ORD 2008-03 2008 CFP
CITY OF BAINBRIDGE ISLAND
2008
CAPITAL FACILITIES PLAN
UPDATE
January 23, 2008
Adopted
Ord. 2008-03: Exhibit A
TABLE OF CONTENTS
I. INTRODUCTION....................................................................................................................................................3
RELATIONSHIP OF CAPITAL FACILITIES PLAN TO THE BUDGET...................................................................................4
WHAT IS A CAPITAL FACILITY?..................................................................................................................................4
HOW ARE CAPITAL FACILITY PROJECTS IDENTIFIED?.................................................................................................5
Levels of Service (LOS)........................................................................................................................................5
PRIORITIZING CAPITAL PROJECTS ...............................................................................................................................5
II. CAPITAL FACILITIES INVENTORY & PLANNING ....................................................................................6
CITY OFFICES, FACILITIES, & UNDEVELOPED LAND ..................................................................................................6
PARKS & TRAILS ........................................................................................................................................................8
TRANSPORTATION FACILITIES (ROADS, BIKE LANES, SIDEWALKS, TRAILS)............................................................10
WATER .....................................................................................................................................................................11
Winslow Water System.......................................................................................................................................12
SANITARY SEWAGE DISPOSAL ..................................................................................................................................13
SURFACE & STORM WATER MANAGEMENT .............................................................................................................14
III. SIX-YEAR CAPITAL IMPROVEMENT PLAN ............................................................................................15
IV. FINANCIAL CAPACITY ANALYSIS.............................................................................................................59
APPENDICES:
A. City project not included in 2008-2013 CIP
B. Bainbridge Island School District CFP
C. Bainbridge Island Metropolitan Park And Recreation District CIP
D. Bainbridge Island Fire District CFP
E. Kitsap County Sewer District No. 7 CFP
F. Kitsap County Public Utilities District No. 7 CFP
LIST OF TABLES
TABLE 1: CITY LAND AND OFFICE FACILITY INVENTORY ..............................................................................................6
TABLE 2: CITY PUBLIC WORKS FACILITIES INVENTORY (2005/2006)............................................................................7
TABLE 3: CITY UNDEVELOPED LAND INVENTORY (2005/2006).....................................................................................7
TABLE 4: PARK FACILITY LEVELS OF SERVICE...............................................................................................................8
TABLE 5: PARKS & TRAILS INVENTORY (2005/2006).....................................................................................................8
TABLE 6: TRANSPORTATION FACILITIES INVENTORY (2005/2006)...............................................................................11
TABLE 7: WATER SYSTEM LEVELS OF SERVICE ...........................................................................................................11
TABLE 8: GROUP A & B WATER SYSTEMS (2005/2006) ..............................................................................................12
TABLE 9: WATERS SYSTEMS WITH OVER 100 CONNECTIONS (2005/2006)...................................................................12
TABLE 10: WINSLOW WATER SYSTEM WELL INVENTORY (2005/2006).......................................................................12
TABLE 11: WINSLOW SEWER FACILITY INVENTORY (2005/2006)................................................................................14
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I. INTRODUCTION
Capital Facilities Plans (CFPs) are required under State law to identify capital facility
deficiencies needed to serve our existing population, plan for capital facility improvements to
meet the needs of our future population, and ensure that local governments have the fiscal
capacity to afford to construct and maintain those capital facilities. Capital Facilities Planning is
required to consider a 6-year time frame into the future. Therefore the 2008 CFP update includes
the years 2008-2013.
The Capital Facilities Plan includes summary details of the major capital projects of the City and
a financial capacity analysis. As the general purpose government on Bainbridge Island, the City
is required to analyze and integrate the capital facilities plans from special purpose districts
(Schools, Parks, Fire, etc) into its Capital Facilities Plan. The City and the special purpose
districts continue to work together to integrate their capital planning efforts to provide a more
even tax impact and to prioritize their projects while still providing quality facilities and services
for the citizens they serve. This is consistent with Goal 6 of the Framework of the
Comprehensive Plan:
All government entities strive to cooperate and serve their constituents in a fiscally sound
manner; and Policy CF1.10 of the Capital Facilities Element: The City shall coordinate with
other public entities which provide public services within the City to ensure that the Capital
Facilities Plans of each of these entities are consistent with the City's Comprehensive Plan.
This CFP update has been developed in accordance with the RCW 36.70A, the Growth
Management Act (GMA), and WAC 365-195, the Procedural Criteria. It begins with a short
review of some of the concepts behind the Capital Facilities Plan.
This Capital Facilities Plan is the product of many separate but coordinated planning documents
and planning bodies. Each of the special districts (Schools, Parks, Fire, etc) has its own capital
facilities plans, which are attached as appendices to this document. The City’s Comprehensive
Plan has various elements that relate land use and population growth management to water
resources and transportation, which in turn have various adopted plans, including a Non-
Motorized Transportation Plan, Water System Plan, a Sewer System Plan, a Storm and Surface
Water Management Plan, and a Pavement Management System Plan – each providing an
inventory of existing facilities, an analysis of deficiencies and future demand, and
recommendation for capital improvements. Most facilities must be planned for years in advance
and planning means determining not only when a facility will be needed but how it will be
financed. For facilities that are projected for four to six years in the future, capital costs are more
estimates than actual. As the time for construction nears, actual costs are narrowed as design and
engineering are completed. It is important to remember that capital facilities planning is not a
once a year or once every two years effort, but an ongoing process requiring continual review as
new information becomes available, conditions change, and priorities evolve.
The GMA requires that the Capital Facilities Element contain a financing plan that identifies the
type and location of expanded or new capital facilities and the sources of funding that will used
to pay for them. There are two questions that must be satisfactorily answered:
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1) What is the quantity of the public facilities that will be required during the six years?
(identified in the inventory and needs analysis);
2) Is it financially feasible to provide the quantity of facilities that are required? (do we
now, or will we, have the money to pay for them?)
Dependable revenue sources must be identified that equal or exceed the anticipated costs. If the
costs exceed the revenue, the local government must reduce its level of service, reduce its costs
(or increase revenue), or modify the land use element of its Comprehensive Plan to bring future
development into balance with available or affordable facilities and services. This plan will
examine each type of facility separately. The costs of all the facilities will then be added
together in order to determine the financial feasibility of the plan. The Capital Facilities Plan is
intended to be a planning document. It, therefore, does not contain the level of detail that the
annual budget must contain. Some costs in the plan are estimated in order to give citizens a
general idea of how much certain types of projects or facilities may cost.
Relationship of Capital Facilities Plan to the Budget
The Capital Facilities Plan and the City's budget serve different but related purposes. Both are
prepared annually. The budget authorizes the amount to be spent during the coming year;
whereas the Capital Facilities Plan identifies needed capital facilities over a six year period. A
requirement of the Capital Facilities Plan is that it show how the needed facilities will be paid for
during at least a six-year period. Because State law requires that no money can be spent on
capital projects which are not shown in the Capital Facilities Plan, it is important that the budget
not authorize spending on capital facilities not in the Plan.
What is a Capital Facility?
Capital facilities are those public facilities, including utilities, which are necessary for a
government to carry out its functions to provide services to its citizens. Examples are roads,
public buildings, schools, parks, water and sewer systems, fire protection and police protection
facilities, and libraries. Often the entire collection of these facilities is referred to as
infrastructure. Studies or plans (e.g. transportation studies) are not capital facilities and are not
included in the Capital Facilities Plan.
There are several categories of capital projects and a key distinction is whether new or expanded
facilities will serve existing residents or future population growth. Projects may also be
proposed to maintain or repair existing capital facilities (cure deficiencies). The categories are as
follows and will be used to identify specific projects proposed in the Plan:
(M) Major maintenance, repair, renovation, or replacement of an existing facility that
do not add additional capacity.
(E) New facilities or improvements to existing facilities that provide added capacity to
serve the existing population.
(N) New facilities or improvements to existing facilities that are built primarily to
provide added capacity to serve future population or employment growth.
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How are Capital Facility Projects Identified?
Capital facility projects are generally identified from a planning process for a particular type of
facility (e.g. roads, sewer, water, schools, parks, etc) that includes an inventory of existing
facilities, an analysis of existing and future demand for service, an analysis of existing or
anticipated deficiencies in service (often based on adopted levels of service), and maintenance
needs. This planning process is typically incorporated into a local government’s Comprehensive
Plan or a specific system plan which is then adopted as part of a Comprehensive Plan.
Levels of Service (LOS)
Levels of Service (LOS) are usually quantifiable measures of the amount and/or quality of public
facilities or services that are provided to the community and are usually expressed as a ratio of
amount of service to a selected demand unit. For example, sewer LOS is expressed as 100
gallon per capita per day, public school LOS may be expressed as the number of square feet
available per student or as the number of students per classroom. Police or Fire protection may
be expressed as the average response time for emergency calls. Parks LOS is often expressed as
the number of acres of park per 1,000 population. Once the level of service is decided upon it
can then be determined what capital improvements are necessary to 1) cure any existing
deficiencies, and 2) maintain that level as the community grows.
Prioritizing Capital Projects
Since it is unlikely that there is adequate money and resources to implement every capital project
in a one-year period, the City goes through a process to prioritize capital projects. The City uses
a combination of criteria to prioritize and rank projects that are proposed in a Six-Year Capital
Improvement Project (CIP) list, including consistency with the City’s Comprehensive Plan,
level-of-service deficiency, financial capacity, budgetary policies, and community need. A
recommended Capital Facilities Plan is presented to the City Council for consideration and
adoption. Public outreach and participation is integrated throughout this process.
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II. CAPITAL FACILITIES INVENTORY & PLANNING
The following is the City's capital facilities inventory. The inventory is organized by category
and includes a current inventory of facilities, a narrative providing a general background of the
planning activities and some discussion of future plans, and a discussion of level of service
(LOS), if applicable.
City Offices, Facilities, & Undeveloped Land
City offices are located at several sites due to space constraints at City Hall. Additional City
buildings and facilities provide a variety of functions, including public works operations and
house cultural and social services. In recent years, the City has also lead an extensive effort to
purchase open space and agricultural lands throughout the Island with revenue generated from an
$8 million bond approved by voters in 2001.
Table 1: City Land and Office Facility Inventory
Building and Location Land Area Building Area
Owned
or
Leased Office Uses
City Hall
Administration, Finance,
Planning, & Engineering
- 280 Madison Ave. N 1.92 Ac 24,107 SqFt Owned
Police Station Police
- 625 Winslow Way E 0.82 Ac 7,000 SqFt Owned
Municipal Court Municipal Court
- 10255 NE Valley Rd. n/a 2,289 SqFt Leased
Subtotal Staff Office Space 2.74 Ac 33,396 SqFt
Bainbridge Island Commons
Social Services & Public
Meetings
- 223 Bjune Ave. 0.38 Ac 4,975 SqFt Owned
Bainbridge Performing Arts
(land only)
Land leased to BPA for $1/yr
through May, 2081
- 200 Madison Ave. N 2.45 Ac n/a Owned
Helpline House No-cost lease to Helpline House
- 282 Knechtel Way 1.07 Ac 4,400 SqFt Owned
Public Works Facility O&M Offices, Shop, and
- 7305 NE Hidden Cove Road 12.62 Ac 22,712 SqFt Owned Covered Equipment Storage
Public Works Facility Covered Storage
- 7305 NE Hidden Cove Road Included 1,524 SqFt Owned
Public Works Facility Fueling Facility
- 7305 NE Hidden Cove Road Included n/a Owned
Land with City-owned utilities 15.42 Ac n/a Owned Wells, pump stations, etc.
Total 34.68 Ac 67,007 SqFt
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Table 2: City Public Works Facilities Inventory
Facility Floor Area Function
Portable office trailers (4) 2,520 SqFt * Storage, safety & future parks buildings
Steel shop building 2,400 SqFt Storage - holds telemetry
PW Facility - Wood Building 100 SqFt Well house
PW Facility - Shop 7,776 SqFt * Mechanics Shop / Equipment Maintenance
PW Facility - Covered Equipment
Storage 11,520 SqFt * Covered Equipment Storage
PW Facility - Office Trailer 1,792 SqFt * O & M Office
Fueling Facility
Vehicle Fueling inside covered equipment
storage building
Total 26,108 SqFt
*These facilities are also counted in the main office inventory above.
Table 3: City Undeveloped Land Inventory (2005/2006)
Location / Description Land Area
Owned
or
Leased Uses
High School Rd. near Madison 1.42 Ac Owned No use specified
Head of the Bay 30.77 Ac Owned Wellhead protection
Off Madison near Wyatt 0.43 Ac Owned Future pocket park
Lumpkin Property 11.00 Ac Owned Open space / park
Suzuki Property 15.00 Ac Owned Future Police/Court Facility
Salter Property 5.00 Ac Owned Open space
Johnson Farm 14.51 Ac Owned Open space
Suyematsu Farm 15.00 Ac Owned Agricultural Land
County Gravel Pit ("Lovgren Pit") 17.00 Ac Owned No use specified
Council Site ("Road Shed") 2.00 Ac Owned No use specified
Council Site ("Myers Pit") 6.00 Ac Owned No use specified
Vincent Road Landfill 40.00 Ac Owned Solid Waste Transfer Station
Manitou Beach ("Kane") 1.36 Ac Owned Open space / Habitat restoration
M & E Tree Farm 13.00 Ac Owned Open space
Morales Property 4.74 Ac Owned Open space
Crawford Property 2.30 Ac Owned Open space
Near Gazzam Lake ("Close Prop") 64.26 Ac Owned Open space
Near Schel-Chelb ("Cool Property") 0.74 Ac Owned Open space
Ft. Ward Estates - 5 lots 1.61 Ac Owned Future Park
Ft. Ward Parade Ground - 2 lots 0.28 Ac Owned Future Park
Lost Valley Trail 8.06 Ac + Owned Open space
Yama Property 7.50 Ac Owned Open space
Blossom - Pt White Drive 0.88 Ac Owned Open space
Blossom - Sullivan Road 3.32 Ac Owned Open space
Unocal Site 1.03 Ac Owned Future Park
Strawberry Plant 4.20 Ac Owned Future Park
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Bentryn Property 11.50 Ac Owned Agricultural Land
Pritchard Park Phase II - South * 4.02 Ac Owned Future Park
Misc. unimproved land 2.24 Ac Owned No use specified
Total 289.17 Ac
Open Space & Future Park Land Included in Above: 176.16 Ac
* The City is presently in the process of acquiring the 23.08 ac. of Pritchard Park Phase II - North.
Parks & Trails
Most of the parks and trails on Bainbridge Island are owned and managed by the Bainbridge
Island Metropolitan Park and Recreation District. The City has a few parks which are generally
maintained (with the exception of Waterfront Park) by the Park District under contract to the
City. During the past several years, the City has acquired or helped the Park District acquire a
large amount of open space and park lands. Plans for this land have generally not yet been
developed and the City is in the process of transferring title to several parcels to the Park District.
The City has adopted the Bainbridge Island Park and Recreation District Comprehensive Plan,
which establishes levels of service for park and recreation facilities for the Island as summarized
below. A summary inventory of existing park and recreation facilities is also provided below.
Table 4: Park Facility Levels of Service
Park Type Definition of Park / Facility Level of Service
Neighborhood Park ¼ to ½ mile service area & minimum size 5 acres .9 acres / 1000
Community Park ½ to 3 mile service area & minimum size 20 acres 2.1 acres / 1000
Island-Wide Park within ½ mile drive and minimum size 100 acres 5.3 acres / 1000
Parks - All Categories All parks except State parks 46 acres / 1000
Tennis / Multi-use Asphalt or concrete courts with nets 1 court / 2000
Ball Fields - 200' + Areas designed for softball and baseball 1 field / 2000
Ball Fields - 300' + Areas designed for adult baseball 1 field / 8000
Soccer Fields Areas designed for soccer including goals & nets 1 field /2000
Swimming Pools Covered pool suitable for year-round use 1 pool / 10000
Volleyball Courts Outdoor court with net and sand / soil mixture 1 court / 5000
Mini-Parks/Tot Lots Not Defined Not Specified
Spec Use Facilities Public art, parkways, historic sites, etc. Not Determined
Linear Parks / Trails Elongated area with lengthwise road or trail Not Determined
Equestrian Facilities Areas primarily used by equestrians Not Determined
Table 5: Parks & Trails Inventory (2005/2006)
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Park Site Owner Facilities
Size
(Acres)
Resource Conservancy :
Meigs Park Park District None as yet 67.0
W. Port Madison Preserve Park District Trails, picnic shelters, beach access 13.8
Manzanita Park Park District Horse & pedestrian trails 120.0
The Grand Forest Park District Horse & pedestrian trails 240.0
Gazzam Lake Preserve Park District Horse & pedestrian trails 294.0
Battle Point Park, North Park District Fishing pond, trails, picnicking 45.3
Rockaway Beach Parcels Park District None as yet - undesignated 0.5
Hall Property (Eagle Harbor) Park District None as yet - undesignated 11.7
Near Gazzam Lake ("Peters") Park District None as yet - undesignated 53.4
Athletic Parks/Playgrounds :
Battle Point Park, South Park District Sport courts, fields, play area, trails,
horse arena, maintenance facility
45.0
Strawberry Hill Park Park District Sport courts, field sports, classrooms,
skate park , picnicking, administrative
offices
17.8
Aaron Tot Park City Park Children's play structure 0.3
Eagledale Park Park District Sport courts, play structure, covered
picnic shelter, art center
6.7
Gideon Park Park District Trail and playground 2.5
Hidden Cove Park Park District Ballfields and trails 7.8
Rotary Park Park District Ballfields & children's' play structure 9.8
Gazzam Park Park District Future ballfields, sport courts, trails 24.0
Sands Road Park School District Ballfields 10.0
Resource Activity Parks :
Camp Yeomalt Park District Multi-use bldg, trail, picnicking 3.0
Waterfront Park City Park Boat launch, picnicking, tennis courts,
playground
8.1
Fay Bainbridge Park State Park Picnicking, camping, boat launch,
volleyball, sandy beach
16.8
Fort Ward Park State Park Boat launch, picnicking, trails, beach
access
137.0
Spargur Property Park District Shoreline and boat access - to be
designed
6.0
Pritchard Park Park District &
City
Shoreline access, WWII Japanese -
American Memorial
21.9
Blakely Harbor Park Park District Picnicking, hand-carry boat access,
shoreline
57.0
Recreation Centers :
Island Center Park Park District Community hall, picnicking 2.5
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Linear Park / Trail :
Fairy Dell Trail Park Park District Trail and beach access 2.5
South End Trails Park District Trails, easements, trail implementation 4 linear miles
Battle Point Trail Connection Park District Trails, easements, trail implementation 10.7
Special Use Facility :
B. I. Aquatic Center Park District
(leased)
Aquatic Center 1.5
Point White Dock Park District Dock, fishing, clamming 0.3
Other :
City Open Space City None - Designated for Open Space / Ag 176.2
Total 1,413.0
Transportation Facilities (Roads, Bike Lanes, Sidewalks, Trails)
Of the many types of capital facilities that are constructed, operated and maintained by the City,
the most costly and most familiar to citizens are the transportation facilities. Where there are
facility needs that involve SR305 or the ferries, the Washington State Department of
Transportation assumes the costs. Kitsap Transit pays for facilities that support transit service.
The transportation system outside of historic Winslow has suffered from "deferred maintenance".
The Pavement Management System (PMS) study conducted for the City in 1992/1995 indicated
the wearing surface of many of the roads to be at or near failure, especially the smaller suburban
roads. Since many of the Island's roads were initially only scraped and then a thin layer of
asphalt applied, the maintenance performed by the City is usually more extensive, and costly,
than normal maintenance of "paved" roads. Many roads, having no substantial base before
placing asphalt, need considerable base preparation. The PMS study indicated a need for
$600,000 per year for 10-12 years in the annual roads maintenance and repaving program to
maintain the roads at the then current status; but that study assumed a normal road base. The
City has attempted to "reconstruct" some of the roads, rather than just "maintain" their wearing
surface, and while it is more time consuming and more costly (initially), the life-cycle costs will
be less, and the citizens will have better roads to travel over. The $600,000 amount has proven
inadequate to cover the more extensive "reconstruction" as well as normal repaving. In 1998 the
City Council increased the annual amount for repaving to about $1,000,000; but that amount has
often not been available. Also, in 1998 the City began a program using a "chip-seal" which has
allowed many more lane miles to be recovered for the same cost as asphalt overlays. Chip-
sealing the roads to halt their deterioration is intended to buy the City time to accomplish the
needed reconstruction before the failure of more of the Island's roads.
A complete inventory of the Island's transportation facilities is contained in the Island-wide
Transportation System Study and a complete inventory of the Island’s non-motorized
transportation facilities is contained in the Non-Motorized Transportation Plan. A summary of
those facilities follows:
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Table 6: Transportation Facilities Inventory (2005/2006)
Type of Facility Description Example Length
FRC 1 * State Highway SR305 6.8 miles
FRC 2 * Secondary Arterial Miller Road 35.2 miles
FRC 3 * Collectors Oddfellows Road 42.3 miles
FRC 4 * Residential Urban Wood Avenue 21.7 miles
FRC 5 * Residential Suburban Spargur Loop Road 38.3 miles
FRC 6 * Unimproved City Roads (gravel) Walden Lane 10.2 miles
Subtotal 154.4 miles
Without SR305 & gravel roads 137.5 miles
Bike lanes** Shared roadway on paved shoulders High School Road 23.5 miles
Sidewalks Paved walkway Madison Ave. 7.6 miles
Trails pedestrian, bike, equestrian, etc. The Grand Forest 6.9 miles
*FRC = Functional Road Classification; Source: Public Works Department, Pavement Management Program
(Klohn Leonoff)
** With the exception of SR305, bike lanes on Bainbridge Island are three to five foot paved shoulders. Bike lanes
are reported in lane miles. SR305 is included here.
Water
Domestic drinking water is supplied by the City of Bainbridge Island, Kitsap County P.U.D. No.
1, South Bainbridge Water Company, numerous smaller public water systems (2 or more
hookups), and over 1,000 private single-dwelling wells.
The levels of service in the Water Element for water systems on Bainbridge Island are the
minimum design standards and performance specifications provided in the 1992 Kitsap County
Coordinated Water System Plan. Fire flow requirements were adopted by Ordinance 98-30 and
Resolution 98-34 and are tiered based on zoning and type of construction. Residences can
satisfy deficiencies by installing individual sprinkler systems. Levels of service are as follows:
Table 7: Water System Levels of Service
Pressure 30 psi residual
Pipe sizing 8" diameter min. (where fire system is required)
Storage "Sizing Guidelines for Public Water Systems"
Quality Federal and State minimum standards
Fire Flow Residential Zone R.04 & R.1 = 500 gpm or sprinkler
Fire Flow Residential Other Zones = 1,000 gpm or sprinkler
Fire Flow Commercial & LM = 1,000 gpm or don't build
The Bremerton-Kitsap County Health District records indicate approximately 170 water systems
on the Island that have 2 or more households connected. The number of Group A & B systems
are listed below and following is a summary of systems with more than 100 connections.
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Table 8: Group A & B Water Systems (2005/2006)
Group A systems (15 or more connections) 44
Group B systems (under 15 connections) 124
Table 9: Waters Systems with over 100 Connections (2005/2006)
Capacity Storage
System # Connections (ERU) (MGD) Volumes (gal.)
Island Utility 140 455 0.43 400,000
PUD #1 1,688 2,028 0.36 860,000
Meadowmeer (MWSA) 279 283 .45 200,000
South Bainbridge 1,395 1,415 0.90 562,000
Winslow (City) 2,184 4,727 1.00 2,800,000
Total 3,791 6,540 2.43 3,597,000
Most existing water systems were established under state and local guidelines and generally
provide high quality water at an adequate pressure and flow rate for residential use. However,
because of the number of systems on the Island, it must be concluded that there are systems that
may not be in compliance with Department of Health water quality requirements and may not
meet minimum requirements of pressure and reliability. It is also concluded that most of the
smaller systems have poor or nonexistent fire protection designed into their systems due to the
cost of providing large diameter pipes and storage tanks.
Winslow Water System
The Winslow Water System is owned and operated by the City of Bainbridge Island under the
direction and control of the Department of Public Works. It serves an area similar to the historic
Winslow city limits plus Fletcher Bay and Rockaway Beach. The system gets all of its water
from the eleven wells owned by the City as noted below. Water is pumped into the distribution
system both directly from the well pumps and by booster pump stations. A detailed inventory is
provided in the Winslow Water System Plan, which is currently being updated and is expected to
be adopted in 2007.
Table 10: Winslow Water System Well Inventory (2005/2006)
Name Capacity Depth Present Yield
Head of Bay #1 50 gpm 135 ft. 32 gpm
Head of Bay #1A 150 gpm 145 ft. 135 gpm
Head of Bay #2 215 gpm 50 ft. 184 gpm
Head of Bay #3 100 gpm 50 ft. 270 gpm
Head of Bay #4 138 gpm 150 ft. 115 gpm
Head of Bay #5 96 gpm 160 ft. 111 gpm
Head of Bay #6 110 gpm 70 ft. 91 gpm
Lower Weaver * 80 gpm 135 ft. 47 gpm
Fletcher Bay 688 gpm 1,050 ft. 500 gpm
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Sands Ave. #1 288 gpm 1,055 ft. 365 gpm
Sands Ave. #2 600 gpm 1,055 ft. 400 gpm
Commodore Well 100 gpm 190 ft. 47 gpm
Taylor Avenue 80 gpm 600 ft. 56 gpm
Total 2,615 gpm 2,297 gpm
*Not a potable source - used for construction
Under Washington law, water purveyors, including the City, need water rights in order to be
assured that it can continue to provide water. The City has "primary" water rights for 2,054 acre-
feet per years and "allocated instantaneous capacity" for 3,037 gpm (about 60% over the City's
present capacity).
According to the existing Winslow Water System plan, the system’s capacity is adequate to
serve the needs of the potential build-out population under existing zoning and build-out to the
highest density possible (to R-28) in the Land Use Element. The available sources are adequate
to serve a potential population of approximately 7,900 or approximately 4,000 units. The system
currently serves a population of 3,500 and approximately 3,500 residential equivalent units.
There are, however, upgrades necessary to provide adequate fire flow in areas, more efficiently
use existing storage capacity, rehabilitate existing wells, and improve system reliability.
Sanitary Sewage Disposal
The City of Bainbridge Island provides for the collection, treatment, and disposal of effluent in
the Winslow service area. The Kitsap County Sewer District #7 treatment plant north of Fort
Ward Park serving customers within the District's service area in Fort Ward and the City’s sewer
service areas in the Emerald Heights, Point White, North Pleasant Beach, and Rockaway Beach
neighborhoods and Blakely School. All other residents not within the service areas of the above
districts rely upon on-site septic systems that require approval from the Bremerton-Kitsap
County Health District.
Levels of service for wastewater treatment systems are typically expressed as the number of
gallons of flow per capita per day and the level of treatment provided by the treatment plant.
The current and proposed level of service for the Winslow service area follow the Department of
Ecology guidelines of 100 gallons per capita per day (flow) and secondary treatment. In areas
not served by treatment plants, on-site septic systems must be built to Bremerton-Kitsap County
Health District standards that consider combinations of lot size, soil type, infiltration capacity,
depth to hardpan, and proximity to surface water among others.
The Winslow sanitary sewer system consists of two separate parts: the collection system, and
the treatment plant.
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Table 11: Winslow Sewer Facility Inventory (2005/2006)
5.12 miles gravity sewer with pipes 8" to 16" in diameter
2.69 miles of force main with pipes 4" to 12" in diameter
Collection system
11 pumping stations with 100-2,300 gpm pumping capacity
Treatment plant Secondary treatment facility located on Donald Place NE
The existing collection system capacity has been judged to be adequate through the year 2010
with periodic upgrades in pumping facilities, although the City like other sewage utility
providers experiences seasonal inflow and infiltration problems, which the City works to reduce
through on going efforts. The existing treatment plant was designed to accommodate an
effective population of 10,000 and now serves a population equivalent to 5,500 (with conversion
of multifamily and commercial customers to single-family residential equivalents). An upgrade
was completed in January, 1996, at a cost of $2.5 million. A number of additional improvements
costing some $6 million have been identified by H R Esvelt Engineering. Those improvements
are to be completed over the next two years. The City regularly adds emergency generators and
telemetry to the system to significantly curtail demands. Where possible, pump stations have
been taken out of service to further reduce system costs. Esvelt's study found that the system had
adequate capacity for the projected growth for Winslow well past 2012; however the system
lacked redundancy. Additional capital projects may be indicated following an inflow/infiltration
analysis being done at the request of the Department of Ecology.
Surface & Storm Water Management
In the Winslow urban area and a few smaller areas, stormwater is managed by a combination of
piped collectors, roadside ditches and natural stream channels. All other watersheds and sub-
basins on the Island are drained by natural streams and roadside ditches only. The existing
natural drainage system consists of wetlands, streams, springs, ditches, and culverts crossing
roadways and is labor intensive to maintain. Surface and storm water is management by the City
as a utility. A recent Surface and Stormwater Management Plan and ongoing system evaluation
are used to identify capital projects. In addition, the City places priority on the improvement and
restoration of natural stream channels, particularly undersized or perched culverts, for the
improvement of fish passage and fish habitat.
City of Bainbridge Island 2008 Capital Facilities Plan Update
14 of 186
III. SIX-YEAR CAPITAL IMPROVEMENT PLAN
Provided below is the Six-Year Capital Improvement Plan (CIP) for the City of Bainbridge Island. This CIP
list shows the anticipated expense and timing of each project and contains a project description, if available,
and the results of the Comprehensive Plan consistency review and level of service (LOS) deficiency analysis.
The CIP lists for the special districts on Bainbridge Island are provided in the appendices attached to this
document.
City of Bainbridge Island 2008 Capital Facilities Plan Update
15 of 186
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IV. FINANCIAL CAPACITY ANALYSIS
The City conducts a financial capacity analysis in order to evaluate the City’s ability to fund capital
expenditures along with general operations. The following pages analyze the City’s financial capacity
including anticipated revenues from grants, low-interest loans, bonds, and other sources.
Please note: As with the 6-year CIP list, the financial capacity analysis should not be confused with the
City’s annual budget. Therefore, financial figures contained in the financial capacity analysis may not match
the adopted City budget. Figures in the financial capacity analysis may vary slightly from the 6-year CIP list
due to the fluid nature of carryover estimates.
City of Bainbridge Island 2008 Capital Facilities Plan Update
59 of 186
2008 2009 2010 2011 2012 2013
BEGINNING CASH BALANCES 10,292 9,164 7,698 8,491 7,784 9,502
GENERAL REVENUES
Property Taxes - General Levy 6,250 6,460 6,660 6,851 7,034 7,210
Sales & Use Tax 3,585 3,908 4,259 4,643 5,061 5,516
Utility, B & O / Other Taxes 3,885 4,157 4,448 4,759 5,093 5,449
Real Estate Excise Tax 2,570 2,737 2,915 3,104 3,306 3,521
Licenses & Permit Fees 317 338 360 383 408 434
Intergovernment 384 453 473 494 516 542
Charges for Services 198 211 225 239 255 271
Fines & Forfeits 312 332 354 377 401 427
B&DS + ROW Charges 2,115 2,252 2,399 2,555 2,721 2,898
Grants Received - Operating 235 300 268 284 276 280
Interest, Misc & Other (incl FAR Purch's)1,335 1,706 2,227 2,831 3,501 4,355
----------- ----------- ----------- ----------- ----------- -----------
TOTAL GENERAL REVENUES 21,186 22,854 24,587 26,520 28,571 30,904
DEDICATED REVENUES
Commercial Parking & Hotel/Motel Tax 675 668 715 737 773 804
Property Taxes - GO Bond Levies 560 544 1,122 1,123 1,252 1,252
MV Fuel Tax 580 596 632 669 709 756
Parking Revenues 445 463 481 501 521 541
Utility Charges - Water 2,338 2,572 2,772 2,989 3,222 3,473
Utility Charges - Sewer 2,594 2,957 3,188 3,437 3,705 3,994
Utility Charges - Storm Water 1,905 2,229 2,403 2,590 2,792 3,010
Other Utility Revenues 1,201 939 1,095 1,146 1,202 1,266
Grants & Other Contributions - Capital 4,092 6,822 3,000 3,000 2,000 2,000
L.I.D. Assessments 410 684 667 781 768 754
Interest, Misc & Other 615 406 523 541 525 564
FAR / ROW - - - - - -
----------- ----------- ----------- ----------- ----------- -----------
TOTAL DEDICATED REVENUES 15,416 18,880 16,599 17,513 17,468 18,413
TOTAL OPERATING REVENUES 36,601 41,734 41,186 44,033 46,039 49,317
OTHER SOURCES
Voter Approved Bonds - 7,000 - - - -
City Council Approved Bonds 4,000 5,000 1,100 1,200 - -
PWTF Debt Issued 3,000 9,000 5,500 1,000 1,000 -
Revenue Bonds 6,000 8,000 - - - -
LID Bonds Issued - - 1,500 - - -
Land Proceeds 3,500 - - - - -
Capital Leases - 250 3,000 - - -
----------- ----------- ----------- ----------- ----------- -----------
TOTAL REVENUES AND OTHER SOURCES 53,101 70,984 52,286 46,233 47,039 49,317
CITY OF BAINBRIDGE ISLAND -- YEAR 2008 FINANCIAL CAPACITY ANALYSIS
SOURCES OF FUNDS
City of Bainbridge Island 2008 Capital Facilities Plan Update
60 of 186
2008 2009 2010 2011 2012 2013
GENERAL OPERATING EXPENDITURES
Executive / Legislative 3,867 4,099 4,345 4,605 4,882 5,175
Intergovernment Expend's (Except Util)745 790 838 888 941 998
Municipal Court 511 542 574 608 645 684
Finance & I.T - General Government 4,891 5,184 5,495 5,825 6,175 6,545
Police 2,987 3,166 3,356 3,557 3,771 3,997
Planning / Building 3,935 4,171 4,421 4,686 4,967 5,265
Public Works 2,748 2,913 3,088 3,273 3,469 3,678
----------- ----------- ----------- ----------- ----------- -----------
TOTAL GENERAL OPERATING EXPENDITURES 19,683 20,864 22,116 23,443 24,850 26,341
SPECIFIED OPERATING EXPENDITURES
Street & Road Maintenance 1,495 1,585 1,680 1,781 1,888 2,001
Utility Opr'g - Water 1,856 1,949 2,047 2,149 2,256 2,369
Utility Opr'g - Sewer 2,052 2,155 2,262 2,375 2,494 2,619
Utility Opr'g - Storm Water 1,619 1,716 1,819 1,928 2,043 2,166
Capitalized Employee Support & Planning - - - - - -
----------- ----------- ----------- ----------- ----------- -----------
TOTAL SPECIFIED OPERATING EXPENDITURES 7,022 7,404 7,807 8,233 8,681 9,155
OPERATING EXPENDITURES 26,705 28,268 29,923 31,676 33,531 35,495
DEBT SERVICE COST 3,750 4,836 6,674 7,194 7,442 7,432
CAPITAL EXPENDITURES (from CIP)
Non-Motorized Transportation 1,709 1,243 - - - -
Transportation Projects 3,073 11,520 800 800 800 800
Capital Equipment 649 897 738 795 726 669
Parks, Trails & Open Space 2,477 1,810 372 40 10 10
Utility - Water 1,694 3,998 3,222 1,837 1,945 1,150
Utility - Sewer 10,061 11,097 1,997 523 391 130
Utility - Storm Water 1,203 3,075 475 475 475 475
Affordable Housing 1,600 2,350 - - - -
Facilities/City Offices 1,308 3,356 7,292 3,600 - -
----------- ----------- ----------- ----------- ----------- -----------
CAPITAL EXPENDITURES 23,774 39,346 14,896 8,070 4,347 3,234
----------- ----------- ----------- ----------- ----------- -----------
TOTAL EXPENDITURES 54,229 72,450 51,493 46,940 45,320 46,162
INCREASE/(DECREASE) - FUND BALANCES (1,127) (1,466) 792 (707) 1,719 3,155
----------- ----------- ----------- ----------- ----------- -----------
TOTAL USES OF FUNDS 53,101 70,984 52,286 46,233 47,039 49,317
CITY OF BAINBRIDGE ISLAND -- YEAR 2008 FINANCIAL CAPACITY ANALYSIS
USES OF FUNDS
City of Bainbridge Island 2008 Capital Facilities Plan Update
61 of 186
2008 2009 2010 2011 2012 2013
POPULATION 23,030 23,450 23,800 24,140 24,461 24,951
REAL ECONOMIC GROWTH 2.00% 2.00% 2.00% 2.00% 2.00% 2.00%
GDP FACTOR 2.50% 2.50% 2.50% 2.50% 2.50% 2.50%
PRIOR YR 2nd 1/2 SEATTLE CPI (U)4.00% 4.00% 4.00% 4.00% 4.00% 4.00%
PER CAPITA STATE SHARED FUNDS :
Liquor Profits 7.41 7.78 8.17 8.58 9.01 9.46
Liquor Tax 3.93 4.13 4.33 4.55 4.78 5.02
MV Excise Tax - - - - - -
Crim Justice $0.97 1.02 1.07 1.12 1.18 1.24
-------- -------- -------- -------- -------- --------
SUB-TOTAL 12.31 12.93 13.57 14.25 14.96 15.71
Gas Tax (unrestr.)21.16 23.28 24.44 25.66 26.94 28.29
Gas Tax (Arterial)- - - - - -
Utility Rate Increase - Water 5.80% 8.00% 5.80% 5.80% 5.80% 5.80%
Utility Rate Increase - Sewer 9.19% 12.00% 5.80% 5.80% 5.80% 5.80%
Utility Rate Increase - Storm Water 15.00% 15.00% 5.80% 5.80% 5.80% 5.80%
ASSESSED VALU'N ($ in MM's)6,600 7,260 7,986 8,625 9,315 10,060
RCW Reserved Limit 2.5 2.7 3.0 3.2 3.5 3.8
New Cosntruction ($ in MM's)150 150 150 150 150 150
LEVY RATE ($ per $1,000 AV)0.981 0.903 0.831 0.765 0.704 0.704
SPECIAL LEVY RATE 0.086 0.079 0.073 0.067 0.111 0.111
INVESTMENT YIELD 5.00% 4.50% 4.50% 4.50% 4.50% 4.50%
CITY STAFF - FTE 152.00 148.00 144.00 138.00 135.00 135.00
GROWTH IN EXPENDITURES & DEBT SERVICE 5.5% 8.7% 10.6% 6.2% 5.4% 4.8%
OPERATING COST GROWTH RATE FACTOR 6.00% 6.00% 6.00% 6.00% 6.00% 6.00%
CITY OF BAINBRIDGE ISLAND -- YEAR 2008 FINANCIAL CAPACITY ANALYSIS
ASSUMPTIONS
City of Bainbridge Island 2008 Capital Facilities Plan Update
62 of 186
EXISTING DEBT : 2008 2009 2010 2011 2012 2013
GENERAL OBLIGATION DEBT
1996 / 2005 L.T.G.O. Bonds 603 668 910 913 908 907
1997 L.T.G.O. Bonds - - - - - -
Loans, Land Contracts & Leases 244 238 129 60 42 -
1998 L.T.G.O. Bonds 671 667 842 838 839 833
1999 L.T.G.O. Bonds 238 242 - - - -
2002-04 .G.O. Bonds 542 544 536 537 666 666
UTILITY DEBT
1998 L.T.G.O. Bonds (Utility Share)65 66 67 68 69 69
1995 L.T.G.O. (Water/Sewer) Bonds 287 289 - - - -
PWTF LOANS
PWTF Loans for Sewer 502 494 486 477 467 457
PWTF Loans for SSWM 198 190 182 179 175 172
L.I.D. No - - - - - -
----------- ----------- ----------- ----------- ----------- -----------
TOTAL EXISTING DEBT SERVICE 3,350 3,398 3,151 3,071 3,166 3,103
NEW DEBT :
2011-2012 G.O. Bonds - - 586 586 586 586
L.T.G.O. Bonds 441 776 1,194 1,286 1,387 1,387
L.T.G.O. Bonds - Sewer - - - - - -
Loans & Capital Leases 118 86 23 274 274 274
PWTF Loans for Water - - 53 53 53 53
PWTF Loans for Sewer - 158 421 553 606 658
PWTF Loans for SSWM - - 158 158 158 158
PWTF Loans for Streets - - - - - -
Revenue Bonds for Water - - 167 167 167 167
Revenue Bonds for Sewer - 418 920 920 920 920
LID Bonds - Streets - - - 126 126 126
LID Bonds - Water - - - - - -
LID Bonds - Sewer - - - - - -
----------- ----------- ----------- ----------- ----------- -----------
TOTAL OF ALL DEBT SERVICE 3,909 4,836 6,674 7,194 7,442 7,432
TOTAL G.O./LTGO BONDS 2,495 2,897 4,068 4,160 4,385 4,378
TOTAL UTILITY DEBT 352 931 1,787 1,919 1,973 2,026
L.I.D. DEBT / PWTF Loans 700 684 667 781 768 754
Capital Leases 362 324 152 334 316 274
DEBT SERVICE PROJECTIONS
CITY OF BAINBRIDGE ISLAND -- YEAR 2008 FINANCIAL CAPACITY ANALYSIS
City of Bainbridge Island 2008 Capital Facilities Plan Update
63 of 186
2008 2009 2010 2011 2012 2013
BEGINNING WORKING CAPITAL 2,785 1,899 1,806 2,560 1,761 935
REVENUES
Charges for Service 2,338 2,572 2,772 2,989 3,222 3,473
Capital Contributions 365 374 383 400 418 437
L.I.D. Assessments - - - - - -
Interest & Other Revenues 186 190 195 204 213 222
----------- ----------- ----------- ----------- ----------- -----------
TOTAL REVENUES 2,888 3,136 3,350 3,592 3,853 4,132
OPERATING EXP. + DEBT SVC
Finance - Billing & Acct'g + Rent 711 746 783 823 864 907
Finance - Debt Service 123 215 294 349 372 394
Public Works 1,146 1,203 1,263 1,326 1,393 1,462
----------- ----------- ----------- ----------- ----------- -----------
OPERATING EXP. + DEBT SVC 1,979 2,165 2,340 2,498 2,628 2,763
CAPITAL EXPENDITURES
Finance - - - - - -
Public Works - Equipment 100 66 34 56 106 10
Public Works - Projects 1,694 3,998 3,222 1,837 1,945 1,150
----------- ----------- ----------- ----------- ----------- -----------
TOTAL CASH OUTLAYS 3,774 6,229 5,596 4,391 4,679 3,923
Voter Approved Bonds - - - - - -
City Council Approved Bonds - - - - - -
PWTF Debt Issued - 1,000 3,000 - - -
Revenue Bonds - 2,000 - - - -
LID Bonds Issued - - - - - -
Capital Leases - - - - - -
NET TRANSFERS IN/(OUT)- - - - - -
----------- ----------- ----------- ----------- ----------- -----------
ENDING WORKING CAPITAL 1,899 1,806 2,560 1,761 935 1,144
MEMO : DEPRECIATION - - - - - -
WATER UTILITY
CITY OF BAINBRIDGE ISLAND -- YEAR 2008 FINANCIAL CAPACITY ANALYSIS
City of Bainbridge Island 2008 Capital Facilities Plan Update
64 of 186
2008 2009 2010 2011 2012 2013
BEGINNING WORKING CAPITAL 2,253 945 1,181 1,357 1,481 1,814
REVENUES
Charges for Service 2,594 2,957 3,188 3,437 3,705 3,994
Capital Contributions 425 400 410 428 448 468
L.I.D. Assessments 400 410 420 439 459 480
Interest & Other Revenues 75 77 79 82 86 90
----------- ----------- ----------- ----------- ----------- -----------
TOTAL REVENUES 3,494 3,844 4,097 4,387 4,698 5,031
OPERATING EXP. + DEBT SVC
Finance - Billing & Acct'g + Rent 655 688 722 758 796 836
Finance - Debt Service 660 1,291 2,128 2,308 2,374 2,439
Public Works 1,397 1,467 1,540 1,617 1,698 1,783
----------- ----------- ----------- ----------- ----------- -----------
OPERATING EXP. + DEBT SVC 2,711 3,446 4,390 4,683 4,868 5,058
CAPITAL EXPENDITURES
Finance - - - - - -
Public Works - Equipment 30 66 34 56 106 10
Public Works - Projects 10,061 11,097 1,997 523 391 130
----------- ----------- ----------- ----------- ----------- -----------
TOTAL CASH OUTLAYS 12,802 14,609 6,421 5,262 5,365 5,198
Voter Approved Bonds - - - - - -
City Council Approved Bonds - - - - - -
PWTF Debt Issued 3,000 5,000 2,500 1,000 1,000 -
Revenue Bonds 5,000 6,000 - - - -
LID Bonds Issued - - - - - -
Capital Leases - - - - - -
NET TRANSFERS IN/(OUT)- - - - - -
----------- ----------- ----------- ----------- ----------- -----------
ENDING WORKING CAPITAL 945 1,181 1,357 1,481 1,814 1,647
MEMO : DEPRECIATION - - - - - -
SEWER UTILITY
CITY OF BAINBRIDGE ISLAND -- YEAR 2008 FINANCIAL CAPACITY ANALYSIS
City of Bainbridge Island 2008 Capital Facilities Plan Update
65 of 186
2008 2009 2010 2011 2012 2013
BEGINNING WORKING CAPITAL 388 419 646 662 728 853
REVENUES
Charges for Service 1,905 2,229 2,403 2,590 2,792 3,010
L.I.D. Assessments - - - - - -
Interest & Other Revenues 151 (101) 29 31 37 48
----------- ----------- ----------- ----------- ----------- -----------
TOTAL REVENUES 2,056 2,127 2,431 2,621 2,829 3,058
TAXPAYER SUPPORT - - - - - -
OPERATING EXP. + DEBT SVC
Finance - Billing & Acct'g + Rent 431 457 484 513 544 577
Finance - Debt Service 99 77 105 125 133 141
Public Works 1,188 1,259 1,334 1,414 1,499 1,589
----------- ----------- ----------- ----------- ----------- -----------
OPERATING EXP. + DEBT SVC 1,717 1,793 1,923 2,052 2,176 2,307
CAPITAL EXPENDITURES
Finance - - - - - -
Public Works - Equipment 105 33 17 28 53 5
Public Works - Projects 1,203 3,075 475 475 475 475
----------- ----------- ----------- ----------- ----------- -----------
TOTAL CASH OUTLAYS 3,025 4,901 2,415 2,555 2,704 2,787
Voter Approved Bonds - - - - - -
City Council Approved Bonds - - - - - -
PWTF Debt Issued - 3,000 - - - -
Revenue Bonds 1,000 - - - - -
LID Bonds Issued - - - - - -
Capital Leases - - - - - -
NET TRANSFERS IN/(OUT)- - - - - -
----------- ----------- ----------- ----------- ----------- -----------
ENDING WORKING CAPITAL 419 646 662 728 853 1,124
MEMO : DEPRECIATION - - - - - -
STORM & SURFACE WATER MANAGEMENT UTILITY
CITY OF BAINBRIDGE ISLAND -- YEAR 2008 FINANCIAL CAPACITY ANALYSIS
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2008 2009 2010 2011 2012 2013
GENERAL PROPERTY TAXES :
Levy Rate 0.9815 0.9029 0.8311 0.7649 0.7041 0.7041
SPECIAL LEVY PROPERTY TAXES :
Levy Rate 0.0862 0.0795 0.0731 0.0672 0.1106 0.1106
----- ----- ----- ----- ----- -----
TOTAL CITY PROPERTY TAXES : 1.0676 0.9824 0.9042 0.8321 0.8147 0.8147
ANNUAL COST TO $500,000 HOME:
General Property Taxes 490.73 451.47 415.56 382.45 352.06 352.06
Special Levy Property Taxes 48.46 46.48 44.44 42.55 72.76 75.67
---- ---- ---- ---- ---- ----
TOTAL CITY PROPERTY TAXES : 539.19 497.95 460.00 424.99 424.82 427.73
ANNUAL COST TO $500,000 HOME ASSUMING 7.5% ANNUAL CHANGE IN ASSESSED VALUE :
General Property Taxes 490.73 485.33 480.23 475.11 470.16 505.43
Special Levy Property Taxes 46.60 42.97 39.51 36.37 59.80 59.80
---- ---- ---- ---- ---- ----
TOTAL CITY PROPERTY TAXES : 537.33 528.31 519.74 511.48 529.97 565.23
Assessed Value 562.4320 584.9293 608.3265 632.6595 657.9659 684.2845
Assessed Value (with 7.5% change in assessed value) 500.0000 537.5000 577.8125 621.1484 667.7346 717.8147
4.00% 4.00% 4.00% 4.00% 4.00% 4.00%
4.00% 4.00% 4.00% 4.00% 4.00% 4.00%
4.00% 4.00% 4.00% 4.00% 4.00% 4.00%
---- ---- ---- ---- ---- ----
4.00%4.00%4.00%4.00%4.00%4.00%
272.56 283.47 294.80 306.60 318.86 331.61
391.45 407.11 423.40 440.33 457.94 476.26
38.33 39.09 39.88 40.67 41.49 42.32
---- ---- ---- ---- ---- ----
$3,378.78 $3,406.83 $3,443.85 $3,489.53 $3,628.90 $3,810.64
CITY OF BAINBRIDGE ISLAND -- YEAR 2008 FINANCIAL CAPACITY ANALYSIS
EFFECT OF FINANCING PLAN ON THE PUBLIC
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2008 2009 2010 2011 2012 2013
2006 L.T.G.O Bonds - - - - - -
2007 L.T.G.O Bonds - - - - - -
2008 L.T.G.O Bonds 4,000 - - - - -
2009 L.T.G.O Bonds - 5,000 - - - -
2010 L.T.G.O Bonds - - 1,100 - - -
2011 L.T.G.O Bonds - - - 1,200 - -
2012 L.T.G.O Bonds - - - - - -
---- ---- ---- ---- ---- ----
TOTAL L.T.G.O. BONDS TO BE ISSUED :4,000 5,000 1,100 1,200 - -
CUMULATIVE TOTAL LTGO BONDS : 15,144 20,144 21,244 22,444 22,444 22,444
LESS : PRINCIPAL REPAYMENTS - - - - - -
---- ---- ---- ---- ---- ----
NEW LTGO BONDS OUTSTANDING 4,000 9,000 10,100 11,300 11,300 11,300
TRANSPORTATION/OTHER PROJECTS
TOTAL L.T.G.O. BONDS TO BE ISSUED : 4,000 5,000 1,100 1,200 - -
G.O. BONDS - 7,000 - - - -
CUM TOTAL NEW G.O. DEBT : 15,144 27,144 28,244 29,444 29,444 29,444
CUM PRINCIPAL REPAYM'TS
TOTAL G.O. DEBT OUTSTANDING 15,144 27,144 28,244 29,444 29,444 29,444
Capital Leases - 250 3,000 - - -
PWTF Loans for Water - 1,000 3,000 - - -
PWTF Loans for Sewer 3,000 5,000 2,500 1,000 1,000 -
PWTF Loans for SSWM - 3,000 - - - -
PWTF Loans for Streets - - - - - -
STREETS LID BONDS - - 1,500 - - -
WATER LID BONDS - - - - - -
SEWER LID BONDS - - - - - -
---- ---- ---- ---- ---- ----
LID BONDS OUTSTANDING - - 1,500 1,500 1,500 1,500
INTEREST RATE ON BONDS 5.50% 5.50% 5.50% 5.50% 5.50% 5.50%
INTEREST RATE ON PWTF LOANS 0.50% 0.50% 0.50% 0.50% 0.50% 0.50%
CITY OF BAINBRIDGE ISLAND -- YEAR 2008 FINANCIAL CAPACITY ANALYSIS
SUMMARY OF PLANNED DEBT FINANCING
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2008 2009 2010 2011 2012 2013
DEBT SERVICE COST OF NEW BONDS ISSUED
G.O. Bonds - - 586 586 586 586
Open Space & Transportation (G.O. Bonds)441 776 1,194 1,286 1,387 1,387
Sewer Treatment Plant Upgrade - LTGO Bonds - - - - - -
Loans & Leases (Includes Open Space Contracts)118 86 23 274 274 274
PWTF Loans for Water - - 53 53 53 53
PWTF Loans for Sewer - 158 421 553 606 658
PWTF Loans for SSWM - - 158 158 158 158
PWTF Loans for Streets - - - - - -
L.I.D. Bonds for Streets - - - 126 126 126
L.I.D. Bonds for Water - - - - - -
L.I.D. Bonds for Sewer - - - - - -
---- ---- ---- ---- ---- ----
ADDED DEBT SERVICE COST 559 1,020 2,435 3,035 3,188 3,241
NEW REVENUE BONDS :
WATER REVENUE BONDS - 2,000 - - - -
SEWER REVENUE BONDS 5,000 6,000 - - - -
CUM TOTAL NEW REVENUE BONDS :
WATER REVENUE BONDS - 2,000 2,000 2,000 2,000 2,000
SEWER REVENUE BONDS 5,000 11,000 11,000 11,000 11,000 11,000
DEBT SERVICE COST OF REVENUE BONDS ISSUED
WATER REVENUE BONDS - - 167 167 167 167
SEWER REVENUE BONDS - 418 920 920 920 920
CITY OF BAINBRIDGE ISLAND -- YEAR 2008 FINANCIAL CAPACITY ANALYSIS
SUMMARY OF PLANNED DEBT FINANCING (CONTINUED…..)
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2008 2009 2010 2011 2012 2013
BEGINNING CASH BALANCES
All Funds Except Utilities 4,866 5,901 4,066 3,912 3,813 5,901
Less: L.I.D. Balances - - - - -
----------- ----------- ----------- ----------- ----------- -----------
= Tax-Supported Fund Balances 4,866 5,901 4,066 3,912 3,813 5,901
GENERAL REVENUES
Property Taxes - General Levy 6,250 6,460 6,660 6,851 7,034 7,210
Sales & Use Tax 3,585 3,908 4,259 4,643 5,061 5,516
Utility, B & O / Other Taxes 3,885 4,157 4,448 4,759 5,093 5,449
Real Estate Excise Tax 2,570 2,737 2,915 3,104 3,306 3,521
Licenses & Permit Fees 317 338 360 383 408 434
Intergovernment 384 453 473 494 516 542
Charges for Services 198 211 225 239 255 271
Fines & Forfeits 312 332 354 377 401 427
B&DS + ROW Charges 2,115 2,252 2,399 2,555 2,721 2,898
Grants Received - Operating 235 300 268 284 276 280
Interest, Misc & Other (incl FAR Purch's)1,335 1,706 2,227 2,831 3,501 4,355
----------- ----------- ----------- ----------- ----------- -----------
TOTAL GENERAL REVENUES 21,186 22,854 24,587 26,520 28,571 30,904
DEDICATED REVENUES
Commercial Parking & Hotel/Motel Tax 675 668 715 737 773 804
Property Taxes - GO Bond Levies 560 544 1,122 1,123 1,252 1,252
MV Fuel Tax 580 596 632 669 709 756
Parking Revenues 445 463 481 501 521 541
L.I.D. Assessments 10 274 247 342 309 274
Interest, Misc & Other 615 406 523 541 525 564
FAR / ROW - - - - - -
----------- ----------- ----------- ----------- ----------- -----------
TOTAL DEDICATED REVENUES 2,885 2,951 3,720 3,912 4,089 4,191
Grants & Other Contributions - Capital (Developer
and Public/Private Contributions/ FAR
& ROW)4,092 6,822 3,000 3,000 2,000 2,000
TOTAL REVENUES 28,163 32,627 31,307 33,432 34,660 37,095
OTHER SOURCES
Voter Approved Bonds - 7,000 - - - -
City Council Approved Bonds 4,000 5,000 1,100 1,200 - -
PWTF Debt Issued - - - - - -
Revenue Bonds - - - - - -
LID Bonds Issued - - 1,500 - - -
Land Proceeds 3,500 - - - - -
Capital Leases - 250 3,000 - - -
NET TRANSFERS IN/(OUT)- - - - - -
----------- ----------- ----------- ----------- ----------- -----------
TOTAL REVENUES AND OTHER SOURCES 40,529 50,778 40,973 38,544 38,473 42,996
SOURCES OF FUNDS -- TAX-SUPPORTED FUNDS ONLY
CITY OF BAINBRIDGE ISLAND -- YEAR 2008 FINANCIAL CAPACITY ANALYSIS
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2008 2009 2010 2011 2012 2013
GENERAL OPERATING EXPENDITURES
Executive / Legislative 3,867 4,099 4,345 4,605 4,882 5,175
Intergovernment Expend's 745 790 838 888 941 998
Judicial 511 542 574 608 645 684
Finance - General Government 4,891 5,184 5,495 5,825 6,175 6,545
Police 2,987 3,166 3,356 3,557 3,771 3,997
Planning / Building 3,935 4,171 4,421 4,686 4,967 5,265
Public Works 2,748 2,913 3,088 3,273 3,469 3,678
----------- ----------- ----------- ----------- ----------- -----------
TOTAL GENERAL OPERATING EXPENDITURES 19,683 20,864 22,116 23,443 24,850 26,341
SPECIFIED OPERATING EXPENDITURES
Street & Road Maintenance 1,495 1,585 1,680 1,781 1,888 2,001
Operating Capital Expend's - - - - - -
----------- ----------- ----------- ----------- ----------- -----------
TOTAL SPECIFIED OPERATING EXPENDITURES 1,495 1,585 1,680 1,781 1,888 2,001
TOTAL GENERAL OPERATING EXPENDITURES 21,178 22,449 23,796 25,224 26,737 28,341
DEBT SERVICE COST 2,868 3,253 4,148 4,412 4,564 4,458
CAPITAL EXPENDITURES (from CIP)
Non-Motorized Transportation 1,709 1,243 - - - -
Transportation Projects 3,073 11,520 800 800 800 800
Capital Equipment 414 732 653 655 461 644
Parks, Trails & Open Space 2,477 1,810 372 40 10 10
Affordable Housing 1,600 2,350 - - - -
Facilities/City Offices 1,308 3,356 7,292 3,600 - -
----------- ----------- ----------- ----------- ----------- -----------
CAPITAL EXPENDITURES 10,581 21,011 9,117 5,095 1,271 1,454
----------- ----------- ----------- ----------- ----------- -----------
TOTAL EXPENDITURES 34,627 46,713 37,061 34,731 32,572 34,254
TRANFERS TO OTHER FUNDS
Taxpayer Support for SSWM Utility - - - - - -
Net Transfers to Water & Sewer Utility - - - - - -
Taxpayer Support for L.I.D.'s - - - - - -
ENDING FUND BALANCES 5,901 4,066 3,912 3,813 5,901 8,742
----------- ----------- ----------- ----------- ----------- -----------
TOTAL USES OF FUNDS 40,529 50,778 40,973 38,544 38,473 42,996
CITY OF BAINBRIDGE ISLAND -- YEAR 2008 FINANCIAL CAPACITY ANALYSIS
USES OF FUNDS -- TAX-SUPPORTED FUNDS ONLY
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2008 2009 2010 2011 2012 2013
BEGINNING WORKING CAPITAL 5,426 3,263 3,633 4,579 3,971 3,601
REVENUES
Charges for Service 6,837 7,758 8,363 9,016 9,719 10,477
Capital Contributions 790 774 793 829 866 905
L.I.D. Assessments 400 410 420 439 459 480
Interest & Other Revenues 412 166 302 317 336 361
----------- ----------- ----------- ----------- ----------- -----------
TOTAL REVENUES 8,439 9,107 9,879 10,601 11,379 12,222
TAXPAYER SUPPORT - - - - - -
OPERATING EXP. + DEBT SVC
Finance - Billing & Acct'g 1,796 1,891 1,990 2,094 2,204 2,319
Finance - Debt Service 881 1,583 2,526 2,782 2,879 2,974
Public Works 3,730 3,929 4,138 4,358 4,590 4,835
----------- ----------- ----------- ----------- ----------- -----------
OPERATING EXP. + DEBT SVC 6,408 7,403 8,654 9,234 9,672 10,128
CAPITAL EXPENDITURES
Finance - - - - - -
Public Works-Equipment 235 165 85 140 265 25
Public Works-Projects 12,958 18,170 5,694 2,835 2,811 1,755
----------- ----------- ----------- ----------- ----------- -----------
13,193 18,335 5,779 2,975 3,076 1,780
----------- ----------- ----------- ----------- ----------- -----------
TOTAL CASH OUTLAYS 19,601 25,738 14,433 12,209 12,748 11,908
Voter Approved Bonds - - - - - -
City Council Approved Bonds - - - - - -
PWTF Debt Issued 3,000 9,000 5,500 1,000 1,000 -
Revenue Bonds 6,000 8,000 - - - -
LID Bonds Issued - - - - - -
Land Proceeds - - - - - -
Capital Leases - - - - - -
NET TRANSFERS IN/(OUT)- - - - - -
----------- ----------- ----------- ----------- ----------- -----------
ENDING WORKING CAPITAL 3,263 3,633 4,579 3,971 3,601 3,916
MEMO : DEPRECIATION - - - - - -
CITY OF BAINBRIDGE ISLAND -- YEAR 2008 FINANCIAL CAPACITY ANALYSIS
CONSOLIDATED UTILITY FUND
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2008 2009 2010 2011 2012 2013
BEGINNING BALANCES 10,292 9,164 7,698 8,491 7,784 9,502
OPERATING REVENUES
Property Taxes 6,250 6,460 6,660 6,851 7,034 7,210
Other General Taxes 7,470 8,065 8,707 9,402 10,153 10,965
Intergovernmental Revenues 384 453 473 494 516 542
Total Utility Revenues 8,439 9,107 9,879 10,601 11,379 12,222
B&DS + ROW Charges 2,115 2,252 2,399 2,555 2,721 2,898
All Other General Revenues 6,207 6,679 7,564 8,490 9,443 10,670
----------- ----------- ----------- ----------- ----------- -----------
TOTAL OPERATING REVENUES 30,864 33,016 35,681 38,393 41,246 44,507
OPERATING COSTS
General Government 10,014 10,615 11,252 11,927 12,642 13,401
Police & Planning 6,921 7,336 7,777 8,243 8,738 9,262
Public Works & Street Maintenance 4,243 4,498 4,768 5,054 5,357 5,678
Utility Costs 5,527 5,819 6,127 6,452 6,794 7,154
Operating Capital - - - - - -
----------- ----------- ----------- ----------- ----------- -----------
TOTAL OPERATING COSTS 26,705 28,268 29,923 31,676 33,531 35,495
OPERATING MARGIN 4,159 4,748 5,758 6,717 7,715 9,012
NON-OPERATING REVENUES
Property Taxes - Bond Levies 560 544 1,122 1,123 1,252 1,252
Commercial Parking & Hotel/Motel Tax 675 668 715 737 773 804
LID Assessments 410 684 667 781 768 754
Capital Grants 4,092 6,822 3,000 3,000 2,000 2,000
----------- ----------- ----------- ----------- ----------- -----------
TOTAL NON-OPR REVENUES 5,737 8,718 5,504 5,640 4,793 4,810
DEBT SERVICE COST 3,750 4,836 6,674 7,194 7,442 7,432
AMOUNT AVAIL. FOR CAPITAL 16,438 17,794 12,287 13,654 12,849 15,892
CAPITAL SPENDING 23,774 39,346 14,896 8,070 4,347 3,234
AMOUNT NEEDED FOR CAPITAL 7,336 21,552 2,609 (5,584) (8,502) (12,658)
FINANCIAL SUMMARY - ALL FUNDS
CITY OF BAINBRIDGE ISLAND -- YEAR 2008 FINANCIAL CAPACITY ANALYSIS
City of Bainbridge Island 2008 Capital Facilities Plan Update
73 of 186
2008 2009 2010 2011 2012 2013
BEGINNING BALANCES 4,866 5,901 4,066 3,912 3,813 5,901
OPERATING REVENUES
Property Taxes 6,250 6,460 6,660 6,851 7,034 7,210
Other General Taxes 7,470 8,065 8,707 9,402 10,153 10,965
Real Estate Excise & Dedicated Taxes 2,570 2,737 2,915 3,104 3,306 3,521
Intergovernmental Revenues 384 453 473 494 516 542
Total Utility Revenues - - - - - -
B&DS + ROW Charges 2,115 2,252 2,399 2,555 2,721 2,898
All Other General Revenues 4,712 5,020 5,784 6,562 7,369 8,433
----------- ----------- ----------- ----------- ----------- -----------
TOTAL OPR REVENUES 23,501 24,987 26,938 28,968 31,099 33,569
OPERATING COSTS
General Government 10,014 10,615 11,252 11,927 12,642 13,401
Police & Planning 6,921 7,336 7,777 8,243 8,738 9,262
Public Works & Street Maintenance 4,243 4,498 4,768 5,054 5,357 5,678
Utility Costs - - - - - -
Operating Capital - - - - - -
----------- ----------- ----------- ----------- ----------- -----------
TOTAL OPR COSTS 21,178 22,449 23,796 25,224 26,737 28,341
OPERATING MARGIN 2,322 2,538 3,142 3,744 4,362 5,227
NON-OPERATING REVENUES
Property Taxes - Bond Levies 560 544 1,122 1,123 1,252 1,252
LID Assessments 10 274 247 342 309 274
Capital Grants 4,092 6,822 3,000 3,000 2,000 2,000
----------- ----------- ----------- ----------- ----------- -----------
TOTAL NON-OPR REVENUES 4,662 7,640 4,369 4,464 3,561 3,526
DEBT SERVICE COST 2,868 3,253 4,148 4,412 4,564 4,458
AMOUNT AVAIL. FOR CAPITAL 8,982 12,827 7,429 7,708 7,172 10,196
CAPITAL SPENDING 10,816 21,176 9,202 5,235 1,536 1,479
AMOUNT NEEDED FOR CAPITAL 1,834 8,349 1,773 (2,473) (5,636) (8,717)
FINANCIAL SUMMARY -- TAX SUPPORTED FUNDS ONLY
CITY OF BAINBRIDGE ISLAND -- YEAR 2008 FINANCIAL CAPACITY ANALYSIS
City of Bainbridge Island 2008 Capital Facilities Plan Update
74 of 186
Appendix A
City of Bainbridge Island
List of projects not included in
2008-2013
Capital Improvement Project List
The projects shown in this appendix were originally included in the City’s
preliminary CIP list published on 6/28/07. These projects have not been included
in the 2008-2013 CIP because they were shifted to years beyond the current 6-
year planning horizon or removed from further consideration for a variety of
reasons.
City of Bainbridge Island 2008 Capital Facilities Plan Update
75 of 186
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THIS PAGE INTENTIONALLY LEFT BLANK
City of Bainbridge Island 2008 Capital Facilities Plan Update
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Appendix B
Bainbridge Island School District
Adopted
Capital Facilities Plan
2007-2013
The School District adopted the following CFP on June 21, 2007. The projects
included in this CFP are consistent with the City’s Comprehensive Plan.
City of Bainbridge Island 2008 Capital Facilities Plan Update
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An Equal Educational and Employment Opportunity School District
BOARD OF DIRECTORS
Bruce Weiland
Cheryl Dale
Dave Pollock
Mary Curtis
Michael Foley
SUPERINTENDENT
Dr. Ken E. Crawford
ASSOCIATE
SUPERINTENDENT
Faith Chapel
8489 Madison Avenue NE * Bainbridge Island, Washington 98110-2999 * (206) 842-4714 * Fax: (206) 842-2928
August 15, 2007
To Whom It May Concern:
Attached is the Bainbridge Island School District Capital Facilities Plan 2007, an annual revision
of the original document submitted to the City of Bainbridge Island in December of 2006. The
following is a guide that summarizes the updates made in this current document version.
Page Content
49 Table 4 revised to illustrate an incorporated third demographic study that has been
added and used to update student enrollment and projections until the year 2010-11.
54 Figure 1 revised to illustrate an incorporated third demographic study that has been
added and used to update student enrollment and projections until the year 2010-11
58 Figure 5 revised to illustrate an incorporated third demographic study that has been
added and used to update student enrollment and projections until the year 2010-11
59 Figure 6 revised to illustrate an incorporated third demographic study that has been
added and used to update student enrollment and projections until the year 2010-11
Please feel free to contact the BISD Capital Facilities Department at 780-1590 with any
questions.
City of Bainbridge Island 2008 Capital Facilities Plan Update
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Six-Year Capital Facilities Plan
2007 - 2013
Wilkes Elementary
Mandus Olson Property
Sakai Intermediate School
Woodward Middle School
Blakely Elementary
District Transportation Center
Ordway Elementary School
District Administration Office
Commodore Options School
Bainbridge High School
District Maintenance Facility
Sands Avenue Property
Presented to the City of Bainbridge Island
August 2007
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Chapters Page #
1. Executive Summary 1
Glossary of Terms 3
2. Educational Objectives 4
3. Inventory of Existing Facilities 16
4. Enrollment 22
5. Current Level of Service 26
6. Capital Projects Finance Plan and Timeline 30
7. Impact Fee Analysis 32
Tables
Table 1 BISD School Capacity and Utilization Formulas 35
Table 2 BISD Space Allocation Model (SAM) and
Practical Capacity Model (PCM) Inventory 47
Table 3 BISD Capacity District Total 48
Table 4 BISD FTE October Enrollment History and Projections/
Kindergarten Enrollment Comparison to Live Births 49
Table 5 BISD FTE Growth and Loss Calculations 50
Table 6 Bainbridge Island Estimated Population Totals 51
Table 7 Bainbridge Island Estimated Six-Year Finance Plan 52
Table 8 Capital Facilities Plan - Bond 2006 53
Figures
Figure 1 BISD Enrollment and Projections 54
Figure 2 Bainbridge Island Building Permits 1990-2004 55
Figure 3 Bainbridge Island Estimated Population Totals 56
Figure 4 Master Plan Proposed District Modernization Schedule 57
Figure 5 1993-2011Cohort Growth Projections 58
Figure 6 Cohort Enrollment Growth 1993-2011 59
Supporting The BISD Facilities Master Plan is available at the website:
Document: www.bainbridge.wednet.edu or in hard copy at the District office
Table of Contents
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Bainbridge Island School District No. 303
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This Six-Year Capital Facilities Plan (CFP) has been prepared by the Bainbridge Island
School District (District). The purpose of the CFP is to provide the City of Bainbridge
Island a six-year facility planning document in compliance with the requirements of the
Washington State Growth Management Act1. This document in and of itself is not
intended to describe all of the District’s planning needs.
In addition to this plan, the Bainbridge Island School District prepared a Facilities Master
Plan2 in 2005. The Facilities Master Plan was developed to analyze the physical
condition and program configuration of all existing District facilities in relationship to
their ability to support the District’s mission and educational goals. The Facilities Master
Plan incorporates current educational and demographic trend data into comprehensive
goals for the District facilities. Ultimately, the Facilities Master Plan provides detailed
information and the comprehensive support necessary to develop this current CFP.
The CFP has six major components:
¾ Educational Objectives: District Basic Standard
¾ Inventory of Existing and Planned Facilities
¾ Enrollment
¾ Current Level of Service
¾ Capital Projects Finance Plan and Timeline
¾ Impact Fee Analysis
The 2007-2013 CFP continues to address the first six years outlined within the Master
Plan framework. It will guide District’s repair and modernization projects for existing
facilities, and it will support the District’s decision to provide new capital facilities in the
future.
1 RCW Chapter 36.70A
2 The Facilities Master Plan is available at the website: www.bainbridge.wednet.edu or in hard copy at the
BISD District Office.
1 Executive Summary
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In addition, the District understands adoption of the CFP and its ultimate adoption into
the City’s Comprehensive Plan will allow impact fees to be collected by the City to be
disbursed to the District. The CFP and the Facilities Master Plan are reviewed on an
annual basis and revised accordingly, based on updated enrollment data, future financial
information, and evolving educational needs of students.
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Glossary of Terms
BIEA- Bainbridge Island Education Association
Cohort Survival- The net percentage of a cohort of students enrolled in the first grade in a
given school-year who remain in the Bainbridge Island School District until grade
twelve.
CFP-Capital Facilities Plan
District-The Bainbridge Island School District
Facilities Master Plan- Document published in 2005 that is a 15-year framework and
facility decision-making tool.
(FTE) Full-time Equivalent – State funding is determined by the number of students
attending 6 hours per day.
OSPI- Office of the Superintendent of Public Instruction
Plan- The 2007-2013 Bainbridge Island School District Capital Facilities Plan
(PCM) Practical Capacity Model- A method for measuring capacity that involves
identifying program spaces at a site, determining which spaces are core and elective
instructional spaces, then multiplying those spaces by class size and utilization formulas.
(SAM) Space Allocation Model- A method for measuring capacity by dividing the square
footage of a site by the square foot per student space allocation.
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Educational Vision
Vision 2010 is a long-range planning document for the future of the school district.
Under the banner of “strong minds, strong hearts, strong community,” it details the
shared vision, mission, core beliefs, and goals for the District’s instructional program,
climate, finance, and facilities.
As learning and assessment methodologies continue to change, school districts face a
host of choices and challenges when it comes to making decisions on how to best serve
students. Educators across the nation are re-examining academic traditions and exploring
a variety of approaches to the way pupils are grouped, administered, and taught. Growing
use of alternative student assessment methods, team teaching, interdisciplinary
instruction, and multi-age classes represents a departure from the traditional instructional
practices of the past and consequently requires more flexible facilities. In addition, a
national growth of the Small Schools concept underscores the value of relationship-based
learning and community clusters that promote a positive learning environment.
This CFP is grounded in Vision 2010 and is guided by an understanding of national
education research on best practices and highly effective learning environments.
Basic Standard
The following definitions outline the basic standard program assumptions for each school
as described in the District’s Facilities Master Plan. The core classroom spaces in the
basic standard program accommodate flexible and integrated learning opportunities, and
are supported by Vision 2010.
2 Educational Objectives
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ELEMENTARY SCHOOL BASIC STANDARD PROGRAM SPACES
Core Instruction
• General classrooms
• Small group study
• Teacher work area/planning
• Student toilets
• Shared teaching/learning space
Special Education
• Developmental Preschool/Kindergarten
• Occupational/Physical Therapy
• Resource Room
Functional Skills
• Functional Skills classroom
• Office
• Kitchenette
• Toilet
Art/Science/Music/Tech
• Art/Science classroom and storage
• Music classroom and storage
• Computer classroom
Library/Media Center
• Reading room/collection storage
• Class seating/ story area
• Circulation desk
• Workroom/AV production
Physical Education
• Gymnasium
• PE office/ storage
• Community storage
• Emergency supplies
Food Service
• Kitchen with office area
• Food storage
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ELEMENTARY SCHOOL BASIC STANDARD PROGRAM SPACES (continued)
Commons/Cafeteria
• Seating area for 225 students
• Collapsible stage storage
• Community storage
• Table/chair storage
Administration
• Reception/waiting/office manager
• Principal’s office
• Conference room
• Staff workroom
• Storage
Student Services
• Counselor
• Speech/Language Pathologist
• Title 1 Reading
• Itinerant office
• Health room/ office
Faculty/Staff Support
• Staff room
Building Support
• Student toilets
• Staff toilets
• Custodial spaces/receiving/building storage
• Exterior covered play area
ELEMENTARY SCHOOL BASIC STANDARD PROGRAM ASSUMPTIONS
General
• Maximum enrollment is 450 students, grades Pre-K through 4
• Central food preparation is off-site
• Gymnasium will be sized to support community athletic use
• Program will include three (3) kindergarten spaces
• Program will accommodate Developmental Pre-school
• Functional Skills spaces will be provided at the Ordway site only
• Program anticipates interior hallways
Site
Basic standard program suggests a minimum site area of ten (10) acres
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INTERMEDIATE SCHOOL BASIC STANDARD PROGRAM SPACES
Core Instruction
• General classrooms
• Small group study
• Teacher work area/planning
• Student toilets
• Shared teaching/learning space
• Science classrooms
• Science Prep
Special Education
• Resource room
• Office
• Time Out
• Storage
• Testing
Functional Skills
• Functional Skills classroom
• Office
• Kitchenette
• Toilet
Art/Science/Music/Tech
• Art classroom and storage
• Music classroom, music storage, instrument storage
• Computer lab
Library/Media Center
• Reading room/collection storage
• Class seating
• Circulation desk
• Workroom/AV production
• AV equipment storage
Physical Education
• Gymnasium
• PE office/ storage
• Community storage
Food Service/Commons
• Prep kitchen with office area
• Food storage
• Seating area for 300
• Stage and storage
Administration
• Reception/waiting/office manager
• Principal’s office
• Assistant Principal’s office
• Conference room
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INTERMEDIATE SCHOOL BASIC STANDARD PROGRAM SPACES (continued)
• Staff workroom
• Storage
Student Services
• ELL (English Language Learner)/ Title 1 Reading office and resource area
• Counselor
• Speech/Language Pathologist
• Counseling area small group room
• Health room/ office
Faculty/Staff Support
• Staff lounge
Building Support
• Student toilets
• Staff toilets
• Custodial spaces/receiving/building storage
• Exterior covered play area
INTERMEDIATE SCHOOL BASIC STANDARD PROGRAM ASSUMPTIONS
General
• Maximum enrollment is 600 students, grades 5 and 6
• Personalized learning is emphasized
• Two (2) Special Education classes are included
• Functional Skills area is provided to serve up to eight (8) students
• Lunch will be served in three (3) shifts, each accommodating 200 students
• Interior hallways
Site
Basic standard program suggests a minimum site area of twenty (20) acres
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MIDDLE SCHOOL BASIC STANDARD PROGRAM SPACES
Core Instruction
• General classrooms
• Small group study
• Teacher work area/planning
• Student toilets
• Shared teaching/learning space
• Science classrooms
• Science Prep
Special Education
• Resource room
• Office
• Time Out
• Storage
• Testing
Functional Skills
• Functional Skills classroom
• Office
• Kitchenette
• Toilet
Art/Science/Music/Tech
• Art classroom and storage
• Music classroom, music storage, instrument storage
• Computer lab
Library/Media Center
• Reading room/collection storage
• Career Center
• Class seating
• Circulation desk
• Workroom/AV production
• AV equipment storage
Physical Education
• Gymnasium
• PE office/ storage
• Community storage
• Student lockers/showers/toilets
Food Service/Commons
• Prep Kitchen/ food storage/ office/ toilet
• Seating area for 325
• Stage and table storage
Administration
• Reception/waiting/office manager
• Principal’s office
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MIDDLE SCHOOL BASIC STANDARD PROGRAM SPACES (continued)
• Assistant Principal’s office
• Attendance/ records storage
• Conference room
• Staff workroom
• Storage
Student Services
• ELL (English Language Learner) office and resource area
• Counselor
• Speech/Language Pathologist
• Health room/ office
Faculty/Staff Support
• Staff room/ kitchen/ workroom
Building Support
• Student toilets
• Staff toilets
• Custodial spaces/receiving/building storage
• Exterior covered play area
MIDDLE SCHOOL BASIC STANDARD PROGRAM ASSUMPTIONS
General
• Maximum enrollment is 650 students, grades 7 and 8
• Personalized learning is emphasized
• Two (2) special education classes are included
• Functional Skills area is provided to serve up to eight (8) students
• Central food prep is on-site
• Lunch will be served in two (2) shifts, each accommodating 325 students
• Interior hallways
• A full-size gymnasium is programmed; dividable into two (2) practice courts. With spectator
accommodation on each side.
Site
Basic standard program suggests a minimum site area of twenty (20) acres
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HIGH SCHOOL BASIC STANDARD PROGRAM SPACES
Core Instruction
• General classrooms
• Shared instructional area
• Small group / seminar
• Faculty planning
Special Education
• Learning Strategies / special education
Functional Skills
• Functional Skills classroom
• Toilet/ shower/ changing/ laundry
Science
• Physics/Prep
• Chemistry/Prep
• Biology/Prep
• General science/ prep
• Central science/ prep storage
Occupational Ed./Unified Arts
• Art studio/ materials storage/ kiln
• Business Education/ storage
• Journalism/ annual workroom
• Industrial technology lab
• Photography lab/ darkroom
• Home & Family Life/storage
• Clean lab/ storage
• Technology lab/ laser/ storage
• Production
• Foyer/ gallery
Music
• Vocal music classroom
• Office/ storage
• Instrumental music classroom
• Office/ storage
• Practice rooms
(Performance space in Large Group Instruction (LGI) Space or Great Hall)
Large Group Instruction
• Drama classroom
• Large Group Instruction/ Theater/ stage/ support 300-600 seats1
• Concessions
• Ticket area
1 Seating capacity to be determined during educational specification process.
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HIGH SCHOOL BASIC STANDARD PROGRAM SPACES (continued)
Library/Media Center
• Reading room/collection storage
• Career Center
• Librarian Workroom/ office
• AV equipment storage
• Copy center
• Media production room
• Large conference room
Physical Education
• Gymnasium
• Auxiliary Gymnasium
• Weight room
• Movement/ wrestling
• Movement/ gymnastics
• Storage
• Training/ testing classroom
• Health classroom
• PE lockers
• Athletics lockers
• Toilets
• PE office/ storage
• Laundry
Food Service/Commons
• Prep kitchen with office area
• Commons/ cafeteria-600 seats
• Student store/ storage
Administration
• Reception/waiting/office manager
• Principal’s office
• Assistant Principal’s office
• Attendance/ waiting
• Athletic Director
• Bookkeeper
• Conference room
• Staff workroom/ mailboxes/ storage
• PTSA/ parent area
Student Services
• Reception
• Registrar
• Itinerant
• Conference/ testing
• Counselor
• ASB office
• Workroom/ storage
• Health room/ office
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HIGH SCHOOL BASIC STANDARD PROGRAM SPACES (continued)
Faculty/Staff Support
• Staff room/ kitchen/ workroom
Building Support
• Student toilets
• Staff toilets
• Custodial spaces/receiving/building storage
• Exterior covered area
HIGH SCHOOL BASIC STANDARD PROGRAM ASSUMPTIONS
General
• Maximum enrollment is 1,450 students, grades 9 through 12
• Personalized learning is emphasized
• Increased opportunities for collaboration
• Full-time staff will be assigned to a specific classroom
• Part-time staff will share classrooms
• Lunch will be served in two (2) shifts, each accommodating 600 students
(assumes that a partial open campus concept will continue)
Site
Basic standard program suggests a minimum site area of forty (40) acres
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OPTIONS SCHOOL BASIC STANDARD PROGRAM SPACES
Core Instruction
• Eagle Harbor High School (EHHS) classroom
• EHHS shared instruction
• Odyssey 7 and 8 learning setting (classrooms)
• Odyssey 7 and 8 shared instruction
• Odyssey 1 through 6 learning setting (classrooms)
• Odyssey 1 through 6 shared instruction
• Home School classroom
• Flexible classroom
• Teacher workroom/ prep/ storage
Art/Science/Music/Tech
• Art classroom and storage
• Dark room
• Science classroom
• Science prep/ storage
Music/ Drama
• Music/ Drama classroom
• Office/ storage
Library/Media Center
• Library
• Computer lab
Physical Education
• Gymnasium/ lockers/ office/ storage
Food Service/Commons
• Serving kitchen
• Dining/ commons
Administration
• Reception/waiting/office manager
• Principal’s office
• Assistant Principal’s office
• Attendance/ waiting
• Athletic Director
• Bookkeeper
• Conference room
• Staff workroom/ mailboxes/ storage
• PTSA/ parent area
Student Services
• Reception
• Registrar
• Itinerant
• Health Room/ office
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OPTIONS SCHOOL BASIC STANDARD PROGRAM SPACES (continued)
Faculty/Staff Support
• Staff lounge
Building Support
• Student toilets
• Staff toilets
• Custodial spaces/receiving/building storage
• Exterior covered play area
OPTIONS BASIC STANDARD PROGRAM ASSUMPTIONS
General
• Maximum enrollment is 325 students, grades 1 through 12
• Personalized learning is emphasized
• Assumes that the Options school will continue to serve four (4) academic programs represented
by:
Eagle Harbor High School
Odyssey grades 1-6
Odyssey grades 7-8
Home school program
• Staff will not be assigned to specific classrooms
• Lunch will be served in a common cafeteria but be prepared off site
• Interior hallways
• Community program are not included in the basic standard program
Site
Basic standard program suggests a minimum site area of ten (10) acres
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Educational Objectives
The Educational Objectives formed during the Master Plan process in 2005 developed a
basic standard model for program delivery on Bainbridge Island. As described in
Chapter 2, each facility in the school was comprehensively evaluated to determine
whether the existing space was sufficient to meet educational need, District vision,
educational trends and enrollment (current and future). Although the State Superintendent
of Public Instruction establishes square footage guidelines for capacity, those guidelines
do not consider local program needs. The basic standard model provides the framework
to determine capacity for the programmatic needs of the Bainbridge Island School
District. Future facility improvements will address deficiencies identified by the
Facilities Master Plan and will accommodate future growth.
Methods for Measuring Capacity in the Past
In the District’s prior Capital Facilities Plans, capacity was measured by comparing
current enrollment to the space available to serve that site’s population. The amount of
space needed was based on the school’s population divided into the number of available
classrooms (with consideration of class size). General education, elective/specialist, and
special education class size were defined within the Bainbridge Island Education
Association’s (BIEA) negotiated contract. If the site could not serve the entire student
population, then short-term space was utilized and reported under the label of ‘temporary
space’. These capacity calculations were often inconsistent.
Methods for Measuring Capacity at Present
In preparing this CFP, the District has taken the opportunity to standardize its
calculations for capacity. To determine the total capacity of the District, the existing
District facilities were listed by grade level. This included three elementary schools
(grades K-4), intermediate school (grades 5-6), middle school (grades 7-8), high school
(grades 9-12), Options school (grades 1-12 including the Odyssey and Eagle Harbor
3 Inventory of Existing and Planned Facilities
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programs), and ancillary facilities. The total student capacity was calculated by program
use (utilization) and class size determined by the BIEA contract. Seven categories have
been identified at each site to determine school program capacity (Table 1). They
include: core instruction, elective/specialist, physical education, special education, non-
school, temporary, and support space. These seven categories have been applied to site
maps (pages 36-46) and recorded by category to measure total program space and
capacity (Table 3).
Currently, the District has permanent program capacity to house 4,0881 students and
temporary classroom capacity to house 507 students. This capacity is based on the basic
standard program as described in Chapter 2 and detailed in the Facilities Master
Plan. This chapter will outline (1) the District definition and use of temporary facilities;
(2) a visual display of core instruction and elective permanent classrooms at each site; (3)
an explanation of how spaces are measured and utilized when determining capacity; and
(4) current classroom capacity and projected capacity for the next six years.
Definition of and Use of Temporary Classrooms
Within this plan, temporary spaces are defined as spaces that do not meet adjacency,
program, or long-term plan requirements as set forth by the District’s Master Plan. These
spaces, which include portables, are used for a limited amount of time.
During the 2005-2006 school year, overall the District used nineteen (19) temporary
classrooms to house students in excess of permanent capacity for classroom purposes at
school locations, and six (6) temporary classrooms for other program purposes.
Currently Bainbridge High School is using eleven (11) classroom spaces at the
Commodore building. These spaces are considered temporary at BHS because they are
not adjacent to complementary programs and the spaces do not meet the District’s Master
1 This includes the Commodore/Options programs as listed under the PCM category in Table 2 and listed
under 2005-06 Permanent Building Capacity in Table 3
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Plan specifications. An additional four (4) portable classrooms were brought on site to
accommodate students during the 2006-2007 school year.
Current core classroom space at the high school is inadequate to service a student
population of 1,450 and there is no additional temporary space available for use. The new
BHS building 200 currently under construction will reduce the need for temporary
housing at BHS by adding permanent classroom core capacity to adequately house 1,450
students.
Temporary classrooms may be used as interim or transitional facilities:
• To prevent overbuilding or overcrowding of permanent school facilities.
• To cover the gap between the time of demand for increased capacity and
completion of permanent school facilities to meet that demand.
• To meet unique program requirements.
• To provide temporary housing for classes displaced as a result of construction
activities.
The information within this CFP projects that the District will use temporary classrooms
to accommodate interim housing needs for the next six years. The use of temporary
housing, its impact on permanent facilities, life cycle and operational costs, and the
interrelationships between temporary classrooms, emerging technologies, and educational
restructuring will continue to be examined. Due to the fact that temporary facilities do
not address permanent capacity, short and long term goals are outlined within the
Facilities Master Plan to help each school site maximize permanent capacity potential.
As student enrollment fluctuates, temporary classrooms provide the flexibility to
accommodate immediate needs and interim housing. The use and need for temporary
classrooms will continue to be balanced against instructional program needs.
In addition to temporary re-locatable classrooms, the District also uses classrooms at
Commodore Options School to alleviate the classroom shortage at the high school and
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also to house the District’s Options programs. It is anticipated that these classrooms will
be used for the life of the six-year plan, while additional permanent classrooms are
constructed at the high school. Included in this plan are two independent ways of
calculating square footage and capacity of existing schools (Table 2). The BISD capacity
summary sheet (Table 3) provides individual school permanent and temporary capacities.
The building capacity that is reflected in this CFP has been updated to reflect current
programmatic needs as identified and described in the Facilities Master Plan. In the
future, all updates to BISD school capacity figures will use the 2006 CFP as a baseline
for comparison and reporting purposes. Two factors may change this baseline in the
future: a negotiated BIEA contract that produces a change in class size, or program
changes approved by the BISD board of directors. The CFP will be updated to reflect
this information if either of these two variables changes.
Core Instruction and Elective Permanent Classroom Formulas
The configuration of schools in the district includes three elementary schools grades K-4;
one intermediate school grades 5-6; one middle school grades 7-8; one high school
grades 9-12; and an options school grades 1-12.
Per BIEA agreement, class sizes are limited to the following numbers:
Elementary Schools Grades K-4
Number of
classes per grade
Grades Class Size Limit at each site
K 25 students 3
1 25 students 3
2 26 students 3.5
3 26 students 3.5
4 27 students 4
The number used to measure capacity for grades K-4 is 25.8, which is the average of
class size limits.
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Intermediate Programs Grades 5-6
Number of
classes per grade
Grades Class Size Limit at school site
5 27 students 11
6 27 students 11
The number used to measure capacity for grades 5-6 is 27, which is the average of class
size limits.
Secondary Programs 7-12
At the secondary level, capacity is determined by curriculum area. Per BIEA agreement,
class sizes for each area shall be limited to:
Curriculum Areas: Limits
Core Instruction
Lab Science 28
Language Arts/Comp. Block 28
Language Arts/Literature 29
Mathematics 29
Social Studies 29
Average class size for core instruction: 28.6
Utilization of classrooms is 85%1, therefore the total average for core
instruction class size is 24.3
Curriculum Areas: Limits
Electives/Specialists
Art 29
Business Education 35
Foreign Language 29
Home & Family Life 29
Music 38
Science 29
Technology 29
1 15% for teacher planning/prep. Per BIEA agreement
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Production 25
Drafting 28
Photography 28
Traffic Safety 29
Average class size for elective instruction: 29.8
Utilization of classrooms is 85%1, therefore the total average for
Electives/specialists instruction class size is 25.3
The number used to measure capacity for grades 7-12 is determined by taking the average
of class size limits for core and elective instruction based on 85% utilization (5 of 6
periods a day the class is in use). The core number of 24.3 and the elective number of
25.3 are the two averages used to measure capacity.
Projected Six-Year Classroom Capacity
Program capacity is periodically updated for changes in special programs. Projected
enrollments and capacities for the District’s schools determine the need for facilities to be
large enough to address current and projected enrollments (Table 4).
Enrollment is reported to the Office of the Superintendent of Public Instruction (OSPI) on
Form P-223 on a monthly basis. Apportionment funding is based on Annual Average
Percentage FTE (AAFTE). The first school day of October is set by OSPI as the official
enrollment count date for the year. FTE projections through 2010 are based on
enrollment growth or loss percentages (calculations) at each grade level based on the past
three actual FTE October counts (Figure 5). For this report the trend data (three years)
from 2004 to 2006 has been used (Table 5).
Based on enrollment forecasts, current inventory and capacity, current standard of
service, and temporary classroom capacity, the District anticipates having sufficient
capacity to house students in grades K-8 over the next six years. Insufficient capacity at
the high school, grades 9-12, that results in part from residential development on the
island, requires improvements and expansion of the high school facility.
1 ibid.
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In order to put current enrollment in perspective, it is important to consider past
enrollment history. For capital facilities planning purposes, student growth projections
are typically based on several factors. The first is the net percentage of students who
remain in Bainbridge Island schools from 1st through 12th grade, or cohort survival. The
second is three-year trend data of the percentage of growth or loss from actual October
FTE enrollment counts. The third factor is estimated kindergarten enrollment in
comparison to Bainbridge Island live birth rates (Table 4). The final factor is regional
population growth, based on population studies conducted by Puget Sound Regional
Council (small area forecast released October 2006).
To determine the number of kindergartners projected to enter the system, actual
kindergarten enrollments were compared to the number of live births on Bainbridge
Island over the past ten years. Actual kindergarten enrollment for October 2005 was 220
students; this number represents 129% of the 170 Bainbridge Island live births in 2000.
Within the past five years, actual kindergarten enrollment on average has been 138% of
the island’s live birth rate. Enrollment exceeds the live birth rate within the District
because new residents on the island with pre-school children move into new and existing
housing. The cohort survival method will be used within this CFP to illustrate historical
enrollment data and then forecast the number of students projected until 2010-11.
The District’s elementary school population decreased when comparing the 1998-99
school year to the 2005-2006 school year (Table 4). The elementary school population
peaked at 1320 during the 1999-2000 school year. Enrollment declined slightly each
year and is reported in the 2006 October P223 at 1,175. The elementary population is
projected to increase slightly through the 2010-11 school year with enrollment projected
at 1269. Student population increased at the intermediate and middle schools through
2004-05. These populations are projected to plateau at approximately 1200 students by
the 2010-11 school year. The high school population has increased at a consistently rapid
rate from 1998-99 through 2006-07. It is projected to decline slightly from population
4 Enrollment
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averages recently reported in the 1,500s and eventually stabilize through 2010-11 to a
number closer to 1,450.
Demographic Studies Used
The most recent demographic study commenced in the spring of 2007. A final report was
shared with the Board in July of 2007. This study was used along with the District’s
Facilities Master Plan, which incorporated the District’s 2004 Six Year Capital Facilities
Plan and two demographic studies as a basis for its 15-year plan. The first study was
prepared in January of 2005 by Portland State University and blended cohort survival
with regional growth to examine District enrollment counts and projections. The second
study was prepared in May of 2005 by Harold Skow and blended cohort survival with
Bainbridge Island live births. The third, and most recent study, prepared by Reed Hansen
began in the spring of 2007. This recent study incorporates cohort survival, regional
growth and Bainbridge Island live births. All studies demonstrate relative trends and
provide a comprehensive picture of present and future enrollment numbers. Analysis of
the most recent demographic information suggests that District enrollment stays within a
constant range for the next two years and then will show a modest increase at the
elementary grades by 2010. Grades 7 and higher show an increase in enrollment between
the years 2005 and 2007. After 2007 enrollment slightly decreases and then stabilizes by
2010. Assumptions supported by the most recent census data suggest families moving on
to the island are not first time home buyers. The majority of these families are moving in
with children in the 3rd grade and above. When combined, the demographic data and the
census data support the current District enrollment projections used in this CFP.
Current Methodology
In prior plans, headcount numbers were used to report enrollment and make enrollment
projections primarily because the state reporting system did not require full time
equivalent (FTE) information on its P-223 forms until the fall of 2005. In this CFP, the
District has measured program capacity based on FTE and not headcount. Program
specifications from the Master Plan will be used as guiding principles from this point on
in facility planning. The District has determined through its Master Plan process that,
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how each space is used and which students use it, are important components to long-term
planning.
Overall student-wide enrollment increased from 1998-99 to 2004-05. In general terms,
the average annual growth rate of the District’s total enrollment from 1999 through 2010
is estimated to be 0.30%. (This data is displayed in Table 5 and illustrated in the
corresponding Figure 1) The District’s highest actual enrollment numbers were reached
during the 2005-06 school year. The growth rates in the student population are slowly
starting to lose momentum and should plateau by 2010. Facility improvements
recommended in the Facility Master Plan have considered enrollment projections through
2010. Enrollment projections support the need for continued elementary and high school
improvements over the next six years.
The District will continually monitor enrollment projections in comparison to growth of
residential construction on the island. This will be done by using data available from the
City of Bainbridge Island Building Department and permit information from the Puget
Sound Regional Council. An annual average of 250 net new units has been built on the
island since 1990. Of these new units, an average of 177 units has been developed as
single-family housing and 73 as multi-family housing. These data (Figure 2) illustrate
growth and development on the Island since 1990. There was a decline in residential
construction in the early 1990s. It then peaked at the turn of the decade. Between 1992
and 1999 housing growth was steady. Following a small dip between 1999 and 2001,
housing has continued to grow at a consistent pace. The number of residential units in
multi-family housing surpassed single-family housing units in 2003, and this trend is
likely to continue. Market and real estate indications are that the overall rate of
development will continue into the near future.
Between 2000 and 2006 the population of Bainbridge Island increased from 20,308 to
22,600 (Figure 3) an average annual change of 1.19% (Table 6). The Island population
has been consistently increasing since the 1990 census and has continued since the 2000
census (Figure 3).
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The CFP enrollment data is a combination of current district data (October P223 reports)
and the Facility Master Plan data gathered from several demographic studies and
published in 2005. The enrollment projections that were prepared in 2004 for the
Facilities Master Plan took into consideration birth rates, enrollment history, and housing
construction trends at 2004 levels. Again, the current projection forecasts that total
District enrollment will plateau by 2010.
The District projects the growth in the number of students experienced within the past
five years will stabilize for the next three years. The largest impact to facilities at present
is this large increase in enrollment that began in 2001: the student cohorts that have
grown throughout grades K-12 within the District system. As Figure 6 shows, according
to the cohort survival method, the 1,075 students enrolled in grades 1-4 in the District in
1996/97 should have resulted in a population of grades 9-12 of approximately the same
number. Instead, there were 1,464 students enrolled in grades 9-12 in 2005/06. This
means that, as of 2005/06, there are approximately 389 additional students in that cohort
who have moved into the District since 1996-1997. The majority of those 389 new
students entered the District due to the development of the approximately 250 new
dwelling units constructed on the island each year since 1990 (approximately 4,000 new
dwelling units over the entire sixteen year period). The only other source of this increase
could be migration from private schools; however, the District estimates the total private
school transfers in grades 9-12 to be no more than 30 students per year.
In the high school as a whole, then, approximately 255 students of the expected future
stabilized population of 1,450 high school students during the term of this CFP will have
entered the District due to new housing development (1,450 less 1,075 from the surviving
cohort, less 120 students from private schools over four years). But for new housing
development and private school transfers, anticipated high school population would be
expected to stabilize at a number much closer to 1,075 students, as the cohort survival
method applied to the data set forth in Figure 6 would predict.
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Current Level of Service
Based on the Facilities Master Plan analysis, the program evaluation indicates a
significant space need largely due to new development at the high school campus in core
facility and basic instructional classroom space. This is substantiated by the accreditation
evaluation that was conducted at the high school campus in May 2005. Furthermore, all
of the elementary school buildings lack sufficient accommodation for interdisciplinary
learning, student services, team teaching, all school gatherings, and community use.
In addition to the program evaluation, during the Master Plan process all District facilities
had a physical assessment that summarized the condition of all primary site and building
components. Current building codes, the Bainbridge Island Municipal Code, and other
recent school district building surveys formed the basis of this evaluation.
With the exception of Sakai Intermediate School, Woodward Middle School, and the
most recent work at the high school campus and Commodore, none of the buildings
satisfies the requirements of the current building codes. Additionally, most buildings are
simply worn out in terms of basic infrastructure such as the septic systems, ventilating
systems, windows, finishes, plumbing, and power and communications. If infrastructure
issues are addressed, local agencies would likely require that entire facilities be brought
to a condition that is consistent with current building codes.
In a continued effort to improve the status of our existing facilities, the District will bring
specific bond requests to the community in the future. The District will address the basic
infrastructure improvements as identified by the Facilities Master Plan as voters approve
future bond requests.
5
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Methodology for Level of Service
The Bainbridge School District's "level of service" has been defined in terms of the
amount of permanent and temporary school space that is provided for the instruction of
elementary, middle and high school students. Two different models were used to define
level of service. The Space Allocation Model (SAM) was selected along with the
Practical Capacity Model (PCM) because each paints a different picture of how capacity
can be derived1 (Table 2).
Space Allocation Model
There are several advantages of the Space Allocation Model (SAM). First, SAM is a
well-established and familiar model. WAC 180-30-110 set forth four factors that govern
the level of state assistance provided to school districts for the funding of new school
facilities. One of those factors is a "square foot per student" space allocation (i.e. 80
square feet per student in grades K-6, 110 square feet per student in grades 7 and 8, and
120 square feet per student in grades 9-12; a specially designated self-contained
classroom is 140 square feet per student). The space allocation figures set forth in
WAC 180-30-110 are only used for the purpose of determining a school district's
eligibility for state matching funds. Clearly, those space allowances do not reflect an
accurate total of the true space needed to carry out the District’s instructional programs.
However, the state's square footage figures are very familiar to anyone associated with
new school construction in the State of Washington.
A second advantage is that SAM is an easier model to use, particularly at high school
levels. Accurately assessing the practical capacity of a middle or senior high school is
extremely difficult. Teacher planning periods, specialty areas like food service,
laboratories, music rooms, shop classrooms, the Running Start Program, late arrival, early
dismissal, and zero periods are just a few examples of the complexities of a secondary
school's instructional program.
1 The Options school is intended to be located at the Commodore building during the life of this plan. Since the program is multi-age
and has unique requirements, it is not included in the SAM analysis.
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Finally, the SAM is also a much easier model to explain. The straightforward calculations
of the SAM are not difficult to understand, especially for someone who is not familiar
with the complexities of the instructional programs of schools.
Consistent with the state definition of temporary space, the District does not use portable
classroom square footage as part of its permanent calculations, but continues to use
portables and interim spaces in its overall District capacity calculations (Table 3). The
District does not consider portables to be adequate long-term instructional space for
students or staff members. By design, portable classrooms separate their occupants from
the rest of a school's student body or staff. While portables accommodate increased
enrollment they also tax the common areas of the permanent buildings, areas like the
gymnasium, the library, the restrooms, the main office and the food service facilities.
The Bainbridge Island School District reserves the right to adjust the benchmark “level of
service" as needed to accommodate its instructional program within the District. As
instructional programs evolve, obviously facilities requirements must also be adjusted.
Practical Capacity Model
The Practical Capacity Model (PCM) is more complex than the SAM, but important to
use because of the District’s vision to provide a basic standard of service that is based on
its educational objectives. A formula has been created using the BIEA negotiated contract
to measure capacity at each school site, which is based on class size limits and space
utilization. Spaces have been audited, color coded, and labeled according to program
(Table 1). A formula of permanent space multiplied by class size equals permanent class
space capacity (p x s = c). As set out in Table 1, the PCM is a complex measurement that
focuses on current educational trends and programmatic needs. A formula of temporary
space has been created in the same fashion that includes temporary space multiplied by
class size equals temporary class space capacity (t x s = c). Capacity within this model is
more complex because it has been determined through appropriate class size along with a
grade appropriate utilization formula (defined in Chapter 3 and displayed in Table1).
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Table 2, which shows both the SAM and PCM building capacity for the District,
illustrates the complexities of interpreting and reporting building capacity.
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Capital Projects Finance Plan and Timeline
Current Financing
The 2005 Facilities Master Plan identified long-term District needs, provided a response
to findings from an in-depth facility assessment, prioritized immediate needs based on
health/life safety and core academic shortcomings, and suggested a proposed
implementation plan for the next fifteen years.
Voters passed the first phase of the Facility Master Plan in May of 2006. This $45
million bond primarily addresses classroom needs and the deficiencies of basic core
facilities at the high school. The bond also addresses health/life safety and infrastructure
issues across the school district, funds existing District commitments, provides for a new
maintenance facility, improves athletic fields; and establishes a miscellaneous
replacement allocation for use at Blakely, Ordway, Wilkes and Commodore. Recently
the District developed educational specifications to identify specific classroom and core
deficiencies. These specifications have been incorporated into the high school addition
and modernization project. Classroom size is now at 990 square feet. The construction
contract awarded in May, 2007 confirms construction costs, including soft costs of 53%,
are now $482 per square foot. The District six-year finance plan in Table 7 summarizes
projects identified in the recent bond, Facilities Master Plan recommended projects for
future bond consideration, and anticipated funding sources for 2007-2013.
Additional Revenue Sources
In fact, the first phase of the Master Plan identified a total of $48.5 million in facility
improvement needs (Table 8). In anticipation of collecting impact fees and state
matching funds, the Board decided to bring a reduced bond package of $45 million to the
voters. The District is currently pursuing state matching funds, and by adoption of this
plan and its incorporation into the City’s Comprehensive Plan, the City will be able to
continue disbursing the appropriate level of impact fees to the District.
6
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Future Facility Improvements
The master plan implementation schedule (Figure 4) identifies the need for a second
phase capital improvement bond to be presented to the voters in 2009. The District is
currently in the process of working with a Master Plan Implementation Committee. The
finalized demographic study and a district facility assessment will be presented to the
School Board in fall of 2007. At that time the School Board will provide direction
regarding additional information needed for their decision regarding Phase II of the
Master Plan and the associated November 2009 bond request. The estimated Six-Year
Finance Plan (Table 7) identifies each project that will be evaluated for Phase II
inclusion. The November 2009 bond request is currently projected to be $60 million.
Development of these expenditures for 20011/12 and 2012/13 are not identified as they
are dependent on project identification and bond passage.
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Impact Fee Analysis
The Growth Management Act provides that impact fees may be collected and spent only
for public facilities that are addressed by a capital facilities element of a comprehensive
land use plan. The capital facilities plan must identify: (a) deficiencies in public facilities
serving existing development and the means by which those existing deficiencies will be
eliminated within a reasonable period of time; (b) additional demands placed on existing
public facilities by new development; and (c) additional public facility improvement
required to serve new development. RCW 82.02.050.
A. Deficiencies in public facilities serving existing development and the means by
which those existing deficiencies will be eliminated within a reasonable period of time.
As set forth in greater detail in the Facilities Master Plan and noted above in Section 6,
the District voters passed a $45 million dollar bond issue in March of 2006 to address,
among other things, the following District facilities that are deficient in their capacity to
serve existing development: the high school commons, cafeteria, library, and
administration facilities; high school site improvements and infrastructure; health/life
safety elements at other District facilities; the District maintenance facility, numerous
athletic fields, and miscellaneous building systems at Blakely, Ordway, Wilkes, and
Commodore schools. As explained below, a proportion of these costs can be directly
attributed to new development.
As stated in Chapter 6, a bond election to fund implementation of the next phase of the
District’s Facilities Master Plan is tentatively scheduled for 2009 (see Figure 4). The
November 2009 bond request is currently projected to be $60 million. Development of
these expenditures for 20011/12 and 2012/13 are not identified as they are dependent on
project identification and bond passage. A portion of these costs may be attributed to new
residential development. They will be analyzed further in future District capital facilities
plans.
7
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B. Additional demands placed on existing public facilities by new development.
As discussed in Chapter 4, approximately 255 of the 1,450 student population expected in
the high school will continue to be present as a direct result of new residential
development. As also noted above and in Table 3, the existing classroom capacity at the
high school is 1,216 students. Were it not for new residential development, current high
school classroom capacity would be sufficient. Without new development, the needed
classroom capacity would total approximately 1,195 students (which equals the sum of
1,075, the number of students predicted by the cohort survival method, plus 1201, the
number of students expected from private school transfers). In order to create the
additional classroom capacity needed to serve the 255 extra students that continue to be
present as a direct result of new development, classroom capacity needs to be increased
by an additional 234 students (which equals the projected stable population of 1,450,
minus the current classroom capacity of 1,216).
C. Additional public facility improvements required to serve new development.
As discussed in paragraph B above, 100% of the increase in classroom capacity of the
high school is required to serve students from new residential development.
Approximately 17.6% of the total planned capacity of the high school will be needed to
serve new growth (255 students out of the 1,450 student planned capacity).
To increase the classroom capacity of the high school from 1,216 students to 1,450
students requires construction of 10 new core classrooms, at 990 square feet per
classroom, for a total of 9,900 square feet of new construction. At a construction cost of
$482 per square foot, this amounts to a total cost of $ 4,771,800
for 10 new classrooms. As stated above, all of this cost is directly attributable to new
growth.
The remaining elements of the high school construction project (science classrooms,
additional library and administrative space, building support, additional commons and
1 Note: The 120 number represents new transfer students at the high school over a four-year period. This
number is probably smaller because the District does not separately account for students who may have
been in the District at earlier grades.
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cafeteria space, site and infrastructure improvements, and off-site improvements) will
serve both new growth and existing needs. Accordingly, only 17.6% of the cost of these
improvements is attributable to new growth (the ratio of new students to existing
students). The cost of these remaining elements is estimated to be $ 28,944,398; 17.6%
of that cost, or $ 5,094,214 is therefore the cost of these remaining elements that are
directly attributable to new residential growth.
The total cost directly attributable to new residential growth is therefore the sum of:
(i) $ 4,771,800, which represents 100% of the cost of constructing 10 new core
classrooms (9,900 square feet of new classroom space, multiplied by $482 per
square feet in construction costs, equals $ 4,771,800); PLUS
(ii) $ 5,094,214, which represents 17.6% of the cost of all elements of the High
School other than classrooms ($ 28,944,398 multiplied by 17.6%, equals
$5,094,214), for a total of $ 9,866,014.
In summary, the District is authorized to collect a total of $ 9,866,014 in impact fees for
the current high school project as confirmed by the construction contract awarded May
2007.
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BISD School Capacity and Utilization Formulas
All school capacity is determined by program use and class size as determined by the
BIEA contract.
The following categories have been identified at each site to determine school program
capacity:
Color
code
Letter
code
Program
code
Description of program components
Purple C Core instruction Class size as determined by BIEA contract divided
by the number of periods the space is utilized
K-4: 25*
5-6: 27*
7-12: 29*
Green E Elective/Specialist Class size for grades K-6 is the same as core
instruction, with the exception of PE.
Class size for grades 7-12 is dependent upon the
elective; therefore, the class size indicated in the
BIEA contract for that specific elective will be
used to determine capacity.
Orange P PE Physical Education is unique and has a different
student: teacher ratio. The BIEA contract states
PE capacity
Blue S Special Education Average 8 students per teacher
Beige N Non-school Spaces utilized for programs serving school aged
students and not used for instructional purposes
such as before & after school care or district use.
Grey T Temporary Spaces (portables) currently utilized for programs
serving school aged students and not counted as
permanent building area.
White Support Spaces utilized for student services, faculty/staff
and building support.
Table 1
-Overall utilization and capacity is determined by the number of periods a space is used (usually 6 to 7 periods a day depending on time
blocks and the grade level served).
*Most core spaces are used 85% of the time with 15% reserved for teacher planning. These percentages will be applied to spaces
when determining overall capacity. Elective and specialist teachers also are given a 45-minute planning/preparation time as outlined in the
BIEA contract, so these spaces fall under the same formula. Special education programs do not fall under this definition due to the
number of support staff the cover planning time.
-OSPI state match square footage calculations do not include portable classroom inventory.
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\\
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E4
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E5
C22
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C4 C5 C6 C7
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C19 C18 C17 C16
City of Bainbridge Island 2008 Capital Facilities Plan Update
149 of 186
Revised 08.15.0746
City of Bainbridge Island 2008 Capital Facilities Plan Update
150 of 186
Revised 08.15.07
47
Ta
b
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Revised 08.15.07
48
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Revised 08.15.07
49
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Revised 08.15.07
50
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Revised 08.15.07
51
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Revised 08.15.0752
Table 7
City of Bainbridge Island 2008 Capital Facilities Plan Update
156 of 186
Revised 08.15.0753
Table 8
Revised 08.15..07
City of Bainbridge Island 2008 Capital Facilities Plan Update
157 of 186
Revised 08.15.07
54
Fi
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45
0
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19
98
1999
2000
2001
20
02
2003
2004
2005
20
06
20
07
2008
2009
2010
FT
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6
Revised 08.15.07
55
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Revised 08.15.07
56
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Revised 08.15.07
57
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Revised 08.15.07
58
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92/1993 1993/1994
1994/
1995
1995/1996 19
96/199
7 1997/1998
1998/
1999
1999/2000 20
00/200
1 2001/2002
2002/
2003 2003/2004 2004
/200
5 2005/2006
2006/
2007 2007/2008 2008
/200
9 2009/2010
2010/2011
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6
Revised 08.15.07
59
Fi
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Appendix C
Bainbridge Island Metropolitan
Park & Recreation District
Preliminary
Capital Improvement Project List
2008-2013
The Park District adopted the following CFP on November 8, 2007. The projects
included in this CFP are consistent with the City’s Comprehensive Plan.
City of Bainbridge Island 2008 Capital Facilities Plan Update
164 of 186
City of Bainbridge Island 2008 Capital Facilities Plan Update
165 of 186
City of Bainbridge Island 2008 Capital Facilities Plan Update
166 of 186
City of Bainbridge Island 2008 Capital Facilities Plan Update
167 of 186
City of Bainbridge Island 2008 Capital Facilities Plan Update
168 of 186
City of Bainbridge Island 2008 Capital Facilities Plan Update
169 of 186
Appendix D
Bainbridge Island Fire Department
Adopted
Capital Facilities Plan
2007-2015
The Fire Department adopts a 9-year CFP along with its budget at the end of each
calendar year. Since the City’s CFP is adopted earlier in the year, this appendix
includes the Department’s adopted 2007-2015 CFP. The projects included in this
CFP are consistent with the City’s Comprehensive Plan.
City of Bainbridge Island 2008 Capital Facilities Plan Update
170 of 186
City of Bainbridge Island 2008 Capital Facilities Plan Update
171 of 186
City of Bainbridge Island 2008 Capital Facilities Plan Update
172 of 186
City of Bainbridge Island 2008 Capital Facilities Plan Update
173 of 186
City of Bainbridge Island 2008 Capital Facilities Plan Update
174 of 186
City of Bainbridge Island 2008 Capital Facilities Plan Update
175 of 186
City of Bainbridge Island 2008 Capital Facilities Plan Update
176 of 186
Appendix E
Kitsap County Sewer District #7
Adopted
Capital Facilities Plan
2006-2012
The Sewer District does not have any 2008 updates to its CFP and does not
intend to adopt a 2008-2013 Capital Facilities Plan. This appendix includes the
Districts adopted 2006 CFP and 2007 update. The District’s next CFP update
will cover the years 2009-2014. The projects included in this CFP are consistent
with the City’s Comprehensive Plan.
City of Bainbridge Island 2008 Capital Facilities Plan Update
177 of 186
KITSAP COUNTY SEWER DISTRICT NO. 7
2006 CAPITAL FACILITIES PLAN
District History
The federal government sold the former Fort Ward military base, including land,
buildings, and infrastructure, to private parties. In the early 1960s, some owners
applied to Kitsap County to subdivide. Before the plats were approved, the
County created Kitsap County Sewer District #7 to assume operation and
maintenance of the existing sewer system. This “system”, created by the
military, was simply a series of pipes draining into Rich Passage. There was no
treatment of the effluent. Between 1960 and 1963, 272 lots were approved in the
five Fort Ward Plats.
The District is about 437 acres in size, lying within parts of Sections 10, 11, 14
and 15 in Township 24 North, Range 2 East, W.M.
Some time after the district was formed; area citizens acquired the operation of
the District from the County. These citizens, acting as the Board, installed
interim treatment facilities. During the preparation of the first Comprehensive
Plan & Engineering Report in 1990, an analysis of the land use in the district
revealed a potential for 592 building sites. The immediately foreseeable need in
the district was estimated at 408 homes and apartments. This information was
used to establish the size of the treatment plant.
After the Comprehensive Plan & Engineering Report was adopted, the District
obtained grants and low interest loans from the Department of Ecology-
administered Centennial Clean Water Fund that enabled the construction of the
sewer system and a treatment plant.
The plant started treating wastewater in August of 1996, and existing homes
transferred their connections to the new sewer system. The last existing home
was connected on April 14, 1999, and the old sewers ceased being used to
convey sanitary sewage.
In October of 1997, the District signed an Interlocal Agreement with the City of
Bainbridge Island to provide treatment for 80 ERUs to reduce existing water
pollution problems in the Lynwood Center area of the City.
On September 25, 1998, the District’s Commissioners adopted Resolution 98-4,
which deals with requests for sewage treatment plant service outside the District.
That resolution states the District policy for providing services outside the existing
borders of the District, which is that:
City of Bainbridge Island 2008 Capital Facilities Plan Update
178 of 186
a. The proposal will correct or alleviate an existing water pollution
problem, such as raw discharges or failed septic systems, etc., or
serve to prevent a future such occurrence; or
b. The proposed sewer service must have a clear benefit to the general
community, such as permitting additional open space by permitting
clustering of homes.
In recognition of the City of Bainbridge Island’s need to provide sewer service to
areas with failing septic systems on the South end of the Island, on September
24, 2003, the District executed an Interlocal Agreement with the City to serve up
to an additional 250 residential connections.
Because the District’s Commissioners have determined that its wastewater
treatment plant will exceed DOE minimums for operations; and, because the
addition of 250 additional residential connections will place the wastewater
treatment plant near capacity; and, because there is a need for a second
aeration basin to provide for maintenance of the current basin, on February 12,
2004, the District adopted a new Comprehensive Plan & Engineering Report to
upgrade the existing plant.
Current Planning
The District is currently in the final design and preparation of bid documents
phase of this treatment plant upgrade. The plan is to go to bid in the spring of
2006, and begin construction in June of 2006.
Funding for this plant upgrade is expected to come from a combination of
Connections Fees paid by the City under the September 24, 2003 Interlocal
Agreement and a potential loan from the Public Works Trust Fund, which will be
paid back from additional connection fees and service charges.
When completed, the Phase II addition to the wastewater treatment plant will
treat 190,000 gal/day without a clarifier and 230,000 gal/day with a clarifier.
Phase II will be able to provide service to the areas currently unserved, as
identified in the City’s South Island Facilities General Plan and Engineering
Report (December 2001), should the City choose to service these areas.
The only other capital expenditure anticipated in the next one to five years is to
purchase/develop a facility to serve as a District office and a center for the Fort
Ward community.
City of Bainbridge Island 2008 Capital Facilities Plan Update
179 of 186
20
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Peter Namtvedt Best
From: Colleen Yuhl [mcyuhl@msn.com]
Sent: Wednesday, August 15, 2007 8:18 AM
To: Peter Namtvedt Best
Subject: 2008 Capital Facilities Plan
Page 1 of 1
8/15/2007
Peter:
Per our conversation of earlier today, Kitsap County Sewer District No. 7 does not have any capital projects
planned for 2008.
Our sewage treatment plant upgrade, that was in our 2006-2007 plans will be completed by November 2007.
We will prepare a new plan in 2008 for 2009 and beyond.
Colleen Yuhl
Manager
KITSAP COUNTY SEWER DISTRICT NO. 7
206-459-2796
mcyuhl@msn.com
City of Bainbridge Island 2008 Capital Facilities Plan Update
182 of 186
Appendix F
Kitsap County Public Utility District No. 1
Adopted
Capital Facilities Plan
The PUD adopts a Capital Facilities Plan every 6-years when it updates its
Comprehensive Plan. The PUD’s most recent adopted CFP does not include
projects on Bainbridge Island since they did not own or operate any facilities on
Bainbridge Island at the time it was prepared. Provided in this appendix is the
PUD’s most recent capital budget which includes projects on Bainbridge Island.
City of Bainbridge Island 2008 Capital Facilities Plan Update
183 of 186
City of Bainbridge Island 2008 Capital Facilities Plan Update
184 of 186
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