarding utility facilities shall be made m a manner consistent with and
complimentary to regional demand and resources.
C 1.3
The City shall develop more specific conditional use permit regulatiofts and/or new regulations
provide for a regulatory review process for cellular and/or wireless communication facilities
addressing criteria such as location, height and appearance and other criteria for cellular and/or
wireless communioation of proposed facilities.
C 1.4
The City will undertake im~rovements to the regulatory environment for cellular and wireless
facilities. Island-wide.
Discussion: Improvements to the regulatory environment could be allowing communication
Ordinance 2004-09 Page 157
2004 Comp Plan Update
facilities as permitted uses in additional areas.
Section 43. Figures I through 9 of the Utilities Element of the Comprehensive Plan are
amended as follows:
Figure I Electrical Transmission System - Existing Facilities - Kitsap County
Figure 2 Electrical Transmission System - Existing Facilities - Bainbridge Island
Figure 3 Electrical Transmission System - Proposed Facilities - Bainbridge Island
Figure 4 y,s.Existing Telephone Service Facilities
-
Figure 5 YS Proposed Telephone Service Facilities
Figure 6 Cable Television Trunking Cables
Figure 7 C~dlwar Oll@ PIeIJeS@a Fa@iliil08
Figure 8 C@lhdar Oll@ Pn~IJ8s@a Fa0iliti08 This information has been incoroorated into fiJ!ure 7
Ordinance 2004-09
2004 Comp Plan Update
Page 158
.:n'"
[1 ,
I
'I .:
U
,I
0-,-, !J~'l'.
'Jill'-
i.f..I._" ,,'
.'h:l~'I'!:I1I'
I
,I
I '
(
~<
., lh<.u,
, ,
I j~
I~
; I
, ~-0.:\:' ::
3: ::'! ;~~~
,
I
, I
;,;,;: ..D;~L;
;;7~t ;:;
:.~.tl
:-,.',
'"
~L.,.;.-
..
7,;-;;
..:.,
"III" .~
, .
.j. ,}
~li
'-'-I
r":;
'"ere'
II
Gl
c:
:0
rT1
;.! ;,"
.I~ ,}f
"
'.
;')
-...::-,: ~~
:-C
.J.....
.~ .~-.::.;:;' "'...
, ~
~;~:~
f ;:
,
;jl"I'rl'
I,; ~;I
;../1
,
! ; ,
Ordinance 2004-09
2004 Comp Plan Update
Page 159
i
I
i '''I
11:;u
h &
'..r..';
'('~ ~~
;~.~...:, IJ
" ii' f?
::>~:".( !1
tt:i'~ ii-
i~~~r-
""w'r..
;,t~'io~
I,'':
.9' .1
~~.~
~.:.~~~~
~; .. ~~
,:dQC;:',
~~;1~
-'3
~::':i.."'')
:_r-~
II
!~~ ~~~.
bl !'p l;'- c:
"1.4"11 ;~,r'I}~
...=-
':-{" .~
IT;
:t...
~~ .
~-3~ ~..I.-.~,
{,~ -'
c=:; i-:
. "
~~~ ~
-_-....
~ ~~l
~;.j
~
'.:::) :.""(-;
-n
G>
C
:.0
m
J':l
.}' ~
:~~
..~~ti:
~r' ':J ffi'
::l. ':.-<:: ~i.:'
I"
""~~.
(-)
;,"f"!
{.~:;~
'J'"
~
~ ~~:2
::(~;
-~
II
Ill! '-1''''
, ~~: F:,:'-'...J
II. '< 1 ',.'
~l \oJ _.1
I:"
t>
.,
~i~;
'"J~'~ ~t
-.~ ""
"';;.1'.-
!(
i";
r--
,.:"
~~~;;
~~;
- ,:/;,
I
r:-:J
~
Ordinance 2004-09
2004 Comp Plan Update
Page 160
~"r..:' "
!;L,l\,.(.,. !'
. j.. (J ~ 'n
, "1,1 '
i'
>,1
!
,\~;
,','
',\\It.'$1II~L
O.
.., '.,-1'"<::1
"'1'";,),,
'j..,.Liy","~;I!l=.~:"
I
I
II
T;c_.'J""
,. ;. ". I
'f~ t,; ".
,~.~.! '1<.
.~ ..
~~~
~ 1)::.....:2'
11,U
~}.,~.:.;-=~-
i:f~:~i
~~~.~
g u~
~J~" .
~;~.
"(f$ r:
:::-.&: ~~.
:ltF
t:~~
-,r'Eilf
~':.~~
-1"h-1
~{4-~
.~~~.c.
~
---:3
\::
J
'"1
18',~
~~.~
~~1'~
ij
Ii
'T.I
=
r;-,
~
';~
:;::D
::I"'"
_7,
~3 ;--:1
,--...., r---'l
- l:ceJ
~~;{ ~-J
----=
, ::-;:S
~~:.~,' :-1
r:--:,
11
G)
C
:I;l
m
w
""eJ
:y/-<-
" ?~'
~i
'"}
t-><:l
~;r...
:~, ..;
r.;j:
);:~
-,
~i
'",!":
{
o
"
f'l
Y,]:
0"0
-~
, "
r::j:1
--==J
r-'-l
~ --r::;.--:
t;,
i1
'"
Ordinance 2004-09
2004 Comp Plan Update
Page 161
.,
FIGURE
4
~
.~xisling Telephone
Service Jl'acilities
..~
"r
-"l ,IJ
~
,.
~
Q
~
~
o
~
/.,
"I
b
::>
0:,
r.....
..., ",alp.,
I.''''''
~
.
LEGEN.c
0..-..
_......_....(...t.~, ..,leI ,,"oc...r1l1"
M.,.".-I...... ........~_.......... .',11.'. -ou '.
~........n......_._............c. ".." 'OUt,
.....__..__.....11II.."'. C,.~IID" 11)' ,'U
_____ _._.._...,.,101."1.... a, 'flt
Ordinance 2004-09
2004 Comp Plan Update
Page 162
Propused Telephone
ServICe Facilities
FIGURE 5
. ... . . . Submarine Fiber
-- Land Fiber
~ Feet
( I I
\ 0 4000 8000
Ordinance 2004-09
2004 Comp Plan Update
Page 163
FIGURE 6
Cable Television
Trunking Cables
~
8000
Ordinance 2004-09
2004 Comp Plan Update
0_' ~,r__'."'_" .,._._",--,.._--~_.-...,... ...-........-...-,...,.,. -----.--..--..-..--.-.'.-.-..--..''-'-...- ---....-.--..-- -,
I
l(iOOO
Page 164
CELLU\.AR TQ'HE1t LOCATIQtlS
f\GURE 7
1\\
.1. .........- . ' ',5l ,
1'\ / Atl ,," II
~ ,~,~ /_ ,.:' t'
~,",');."" .c.-J~),\\,' "\'\t\~"
/~ ,.\_j "
ill, ti.~;~> .~.' "',;'~('i.,
/1"" 1 Lcd,' ,Jt.., .~. .~,.
~"'\\W\~." .:.~!:rF' ",';4;.~;.{\\i~F1..
. . . " ,:.~\,\ .' , ".~~
~\ · "f...'....'~I:tT'~)
\~.' ~_>' l .. ~,. ,'{:'f'
, ~C'",:~\\
\' l":- ~t""" I-
r \'-..)--0'\' '\
.r ~
:',(,-' ""y\.
, ..~_/\.. ',-'" ", \
1'~-~t(\\
",\.
...........
\
~~,
\'
,.
\
',.-- -.-- ~~
Lt./...... '
'..~..~~
,;~
" ~~
~. - ~.....:...._--
fa
(Jt'f Of &A\t-\6R\Q(iE. I5V.NO
ordinance 2004-09
2004 CotnY plan Dydate
'iQ\L"; MI'!o \
w.1\\~ 11.~,.o3t
page 165
FigureS
*
€}
Ordinance 2004-09
2004 Comp Plan Update
Page 166
Section 44. The Goals and Policies of the Economic Element are amended as follows:
GOALS AND POLICIES
GOAL 1
Retain and enhance a diversified local economy.
Discussion: By providing for a diversity of enterprises which both serve and employ local
residents, Bainbridge Island is better able to withstand fluctuations in the larger regional economy.
In addition, people who live and work in their community are available to invest time and money
in their families, organizations, and community life. A key to a successful, diverse local economy
is to provide the opportunity to create and undertake business enterprise along a continuum,
beginning with land-based businesses such as agriculture and home-based businesses and
continuing into small scale business, retail and personal services and light manufacturing.
E 1.1
The city should identify the jobs and enterprises most compatible with the community and develop
programs to make Bainbridge Island an attractive location for those jobs to locate.
E 1.2
Coordinate with local business groups to track commercial activity. identify trends and assess the
economic health of Bainbridge Island.
Allriculture
Bainbridge Island has a long history of agricultural enterprise which has declined in recent years.
Farming contributes to the Island's overall quality of life by preserving the economic and cultural
diversity of the community, providing high quality food products for residents, and by helping to
retain the rural character of the Island that residents value so highly. Farming includes not only
food products, but tree farming and livestock, as well. The Land Use Element contains several
goals and policies that encomage the protection and enhancement of intended to sustain and
enhance agriculture. The following policies further those aims.
E Y 1.3
Protect and increase promote the agricultural land base uses by:
. implementing a proactive Transfer of Development Rights (TDR) program.
. providing a permanent funding mechanism for the Purchase of Development Rights (PDR).
. strongly encouraging agricultural conservation easements as part of the Flexible Lot Design
process.
. promoting and supporting existing farming activity as an appropriate use in the open space of
clustered residential development or light manufacturing development.
. forming a farming advisorv grOUP to advise the City on strategies for preserving farmland.
Ordinance 2004-09
2004 Comp Plan Update
Page 167
E Y 1.4
Support the market for locally Island grown agriculture products by:
. Recognizing and supporting the Bainbridge Island Farmers' Market. including permanently
dedicating space for the Bainbridge Island Farmers' Market.
. permitting allowin~ and promoting roadside stands that sell locally Island grown products.
. promoting and supporting Community Supported Agriculture (CSA).
. encouraging the development of value-added processing facilities that can be shared by many
farmers.
EM 1.5
Support a "living farms" program which helps working farms through educational, historic and
tourist visits.
E.1.6 _
Encourage organic farming techniques. including an educational program to provide information
on alternatives to chemical pesticides and herbicides.
Home-Based Businesses
Nearly half of all licensed businesses on Bainbridge Island are reported as home-based. A key to a
present and future vital economy is engendering small-scale, creative enterprise.
E 1.~1.7
Continue to support home-based businesses.
E 1.7a
Encourage local business groups. educational institutes. and other entities to provide continuing
knowledge and skills development.
Arts
Bainbridge Island has a vibrant arts community that is recognized as an important economic asset.
E 1.&-~
Recognize the arts as a significant component of the Bainbridge Island economy.
E I.+. 9
Encomage and support the creative and economic contribution of the arts by implementing the
goals and policies of the Cultural Element.
;,,;.'
Retail and Services
Winslow is the commercial hub of Bainbridge Island while the Neighborhood Service Centers
provide the opportunity for small-scale commercial and service activity that is more localized and
helps to reduce traffic congestion in Winslow.
E 1.8-10
Reinforce Winslow as the mixed-use center for commerce and exchange by fully implementing the
Winslow Master Plan.
Ordinance 2004-09 Page 168
2004 Comp Plan Update
E 1.9 11
Neighborhood Service Centers should be developed at higher residential densities, as
recommended in the Land Use Element, in order to attract a variety of small-scale retail and
service providers.
Discussion: Most businesses in the Neighborhood Services Centers (NSCs) currently serve Island-
wide clientele. With higher residential densities in and around the NSCs, small-scale retail and
service providers may be attracted to these centers.
E 1.:W 12
Promote and support a "Buy it on Bainbridge" program.
Tourism
The Washington State Ferry System is the state's largest tourist attraction and the Bainbridge
Island-Seattle run is the most popular of the system's routes. The proximity to downtown Seattle
by ferry foot passengers and other water-borne visitors gives the Island fl unique tourism advantage
without the impacts of auto traffic, congestion, and competition for parking.
E 1.H 13
Increase pedestrian links between the ferry terminal, downtown Winslow, and the harbor. Visitors
on foot and bicycle are preferred. The use of public transit and shuttles should be encouraged.
E 1.n 14
The predominant focus of downtown Winslow should be to serve the commercial and social
exchange needs of leeal Island residents.
Discussion: A vibrant, pedestrian-oriented town center that provides a mix of commercial and
residential uses is, of itself, a potential tourist destination. Visitors arriving by foot from Seattle
should be targeted as a secondary market.
E 1.H 15
Encourage participation in selected Island events and destinations by off-Island visitors with
multiple-day stays.
Li1!ht Manufacturin1!
Skilled employees in the manufacturing businesses earn among the highest wages available in the
private sector on Bainbridge Island. Light manufacturing jobs approximate family wage jobs
which provides the possibility of living and working in the community. It is the purpose of the
Light Manufacturing land use designations to provide opportunities for light industrial activities
involving manufacturing, processing, assembly, repairing, servicing or storage of goods or
products not involving the use of materials, processes or machinery likely to cause adverse impacts
to the natural environment or undesirable effects upon the nearby residential, public or commercial
property, including vibration, light, noise, and odor.
E 1.14 16
Retain light manufacturing employment as an important source of family wage jobs on Bainbridge
Island.
Ordinance 2004-09
2004 Comp Plan Update
Page 169
GOAL 2
Support entrepreneurism by providing adequate land use designations in keeping with the
character of the Island.
Discussion: In order to provide opportunities for business enterprise along a continuum, adequate
space must be provided for growth that recognizes and protects the Island's valued natural
amenities, its limits of land and water and the quality of its residential neighborhoods.
Home-based businesses
E2.1
Expand the opportunities for home-based businesses.
Discussion: Nearly half of all licensed businesses on Bainbridge Island are reported as home
based. Opportunities to expand these businesses are limited.
E 2.2
Consider performance standards to minimize impacts of home-based businesses in residential
neighborhoods.
Alicre enterprise Small Business Uses
E2.3
Permit Micro enterprise (ME) Encourage Small Business uses in the Mixed Use Town Center
(MUTC), the High School Road District and Neighborhood Service Centers (NSC). Consider
ways to create affordable commercial. space for small business uses. and encourage live-work
opportunities as a component of small business uses. Create development and performance
standards for these uses within each zone.
Discussion: Businesses that outgrow the home should have choices about where to expand.
Micro enterprise Small business uses that include light assembly, artists' studios, and other low-
impact small scale activities would complement other business activities in the MUTC, the High
School Road Districts, and NSCs. Because the high cost of land in the downtown commercial
areas could hamper the siting of these types of activities. creative ways to encourage affordable
space should be considered.
Business Ps,k Small Business Land Use Desillnation
E2.4
A new Business Park Small Business (SB) land use designation may be created to allow for non-
retail business uses that have minimal impacts on the environment and surrounding uses.
Permitted uses would include, but are not limited to, artists' studios, research and development,
computer software development and manufacture, commercial kitchen for value-added farm
product processing, duplicating services, and small scale assembly. The purpose is to provide
space for small scale low-impact enterprises that have outgrown the home in a park-like
development that is pleasingly designed and attractively landscaped. Creative ways of creatin~
some affordable commercial space should be considered. and live-work opportunities should be a
Ordinance 2004-09 Page 170
2004 Comp Plan Update
component of the Small Business zone. Appropriate development and performance standards shall
be developed that shall include restrictions on traffic, hours of operation and use of hazardous
materials and requirements for the provision of open space.
LiJ!ht Manufacturinl!
E2.5
New light manufacturing (LM) land use designations shall be considered based on the following:
· proximity to existing LM
· the total amount ofLM-zoned land
· compliance with all existing policies in the Land Use Element
· reasonable proximity to SR305
· availability of public sewer and water, or
· whether permitted uses might safely use wells and septic systems or other alternative
systems that are approved by the Bremerton-Kitsap County Health District
· consideration of nonpoint pollution concerns identified in the Bainbridge Island
Watersheds, 1995 report
· adjacency to non-residential land uses
· minimal impact to residential land uses, neighborhoods, and open space/conservancy
areas
· the potential for quality open space or agricultural use
Conformance \'Iith all performance standards in effeet f-or LM shall be required.
E2.6
Create a required Flexible Site Design Amend the Site Plan and Design Review process, similar to
the process required for new residential subdivisiofls, for to include Light Manufacturing ami
Business Park development applications ami which shall include requirements for the following:
· substantial quality open space or land for agricultural use
· perimeter buffers for maximum visual screening
· protection of critical areas
· creative site design that minimizes land alteration and provides maximum possible
usable open space
· limited impervious surface
. on-site re-use of storm water run-off
E2.7
Develop an optional Light Manufacturing Master Plan process for parcels of sufficient size that
would include light manufacturing and open space components:. and could include a residential
component associated with the LM uses. Open space components couId be of sufficient size that
could be used for agriculture or active recreation (ball fields, etc.). The Master Plan process would
review concurrently all pertinent permit applications for the proposed site including a
comprehensive plan amendment request for change of land use designation, if applicable.
E2.8
Light manufacturing development and performance standards shall be re examined to include
traffic impacts, noise and the use and handling of hazardous substances.
Ordinance 2004-09
2004 Camp Plan Update
Page 171
E2.9
Consider oreating Light manufacturing development shall conform to all Light Manufacturing
performance standards, the requirements of Site Plan and Design Review, and applicable design
guidelines. for light manufacturing development.
GOAL 3
Provide adequate infrastructure that is supportive of a healthy economy and environment.
E3.1
Identify long-term infrastructure needs that support economic sustainability.
E3.2
Encourage/support infrastructure enhancement to accommodate new information technology.
GOAL 4
Promote business practices that protect the Island's natural beautv and environmental
health.
Environmental protection is a value expressed in three of the five overriding principles that are the
foundation of the Comprehensive Plan. Studies also show that a quality environment promote~ and
enhances economic vitality of the community. Many businesses on Bainbridge Island are
environmentally a''vare and practice good stewardship.
E4.1
Encourage the use of "green" materials and techniques in all types of construction.
E4.2
Develop and utilize a local exehange catalogue methods to help businesses find markets for surplus
materials, by-products and waste.
E4.3
Encourage local enterprises to participate in programs such as the Solid and Hazardous Waste and
EnviroStars programs of the Kitsap County Health District and the Green Works program of the
Kitsap County Public Works Department, which recognize and assist business efforts to protect the
environment.
E4.4
Encourage public sector solid waste reduction and recycling.
E 4A 4.5
Encourage existing and new commercial and agricultural enterprises to become part of a linked
cooperative whereby the by-products and waste of one enterprise become the raw materials of
another.
Ordinance 2004-09
2004 Comp Plan Update
Page 172
Discussion: This "industrial ecology" model would be an appropriate application of Policy 2.6,
Light Manufacturing Master Plan Process.
COAL 5
EDhaDee the diverse skills aDd taleDts of BaiDhridge IslaDd resideDts.
EM
Community organizations and enterprises should promote continuing knowledge and skills
development.
E-S.2
Recognize and eneourage existing infonnal exchange networks and cooperatiye efforts such as
Bainbridge f..rts and Crafts and the Farmers' Market.
E-Y
Encourage Bainbridge Island schools to develop eurricula that teach a diyerse range of skills
including fine arts, industrial arts, and new technologies, as well as academics.
E-M
Encourage educational activities such as specialized educational institutions, tm.iversity programs,
research centers and publishing entities.
GOAL 6-~
Encourage a broad range of civic activities and organizations.
Discussion: Non-profit organizations are a source of employment and other economic benefits for
Islanders and utilize many local commercial and service providers. V olunteers also provide
significant contributions to the local economy. Organizations such as Helpline House, the Arts and
Humanities Council, Team Winslow, and the Chamber of Commerce that rely largely on
volunteers efforts provide irreplaceable resources to community.
E 6d- 5.1
Support the non-profit sector of human and social service providers.
E ~ 5.2
Encourage and recognize individuals, organizations, and businesses that volunteer time and skills
to the community.
COAL 7
......11 goverDmeDt eDtities should strwe to eooperate aDd sen'e their eODstitueDts iD a fiseally
sOUDd maDDer.
Ordinance 2004-09
2004 Comp Plan Update
Page 173
E-1d
Promote a better understanding of the local re"enue system and the eff-ective use of taxpayer funds
by using citizen input to obtain a full range of ideas and perspectives.
~
f..ll government entities should monitor the fimmeial impact of their regulatory legislation.
~
The City and special taKing districts should analyze and evaluate the publio costs of differem t~es
of land uses.
DiseassioDI Many studies exist that have analyzed the. fmaBeiaJ impacts on the commlmity of
various types of land 1:lses.
E-M
Encourage public sector solid waste reduction and recycling.
COAL 8
Monitor and report eommereial aetivity aDd iDeome infermation for BaiDhridge Island.
E-&l
Cond1:lct periodic commercial inventories through business license reeor<ls to analyze the mix of
commerdal enterprises.
E-Y
Monitor and report results of the 5 year U.S. Economie Ceasus.
E--&3
Conduct regular land use inventories to monitor availability of land for all uses.
GOAL ~
Provide a variety of affordable housing choices so that people who work on Bainbridge
Island can live here.
Discussion: The Housing Element of the Comprehensive Plan provides several. options for the
development of affordable housing on the Island.
E 9d- 6.1
Continue to monitor the progress in implementing the Housing Element and evaluate new ways of
providing affordable housing.
Section 45. The History of the Human Services on Bainbridge Island; Current Conditions
of Human Services; Economics of Human Services Provisions; Development of the Human Service
Ordinance 2004-09
2004 Camp Plan Update
Page 174
Element and the Human Services Element and the City's Comprehensive Plan of the Human
Service Element (pages 7 through 16) are removed from the Human Service Element and relocated
in the appendix of the Human Service Element of the Comprehensive Plan.
Section 46. A new section entitled Implementation and Management is added to the
Human Service Element of the Comprehensive Plan as follows:
IMPLEMENTATION AND MANAGEMENT OF HUMAN SERVICE ELEMENT
The City of Bainbridge Island established the Health, Housing and Human Services Council
(HHHS) per Ordinance 93-44 on December 16, 1993, to promote and facilitate the development
and delivery of health, housing and human services within the City. The Health, Housing and
Human Services Council obtained its non-profit 50 1 (c)(3) status in 1994.
HHHS is designated as the official body of the City empowered to act as the principal advisory
board to the Mayor and City Council on matters pertaining to the development and delivery of
Island health, housing and human services. The Council is governed by a 12-member board of
volunteers representing the community. It is staffed by an Executive Director, and receives
financial support from the City and private donations. The City recognizes that the Island's human
services community is a complex network of very capable non-profit service agencies. HHHS is
needed to maintain the big picture and coordinate the efforts of direct service providers.
The purpose ofHHHS is to:
. support services;
. foster improvements in the range, delivery and quality of health, housing and human
service programs on the Island;
. ensure access to all in need; and
. facilitate service delivery sensitive to the cultural perspectives of those in need.
The HHHS role is to:
. implement the Human Services Element of the City's Comprehensive Plan;
. provide a public forum for issues;
. promote long range planning;
. make recommendations for City allocation of health, housing, and human service funds;
. make recommendations for allocations from the City's Housing Trust Fund; and
. improve coordination of services for non-profit organizations engaged in the delivery of
health, housing, and human services for the Bainbridge Island community.
In conjunction with its role to implement the Human Services Element, HHHS developed the
Community Connections for Youth (CCFY) Project (see Appendix A for more information). The
CCFY project supported significant progress toward implementing several of the goals of this
Element, specifically:
Ordinance 2004-09 Page 175
2004 Comp Plan Update
. The Directors' Forum brings human service agency directors together at least once a
month, providing a high level of coordination and providing a platform for collaborative
projects. Directors discuss problems they see in the community and work toward effective
solutions. The Directors' Forum includes representatives from the School District and Park
District. (Policy 2.1)
. The Human Service Needs Assessment, completed early in 2003, is the first systematic
analysis of the needs in our community. This allows HHHS and the human service
providers to design programs to address unmet needs. It also provides an opportunity to
inform the community of the often poorly understood needs that exist in our otherwise
affluent community. (Policy 2.2)
. The Human Services Database, implemented with CCFY grant funding, provides
individual agencies with needed computer support of their internal operations. In addition,
the collection of core data by all agencies is used to create an aggregate database that gives
the human services community a much more complete picture of service trends. Data
export is designed so that numbers of common clients can be reported while protecting
client anonymity. (Policies 2.3 and 2.4)
. Community Awareness: The Community Connections For Youth project's newsletters
and web site keep the community informed of needs and services available in the
community. HHHS has an on-going responsibility to inform the community about needs
and to advocate for support of human service providers. (Policies 1.2,2.3, and 2.8)
. Agencies have established the value of their partnership with the School District. Through
the Directors' Forum, the agencies housed on School District property speak with a unified
voice on facilities issues. (Policies 5.2 and 5.3)
. Agency training on the youth developmental assets model (Policy 4.4).
Further implementation of the goals of the Element will be addressed by a steering committee of
HHHS, charged with a strategic plan for full implementation of the Element. (Goal!)
The City provides financial support for non-profit human service providers on an annual basis
(Policy 1.4). The Health, Housing and Human Services Council processes applications for
funding, interviews applicants, and evaluates project proposals according to its policies. HHHS
then presents a proposed Human Services budget to the Mayor and City Council for consideration
as part of the City's budget process. Once the budget is approved, HHHS allocates the available
funds among the service providers and administers contracts with funded agencies on behalf of the
City. In evaluating funding proposals, HHHS works to ensure that recognized needs are met as
efficiently as possible. As a fiduciary for the City and its taxpayers, HHHS funds only projects
with a very high likelihood of success in meeting community needs, based on the experience and
capacity of the direct service agency. HHHS also acts as an advocate for human services providers
at budget time. For 2003, the City's funding of human service agencies through HHHS totaled
$240,100.
HHHS has a Contingency Fund, a portion of the City's general fund set aside for meeting human
services needs not anticipated in the annual budget. HHHS has a policy for evaluating requests for
contingency funds, and forwards approved requests to the City Council for funding.
Ordinance 2004-09
2004 Comp Plan Update
Page 176
HHHS pursues private funding (including foundation grants and the Bainbridge Foundation) where
possible, but basic administrative and program costs are supported by the City (Policies 1.4, 3.1
and 3.2). For 2003, the City's contribution to HHHS operations was $136,640.
HHHS convenes and supports a Citizens' Advisory Board of the Housing Trust Fund to consider
proposals for funding through the Trust Fund. The advisory board is composed of members of the
HHHS board and representative community members. Its recommendations are forwarded to the
Housing Trust Fund Executive Committee and then on to the City Council for action. (Policy 6.2)
COMMUNITY PROFILE
In November and December 2002, the Health, Housing and Human Services Council (HHHS)
contracted with PRR, Inc. to conduct a needs assessment with a special focus on identifying the
unmet.. needs, or gaps, in human services. This assessment is an important first step to begin
addressing unmet needs and to align the City's human services funding with our community's
needs.
To create an up-to-date picture of the island's population, census data and other information such
as Bainbridge Island and Kitsap County agency reports, City of Bainbridge Island data and
Bainbridge Island resident surveys were utilized.
In addition, PRR surveyed 82 Bainbridge Island human service providers and other persons
knowledgeable about Island human services and needs to determine which needs are being met,
and where there are gaps in services.
To conclude the needs assessment PRR conducted focus groups with consumers of human services
(seniors, youths and single parents) as well as with community opinion leaders to further
understand the Island's human service needs.
There was an excellent response to the assessment and we received consistent feedback and
information from survey respondents and focus group participants.
Our Changing Population I
Bainbridge Island's population is growing and changing. Compared with both Kitsap County and
the state as a whole, our population has grown significantly in the past decade, increasing by
almost 30% between 1990 and 2000. However, the growth rate is expected to slow in the next five
years to only about 3% between 2002 and 2007.
Perhaps even more significant than the sheer increase in numbers is how our community is
changing. Only about a third of households have school-aged children while the percentage of
female-headed households with school-aged children continues to rise. Based on current figures
and projections to 2007, we can expect fewer young children (0-9 year-olds) and a decrease in the
percentage of adults in the main childbearing years (25-44 year-olds).
On the other hand, we can expect many more middle-aged persons and pre-retirees (45-64 year-
I The information contained in this section was produced by Pacific Rim Resources as part of the 2002 Needs
Assessment using the data available at the time. The City is in the process of updating population projections for
2025 and projected growth rates are expected to increase.
Ordinance 2004-09 Page 177
2004 Comp Plan Update
olds) with the percentage of residents 85 and older also expected to increase. Thus, Bainbridge
Island is both growing and graying. This will result in increased demand for human services,
especially for services designed to meet the needs of an older population.
Needs Amidst Affluence
Compared to Kitsap County and Washington State, Bainbridge Island is characterized by higher
education levels, lower unemployment, higher median incomes, fewer female-headed households,
higher rates of homeownership and less crime. However, real human service needs exist and there
is less affluence on Bainbridge Island than commonly assumed. 7.5% of Bainbridge Island
children live in poverty and nearly one out of four households (23.7%) have annual incomes ofless
than $35,000.
It's not surprising that fully 70% of survey respondents feel that increasing housing costs have
made a major impact on the human services system, and that the ability of people to afford to live
on Bainbridge Island is perceived to have decreased. The reality of human service needs within a
relatively affluent community has created a special human services dilemma: Since Bainbridge
Island's needs are less visible, there is a perception that most people's needs are met, and
consequently it's hard for people to ask for services.
SURVEY RESULTS
Our community's strong commitment to our human services. system is demonstrated by City
funding, private donations, volunteer activity and support from local non-profits, the school
district, the park district, the fire district and City government. Survey respondents report that many
human service needs are well met through an extensive human services system of skilled service
providers.
While the majority of human service needs are being met, there are some needs that are perceived
as not being met well. These are areas of need where there is a significant gap between the
perception of how big a need is and the ability of providers to meet the need. The largest perceived
gaps are m:
· Affordable assisted living for seniors
· Affordable medical and dental care
· Affordable housing options
· Alcohol abuse among youth
· Drug abuse among youth
· Child care for special needs children
· Adult day care
These areas were also identified as growing needs in the last twelve months.
Focus Group Findings
Focus group participants identified their top human service concerns. Seniors noted a lack of
medical and dental services, affordable prescriptions, adult day care, companionship opportunities
and mental health services on the Island.
Ordinance 2004-09
2004 Comp Plan Update
Page 178
Youth noted a lack of family planning, rape, assault and suicide prevention services, as well as the
need for a stronger vocational track in the school system.
Single parents noted the need for domestic violence services, childcare for parents who work off
the Island and services for special-needs children. They echoed the sentiments of youth through
their desire for a stronger emphasis on vocational training in the school system.
CHALLENGES
In the big picture of human service needs, several challenges remain.
Awareness of Needs and Service System
Providers, consumers and public opinion leaders believe there is a general lack of awareness of
both Bainbridge Island's human service needs and the existing human services system.
Access To Existing Services
In addition to the lack of awareness, about two-thirds of those surveyed believe there are reasons
people can't access the existing human services system. These reasons, also noted by focus group
participants, include:
· Perceived stigma associated with using services. Prosperity and affluence have set a high
standard, making it harder for those in need.
· Concerns about confidentiality. Going to a human service provider is believed to be noticed
in such a small community.
· Transportation problems. Public transportation options are perceived to be oriented towards
the needs of commuters and less towards the needs of those traveling on the Island during non-
commute hours.
MOVING FORWARD
With the information gained, the Health Housing and Human Services Council plans to:
. Share the information as broadly as possible;
. Create a steering committee and action teams to work on developing action plans to
address the unmet human service needs; and
. Continue to work with the City and human service agencies to develop policies and
funding that support needed improvements in our human services system.
Ordinance 2004-09
2004 Comp Plan Update
Page 179
Section 47. Policies HSE 1.5 and HSE 4.6 of the Human Service Element of the
Comprehensive Plan are amended as follows:
HSE 1.5 HHHS shall be responsible for the integration of the Human Services Element with
other Comprehensive Plan elements.
Discussion: It is vital that all decisions, policies and regulations made by the City consider the
impact and implications on human services. When land use, transportation, capital facilities, and
economic decisions are made, there should be an attempt to understand the ramifications those
decisions may have on human services. HHHS will work to establish open lines of communication
with the City'S executive department. legislative committees and staff in order to identify
opportunities and barriers to the integration of the HSE in all City decisions. policies and
regulations.
HSE 4.6 The City, through HHHS and other appropriate agencies, should promote and support
programs designed to allow people who need assistance with "activities of daily living"
to remain in their homes as long as possible.
Section 48. Appendix A of the Human Service Element is renamed Appendix D.
Section 49. A new Appendix A is added to the Human Service Element as follows:
HISTORY OF HUMAN SERVICES ON BAINBRIDGE ISLAND1
Bainbridge Island is in transition away from being a small town. What worked for the community
at one time may no longer work as the population grows. To build systems for the future, we must
understand what came before.
There are some very powerful attributes to living in a small town like Bainbridge Island, especially
in the informal delivery of human services. A smaller population increases the likelihood that
people will know each other and be aware of a neighbor in need. There is a greater probability that
children interact with adults who know both them and their parents. This may reinforce a child's
positive behavior and connection to the community, and often serves as a deterrent to serious
problems.
The human services delivery system on Bainbridge Island has its origins in the tradition of
extended families helping family members and neighbors helping neighbors. As the community
has grown, Bainbridge has endeavored to meet the needs of residents through various religious
institutions, agencies and support groups.
An early example of organized assistance on the Island, outside individual faith communities, is
the Bainbridge Committee, a nonprofit organization, founded in the 1920s to coordinate neighborly
assistance to families having difficulties. The founder, Edna Olson, encouraged people from all
parts of the Island to join so they could identify people in their neighborhoods who needed help. A
I The historical data found in this appendix was prepared by the Community Advisory Committee and City Staff, for
the Initial Human Services Element adopted in 1999 and moved to an appendix as part of the 2003 Comprehensive
Plan update required by the State. New information was added by HHHS to cover the timeframe 1993 to 2000.
Ordinance 2004-09 Page 180
2004 Comp Plan Update
cornerstone of the organization was, and continues to be, respect for those receiving assistance?
The Bainbridge Committee was incorporated in 1947, about the time that schools were providing
for the delivery of free hot lunches for some school children.3
In 1962, Bainbridge Youth Services (BYS) was founded "to assist island youth in their growth and
development as individuals, in the family and in the community." The objective was to have the
Bainbridge community share responsibilities with the Child Guidance Center of Bremerton to
provide prevention programs and counseling. BYS was incorporated in 1978 as an independent
nonprofit organization providing counseling and a job referral service for youth.
Fishline was started in 1968 by a group of women from local churches in response to the national
War on Poverty. Several years later the organization responded to community needs and took a
gigantic leap to provide a more professional level of social services. It was incorporated in 1973,
and in 1983 the name was changed to Helpline House.
In 1974, community members established what is now called Bainbridge Island Child Care Centers
to meet the needs of parents who needed day care services for their children.
A focus on senior concerns was met by the development of the Bainbridge Island Senior
Community Center, which was incorporated as a nonprofit agency in 1983, but which began in the
1970s with programs through the Park and Recreation District.
Prior to all-Island government in 1991, a number of services for residents of the Island were
provided by Kitsap County agencies. With the reorganization of local government, coordination
and centralization of services became a focus of island residents.
One such effort included two roundtable workshops, held to address issues and concerns relating to
human services in the community. Based on results of these discussions, in 1993 the City of
Bainbridge Island created the Health, Housing and Human Services Council (HHHS) to act on its
behalf in receiving and evaluating requests for City funding from various human services
organizations, and to be the advisory board to the city on matters pertaining to health, housing and
human services.4 The role of HHHS as the primary voice of the human services community
continues to develop.
From 1993 through 1999, the HHHS Council developed, refined and implemented the process
through which agencies requested funding from the City. During this time, the members of the
HHHS Board developed a vision of the future of human services in the community. This vision
was a key component of the Human Services Element of the Comprehensive Plan.
Through 1999, the HHHS board consisted of representatives of the agencies providing direct
services. The development and passage of the Human Services Element pointed out the need for a
more broadly representative board with fewer direct connections to agencies served by the HHHS
Council. This transition occurred during 2000, and several new members were added to the board
at the beginning of 200 1, with the broader charter of implementing the Human Services Element.
2 Interview with Katy Warner conducted by Judith Hartstone April 27, 1999.
3 Bainbridge Review, October 3, 1947, editorial in response to threat of school Cafeterias closure: "Hot school
lunches are an integral part ofa social welfare program which quietly is being carried on here."
4 City of Bainbridge Island Ordinance 93-44 and Municipal Code Sections 2.50 and 3.86.
Ordinance 2004-09 Page 181
2004 Comp Plan Update
With the establishment of the Housing Trust Fund in October,1999 via Ordinance 99-45, HHHS
was given the additional responsibility of maintaining and facilitating a Housing Trust Fund
Citizens' Advisory Board (HTF CAB) to assist the City in evaluating proposals for capital projects
using Housing Trust Fund monies.
In 1999, HHHS was awarded a three year, $300,000 grant from the Glaser Foundation to develop
the Community Connections for Youth (CCFY) project. The project was focused on program and
facilities planning across human service agencies. In 2000, the Human Services Element (HSE) of
the City's Comprehensive Plan passed, charging HHHS with monitoring implementation and
progress on the Element.
The work initiated through the CCFY project and the goals of the Human Services Element (HSE)
were closely aligned, resulting in accelerated and substantial progress on- implementation of the
HSE goals and policies. The Glaser grant funding allowed for progress on the following HSE
goals and policies:
. Development of individual databases for each of the City-funde9 human service agencies,
as well as an integrated, cross-agency human services database (HSE 2.3, HSE 2.4);
. Establishment of an on-going monthly meeting (Directors Forum) to convene human
service agency directors and taxing district representatives (HSE 2.1);
. Expanded information systems in the form of a quarterly all-Island newsletter and a
multiple agency website (HSE 2.8);
. Joint program and capital planning across human service agencies and taxing districts, such
as the school district and park district (HSE 5.3);
. Agency training on the youth developmental assets model (HSE 4.4);
. Completion of a community-wide Human Services Needs Assessment
and the initiation of a resultant planning effort (HSE 2.2)
Funding History: With the support of the City government and community, City funding for
human services through HHHS has grown steadily over the years, as shown in the table below:
COBI: COBI: Glaser Total
Year Al!encies HHHS COBI: Total Foundation Spending
1998 $160,000 $160,000 $160,000
. 1999 $169,600 $5,400 $175,000 $175,000
2000 $187,000 $23,000 $210,000 $100,000 $310,000
2001 $201,000 $41,305 $242,305 $100,000 $342,305
2002 $217,200 $59,265 $276,465 $100,000 $376,465
2003 $237,100 $136,640 $373,740 $373,740
City funds are focused on urgent needs and are highly leveraged by private donations and the
efforts of volunteers. Less than 10% of the total budgets of the human service agencies are
provided by the City.
Ordinance 2004-09
2004 Comp Plan Update
Page 182
Section 50. A new Appendix B is added to the Human Service Element as follows:
DEVELOPMENT OF THE HUMAN SERVICES ELEMENT
CURRENT EXISTING CONDITIONS]
Human services range from helping an individual satisfy daily basic survival needs to programs
that offer life enhancing activities for special populations. These services incorporate programs that
aim to prevent problems or offer appropriate intervention; they exist for people at all
socioeconomic levels.
The human services delivery system on Bainbridge Island is extraordinarily complex. Services are
delivered by a combination of providers including public agencies, private nonprofit organizations,
faith communities, and private "for-profit" enterprises. The complexity of the system reflects the
complexity of human services needs. While one individual's human services needs may be met
satisfactorily by a single agency, another may need assistance from several providers.
Communication and cooperation between service providers is extremely'important for the effective
delivery of human services.
People on Bainbridge Island use a variety of human services providers on the island and in Kitsap
and King Counties. Funding comes from a number of sources, among them property tax, sales tax,
state and federal funding, user fees, and private contributions.
The City's funding level for human services, through allocations to HHHS for disbursement to
agencies, has increased from $77,000 in 1995 to $160,000 in 1998 ($4.30 per capita in 1995 to
$8.40 per capita in 1998). In addition, the Park and Recreation District budgeted $76,300 for Teen
Center and Senior Center staff, bringing the total Bainbridge government allocation to $236,300
($12.38 per capita). How does Bainbridge Island compare to other cities in this area? Below is a
comparison to King County cities:2 (Data should be taken as a rough comparison only, since cities
may differ in what they include in their human services allocation.)
I The historical data found in this appendix was prepared for the initial Human Services Element adopted in 1999
and it was moved to an appendix as part of the 2003 Comprehensive Plan update.
2 "Results of Jurisdiction Survey," November 6, 1998, memo from Bruce W. Blackburn, Associate Planner, City of
BothelI, to Council Subcommittee on Human Services. The City of Bothell surveyed the cities in King County to
determine per capita funding levels based on general fund dollars alIocated to human services in 1998.
Ordinance 2004-09 Page 183
2004 Comp Plan Update
Per capita Funding of Human Services, 1998
City Per capita Population Total Allocation
Bainbridge $12.38 19,080 $236,300
Island
Edmonds $0.65 36,610 25,000.
Lynnwood $0.65 33,110 22,000.
Bothell $3.00 27,300 81,050.
Everett $3.00 84,330 252,990.
Lake Forest Park $4.52 12,800 57,856.
Kirkland $6.50 44,220 287,430.
Redmond $7.52 48,003 360,982.
W oodinville $9.07 10,130 91,870.
IssaqUah $10.30 9,900 101,970.
Bellevue $10.78 105,700 1,140,169.
Mercer Island $17.07 21,690 370,317.
Details of current human services activity on the Island, including information about the close
working relationship between Bainbridge Island and Kitsap County agencies, may be found in the
Profiles (see f~ppendiees B, C and D) developed from responses to questionnaires and interviews.
The goal of the Profiles was to discover which human services are currently available to
Bainbridge Islanders and how many people are using them, and to pinpoint what gaps exist in the
system. Differences in recording methods made it difficult to provide exact answers, but some
general points did emerge.
· Overall, the current delivery system is essentially healthy and most of the community's needs are
being met.
· There are gaps and problems to be addressed.
· The world of human services is extraordinarily complex due to the nature of human needs.
· The level and quality of service reflect the community's standards and values, as evidenced by
the amount of donations, volunteerism, and City support.
DEMOGRAPHICS. PROJECTIONS AND TRENDS
As of 1999, Bainbridge Island is a community of almost 20,000 people. The community cherishes
its rural character as it adjusts to an urban, commuter-oriented, high-tech, fast-paced world where
neighbors may hardly know each other.
Statistics show that 40% of workers commute to jobs off the Island.3 Since many of the
commuters are parents of young children, this has a major impact on the child care sector.
Frequently both parents work off the Island, or in the case of single parent families, the single
3 City of Bainbridge Island Comprehensive Plan Economic Element, January 21, 1999, p. 18, Table 3 "Work
Locations Bainbridge Island Work force" shows an estimate of work locations for residents of Bainbridge Island in
1996, with 40% working off the island.
Ordinance 2004-09 Page 184
2004 Comp Plan Update
parent works off the Island. Children from infancy through high school may not have a parent at
home during the day. There is an additional problem for people who work shifts that take them off
the Island during non-traditional hours, when there is no child care available. All of these factors
present a challenge to the community's child care resources.
At the other end of the age spectrum, Bainbridge Island is experiencing an increase in its over-65
population. In addition to merely reflecting the national trend as the Baby Boom generation ages,
the senior population on Bainbridge is growing due to the Island's appeal as a safe retirement
community with access to the activities and culture ofa major city. Many of the diverse social and
health needs of seniors will need to be addressed by island agencies.
A trend that is both local and national that could have a major impact on human services on
Bainbridge Island is the changing nature of volunteerism. As the Profile indicates, volunteers are
the lifeblood of human services delivery in our community. The challenge of maintaining,
increasing, and managing the volunteer base is one that must be met in order to continue to provide
the level of service that exists.
.
As has been stated, Bainbridge Island is an increasingly affluent community. This mistakenly leads
to the perception that there are no people in need. However, Helpline House reported in 1998 that
about four percent of the population used their food bank and another four percent required some
financial assistance with rent, utilities or prescription medicine. Approximately 2,000 (25 percent)
of the Island's households used at least one of Helpline's services in 1998. Some borrowed a
wheelchair, some relied on the food bank, and some used the agency's counseling services. Some
individuals or households received multiple services-ranging from survival level to life
enhancing-from more than one agency.
As the community changes and grows, there are constant challenges to meeting the community's
human services needs. It is imperative to provide resources to prevent unwanted outcomes, such as
social isolation, drug and alcohol abuse, domestic violence, teen pregnancy, homelessness, and
children getting into trouble.
GAPS IN THE HUMAN SERVICES DELIVERY SYSTEM
Based on the responses to the questionnaire sent to human services providers, as well as comments
from the public (see Appendices B and D), the Human Services Element Advisory Committee
identified the following gaps in the human services delivery system on Bainbridge Island:
· Day care for infants and for children with special needs
· Affordable child care
· Child care during non-traditional hours
· After:..school programs for middle school-age children
· Affordable health care, including dental care
. Affordable in-home care for seniors, enabling them to stay in their own homes
· Adult day care
· Response to the problem of drug abuse among school age youth
Two additional gaps are more complex and need further explanation.
. Affordable housing. Although housing for people with very low income is the focus of
various assistance programs, affordable housing remains a problem for people of medium
Ordinance 2004-09
2004 Camp Plan Update
Page 185
income on an island where the median price of a home has reached $319,000.4 Cost of
housing drives the demand for other services, including day care and food bank. The lack
of entry level apartments or rental housing units makes it difficult for students and young
adults to find housing. The gap in affordable housing options contributes to the loss of
diversity.
· Transportation. This is often a barrier to accessing available services, especially if those
services are available only off the Island, e.g., Kitsap Mental Health and Washington State
Department of Social and Health Services (DSHS). Furthermore, limited on-Island
transportation reduces options for those children and youth who wish to participate in after-
school activities but whose parents have jobs that make them unavailable to transport their
children.
THE ECONOMICS OF HUMAN SERVICES DELIVERY
Human services as an industry contributes to the economy of the community.
For the year 1997, the 11 Island nonprofit agenciess reported an aggre,gate revenue of nearly $1.7
million with expenses of approximately $1.5. The figure for dollars received and expended may be
misleading due to various factors, including financial, tangible, and "in kind" contributions, as well
as volunteer "staff."
Human services providers, commercial and nonprofit combined, reported more than 300 paid
employees and almost 500 volunteers in 1997. (~ee ).,ppeluliees B alut C fer details.) If human
services had been delineated in the data for the Economic Element, human services would have
been the third largest employment sector on Bainbridge Island. Its position would be even more
significant with the number of volunteers, i.e., unpaid workers, included.6
Of the 11 agencies referred to above, the nine 7 with paid staff reported budgeting an aggregate sum
of $958,555 for salaries, based on information provided by the agencies for full time equivalent
(FTE) employees. (~ee AppeRdiu B, page 15).
Service delivery on Bainbridge Island is dependent on volunteerism. If work currently being done
by volunteers had to be done by paid employees, organizations would collapse under the weight of
salaries.
Note: Although some data was gathered from "for-profit" providers (Bainbridge Island Recovery
Center, Island Health and Rehabilitation, Madison A venue Retirement Center, and Messenger
4 Multiple Listing Service, April 1999, The median home price was $319,000. Following is a list of the median
sales price of a home over the past four years: 1995, $239,000; 1996, $250,000; 1997, $258,000; 1998, $292,000.
S Bainbridge Committee, Bainbridge Island Ambulance Association, Bainbridge Island Child Care Centers,
Bainbridge Island Senior Center, Bainbridge Island Teen Center, Bainbridge Youth Services, Helpline House,
Housing Resources Board, Interfaith Volunteer Caregivers, St. Barnabas Children's Center, and YWCA ALIVE.
6 City of Bainbridge Island Comprehensive Plan Economic Element, January 21,1999, p. 19, Table 5. "Licensed
Island Businesses by Sector" for 1995-96, lists services as the largest sector with 1299 workers, followed by retail
with 956 workers and construction with 320. Although this table is for the year previous to that used for the human
services data, we believe the time frame is close enough for comparative purposes.
7 All of the above agencies except the Bainbridge Committee and Interfaith Volunteer Caregivers.
Ordinance 2004-09 Page 186
2004 Comp Plan Update
House), research focused mostly on the nonprofit sector. Collection of data from private
practitioners would be beneficial and is recommended as an Action Item for the future.
DEVELOPMENT OF THE HUMAN SERVICES ELEMENT
In 1996, the City Council approved a request from the Health, Housing and Human Services
Council (HHHS) to consider amending the Comprehensive Plan by developing and adopting a
Human Services Element. The approval was based on criteria 2 and 3 of Section 18.117.050 of the
Bainbridge Island Municipal Code, i.e., the amendment must advance the goals and policies of the
Comprehensive Plan and (be) consistent with the goals and regulations of the state's Growth
Management Act. The rationale for inclusion of a Human Services Element is that it supports the
vision and goals of the Comprehensive Plan: Bainbridge Island should preserve and foster the
diversity of its people.
Inclusion is further based on the mandate of Ordinance 93-44 establishing HHHS and charging it
with preparing "a plan for health, housing and human services within the City which is consistent
with and may be approved for inclusion in the City's comprehensive plan;..." (BIMC 2.50.020D)
In 1997, the City Council approved a budget supporting the development of a Human Services
Element. In May 1998, an invitational workshop was held with representatives of Island human
services agencies, funding sources, and community leaders. Subsequently, an Advisory Committee
was formed.
The question of whether the City should add a Department of Social Services was considered and
dismissed early on in the process. Although this arrangement is appropriate for some cities, the
Advisory Committee believes the system of independent agencies works well and should be
continued.
The Committee next considered the feasibility of amending the Housing Element to address human
services issues, as the two concerns are related. However, they determined that the Housing
Element clearly focuses on the physical development of housing, and it was more appropriate for
human services issues to be the subject of a separate element.
This decision was supported by research into other cities that have chosen to include a Human
Services Element in their Comprehensive Plans. Several other cities' human services elements
were obtained and used in the development of the Bainbridge Island Human Services Element. 8
The Committee's basic premise is that the goal for human services is to deliver services effectively
to the people who need them. With the understanding that people will benefit directly from a
smoothly functioning delivery system, the Advisory Committee sought to define a suitable human
services delivery system that will be flexible and comprehensive enough to meet community needs
that might develop in the future.
The Advisory Committee began its work with three questions:
1. What is the current state of human services for Bainbridge Island residents?
2. What do we want for the future of human services on Bainbridge Island?
3. What do we need to do to get from here to there?
8 Human Services Elements were obtained from the following cities: Auburn, Bellevue, Bothell, Kent, Redmond,
Seatac, Winona, and Woodinville.
Ordinance 2004-09 Page 187
2004 Comp Plan Update
To accomplish the first step, in June 1998 the Committee developed and disseminated a
questionnaire to 55 on- and off-island agencies, organizations, and governmental entities identified
as providing services to Bainbridge Island residents. From the responses, the Committee developed
the Profile of the Human Services Delivery System (see Appendix B).
As part of the process in reviewing the responses, choices were made to exclude pre-schools,
support groups (e.g., Visually Impaired Persons, La Leche League), youth groups, and a few other
organizations that did not fit the focus of this project. This should not be interpreted as a judgment
on the importance and value of these groups to human services or the community at large. Their
vital role should be considered as part offuture planning efforts.
The Committee sought to determine the general public's knowledge and support of human services
in a variety of ways~ an informal opinion survey, mini-focus groups, and interviewing neighbors
and colleagues. While these non-scientific activities offered some insight into public opinion, a true
scientific survey would be beneficial and is recommended as an Action I~em for the future.
Supported by information derived from the Profile, a survey of the faith communities, interviews
with representatives of the four taxing jurisdictions, and the above-mentioned public input €see
f..ppendiees ), the Committee developed a draft of goals and policies. This was distributed to
Bainbridge Island human services providers for review. An invitational workshop was held August
30, 1999, to solicit comments and input from the human services community. Suggestions and
discussion helped refine the Element.
A final recommendation was delivered to the Planning Commission October 14, 1999, for its
review and public process.
HUMAN SERVICES ELEMENT (HSE) AND THE CITY'S COMPREHENSIVE PLAN
Rationale for inclusion:
Human services are an essential factor in the social health and well-being of the
community.
Human services are a significant factor in preserving diversity on this island.
HSE provides the human dimension to what is largely a physical plan.
HSE provides guidance for funding allocation made by the City to human services.
HSE is envisioned in Ordinance 93-44 and Bainbridge Island Municipal Code 2.50.020D.
Relationships between the Human Services Element and the Comprehensive Plan are detailed in
AppendixaA-D.
STRENGTHS OF THE HUMAN SERVICES DELIVERY SYSTEM
Based on the responses to the questionnaire sent to human services providers, as well as comments
from the public (see .A..ppefldiees B, C and E), the Human Services Element Advisory Committee
identified the following strengths of human services delivery on Bainbridge Island:
Ordinance 2004-09
2004 Comp Plan Update
Page 188
· Helpline House. The organization provides assistance on many levels and is perceived as a
clearinghouse, a gateway, and a hub for the provision of social services.
Helpline House provides direct services through: 1) food, clothing, and job banks; 2)
professional counseling and crisis intervention; 3) domestic violence perpetrator treatment;
4) medical equipment loans; 5) job and career counseling; and 6) support, activities and
education for parents and caregivers of children under age six. In addition, the professional
social work staff screens applicants for financial need for many subsidy programs, e.g.,
Housing Resources Board emergency housing assistance, Park District vouchers, and
PAWS' pet spay/neuter program. Several state and county programs are administered
through Helpline House, which also provides information and referral services for the local
community.
· Health, Housing and Human Services Council (HHHS). HHHS serves as the funding mechanism
for the City's financial support of human services through an annual budget recommendation to the
Mayor and City Council and annual awarding of contracts for services.
· The existing network of human services providers and the cooperation among agencies. There is
a strong informal referral system among providers, which is especially helpful for those
individuals and families whose needs are complex and best served by more than one
agency. Agencies that serve the same target populations have fonned or are forming
coalitions to better serve the community.
· Cooperation between the four taxing districts. The City, Bainbridge Island School District,
Bainbridge Island Park and Recreation District, and Bainbridge Island Fire Department
support each other in a variety of ways to provide human services to the community. For
example:
* The Bainbridge Island Senior Community Center: the Bainbridge Island Park and
Recreation District pays the staff and provides bus transportation for center activities, while
the City provides the facility.
* The Bainbridge Island Teen Center: the Park District and the City pay the staff of the
Teen Center which meets in space provided jointly by the Park District and the School
District.
* The facility for Bainbridge Youth Services (BYS) is provided at a nominal cost by the
School District; BYS provides counselors in the middle and high schools at no cost.
· Bainbridge Foundation. The Foundation was established in the early 1960s to act as an umbrella
agency for the collection and distribution of donations to Island nonprofit organizations.
One hundred percent of the donations go to the agencies.
. Private support. The Bainbridge Island community gives generously through financial and in-
kind donations and substantial volunteer hours worked.
CHALLENGES FACING AGENCIES
The human services agencies responding to the questionnaire reported a number of problems they
currently face (see f...ppendiees B and C), including:
Ordinance 2004-09
2004 Comp Plan Update
Page 189
· Transportation, i.e., their clients can't reach them
· Affordable space for programs and administrative functions
· Affordable housing on the island for employees who provide human services
· Lack of coordination between agencies (note: Some agencies stated that coordination and
cooperation was strength; others commented that there wasn't enough coordination.)
· The disparity in salaries for their workers-salaries that do not reflect professional
expertise and are not commensurate with Bainbridge Island living expenses. This is
especially true in the child care sector.
Section 51. A new Appendix C is added to the Human Service Element as follows:
DEMOGRAPHICS. PROJECTIONS and TRENDS
COMMUNITY PROFILE}
Population, Age, & Race
Bainbridge Island has experienced a greater population increase from 1990 to 2000 (28.2%) than
has the County or the State, however the projected population growth from 2000 to 2007 is less
than the County or the State. As a community they have had and will probably continue to have
less young people (ages 20 to 34) than the County or the State.
At the same time though, the Island is expected to have a larger decrease in the number of children
under age five and a larger increase in older residents (age 55 to 64) than the County or State.
Overall the Island has and is projected to have an "older" population. This older population (55 to
74) is also projected to have higher median incomes than older residents in the County or the State.
Bainbridge Island is also less racially diverse and is projected to remain so. The population is
about 10% more White/Caucasian than the County or the State population.
Household Characteristics
The Island has more family households, particularly married couples with children under 18 and
less female headed households with children than does the County or the State. They also have
fewer people living in group quarters. Island residents also have higher median income levels and
are less likely to be living in poverty than those in the County or the State.
Education levels on the Island are very high. There are twice as many residents with Bachelor's
Degrees or higher and three time as many residents with Graduate Degrees or higher than those on
the County or the State levels. The Island also tends to experience a lower unemployment rate than
the County or the State. Most residents of the Island have management, professional, and other
related occupations that are private wage and salaried positions. A majority of the residents also
work in Seattle and many use public transportation (the ferries) as a way to get to work.
A higher percentage of Island residents own homes than those within the County or the State. The
} Prepared by PRR, for HHHS Needs Assessment, 2003
Ordinance 2004-09
2004 Comp Plan Update
Page 190
median home value on the Island is also considerably higher than those in the County or State.
The estimated home value in 2002 for the Island is $276,000 vs. $131,000 for the County and
$147,000 for the State.
Economic Profile
The top three industries (based on number of businesses) on Bainbridge Island are
professional/scientific/technical services, retail trade, and health care and social assistance. The
retail trade industry is the largest in terms of sales and in the number of paid employees.
Youth
Fewer children on the Island live in poverty than within the County, in fact Bainbridge Island has
the lowest poverty level for children in the County. The Island also has the least amount of
Medicaid-paid birth deliveries in the County. There is also a continued and steady increase in
school enrollment. However, Bainbridge Island teens have higher reported alcohol and marijuana
use than does the County or State. Still, many of the common "youth" crimes have decreased in
incidence over the past five years.
Crime
Island residents are less likely to experience a crime against their person or property than those in
the County or the State. From 1995 to 2000 there has only been approximately a 1 % increase in
the number of crimes.
Human Service Trends, Behaviors, & Community Values
In general the community is seen as a very healthy. Many residents report they are trying to
maintain or lose weight, that they are taking aspirin regularly to prevent heart attacks, and that they
have been tested for or strongly support HIV / AIDS education. The number of people who smoke
or use tobacco on the Island is about the same as those within the state and the Island also has the
least amount of expecting mothers reporting that they smoked during pregnancy in the County.
Lastly, residents have mixed feelings about growth on the Island and generally do not support
improvements to support growth such as road expansion, development of manufacturing,
additional shopping facilities, improved police and fire services, and increases in affordable
housing.
Island residents are very appreciative of their environment and support road expansion that
maintains narrow, winding roads with vegetation. They also support taxes for such things as
pedestrian and bike trails, new parks, and new recreational areas.
Ordinance 2004-09
2004 Camp Plan Update
Page 191
General Demographics
Overall Population
Overall Bainbridge Island has seen a greater increase in their population from 1990 to 2000 at
28.2% than has Kitsap County or Washington State.) However, their projected growth rates are
lower than what is projected for the County and the State. Even though Kitsap County seems rural,
as of 1999 the County had the second highest population density in the state of Washington,
second only to King County?
;/j ~ "i I ii1'...;'11).g.i,f, ,:
;Il.i" If~:.~t ~\~~~FJ,,~;.,;. ,~
...' ,)~'tf,'''d>:: ,
~ .:...~~'}N'f)t"';>..."
· 20,308
. '22.3%
21.1%
. ., "~;r'" ~. ..
,,;"~ro;.!"'~ <~~,ii'tt~~.;rJ ~r _ -,";17:'"
......"'>.. ,..\: ..'i::t::n,~~ :I.,' '''"~
..C~ge from 1990-2000
28.2%
2002 Estimated Population
20,448
235,075
6,041,351
2007 EstirnatedPopulatfort'
"'~.' .~. ~.,,;\? ". W ," i'fiit' ~~11 :
\'''';?,l,\',:!1syr, 5Ri,~ i 0 @ e ~1'6," .: <,'i '}':
',,,~;/;\,,'~~~,~~'?lt\,;' ~. ' ey'~"i:',,/',~ ".:.
"'.. ~, I * .::}..:.J.~! _. J!J r '" ". , ,
Age
From 1990 to 20073 there is a decreasing percentage of children under 1 0 years old across the
island, County, and the State. Bainbridge Island is projected in 2007 to have fewer people under
age five than does the County or the State.
Bainbridge Island continues to and is expected to have considerably lower percentage of people
age 20 to 24 than the County or the State (1.9% vs. 6.8% and 6.9% in 2007). Across all the
geographic comparisons though there is a projected decrease of 25 to 34 year olds. There is also a
projected decrease of 35 to 44 year olds, but this decrease is more severe on Bainbridge Island.
The decrease for this age group from 1990 to 2007 for the County and State is approximately 2%,
but for Bainbridge Island the decrease is expected to be 8.5%.
Across all the geographic comparisons there is an increase in people age 55 to 64, but Bainbridge
Island is projected to have a larger increase in this age group than the County or State.
Overall the young population of Bainbridge Island is decreasing more and the older population is
increasing more than the County or State. The projected median age for Bainbridge Island in 2007
is 45, compared to 37 for the County and 36 for the State.
Ordinance 2004-09
2004 Camp Plan Update
Page 192
fiif;~"'B"'~a'O"IO"i'~"ii'~~~lfl~"{Ii~i~
'''ilL , Dllu e, .lit A : It'$~l11
J:''.:;\.:-!i~j'-t:'t"fiiW!!''E;.~'?il;)~,,:.JI;~j;rs_~'ffi;i'a&.I: _ _ ~.~~!
'fiir~."S2" "'''''''''> ~,..."''''~'''' q"""Cl".l!i!:f'~.&l""";"!t
[~""ii. ',aslbjf< on~i:)UatC'l'l\;~'"
:t;,}!~I\l::;'~~'<W.l'j:;h~~,:j:ntJIfi'~\4;"'i~,S\:j;"<14"b.i\'f;.:,,;:?:;s;\;~J!j
1990 2000 2007 1990 2000 2007 1990 2000 2007
% % Estimate % % Estimate % % Estimate
~fillJl, !."I\;';;l"rZ~ '~~I'~";~~~i..1iM~"Hl..~-a!1iBe~~8_ ~a~
~~~~lq~ ~~:>:'~g~~~tBI!1~~~~~~1
5 to 9 8.6 7.6 6.8 8.2 7.5 6.9 7.6 7.2 6.7
_".II~~J.._II...__.._
15 to 19 5.9 7 7.2 6.8 7.4 7.7 6.6 7.3 7.5
--...-------
25 to 34 11.6 6.9 6.3 17 12.9 12.0 17.6 14.3 13.4
35 to 44 22.9 16.8 14.4 16.6 16.8 14.6 16.5 16.5 14.4
451054 13.6 21.8 23.5 10.1 15.2 16.7 10.3 14.4 15.7
---------
33 4.3 5.3 3.5 3.5 4.5 3.9 3.6 4.5
---------
75 to. 84 4.9 4.6 45 3.4 3.8 3.6 .3.8 4.1 3.9
_R..~._______
Median Age 43 45 36 37 35 36
(Years)
Race
Looking across data from 1990 to estimates in 20074 Bainbridge Island continues to and is
projected to have a more White/Caucasian population than is the County or the State. The
projection for 2007 is that there will be less White/Caucasians than in 1990 with increases in
African American, Asian, and Hispanics populations across all the geographic comparisons.
However, Bainbridge Island residents will still be less racially diverse than the County or State.
One interesting note is that the American Indian! Alaska Native population is expected to decrease
more in Bainbridge Island than the County or State from 1990 to 2007 (a decrease of .9% vs. .1 %).
Ordinance 2004-09
2004 Camp Plan Update
Page 193
~~~BIl'~~firf.~~~~~~~~7fD~~
-~~~~ tn~..~,..~~",JJ1~}!.yg~!!!!tv~ ~.IAi!m~_~.~VH!!~J':~~~ r2~~!~Y.~J"'!lY!\~!J!'~im
1990 2000 2007 1990 2000 2007 1990 2000 2007
% % Estimate % %, Estimate % % Estimate
_I'~" 'm> m'''''''I' ;;11' 'III' RlRJt mm' 'II' 'm!)'". R!' '[81' -~""~'Il-"~."."!il'I~.
' " '!I';;r~" ft'~'" -',;11 ,<' .",'_~",' - D'ili> >lli1'<"'18;jj~ ~i~~'
'_ ,,_' fL _ 'i~'< '~,:,,:-~.:.Y'r' l~..~1'~~~, _ ..',~:; _ - -"...."J~. _ .,_"",-'-." ~,,'~~'<?i ,-__~,,-~iB~/,J:fil - _o),.:~d'~t ~: ",~,,,-,Q..ei,,'('.' _,_:
Black/African .1 .3 .3 2.7 2.9 3.2 3.1 3.4 3.7
American
5.96.8
...
.3
Hispanic
2.2
2.5
4.1
4.6
7.5
8.8
Gender
From 1990 to 20075 the gender makeup of Bainbridge Island is slightly less male than Kitsap
County, but is in line with Washington State. This could be due to a military presence in Kitsap
County that is not seen across the State.
,~ 1'" , ,.;. ""\lJ.:,:t\ "ll-;~' $.,'" ',Wth'
"'1<, " I 1:4 ~I,.L: ~u; ~',~./ :";;''''
Female
1990 2000 2007 1990 2000 2007 1990 2000 2007
% % Estimate % % Estimate % % Estimate
---------
51.2 51.4 51.5 48.9 49.3 49.4 50.4 50.2 50.3
Household Characteristics
The following section highlights those characteristics that deal with everyday life and family on
Bainbridge Island. The characteristics that are highlighted include Family Relationships, Income,
Education, Employment, and Housing.
Family Relationship & Characteristics
In general from 1990 to 20076 Bainbridge Island has more family households, married couples
with children under 18, and more married couples without children than does the County or State.
However, like the County and State the Island is projected to have fewer family households in
2007 than they had in 1990. Unlike the County or State though, Bainbridge Island is projected to
have more married couples with children under 18 in 2007.
Ordinance 2004-09 Page 194
2004 Comp Plan Update
Even though there is expected to be an increase from 1990 to 2007 in the number of female headed
households with children under 18 on Bainbridge Island there is still considerably fewer of these
types of households than are in the County or the State (4.8% vs. 7% projected in 2007).
Bainbridge Island also has less people living in group/institutionalized quarters than the State or
County and they are expecting a larger decrease in this type of living situation in 2007 (1.2%
decrease vs. .3% decrease).
Overall Bainbridge Island has more family households, particularly married couples with children
under 18 and less female headed households with children than does the County or State. They
also have fewer people living in group quarters.
.tm'I'~~_" .... '~'I~-m~m!C!~~..."'.". "
> 1..A!.f!f1MIN;,~~ ',:~_~,~ '~ y'-': ,,- """, 'i ',\ -' - -'.-, a"4\m,smg~_IJ~
1990 2000 ," 2007 1990 2000 2007 1990 2000 2007
% % Estimate % % . Estimate . % % Estimate
Married Couple 30.8 30.8
wi children < 18
31
30.9 27
27.9
26.1 23.8
24.8
'female 3.9 4.5
Householder w/
g1Ul4fen<18
4.8
6.4 6.6
7
6.7 6.5
7
Nqn-family
ho\!$eholds
27.5
28.1
29
29.5
34
34.4
.---------
Average family 2.98 3.1 3.07
sj~e, '
---------
Income
Residents in Bainbridge Island have higher median and higher average incomes than those in the
County or State. In fact the difference between the average incomes of the State and Bainbridge
Island is about $26,000. However, even though Island residents have experienced significant
changes in income since 1990 the rate of increase is the same as residents statewide (61.3% vs.
72.4%).
Ordinance 2004-09
2004 Comp Plan Update
Page 195
The Island also has significantly fewer people making incomes less than 35,000 than does the
County of State by about 10%. They also have about half as many people living in poverty than
those in the County and State.
Overall Bainbridge Island residents have greater income levels and are less likely to be living in
poverty than those in the County or the State.
MediartIncome20()l'
\'~ ~f$t~i:11'(~li:G;'.; .
~ ~~: t~ "",;1.j;l~ r. , - ,_' \t.l' ~
.~ ( '..:; ~.. ~"" :,,~. '- ""/ < '1
e e,,;\HI;l';l 'fi" ..fr."- '1~ ~lf?~"'.,
.~' :' .J\.Rt~))). ~1.!~"~),L~J~~~:\t,~~ ~\i!-\
, ~, ~'>>~~ <-:;, ~). '"",,';"~ >~}
eo',;, V" (.;1; <;lS"J~';" II1'8l'i. a" , .",>".,,<,;,
,\ ,," r'\i'~J,. ,,;{,,,',,,~ll "Yi,i;,l~/,li dl, C'Il\ 'e:'~\ \,
"'< .~ j)-') " , v" "':"~;(,,;:;!.,,-,,,,\, ,~" "-,).;, f.
cfia.t1ge %SiIlce 1990
...-
61.3
51.9
72.4
',' %Under 35K in 2001
'" ..' "'_" '. ~ _ .c._" _.. "".... ~...... .... ...... _ ...... .-
, ' . ~d ", ~ w'tW ' ,
i'/, ;V'. ""~ '~b"1~~'~1'il{~I<~I! 9,;"''','''' ,",',
:r~., ..~~~,III'l::<"""('""~}t,.,t,:"_~,,,~_~,r;2"~ ~p,",{,-"I'.\; ~.,t~t
P6,,~mr Status 1999 all 8.8
J>et'SonS ," ,
Urider 18 3.8 10.9
2002. Estimate of Poverty 4.1 7.8
StattisAll.,persons
* MakiIlg approximately $26K in 1990 is equivalent to making 35K in 2001
Education
When compared to Kitsap County, Bainbridge Island has slightly more residents with a high
school degree or higher (about 7% difference), but the Island has twice as many residents with a
Bachelors Degree or higher, and three times as many residents with a Graduate Degree or Higher.
a i)~~N' i~\, <::"t<t' -';Ll<-, l'ed"S..'~ .,,~;. ~, ,''.
:" ~!l.~~l ",:~1?,!(r;.t~1,:; ~:~mh~)'.:1\~' ~')~'
J;ijli~'~~'-~t:.)' . q ;~ ' \
Bachelors Degree or Higher
',60.1
'2$.3
"~' . "
fil"r:Y~liP,'r~,:~~)lM7"~'(iI\ :ij'~f '~~ ~'"~, ,}
x t, Z.." '(>t ~\~'" ~.,.~ _""~... ~I...~ _" ~
Ordinance 2004-09
2004 Comp Plan Update
Page 196
Employment
Overall Employment Rates and Occupations
In a 2000 Community Values surve/ 58.1% of those in Bainbridge Island stated they were
employed. According to the 2000 Census, 64.2% of people in Bainbridge Island are employed.
. The unemployment rate in 2000 for Bainbridge is 2.6% compared 5.6% in Kitsap County.
The main type of work for those on the Island is management, professional and other related types
of occupations. Most of the residents are private wage and salaried workers.
Top Three. Types of Occupation according to 2000 Census
. Management, professional, and related occupations (56.2%)
. Sales and Office Occupations (20.1 %)
. Service Occupations (11.7%)
Class of Workers 2000 Census
. Private wage and salary workers (64.9%)
. Government Workers (16.8%)
. Self-employed (17.7%)
. Unpaid family Workers (.7%)
Place of Employment'
Since 1992 fewer residents are working on the Island, but more are working in Kitsap County. In
general though the majority of residents are still working in Seattle.
Ordinance 2004-09
2004 Camp Plan Update
Page 197
Getting to Work
In general Bainbridge Island residents are not driving themselves or carpooling as much as those in
the County as a means of getting to work. However, they are using public transportation more than
those in the county, which is likely due to ferry use (30.1 % in 2000). Residents in Bainbridge
Island also have longer average commute times than those in Kitsap County (46 minutes vs. 32.5
minutes in 2000).
;- ':.~ ;l'<i-:HH v'~J1rl'p'l~n..
,,,\,,,\K? """ ..~/,,~~~\~~~'(~,? ,:\~...~I,_\" l,
',~., ~mi]!~~~tl~f:r~J .',' ,,:
, .. ~:,:: . H~9:,iD f:/ ',' : ,,'
, ''f~' 'ftJ;"1"'~~W1'\4t "w>
~) ~:~~~,~J&\~k~,~*~ /fg::'
>d' ~':;::::::':". .:~}L;~~:~
Public
Total.
Transportation
35~7%
.2QOO 2002 2000 2002
Census Estimate Census Estimate
.4(i%. "46.2%.' 66% 65%
----
28% 31.5% 9% 8%
Y:,;i;~,,'':,~~i'o ~~.;l')_.,,,' :.;:-,
L~~.t\.:~;;;. }'FeA.e".~l'~~il:.t A",'~ ~,~
----
8.7% 7% 6.4% 6% 6.6%
----
.
----
----
----
----
----
Housing
A higher percentage of Bainbridge Island residents own homes than do those in the County or
State. The median homes values are also considerably higher on Bainbridge Island. The estimated
median home value in 2002 on Bainbridge Island is $276,000 vs. $131,000 for the County and
$147,000 for the State.
The money needed to purchase the median-priced home on Bainbridge Island is 48% higher than
median household income on the Island and 98% higher than that for household income in Kitsap
County.9 Also, in Kitsap County alone there are 3.2% less homes available under $160,000 than
Ordinance 2004-09
2004 Comp Plan Update
Page 198
there are statewide. 10
Owning/Renting
'''-.'.M. '-,;f"n1y...~.""...i'.ili-., ?m"'..I1~im.". '.'1T""1!~.'...'II.. '.' '.'.''''''..''Jiililifi', ::r.~.mm'" ." ....II1II..... . . ....'. II". xHllmi....... '-.11". . ill"'.'..'.",'.' -'. 'III.' .... .
...."&num.1':lu' e)'IS!'''))'' c, , ',',.. "lS ""'.' ." ,.' '...c' ,"'" m'~ (I" J' ,
/!St,,",_..~~,"~~, ..il'~~.,3,j~ '.' '" .11,..:...'1. ,;.~. ~.!Ol'..' .... .' i ~'.~_' . _, c' '. ',.,," '.
2000 % 2002 % 2000 % 2002 % 2000 % 2002 %
Estimate Estimate Estimate
~!!1!''lJi.v.l~...~~~~~Olt~~'''Jjm&~~~~~~~~.' '.
_~:~~IRtt~~~~!i~_~~~~
Renter Occupied 21.7 21.8 32.6 32.4 35.4 35.6
Median Home Values
-- _.~. ..'
',:' ", ,,;'- _..>~:,:".... ,. ,'- .. ,-": "':,, :: ,-," '. <, <
:_,' ,-' ",:,' " it .. .. ": __:... ,- .. ,,;.. ,::.. .. - ',. -. .... .. " , '.: ." ".... I .. i '_ '. .. ...t -,.. .. ,; < '. .. .." .. -', ' ,..."..
., :" ....".... .. -....... ..' -'. ".. " .. ' .I"", .. .,.. ',' ..
2000 2002 2000 2002 2000 2002
Estimate Estimate Estimate
Economic Profile
The top three industries (based on number of businesses) on Bainbridge Island are
professional/scientific/technical services, retail trade, and health care and social assistance. The
retail trade industry is the largest in terms of sales and in the number. of paid employees.
These top industries are similar throughout the County, except that retail trade industries are the
number one industry based on number, sales, and number of paid employees.
Top industries throughout the state are also reflective of the industries on the Island and the
County, except that accommodations and food services is a larger (in terms of numbers of
businesses and in number of paid employees) industry than is health care and social assistance.
.. ""11; ... ~~'r .-
1" ,'" ~ ..f;~t~ ~: & ~t:, \:l
,.J. it' -,,< ,~~ ,
, :LmJi ~~.m;~ ~~;)~;
MantJftJcturing
-
143
...
1,441
: ,~, ,,~)l;ir{.'~p~:, : '.
(1) f ,p .",~;;~1~. ......., ~:;
Ordinance 2004-09
2004 Comp Plan Update
Page 199
Bainbridge Island
~~"".(1tll1irHo}{'\"""Ji!:Y!\""'\:'"f'i\i~';I',,~
~mw.~ml~i/1ti%~~~t~~.t~ji!::flJ;~~~i~
73
10m-24999
500-999
100m-249m
fjlfJlt' '.. '~~':"'!'~I';;iT~" '0 } ':
",,; .f!, ?'t",~1Jmn\1l', ~""
,~; .,~"i<}.;:..,~'- ,-b .... ;'~. ..'~')W
Washington State 22,841. 52,472,866 5,385,915 283,653
","""'-"'''''.' -" '-' , -' .-' ,'" ,.,
~~~~i : .. '~,.., ", ," " " .' , ,', , , " " '," ,. ,,'
~~~~,_" _,:I: _""'~' " ' ' _ - .. ., . _', _" ., .,
Professional, Scientific, &
Technical Services
~8Ii;1'5~a~~~~~~-~~
_g~~:Jllt.J~J~~~?"t_f!K~~:ufi~~~~ ~!!~r~.:rR~,~~ ~~~~~~
Kitsap County 443 168,980 65,518 2,226
~~C1\I1~-~~~~~~~~
~~lWE~w.Bfr~fI?;1D6llR&mhrt~1~~~~Js~~<<~~
EducaOonalServrees
lll______
Kitsap County 27 4,391 1,422 153
___rImII___
.""-~,, <,,,. ..~
, .;,;!;jrr .e~v;!^
Washington State
7,797,749
3,390,2441
250-499
-
122,813
~ ~~ ,/~~:6-' ;tQ\t~~<if:Jl;~.~... h'J ;:{~,~i'
~ ( ~...'" ,'1.;. ; : '1iJgb~". '. "",~~,'2:.
"v ;.' )~~ ;fi ~~i~~~., ~j~ :.~:: ~t:~J~1
" , . "",,'" ~j , .... '"
." Arts, Entertainment,
Recreation
"-..'..'.......-......'
", "'.,.' '" -"\'.,'
)"!G; '" " .
J(.itsap County 51
....~~...~.........~
,*,,~~~I?AI~
;jj."" ,'\f~'~I ,""V ;'."(o'/,...~.
,,"'?~!:~1x~lij 3~!.~;;' .t3,~A> <:.;::1.11'"
',.I , > ~,~t~""'l"~ ,., if ~ "1" ""'.
" :2:;*n~~I~J JF,*~Hrti!ii;lf'
;:,~ " I, ~. _ (.<1;;....., ~ "!!;tjA, "';!
31,618
9,661
850
2$: t, :)'. ~ ~~t~~ t,l~f(~~~J~~.~:~:?
.,v< ',\ jl ~1~ "'t:.~..J&;"";.>f,,'i,,~..t
" ';,"":i ,..~~~? '"' ... 4 ..... '''~ h :Xt~ .
:~ '( I~i,;) Il;l!JI1.llilll~\l,';~~~,~~,~, ,;"\l~ ;,~
- i " h ~) "y~..t;?_ > 1;1 ~~~~:4~:f ~~~~?fD);1r~~
;: i ~ , < 1 \ b! ~ :',. lIt 11' , ~t" d~'" ;:,.'~f~>':1f~r,.'~j~ ~;: ; r.-C~~1V
10m-24999
2500-4999
250-499
,'", jl; ,,, {l'M,~ii:'~ ~J.' ~. ,
(~:':L ~~j{ r1."~:r(.'..., ~~~ ~ '~l;:
1''1 , v~;~?~a (;r~~~~L -. ~11\;" ;:";,
',' I _,(~!~~f'lJ "'~. ~,~
,,,,,;~-; .....-'.-. ..,..,', -"'''''' '-"'''-''.'
.',"C!J.~"" '" , " ,'. .,....m" '.;".'
. .;.. ~<",If:"-:_,.;!;'>':, ^ . . _, ., ., ,., . . . '. ..' . . .. _ _'. '0_ ~ ,.
Ordinance 2004-09
2004 Comp Plan Update
Page 200
Kitsap County 264 77,690 23,850 1,300
~1I,glri't~~lr8~if~!-~[.~(!fM~~-':~~i~
~WJ5~*w~'H3;~~.~~~@f4l&~ ~..4ltt,.,;i~f'J;~&:JfI ,,~~~~,,"'.,~w,,1:~~J~~~.J
* All numbers & dollars are shown for "Taxable" items only. Only those industries that
Bainbridge Island had entries for are listed. M=Not published for manufacturing; where ranges
are shown m=millions (sales and payroll figures are already in thousands).
Senior Life
In general the population is older on Bainbridge Island than it is in Kitsap County or in the State.
The number of people age 55 or older living on the Island has stayed the same or decreased from
1990 though. Howeyer, the population of 55 to 69 year olds is projected to increase by 2006.
In regards to income, those aged 55 to 64 in Bainbridge Island have higher median incomes than
the total Island population in 2001. The median income for those 65 to 74 is $7600 lower than the
Bainbridge Island total population income median, but is still higher than the Kitsap County or
State median Income. Those 74 and older have median incomes well below the Island, the County
and State total population median incomes."1 As of 2000, the Department of Aging for Kitsap
County reported that for th~~r clients the percent below the poverty level is 54.6% and those above
the poverty level is 45.4%."11
Median Income (2001 Estimate)
. 74 to 79 $33,529
. 80 to 84 $27, 708
. 85 plus $29,736
According to the 2001 estimates, 63.6% of seniors in Bainbridge Island live in family households,
28.7% live in non-family households, and 7.7% live in-group quarters (institutionalized). There
are also more people with mobility and care limits that are over age 65 on the Island that the total
population (15% vs. 4%).
Have aWotk Disability
_' ,_" "" ",_",. "'"'.'lI,'I_'."",
; ......r. )".1 .....:.,..;. .. "',' ',' ..,' .. .. "_._ . ";' ",' "'.,\ ._,',".
'--...--,~_ "~_'_ ,,,,,,,,,-w,,Ul,, ," " _.'.', .,' ...... ,"- '--' --", ",.'.".-*,: ,'" ,,-
4% 15% 24.2%
-',,', ' ",:"".,,,,,,",-',,,,,.,, ,"""-"..,:_".,'.,..,j)',"""
. .. n," " .. .." ,.," .." . .,','. '.
. '.
. -- ... .. .. .... '.. ,
10.3% 31.6%
Have Mobility or Care limits
'f'
Youth
Overall School Enrollment
Bainbridge Island schools have seen steadier increases in school enrollment from 1995 to 2001
thanhas Kitsap County. Kitsap County has experienced declines in school enrollment in 1998 and
1999. The graduation rate of Bainbridge Island students as of2001 was 97%.
Ordinance 2004-09
2004 Comp Plan Update
-------
3207 3407 )544 3664 " 3763 3859 3991
-------
40173 41215 41937 41801 39304 40627
_1lIIl.,.1II\1I----
Page 201
KitsapCounty
* 1995 Data provided by Kitsap Trends Report and 2001 data provided by Bainbridge Island Public
School Annual Report 2000-2001.
Poverty Levels
In 1997, 7.5% of children ages 5 to 17 lived in poverty in Bainbridge Island, which is less than the
11.6% that live in poverty in Kitsap County. In fact Bainbridge has the lowest poverty level for
children in Kitsap County.
Youth Behaviors (Crime, Drug Use, and Pregnancy)
A Youth Risk Behavior Survey in 1999 in Kitsap County found that:
· Youth continue to report high use of tobacco, alcohol, and drugS.
. Youth crime is decreasing
. Violence continues to be a concern as 35% reported being in a physical fight and 12%
reported being physically hurt by a boyfriend or girlfriend. Also 7% of youth reported
carrying a weapon in the last month.
· The birth and pregnancy rate for 15 to 17 year olds decreased from 1997 to 1999.
· Leading causes of death for youth age 12 to 19 from 1994 to 1998 is a motor vehicle
accident (30%), suicide (18%), and homicide (11 %).
Bainbridge Island teens do however have higher reported alcohol and marijuana use than does the
County or State. These teens also report smoking, using cocaine, and using inhalants less than
those teens in the County or State.
''''-~'fi:1\4fi~-r.'i'~''~': -<Xi -1',., ~
'f\\~~~J4UJ~\~!!~~~,i~':~t::~2':
i\.,.<i..: '~'*'i,t.i I " ,-,)). . -".;.
~~":!~,,?.; l "'-~ ~~,,,., <~.l,',;,.
Recent. Substance abuse
(High$chool)
%
%
%
Crime Statistics
Currently, Bainbridge Island has fewer residents that are likely to commit a crime against
someone's person or property than those in Kitsap County or in the State. This is also not expected
to change in 2006.
Overall there is about a 1 % increase in the number of crimes from 1995 to 2000.xvi Certain crimes
being committed such as vandalism, runaways, and theft in general decreased from 1995 to 2000.
Domestic violence incidents are about the same, but domestic disputes have increased about 40%
during the five-year period.
Ordinance 2004-09
2004 Comp Plan Update
Page 202
The most common youth crimes include fireworks possession/discharge, malicious
mischief/vandalism, possession of alcohol/tobacco, runaways, and theft. Over the five-year span
these crimes committed by the youth have either decreased or remained relatively the same.
CAPCrime Indexesxvii
Crimes Against Person or
Property 200 1
Against Persons
Against Property
33
41
43
54
74
89
* A score of 100 = the US average for each index, this means the lower the score is from 100 the
less likely the crime will occur.
Human Services Trends, Behaviors, & Community Values
Births! Head Start Programs
From 1997 to 1999 the number of births in Bainbridge Island has decreased from 5.3% to 4.7%.
This is not necessarily different compared to other cities)n the County where the number of births
has remained relatively the same or decreased slightly. XVIII
Bainbridge Island has the least amount of Medicaid-paid deliveries (7.9%) from 1997 to 1999 than
any other city in the County. The next lowest amount of Medicaid-paid deliveries is in Seabeck
(18.6%) and the highest is in Bremerton city center area (63.1%). Bainbridge Island also had the
least incidence of mothers smoking during pregnancy (4.3%) compared to other cities in the
county. The highest incidence (28.6%) of mothers smoking during pregnancy was in Keyport.
In a 1998 survey of parents with children enrolled in Head StartlECEAP programs in Kitsap
County the lack of child care (33%) was the most frequently cited need followed by no health
coverage (20%). In regards to the ways these parents seek assistance, the most frequently cited
source of help was friends and family (53%), followed by food stamp programs (35%), food banks
(35%), welfare programs (30%) and their church (17%).
In regards to child care specifically, the most common issues or problems were with the lack of
nearby providers, .lack of care for children who need specialized services, and issues with safety.
Ordinance 2004-09
2004 Comp Plan Update
Page 203
Behavior Risk Factors
A 1998 Behavioral Risk Factor Survelix found that overall residents in Kitsap County considered
themselves healthy. Of the adults about 29% were overweight, but 63% were trying to maintain
their weight and 37% were trying to loose weight.
At least 50% of residents have been tested for HIV and more than three quarters support
HIV / AIDS education in elementary schools. A large amount (88%) also reported having health
care coverage and more than half were taking aspirin regularly for their cardiovascular health.
At the time of the survey about 23% indicated they were currently smoking, 8% had smoked a
cigar, and 17% had used smokeless tobacco. This is about the same as the number of people
reporting that they smoke across the state.xx
-
Community Values in Bainbridge Island
In 2000 a community values surveyxxi was administered to Bainbridge'Island residents to assess
their opinions about growth issues on the Island. The main findings found that:
. Residents had mixed feelings about growth on the island and job creation was not a
high priority.
. Even though traffic congestion is a problem most residents value maintaining narrow,
winding roads with native vegetation.
. Increasing park & ride lots, expanding the sewer and water systems, and expanding the
roadways received the least amount of support from residents.
. Residents are willing to be taxed for environmental preservation and "quality of life"
improvements such as pedestrian and bike trails, new parks, and new recreational areas.
. Many recognize the importance of affordable housing, but few were willing to be taxed
to support affordable housing efforts.
. Residents opposed improved police and fire services, road expansion, development of
manufacturing, additional shopping facilities, and other improvements to support
growth.
I POP-FACTS: Demographic Snapshot for Bainbridge Island, POP-FACTS: Demographic Snapshot for Kitsap
County, & POP-FACTS: Demographic Snapshot for Washington State, July 22,2002,2002 Claritas Inc.
2 Kitsap County Trends Report, Spring 2001, Volume XVIII, Http://www.kccha.comffrends/01SDring/01Stoc.htm.
f.24.
POP-FACTS: Demographic Snapshot for Bainbridge Island, POP-FACTS: Demographic Snapshot for Kitsap
County, & POP-FACTS: Demographic Snapshot for Washington State, July 22,2002,2002 Claritas Inc.
1990 Census Lookup Data, www.census.gov
Table DP-I. Profile of General Demographic Characteristics: 2000, U.S. Census Bureau
Comparison of Profiles of General Demographic Characteristics, Census 2000, Bremerton-Kitsap County Health
District Assessment Program, October 2001.
4 POP-FACTS: Demographic Snapshot for Bainbridge Island, POP-FACTS: Demographic Snapshot for Kitsap
County, & POP-FACTS: Demographic Snapshot for Washington State, July 22,2002,2002 Claritas Inc.
1990 Census Lookup Data, www.census.gov
Ordinance 2004-09
2004 Comp Plan Update
Page 204
Table DP-I. Profile of General Demographic Characteristics: 2000, U.S. Census Bureau
Comparison of Profiles of General Demographic Characteristics, Census 2000, Bremerton-Kitsap County Health
District Assessment Program, October 200 I.
S POP-FACTS: Demographic Snapshot for Bainbridge Island, POP-FACTS: Demographic Snapshot for Kitsap
County, & POP-FACTS: Demographic Snapshot for Washington State, July 22,2002,2002 Claritas Inc.
1990 Census Lookup Data, www.census.gov
Table DP-1. Profile of General Demographic Characteristics: 2000, U.S. Census Bureau
Comparison of Profiles of General Demographic Characteristics, Census 2000, Bremerton-Kitsap County Health
District Assessment Program, October 200 I.
6 POP-FACTS: Demographic Snapshot for Bainbridge Island, POP-FACTS: Demographic Snapshot for Kitsap
County, & POP-FACTS: Demographic Snapshot for Washington State, July 22,2002,2002 Claritas Inc.
1990 Census Lookup Data, www.census.goV
Table DP-1. Profile of General Demographic Characteristics: 2000, U.S. Census Bureau
Comparison of Profiles of General Demographic Characteristics, Census 2000, Bremerton-Kitsap County Health
District Assessment Program, October 200 I.
7 Bainbridge Island Community Values Survey Report, July 2000, Pacific Rim Resources, Inc.
S Bainbridge Island Community Values Survey Report, Pacific Rim Resources, Inc. July 2000.
9 Housing Needs Assessment, Housing Element, February 2000. .
10 Kitsap County Trends Report, Spring 200 I , Volume XVIII, Http://www.kccha.comffrends/O]Spring/O]Stoc.htm.
p.44.
xi Connect Study Report of Senior Life, Poverty in Bainbridge Island, Claritas Inc. August, 2002.
xii Service Patterns-Bainbridge Island -2000, Department of Aging.
xiii Survey Results: Washington State Survey of Adolescent Health Behaviors 2000, Bainbridge Island School
District, RMC Research Corporation.
xiv Healthy Youth, Kitsap County 200 I
xv Healthy Youth, Kitsap County 200]
xvi Offenses Spreadsheet from 1995 to 2000, Bainbridge Island Police Department.
xvii Crime Comparison Report, Claritas Inc, August 2002.
xviii Bremerton-Kitsap County Health District, December 2001
xix 1998 Behavioral Risk Factor Survey, Executive Summary, Bremerton-Kitsap County Health District.
xxTobacco, Alcohol, & Other Drug Abuse Trends in Washington State, 2001, The Division of Alcohol & Substance
Abuse.
xxi Bainbridge Island Community Values Survey Report, July 2000, Pacific Rim Resources, Inc.
Ordinance 2004-09
2004 Comp Plan Update
Page 205
Section 52. This ordinance shall take effect on and be in force five days from and after
its passage, approval, and publication as required by law.
PASSED by the City Council this 8th day of December, 2004.
APPROVED by the Mayor this 16th day of December, 2004.
A TTE~T/ AUTHENTICATE:
.~ (p ~/
SUE P. KASPER, -CIty Clerk
~
FILED WITH THE CITY CLERK:
PASSED BY THE CITY COUNCIL:
PUBLISHED:
EFFECTIVE DATE:
ORDINANCE NUMBER:
March 17th, 2004
th
December 8 ,2004
December 15th, 2004
December 20th, 2004
2004-09
Ordinance 2004-09
2004 Camp Plan Update
Page 206