CHAPTER 5

TRANSPORTATION

5.1 Area Transportation System Impacted by Illahee Creek

The Illahee community's limited road system is primarily due to the steep slopes and deep ravines surrounding Illahee Creek. The Illahee-Brownsville Road, or the Illahee Road, carries traffic between Bremerton's Trenton Avenue in the south and the Brownsville community in the north. The other north-south road, State Highway 303, is one and one-half miles to the west and is part of the west boundary of the Illahee community. The standard numbering grid system of north-south and east-west streets was never constructed in the Illahee community due to the high cost of road construction over the canyon-type terrain of the Illahee Creek and its tributaries in the Illahee Preserve area. The result was a significant open space between these two roads that became a public golf course (Rolling Hills) and a park (Illahee Forest Preserve) and has helped to preserve much of the natural state of the Illahee Creek corridor.

5.2 Future Transportation Impact on Illahee Community

Future traffic problems within Kitsap County may have a resultant impact on the Illahee community. The effect of limited transportation options in the Illahee area suggests an increase of traffic through Illahee as drivers avoid the commuter congestion and multiple stop lights on the four-lane State Highway 303 and choose the Illahee Road (a typical two-lane county road) for north/south travel.

[Historical note: Illahee has been considered in past studies as a possible location for a new major highway and bridge connecting the Kitsap Peninsula with Bainbridge Island. In the early 1980s, the new highway/bridge concept was considered as a possible alternative to building a new Bremerton ferry terminal. One Illahee location then being considered was Puget Power-owned property just south of Illahee Creek. More recently, this idea has surfaced again as an alternative to placing a four-lane road through the middle of Bainbridge Island and the reconstruction or replacement of the Agate Pass Bridge with a four-lane structure. This concept is no longer in play at this time, and road improvements have already begun in the Poulsbo area.]

5.3 Existing Infrastructure

Below are the main roadways that either border or are within the Illahee community boundary (Figure 5.1).

State Facilities

State Highway 303 is the principal north/south, four-lane highway in the eastern half of Kitsap County. It is also the western-most border of the Illahee community between Riddell Road and McWilliams Road.

Figure 5.1 Illahee Community Transportation Infrastructure

County Facilities

Illahee Road is classified as a major arterial from the top of Illahee hill where it transitions from Trenton Avenue at the south of the Illahee community and runs north through the Illahee community to the community of Brownsville. The posted speed limit is 35 mph, except for the portion going through Illahee community proper where the speed limit is 25 mph.

NE 30^th Street is the southern border of the Illahee community. It is a two-lane east/west collector roadway running from East Bremerton and terminating as it reaches the bluffs near Illahee State Park.

Sylvan Way is a two-lane minor arterial and local collector, which runs east/west from the area south of Illahee State Park into the East Bremerton area. It comprises another southern border of the Illahee community between Trenton Avenue and Perry Avenue.

Perry Avenue is a two-lane north/south Principal/Minor arterial, running from East Bremerton to Riddell Road. It comprises the western border between Sylvan Way and Riddell Road.

Riddell Road is a two-lane east/west Principal arterial, running from Perry Avenue to State Highway 303. Riddell Road is the southern border of the Illahee community from Perry Avenue to State Highway 303.

Trenton Avenue is a two-lane north/south Collector arterial, running from East Bremerton to Sylvan Way where it transitions into Illahee Road. It is the western border of the Illahee community from NE 30^th Street to Sylvan Way.

Fir Drive is classified as a two-lane local road that runs from the Trenton Avenue/Illahee Road transition north until it dead-ends. It connects several other local area dead-end two lane roads.

McWilliams Road is classified as a Minor arterial. It is a two-lane roadway, which runs from State Highway 303 east/west until it ends at East Avenue. McWilliams is the northern border of the Illahee community from State Highway 303 to Sunset Avenue.

Sunset Avenue is classified as a two-lane local road that runs north/south. Sunset is the western border of the Illahee community from McWilliams to NE Colorado Street. Note that NE Colorado Street extended would connect with University Point Circle.

East Avenue functions as a Minor arterial for a short section as it distributes most traffic to Ocean View Boulevard or NE 3^rd Street. It is a two-lane roadway, which runs north/south.

Ocean View Boulevard is a Minor two-lane, steep grade arterial connecting East Avenue with Illahee Road.

NE 3^rd Street is also classified as a Minor two-lane arterial connecting East Avenue with Illahee Road.

University Point Circle is classified as a two-lane local road that runs in a rectangular pattern through the University Point development and connects with Illahee Road. The northern-most portion of University Point Circle, along with NE Colorado Street, forms the northern border of the Illahee community. There is only one ingress and egress connecting University Point Circle to Illahee Road.

5.4 Non-Motorized Facilities

These facilities are typically located along roadways as bike lanes, walkways, paths or as separated mixed-use facilities, and provide opportunities for both recreational and commuter users.

Illahee was, in its early history, totally dependent upon water-borne transportation via the “Mosquito Fleet.” Illahee was one of over 40 Mosquito Fleet ports along Kitsap County’s 228 miles of Puget Sound shoreline. The Mosquito Fleet Trail Plan is a long-term project under the Washington State Scenic Byway System that runs through Illahee and is most noticed by the number of bicycle tour groups that ride the trail through Illahee (Figure 5.2). Illahee Road is part of the designated Kitsap County Bicycle Route #39, which is part of the Mosquito Fleet Bicycle Trail that runs between the Kingston and Southworth ferries.

The route through the Illahee community is predominately a one-foot wide, unpaved shoulder; however, some sections of a two-foot wide, paved shoulder exist. The west side of Illahee Road from Ocean View north to Madrona has a four-foot wide paved shoulder to accommodate bicycles and pedestrian activity.

A one-mile section of Illahee Road from Illahee Creek up the hill to Trenton Avenue poses safety concerns for slow, southbound (uphill) bicycle traffic. Two right turns onto Illahee Road, one at Illahee Creek and one near Trenton Avenue, have limited sight lines for motorists to react to slow bicyclists. This section of road is also locally known for a higher than posted speed of motor vehicles, possibly due to the steep grade and a lack of visible residences on either side of the road.

Figure 5.2 Illahee Community Mosquito Fleet Trail Plan Bike Route

5.5 Kitsap Transit Services

Scheduled Transit Services

Kitsap Transit does not provide regularly scheduled bus service to Illahee proper, but does provide service to some of the perimeter areas of Illahee (Figure 5.3). Perimeter service is provided daily, except for holidays when service is either not provided or limited.

Illahee Dial-A-Ride

Illahee Dial-A-Ride buses operate within the Illahee area and make connections to Kitsap Transit routed buses at the East Bremerton Transfer Center. These advance reservation buses operate on a limited schedule on weekdays from 10 a.m. to 3 p.m. Reservations can be made the day before or up to seven days in advance. Trips may be grouped with other Dial-A-Ride or ACCESS trips.

ACCESS Buses

Kitsap Transit also serves the disabled or elderly through their ACCESS shuttle program. These shuttles are specifically designed for the needs of their clientele and provide home to destination service.

Figure 5.3 Illahee Community Kitsap Transit Routes

5.6 Traffic Analysis

Methodology

Capacity analyses are described in terms of Level of Service (LOS). LOS is a qualitative term that describes the operating conditions a driver will experience while traveling on a particular street or highway during a specific time interval. The LOS designation takes into consideration such factors as volume, speed, travel time, and delay. LOS is represented by letter grades, A through F. LOS A through C imply traffic flows with minimal delay, while LOS D and E imply conditions that approach capacity, and LOS F implies unstable flow with potential for substantial delays (Transportation Research Board 2000). The characteristics of the six LOS designations for roadway segments and intersections are summarized below. The LOS scale has been adopted by the Institute of Transportation Engineers, the Transportation Research Board, and by most jurisdictions throughout the country.

LOS Descriptions for Roadways

A – Describes primarily free flow operations at average travel speeds, usually about 90% of the free flow speed for the arterial class. Vehicles are completely unimpeded in their ability to maneuver within the traffic stream.

B – Represents reasonably unimpeded operations at average travel speeds, usually about 70% of the free flow speed for the arterial class. The ability to maneuver within the traffic stream is only slightly restricted and stopped delays are not bothersome. Drivers are not generally subjected to appreciable tension.

C – Represents stable conditions; however, ability to maneuver and change lanes in mid block location may be more restricted than in LOS B, and longer queues and/or adverse signal coordination may contribute to lower average travel speeds of about 50% of the average free flow speed for the arterial class. Motorists will experience appreciable tension while driving.

D – Borders on a range in which small increases in flow may cause substantial increases in approach delay and, hence, decreases in arterial speed. This may be due to adverse signal progression, inappropriate signal timing, high volumes, or some combination of these. Average travel speeds are about 40% of free flow speed.

E – Characterized by significant approach delays and average travel speeds of one-third the free flow speed or lower. Such operations are caused by some combination of adverse progression, high signal density, extensive queuing at critical intersections, and inappropriate signal timing.

F – Characterizes arterial flow at extremely low speeds below one-third to one-quarter of the free flow speed. Intersection congestion is likely at critical signalized locations, with resultant high approach delays. Adverse progression is frequently a contributor to this condition.

Kitsap County uses traditional engineering methodology to evaluate LOS of roadway segments, which are sections of roadway located between major intersections. LOS for roadway links is determined by comparing roadway travel volumes to roadway capacity, known as the volume-to-capacity (V/C) ratio. The volume-to-capacity ratios relate directly to measures of level of service.

Table 5.1 shows the relationship between LOS and V/C ratios. The county has adopted LOS D (v/c = 0.89) as the minimal standard for roadways within the urban growth area, and LOS C (v/c = 0.79) for rural roadways. Under current conditions, all roadways in the Illahee community area are considered to be rural in nature (minimum LOS of C), with the exception of state routes, where the Washington State Department of Transportation (WSDOT) has adopted LOS D as the V/C threshold.

Table 5.1 LOS and V/C Comparison
Level of Service	Volume-to-Capacity Ratio
A	≤ 0.60
B	0.60 to 0.69
C	0.70 to 0.79
D	0.80 to 0.89
E	0.90 to 0.99
F	≥ 1.00

The maximum, theoretical vehicle-carrying capacity of a roadway is determined to be approximately 18,000 to 22,000 vehicles per lane per day. However, many factors can reduce the actual capacity of particular roadway segments. These factors include lower posted speeds, the presence of driveways or cross-streets, narrow lane widths, and pedestrian activity. The placement of traffic signals can also lower the capacity of a roadway segment.

Roadway capacity values were assigned to the roadway segments in this study based on the factors described above. Specifically, the capacity values used were taken from Appendix C “Generalized Service Volumes for Snohomish County Arterials (maximum two-way weekday traffic by level of service)” of the Snohomish County Transportation Needs Report. In that report, several tables were prepared showing the estimated daily capacity under various roadway conditions. The factors used in the Snohomish County data are reflective of other counties in Western Washington and are appropriate to Kitsap County transportation planning efforts. In this study, tables from Group 1 of the Urban Area Standards were used to identify roadway capacities.

Existing Conditions

Volumes for Average Daily Traffic (ADT) on the existing network for the year 2000 are shown on Table 5.2. Volumes for 1999 were based on traffic count data collected by Kitsap County. A 2.2% per year growth rate was used to adjust volumes to 2000 conditions.

Based on the existing roadway conditions and daily traffic volumes, all roadway segments providing access to the area under normal conditions presently operate at or above the acceptable Level of Service (LOS) standards for Kitsap County roadways (Tables 5.1, 5.2).

Table 5.2 2000 LOS and V/C Comparison
Roadway	2000 Volume	Capacity	Volume-to-Capacity Ratio	LOS
Illahee Road	3,000	11,700	.26	A
Sylvan Way	7,100	13,000	.55	A
Perry Avenue	5,800	13,000	.45	A
Riddell Road	11,500	16,300	.71	C
Trenton Avenue	5,400	14,600	.37	A
McWilliams Road	8,500	14,600	.58	A
East Avenue	1,800	11,700	.15	A
Ocean View Blvd	2,200	11,700	.19	A
3^rd Street	1,500	11,700	.13	A

Future Conditions

All roadway segments studied are expected to operate at or above the acceptable Level of Service (LOS) standards for Kitsap County roadways in the year 2012 (Table 5.3).

Table 5.3 2012 Road Network LOS and V/C Comparison
Roadway	2025 Volume	Capacity	V/C Ratio	LOS	Concurrency Threshold (0.89 x D)	Deficit (-) Excess (+) Capacity
Illahee Road	4,600	11,700	.39	A	10,418	5,813
Sylvan Way	10,700	13,000	.82	D	11,570	870
Perry Avenue	12,200	13,000	.94	E	11,570	-630
Riddell Road	14,072	16,300	.86	D	14,507	435
Trenton Avenue	5,100	14,600	.35	A	12,994	7,894
McWilliams Road	12,000	14,600	.82	D	12,994	994
East Avenue	4,000	11,700	.34	A	10,413	6,413
Ocean View Blvd	4,000	11,700	.34	A	10,413	6,413
3^rd Street	No Data	11,700	.15	NA	10,413	NA

5.7 Current Scheduled Improvements

Kitsap County Transportation Improvement Program (TIP)

The Kitsap County Six-Year Transportation Improvement Program (2008-2013) does not include any planned improvements in the Illahee area for this period.

The Mosquito Fleet Trail Plan

The Mosquito Fleet Trail is a planned facility that connects the docks of the historic Mosquito Fleet Ferry System with a fully connected bicycle and pedestrian trail system. The plan includes Illahee Road as a primary corridor of the Mosquito Fleet Trail, which extends from the Southworth Ferry north to Kingston. No Mosquito Fleet Trail Plan improvements are planned in the Illahee area for the known future.

Financial Plan for Transportation Improvements

All transportation improvements need specific funding sources for their development. All improvements necessitated within the Illahee community may be funded through any of the following sources: County Road Levy, Impact Mitigation Fees, Transportation Benefit Districts, or County Road Improvement Districts. Each of these sources is discussed at length in the Transportation Chapter of the Kitsap County Comprehensive Plan (2006).

5.8 Pedestrian Walkways

"New and improved walking paths" were common requests from the questionnaires received by the Illahee Community Citizens Advisory Group. To increase pedestrian safety along roadways, shoulders need to be widened to accommodate walking paths. These, or sidewalks, should be incorporated in transportation improvements and mandated for any new developments within the Illahee community boundary.

5.9 Goals and Policies

Goal 5.1 Minimize negative environmental impacts by the transportation system.

Policy 5.1-1 Maintain environmental standards and mitigation requirements that are the same or higher than those placed upon the private sector.

Policy 5.1-2 Provide signage to warn traffic of wildlife crossings along Illahee Road in the vicinity of the locations where wildlife corridors exist.

Goal 5.2 Provide citizens an opportunity to participate in the development of a transportation planning policy.

Policy 5.2 Encourage citizen participation, organizations or individuals, in Kitsap County transportation planning efforts within the Illahee Community.

Goal 5.4 Encourage street designs and development patterns that accommodate pedestrians, vehicles, transit users, and bicyclists in a balanced way.

Policy 5.4-1 Directional signage for public facilities shall be sized and located to be easily read from an approaching vehicle and pedestrians. All rules and regulations pertaining to prohibitions and recommended behavior shall be clearly posted in locations that sustain appropriate compliance.

Policy 5.4-2 All future county projects along the major roadways within the Illahee community shall include continuous paved walkways for pedestrian use. These walkways shall be coordinated with the Mosquito Fleet Trail Plan as necessary.

Policy 5.4-3 Developers shall install walkways on all interior roadways in all new developments of four (4) or more parcels. These walkways or walkways should be on the uphill side of the street when possible to allow for grassy swales to filter pollutants.

Goal 5.5 Establish minimum level of service standards for transportation facilities in accordance with the requirements of the Growth Management Act.

Policy 5.5 Ensure transportation improvements are available to support planned growth at adopted levels of service concurrent with development.

Goal 5.6 Reduce accidents and potential accidents by providing a safe transportation system through good design practices.

Policy 5.6 Analyze accident data to determine where safety-related improvements are necessary. Prioritize and implement safety-related improvements during the transportation planning process.

Goal 5.7 Encourage development of an efficient multimodal transportation system and develop a funding strategy and financing plan to meet its needs.

Policy 5.7-1 The county shall facilitate the development of the Mosquito Fleet Trail improvements within the Illahee community boundary.

Policy 5.7-2 Develop a “multimodal” transportation plan for the Illahee community that considers all modes of transportation, and specifically: private vehicles, public transit (buses), bicycles, and walking/jogging. This plan should cover in detail the implementation plan for future pedestrian walkways as noted in Section 5.8.

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