042-24 - Resolution - Bay Street Pathway West Concept DesignDocusign Envelope ID: 747D9E36-B02F-4887-B74A-846D55AB0848
RESOLUTION NO. 042-24
A RESOLUTION OF THE CITY OF PORT ORCHARD, WASHINGTON, ACCEPTING
THE 2024 PORT ORCHARD BAY STREET PATHWAY WEST CONCEPT DESIGN
SUMMARY REPORT AS THE FINAL WORK PRODUCT OF KPFF CONSULTING
ENGINEERS.
WHEREAS, the City of Port Orchard prioritizes improved accessibility and encourage
transportation within downtown Port Orchard, including but not limited to walking and
bicycling; and
WHEREAS, to evaluate options, following a procurement policy that complied with State
law and the City's Procurement Policies, in March 2023, the City entered into a professional
services agreement with KPFF Engineers to provide a feasibility assessment of means to
connect the Bay Street Pedestrian pathway at the Kitsap Transit Foot Ferry to existing
improvements at Tremon Street, including alternatives for intersection improvements at Bay
Street and Port Orchard Boulevard, and proposed trail segments and a potential multi -use
pathway and alignment along Port Orchard Boulevard; and
WHEREAS, KPFF, in conjunction with City Staff, performed a technical analysis and
sought public input to understand existing conditions, develop alternatives, and identify a
preferred alternative that meets the needs of the City of Port Orchard and the community; and
WHEREAS, KPFF provided the City a draft Bay Street Pedestrian Pathway West Concept
Design Summary Report in accordance with the parties' Agreement; and
WHEREAS, the Port Orchard City Council has determined to accept the draft Plan,
attached as Exhibit A, as the final work product of KPFF under the parties' Agreement; Now,
Therefore,
THE CITY COUNCIL OF THE CITY OF PORT ORCHARD, WASHINGTON, HEREBY RESOLVES
AS FOLLOWS:
THAT: It is the intent of the Port Orchard City Council that the recitals set forth above
are hereby adopted and incorporated as findings in support of this Resolution.
THAT: The City Council approves the Bay Street Pedestrian Pathway West Concept
Design Summary Report as the final work product of KPFF Engineering pursuant to the
parties' 2023 Professional Services Agreement.
THAT: The Resolution shall take full force and effect upon passage and signatures
hereon.
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Resolution No. 042-24
Page 2 of 2
PASSED by the City Council of the City of Port Orchard, SIGNED by the Mayor and
attested by the City Clerk in authentication of such passage on this 13t" day of August 2024.
Signed by:
E3FF84�^...
Robert Putaansuu, Mayor
ATTEST:
F�DOCUSigned by:
Brandy Wallace, MMC, City Clerk
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Port Orchard Bay Street Pathway
West
Concept Design Summary Report
April 2024 1 Final Report
1C&H
Engineers
Docusign Envelope ID: 747D9E36-B02F-4887-B74A-846D55AB0848
Docusign Envelope ID: 747D9E36-B02F-4887-B74A-846D55AB0848
Concept Design Summary Report
April 2024
Prepared for:
City of Port Orchard
Prepared by:
KPFF Consulting Engineers
1601 Fifth Avenue, Suite 1600
Seattle, WA 98101
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KPFF Consulting Engineers
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Table of Contents
1. Executive Summary ......................................................................................................................................1
CommunityInput.............................................................................................................................................4
Recommendations..........................................................................................................................................4
Implementation Considerations......................................................................................................................6
RecommendedNext Steps.............................................................................................................................6
2. Study Background........................................................................................................................................7
AlternativesDevelopment...............................................................................................................................7
Alternatives Selection Approach.....................................................................................................................7
Basisof Design...............................................................................................................................................8
TypicalSections..............................................................................................................................................9
Elevation/Profile Considerations (Flood Mitigation)......................................................................................11
3. Public Outreach Summary.........................................................................................................................11
Overview of Public Outreach Efforts.............................................................................................................11
CommunityInput....................................................................................................................................12
AddressingConcerns.............................................................................................................................12
Incorporating Public Input into the Design....................................................................................................12
4. Implementation Roadmap..........................................................................................................................13
Adoption of this Study by the City Council....................................................................................................13
ComprehensivePlan update.........................................................................................................................13
Implementation by Partnership.....................................................................................................................13
Downtown Port Orchard Implementation......................................................................................................13
Orchard Plaza — Waterfront Pathway Segment and Connection...........................................................13
Bay Street Reconstruction Project— Bay Street Segment.....................................................................14
Long -Term Vision...................................................................................................................................15
Johnson Creek Estuary Culvert Restoration Project — Port Orchard Boulevard Pathway Intersection.
15
ShortTerm Connections........................................................................................................................15
Port Orchard Boulevard Segment.................................................................................................................16
Complete Streets Improvements Along Port Orchard Boulevard..........................................................16
5. Conclusion..................................................................................................................................................16
List of Figures
Figure1-1: Site Overview.......................................................................................................... 1
Figure 1-2: Downtown Port Orchard Pathway Segment and Evaluated Routes ......................... 2
Figure 1-3: Port Orchard Boulevard Pathway Segment............................................................. 2
Figure 4-1: Waterfront Pathway & Orchard Plaza Connections................................................14
Figure 4-2: Shared -Use Path along Bay Street........................................................................14
Figure 4-3: Proposed Roundabout at Intersection of SR166 and Port Orchard Boulevard ........ 15
Port Orchard Bay Street Pathway West — City of Port Orchard
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Appendices
Appendix A— Port Orchard Bay Street Pathway West — 10% Design Plans
Appendix B — Public Engagement Summary Report
Appendix C —Alternatives Analysis
Appendix D — Coastal Engineering Memo
Appendix E — Port Orchard Bay Street Pathway West Lighting Assessment
Appendix F — Port Orchard Bay Street Pathway West Landscape and Urban Design Memo
Appendix G — Environmental Baseline Conditions Memorandum
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1. Executive Summary
The City of Port Orchard (the City) is evaluating and planning significant active transportation improvements,
including constructing a new active transportation pathway within downtown Port Orchard. This new pathway
links the westerly terminus of the existing Bay Street Pedestrian Pathway at the Kitsap Transit Foot Ferry
terminal to the intersection of Bay Street and Port Orchard Boulevard. The City is also planning complete
street improvements on Port Orchard Boulevard between Bay Street and Tremont Street. This planning study
establishes the City's short- and long-term vision for delivering significant active transportation improvements
within the study area. This study also acknowledges that delivery of this vision likely requires implementation
through multiple projects.
The study area is approximately 1.5 miles in length (see Figure 1-1) and was split into two main segments:
• The downtown segment, which connects the existing Kitsap Transit Foot Ferry terminal and Port
Orchard Boulevard, mostly along the Port Orchard waterfront (see Figure 1-2). This figure also shows
pathway alternatives evaluated by the study
• The Port Orchard Boulevard segment between State Route 166 and Tremont Street (see Figure 1-3).
Figure 1-1: Site Overview
Port Orchard Bay Street Pathway West — City of Port Orchard
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Figure 1-2: Downtown Port Orchard Pathway Segment and Evaluated Routes
Figure 1-3: Port Orchard Boulevard Pathway Segment
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This summary report presents the City of Port Orchard's vision for the Bay Street Pathway West and for active
transportation improvements within the study corridor. The study was completed to:
The goals of this planning study include:
• Develop a long-term vision for a new active transportation pathway along the Port Orchard waterfront
west of the Kitsap Transit Foot Ferry terminal to Port Orchard Boulevard.
• Develop a complete street vision for Port Orchard Boulevard from Bay Street to Tremont Street.
• Build community and stakeholder support for future implementation of the overall planning vision.
During the development and selection of the recommended alternatives, various factors were considered for
improving active transportation through the corridor. Among these were:
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The study concluded with the production of 10% design plans for the pathway. The plans also include a
conceptual roundabout design for the intersection of Port Orchard Boulevard and Bay Street for coordination
with WSDOT. However, this is not anticipated to be constructed as part of the pathway project. See Appendix A
for 10% plan set.
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COMMUNITY INPUT
Stakeholders in the community and general public were engaged through a variety of ways regarding the
preferred pathway alignment as well as the preferred pathway treatments. Additionally, input was requested on
how they might use the pathway if constructed.
This input was evaluated and documented in a project Public Engagement Summary Report. The full
Summary Report can be found in Appendix B. Community feedback was grouped into the following themes:
• Concerns about increased traffic and its potential impact on safety for the Bay Street Pedestrian
Pathway, including concerns about the spatial relationship between people traveling on bikes and
people walking.
• Concerns about safety and lack of lighting along Port Orchard Boulevard.
• A desire for a separated pathway for people biking and people walking, to prevent shared use with cars.
• Concerns about the usability and safety of roundabouts and crosswalks in Port Orchard.
• Support and enthusiasm for improvements while making note of the high volume of people who use the
area in the study.
• Broad support for active transportation improvements and safety treatments within the study area.
• General preference to locate future trails along the waterfront.
RECOMMENDATIONS
This planning summary report and these recommendations were developed in partnership with Port Orchard
City staff, the Port of Bremerton, Port Orchard's City Council, the Washington State Department of
Transportation (WSDOT), and community members, who have all voiced support for delivering significant
active transportation improvements within Port Orchard's downtown core and within the larger study area.
The study identified high-level recommendations for the downtown Port Orchard and Port Orchard Boulevard
areas. The following figures highlight the recommendations, including Figure 1-4, which documents final
pathway routing recommendations.
Implement connection
through plaza and
along Bay Street now.
Plan for future
continuation of
pathway along the
waterfront as
redevelopment
opportunities allow.
DOWNTOWN PORT ORCHARD
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Low-cost lane conversion
project with potential
illumination system
upgrades aligning with the
vision shown in the
concept design.
If demand increases after
pathway implementation,
consider improving the
facility with additional
separation treatments.
PORT ORCHARD BOULEVARD
IMPLEMENTATION CONSIDERATIONS
Delivering this vision will require working in segments and involve different projects and project owners. It will
likely take several years to deliver the full vision. We recommend the City of Port Orchard champion
implementation of the full vision presented in this document and support construction activities for the following
projects:
• The Bay Street Reconstruction project, led by the City of Port Orchard.
• The Johnson Creek Estuary culvert restoration project on Bay Street, led by WSDOT.
• The Port Orchard Community Event Center Development project.
• The Kitsap Bank Headquarters relocation project.
• The Orchard Plaza project.
RECOMMENDED NEXT STEPS
• Formal adoption of this planning study by the Port Orchard City Council.
• Confirm that City code has adequate setback requirements for new development along the proposed
alignment for the future pathway, specifically where a future trail could be constructed along the
waterfront from the future community and event center to the Port of Bremerton Marina.
• Share recommendations within this report with redevelopment project team(s) in the corridor, allowing
sections of the pathway to be delivered as sites are redeveloped.
• Ensure WSDOT's Johnson Creek project constructs pathway improvements compatible with a
separated pathway on SR 166.
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2. Study Background
This study was requested by the City of Port Orchard to develop a unified pathway vision for the Port Orchard
waterfront to help the City and its redevelopment partners improve active transportation facilities within the
downtown area. This study will be useful for collaboration between several public and private projects within
the same general corridor. Improvements on Port Orchard Boulevard between State Route 166 and Tremont
Street were included in the study to help extend the City's active transportation network.
The study area was split into two main segments:
• The downtown segment, which connects the existing Kitsap Transit Foot Ferry terminal and Port
Orchard Boulevard, mostly along the Port Orchard waterfront.
• Port Orchard Boulevard between State Route 166 and Tremont Street.
Significant redevelopment is planned on the downtown segment, triggering an opportunity to improve active
transportation accessibility to new community assets and existing community amenities.
Port Orchard Boulevard currently has limited active transportation facilities and is a good candidate for
upgrades to improve the accessibility of the downtown area for greater Port Orchard.
ALTERNATIVES DEVELOPMENT
The study team collected information on community values and documented accessibility challenges through a
planning level evaluation process. Based on community priorities and needs, alternative treatments and
opportunities to improve accessibility were developed and refined. After completing early planning efforts,
several promising alternatives were advanced for further study and shared with the community, key
stakeholders, and City staff. Feedback was heard and alternatives were refined for implantation in a 10% plan
set. See Appendix A for 10% concept plans for the pathway.
ALTERNATIVES SELECTION APPROACH
Evaluation of the alternatives followed a qualitative ranking approach based on criteria developed in
partnership with City staff, stakeholders, and agency partners. The evaluation criteria included:
• Stakeholder support.
• Improving the quality of the walking and biking environment.
• Forward compatibility.
• Utility impacts.
• Shoreline impacts.
• Cultural resources and hazardous materials.
• Construction cost.
The full evaluation of the alternatives is available in Appendix C.
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BASIS OF DESIGN
The pathway spans multiple jurisdictions that refer to different design standards. The standard typical section
from each of these design manuals is shown below.
A 1515-4 Two -Way Shared -Use Path: Adjacent to Roadway (<- 35 mph)
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CITY OF PORT ORCHARD PUBLIC WORKS
To aid planning efforts and ensure that plans are able to be implemented, a basis of design document was
prepared using applicable local and state design guidelines. There are two primary jurisdictions that have
authority depending on the location along the corridor:
The WSDOT design manual governs the section along Bay Street/State Route 166.
• The WSDOT Local Agency Guidelines and City of Port Orchard Public Works Engineering Standards
govern the section along the waterfront pathway and Port Orchard Boulevard segments.
Note, the WSDOT Local Agency Guidelines refers to the AASHTO's Guide for the Development of Bicycle
Facilities for shared use path design guidance.
It is important for future implementation that applicable design guidelines are used.
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TYPICAL SECTIONS
Implementing pathways requires
establishing a typical width that meets
the needs of the future pathway users.
The planners recommend a typical width
along the waterfront of 12 feet with 2 feet
of paved shoulder on each side.
Additional space will also be provided
where people are expected to gather
along the pathway. The sections
recommended in this study also allow for
landscaping along the edges and
wayside areas. The section exceeds the
AASHTO Bike Guide minimum widths
and the City's typical section for a
shared -use path.
The typical section along the connector
pathway differs from the others. This
section will be integrated with the plaza
paving using design elements and
wayfinding to guide users through the
rest of the pathway.
AY STREET TRAIL - TYPICAL BAY ST TRAIL SECTION
WATERFRONT TYPICAL SECTION
DECK
LEGEND
ORCHARD PLAZA CONNECTION •:_� � � t�
"PO
LIFT
STATION
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COMMUNITY .�
EVENT CENTER
PUBLIC 7
PARKING
KITSAP
BANK
ORCHARD PLAZA CONNECTOR
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The recommended typical section for the
Bay Street corridor pathway varies in
width. The widest part is 12 feet wide
with a 4.5-foot buffer and the narrowest
part is 10 feet wide due to right-of-way
(ROW) constraints. The pathway along
the Bay Street corridor must, at a
minimum, meet the WSDOT design
guidelines.
BAY STREET TYPICAL SECTION
The typical section along Port Orchard
Boulevard complies with the AASHTO
Bike Guide's minimum requirements for
an on -road facility with a 3-foot buffer
and vertical delineation, and it has a
typical width of 13 feet.
PORT ORCHARD BLVD TYPICAL SECTION
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ELEVATION/PROFILE CONSIDERATIONS (FLOOD MITIGATION)
The study team recommends constructing pathways to anticipate future sea level rise and reduce flooding risk.
A Coastal Engineering analysis was performed to determine the design water level and proposed guide
pathway elevation selection along the waterfront. The recommended minimum elevation along the waterfront
segment is calculated using values from the North American Vertical Datum of 1988 (NAVD 88) as follows: the
100-year return period water level of 13 feet plus the expected sea level rise of 2 feet by the year 2100 with a
50 percent exceedance probability. This elevation is approximately 15 feet. Previous studies in the area have
developed the ideal elevation for the Bay Street/State Route 166 profile. The pathway alignment along the
State Route 166 corridor will be set by this profile. See the Coastal Engineering Memo in Appendix D.
3. Public Outreach Summary
OVERVIEW OF PUBLIC OUTREACH EFFORTS
The study team executed a public engagement plan to support the overall study efforts. Key goals included
understanding what access challenges the community faces, what type of facilities would be attractive to the
community, and what opportunities for safety and accessibility improvements exist from the community's
viewpoint.
In addition to the team's technical assessment of the study area, the project team sought feedback from
community members, businesses, advisory boards, and project partners. This feedback was used to develop
solutions that align with the community's priorities and create options and opportunities for safer and more
efficient connections. Specifically, the project team collected feedback on:
• A new active transportation pathway along the Port Orchard waterfront west of the Kitsap Transit Foot
Ferry terminal along Bay Street to Port Orchard Boulevard.
• A complete street treatment for Port Orchard Boulevard from Bay Street to Tremont Street to encourage
active transportation usage.
The public engagement process spanned from June to October 2023. The online surveys included an
interactive map survey and a traditional survey.
The interactive map outlined three project -suggested routes. Respondents were asked to react to the
suggested alternatives by dropping a digital "pin" within the project area and on the specific alternative on
which they would like to comment. These pins were categorized into three categories:
• Comments on the alternative.
• Ideas or suggestions.
• Challenges or concerns.
The traditional survey included a project description and map and consisted of 11 questions that informed the
challenges and priorities of the community.
The City used the following outlets to advertise the online webpage and surveys: in -person activities, Listsery
emails, social media posts, a press release, and an email to the City of Port Orchard email subscriber list. The
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project team engaged with residents, local businesses, Kitsap Transit, Port Orchard Fire Department, Port of
Bremerton, and regular commuters through the area.
Community Input
Some themes for community feedback included:
• Concerns about increased traffic and its potential impact on safety for the Bay Street Pedestrian
Pathway, including the spatial relationship between people traveling on bikes and people walking.
• Concerns about safety and lack of lighting along Port Orchard Boulevard.
• A desire for separate pathways for people biking and walking to prevent shared use with cars.
• Concerns about the usability and safety of roundabouts and crosswalks in Port Orchard.
• Support and enthusiasm for improvements while making note of the high volume of people who use the
area in the study.
• Broad support for active transportation improvements and safety treatments within the study area.
• General preference to locate future trails along the waterfront.
Addressing Concerns
The study team, based on community values and project goals, developed the following evaluation criteria to
guide recommendations:
• Walking and biking environment enhancements with consideration of reducing traffic stress,
implementing traffic calming measures, and utilizing placemaking and urban design integration.
• Forward compatibility considerations with attention to grading the pathway project to meet the future
Port Orchard Community and Event Center, Orchard Plaza, Kitsap Bank Relocation, and State Route
166/Bay Street Reconstruction Project.
• Implementation considerations with focus on reducing utility impacts, mitigating shoreline structure
flooding, avoiding/minimizing effects to cultural resources and natural environment, and developing
phasing to maximize construction efficiency while minimizing public disruption.
• Construction cost.
INCORPORATING PUBLIC INPUT INTO THE DESIGN
The study team, based on community feedback, implemented the following to address the community's
concerns:
• Public need for safety and connectivity.
• Recommended lighting enhancements along the corridor and especially along Port Orchard Boulevard.
See Appendix E for Lighting Assessment Memo
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4. Implementation Roadmap
This report documents the City's vision for
• a new pathway within downtown Port Orchard between the existing Kitsap Transit Foot Ferry and Port
Orchard Boulevard
• complete street improvements on Port Orchard Boulevard between State Route 166 and Tremont
Street
To move this vision into reality, we recommend that the City execute both near term and long-term actions. It
will likely take several projects, extensive partnership with both public and private redevelopment projects and
multiple years to fully deliver this vision in its entirety. To help move this forward, we recommend several
actions including:
ADOPTION OF THIS STUDY BY THE CITY COUNCIL
We advise the City of Port Orchard adopt this study as an official City plan. This will help clarify City vision,
goals and priorities. It will also confirm to partner projects the City's pathway vision and provide increased
grant funding opportunities.
COMPREHENSIVE PLAN UPDATE
We advise including this study's recommendations within the City's Comprehensive Plan Periodic Update. We
understand including the City's vision in the next plan update will increase grant funding opportunities and help
move implementation forward.
IMPLEMENTATION BY PARTNERSHIP
There are a number of known projects currently in the design or planning phase that are adjacent to, or within,
the planned pathway alignment. This provides an excellent opportunity to deliver segments of the pathway as
a piece of the larger redevelopment projects. The pathway alignment has been developed to compliment the
known redevelopment projects and be easy to construct. Partnership with these development projects
provides the City an opportunity to implement significant sections of the pathway within downtown Port
Orchard in a relatively quick timeline. We feel delivering the entire pathway as a stand alone project would
require more time and construction costs than a partnered delivery approach. The three projects which have
the highest value in partnership delivery include: the Orchard Plaza project, the Bay Street Reconstruction
project, and the WSDOT-led Johnson Creek Estuary culvert restoration project. We recommend the City work
toward a phased implementation of the overall study vision through delivery of improvements with the known
future projects.
DOWNTOWN PORT ORCHARD IMPLEMENTATION
Orchard Plaza — Waterfront Pathway Segment and Connection
There are three major redevelopment projects under design along the Port Orchard waterfront. These are the
Port Orchard Community and Event Center (POCEC), the Kitsap Bank Relocation project, and the Orchard
Plaza project. The Orchard Plaza will be the primary project to facilitate the construction of the waterfront
portion shown in Figure 4-1 in green. Additionally, a connection between Bay Street and the waterfront
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pathway can be made along Orchard Avenue. We recommend further coordination to ensure a meaningful
pathway is delivered to downtown Port Orchard.
Figure 4-1: Waterfront Pathway & Orchard Plaza Connections
Bay Street Reconstruction Project — Bay Street Segment
The SR 166 / Bay Street Reconstruction project will reconstruct State Route 166 between Sidney Avenue and
Robert Geiger Road. We recommend constructing a shared -use path as part of this project, as shown in
Figure 4-2 in orange.
In Coordination with the WSDOT Johnson Creek Estuary Project outlined below a connection to the Bay Street
Segment will be made. This segment is shown below in blue.
Figure 4-2: Shared -Use Path along Bay Street
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Long -Term Vision
As part of the City's Alternatives Analysis, options for extending the waterfront trail between the future
community event center and the Port of Bremerton Marina boat launch were evaluated. This path would
continue the waterfront pathway when feasible. There are a number of challenges to implementation including
shoreline impacts, limited right of way availability, and funding. For this reason, a waterfront trail is not
recommended here until an implementation pathway is more feasible. We recommend the City re-evaluate this
decision in the future. This potential pathway connection is shown in red in figures 4-1 and 4-2.
Johnson Creek Estuary Culvert Restoration Project — Port Orchard Boulevard Pathway
Intersection
The Johnson Creek Estuary culvert restoration project is a WSDOT project that plans to restore a historic
estuary near the outlet of Johnson Creek by the Sinclair Marina Pier. An existing culvert under State Route 166
will also be reconstructed to remove a fish passage barrier. This project may also include a roundabout at the
intersection of State Route 166 and Port Orchard Boulevard, depending on construction fund availability. See
Figure 4-3 for the proposed roundabout.
Figure 4-3: Proposed Roundabout at Intersection of SR166 and Port Orchard Boulevard
We recommend WSDOT and Port Orchard agree to deliver this project with forward compatibility for a future
pathway.
Short Term Connections
We recommend the City plan to construct temporary (or short term) pathway segments which will connect
finished pathway segments together, allowing full use of the waterfront pathway system. These short-term
pathway segments will allow the public to use the entire waterfront pathway during construction of multiple
redevelopment projects within downtown Port Orchard. Some of these short-term connections may need to be
delivered by the City to support pathway use, with sequencing and location dependent on on -going
construction and redevelopment activities.
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PORT ORCHARD BOULEVARD SEGMENT
Complete Streets Improvements Along Port Orchard Boulevard
The priority investments in this corridor are delineation treatments which can be delivered quickly without
significant capital expense, possibly by City crews. The City's preferred near -term treatments also included
illumination system upgrades within the corridor. These treatments likely require further design and
coordination with PSE for illumination implementation and can be delivered when funds are available.
We recommend coordination with the Johnson Creek Estuary Culvert Restoration Project to ensure
connections to Port Orchard Boulevard are suitable for planned improvements and forward compatibility for all
parties. Coordination with WSDOT is essential. See Figure 4-3 above for pathway layout with the preliminary
roundabout layout.
5. Conclusion
Implementing active transportation improvements within the study area is feasible and meets community
needs. There is a strong opportunity to make this vision a reality because so much on -going redevelopment is
planned within the corridor. This concept design summary encapsulates a comprehensive approach to
implement significant benefits for the greater Port Orchard community and provides a background on why this
vision has been established. The major recommendations for implementation are summarized below.
y
•Include pathway in
comprehensive plan
•Include setbacks for
future pathway in
zoning requirements
•Work with developers
and upcoming local
projects to deliver the
pathway in segments
•Conduct further studies
on critical pathway
connections as demand
changes with future
developments
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