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5.2. SR 09-17-2007City of Elk River REQUEST FOR COUNCIL ACTION Item Number 5.2. Agenda Section Meeting Date Prepared by Administration September 17, 2007 Catherine Mehelich, Director of Economic Develo went Item Description Reviewed by Review Downtown Parkin Stud Lori ohnson, Ci Administrator Action Requested Following a presentation of the Downtown Parking Study by Bill Surna, Parking Specialist/Studies Specialist for Carl Walker, Inc., the City Council is asked to provide staff direction and consider acceptance of the following items: 1. Agreement on the key findings of the Parking Study including: a. That existing parking supply is sufficient to support the projected demand including full occupancy of the new developments, assuming all current management practices remain the same. b. That a parking ramp structure is not needed at this time but should be considered with future development. c. That more cost effective solutions may be considered, including design enhancements and management practices, to extend the capacity of existing spaces. 2. Direction on whether or not the north of Hwy 10 parking lots should remain "in play" to accommodate current and future parking. 3. Direct staff to proceed with the Recommendations (page 44-46). 4. Direct staff to refine the Suggested Downtown Parking Guiding Principles (page 38) for future review and approval by City Council. 5. Direct staff on how to proceed with current parking regulations and permitting system for both downtown employees and residents (see Police Chief Beahen memorandum). Background/Discussion At its April 9, 2007 meeting the City Council authorized staff to expedite the process for completing a study on the feasibility of a downtown parking ramp. In addition, it was briefly discussed by the Parking Focus Group and at the City Council meeting that an accurate analysis of the current and future downtown parking demands may best be conducted by an outside agency with greater expertise, rather than basing recommendations and decisions. on public perception of parking supply and demand. At its May 14, 2007 meeting the City Council accepted the proposal from Carl Walker, Inc. Parking Specialists to complete an independent study which would achieve the City's objectives to: • Identify current and future parking demands • Identify alternative parking management solutions • Conduct a parking ramp analysis including timing, sizing, issues and estimated costs 'The attached Study completes the objectives. as directed. The HRA, Downtown Parking Focus Group and River's Edge member have been invited to attend the presentation at the City Council meeting. S:\Downtown Revitalization\Parking\2007 Parking Focus Group\Carl Walker Parking Study\REQUEST COUNCIL ACTTON.9.17.07.doc Attachments Downtown Elk River Parking Study completed by Carl Walker, Inc., September 2007 Memorandum from Police Chief Beahen re: Downtown Parking Study Council Action Motion by Second by Vote Follow Up S:\Downtoam Revitalization\Pazking\2007 Pazking Focus Group\Cazl Walker Pazking Study\REQUEST COUNCIL ACTION.9.17.07.doc ilk River Police Department MEMORANDUM TO: Mayor and City Council FROM: Jeffrey A. Beahen, Chief of Police DATE: September 12, 2007 SUBJECT: Downtown Parking Study -Permitting & Enforcement I have reviewed the parking study, and as this goes to Council I would like to offer some insight from the Police Department specific to the permitting and enforcement of both employee and resident parking. The parking study indicates that there is more than adequate parking for the downtown area to accommodate full occupancy of the new development. The study reflects that parking in the permitted area in June, when permits were free, and overuse was an assumption- while there was in fact almost half of the lot vacant and available during the surveyed tunes. Now that permits have a fee attached to them, the employee lot is used even less. Immediate feedback is requested from the Council regarding the permitting process, as next week the Police Department needs to start the round robin issuance process again. This is a very time consuming process, one which has previously angered a portion of the business community. I would advocate that the City Council direct staff to implement the issuance of yearly employee permits with a nominal yearly fee. They would be issued on the condition that the designated employee lot would be "first come, first served," with no guarantee that a permit would assure a spot in the employee lot. If an employee arrived and the lot was full, they would be responsible to find a spot and park in one of the outlying locations. When permits were free, large numbers of permits were issued, and a large volume of vehicles parked in the employee lot. The study however does not illustrate this use. I might suggest that part of that is the move by the Bank of Elk River back to their lot after construction, the move of some employees to peripheral parking areas, and the reopening of sections of streets that were closed fox construction. The City also moved the residential parking stalls across the street, freeing up those nine spots. By and large-we haven't experienced and availability issues with parking anymore in the King Avenue lot. :~~~~ ;, _t'` DOWNTOWN PARKING STUDY city of ~~ Eik River Presented to: Downtown Elk River, Minnesota Carl Walker, Inc. 5136 Lovers Lane, Suite 200 Kalamazoo, MI 49002 Telephone: (269) 381-2222 Fax: (269) 349-0782 www.carlwa{ker.com Downtown Parking Study Downtown Elk River, Minnesota Carl Walker, Inc. #S1-2007-018 September 2007 lti~•cr Downtown Parking Study TABLE OF CONTENTS Executive Summary Introduction .........................................................................................................1 Methodology .......................................................................................................1 Parking Supply ....................................................................................................1 Parking Utilization ................................................................................................5 Parking Demand .................................................................................................8 Parking Adequacy ...........................................................................................13 Supporting Additional Development ..............................................................15 Parking Management 8~ Concept Designs ....................................................18 Sites for Additional Parking Facilities ..............................................................18 Concept Designs ..............................................................................................19 Operating and Maintenance Costs ................................................................22 Management Approaches ..............................................................................34 Recommendations ...........................................................................................45 September 2007 Carl Walker, Inc. E]-~-!~ ~vcr Downtown Parking Study EXECUTIVE SUMMARY The existing supply within the study area is approximately 745 parking spaces. To operate efficiently a parking system should have an operating cushion of spaces. To accommodate this cushion an effective supply factor is commonly used when comparing supply versus parking demand. The existing effective supply is judged to be about 664 parking spaces, or about 89% of the actual supply. • Occupancy counts were conducted on Wednesday June 20, 2007. During the survey period the overall peak occupancy was about 50% occupied. The 50% occupied level was relatively steady from gam through 1 pm. Significantly, these counts were made prior to the modifications to the permit system. • Turnover data was also collected for the on-street spaces and the City controlled off-street spaces. The highest turnover rates occurred along Main Street and Jackson Avenue with rates ranging from 3.2 to 3.9. This data suggests that the shorter term parking spaces are being used as intended. • The existing demand for parking spaces, after adjusting for the large number of construction personnel currently working in Downtown, is estimated at about 330 parking spaces. The future demand for spaces is estimated to rise to about 460 spaces when the two new developments are fully occupied. • The existing parking system has an estimated surplus of about 284 parking spaces. The surplus is expected to drop to about 168 spaces when the two new developments are fully occupied. • The future surplus of spaces will be able to support approximately 15,700 S.F. of additional development, including the City Lots located north of Highway 10. If the two lots north of Highway 10 are not considered, the future surplus of spaces will be able to support about 6,500 S.F. of additional development. • The King Avenue Lot site is the best potential site for parking structure in Downtown Elk River. • Four conceptual designs for a parking structure on the King Avenue Lot were developed. Construction cost estimates for the concepts range from $4.6 million to $7.9 million. The estimated total project cost per added space range from $25,500 to $32,200. September 2007 Carl Walker, Inc. F.l-~-~ ltivcr Downtown Parking Study • Typical annual Operating and Maintenance costs for a parking structure totals about $184 per space. Labor costs for cashiered operating scenario are not included. • A single City department should have responsibility for all aspects of the downtown parking system. Guiding principles should be developed for the parking system. The guiding principal development process should include representatives from all downtown stakeholders. • The pedestrian routes from the parking areas to downtown destimations should be enhanced. The lots north of highway 10 should also be improved to help promote their usage. September 2007 Carl Walker, Inc. I El ~u~er Downtown Parking Study INTRODUCTION The purpose of this analysis is to assess both existing and future parking conditions within the Historic Downtown Elk River, Minnesota. Two new developments, currently under construction, will change the character of the downtown and stimulate revitalization. The City, being cognizant of the importance of parking in a vibrant downtown, has authorized this study. The study is comprised of three phases: (see Appendix 1 for the Scope of Services) • Phase 1 -Existing and Future Parking Conditions • Phase 2 -Parking Management and Conceptual Design Alternatives • Phase 3 -Final Report and Presentation of Study Findings METHODOLOGY -Existing and Future Conditions The methodology for the analysis of parking supply /demand consists of: • Reviewing background information and data provided by the City • Conducting occupancy, turnover, and duration surveys to determine the existing usage of the existing parking spaces • Developing parking demand ratios based upon observed occupancy and past experience of other central business districts • Estimating future demand PARKING SUPPLY The City provided background information regarding the existing inventory of spaces within the study area. Figure 1 depicts the study area and the existing supply of parking. Table 1 shows the existing supply of spaces and the calculation of effective supply It is important that a supply of parking spaces include a cushion in excess of the actual number of spaces needed to satisfy demand. The cushion of spaces allows for vacancies created by restricting facilities to designated users, misparked vehicles, spaces lost to minor construction, the dynamics of vehicles entering and exiting parking spaces, and to reduce the time needed to search September 2007 Carl Walker, Inc. 4 i ~.~ lZivcr Downtown Parking Study for the last few available spaces. A parking system typically operates at optimum efficiency when occupancy is approximately 85% to 90%. If this cushion is not provided, there will likely be a perception of a parking shortage even though empty spaces may exist. If an adequate cushion is provided, it will be easier to locate open spaces. If the cushion is too large, the least convenient spaces will rarely be filled. For these reasons it is an acceptable practice to have the parking supply approximately 5% to 15% over the actual parking demand. The "effective" supply of spaces is used to determine the adequacy of the parking supply, rather than the actual inventory of spaces. In Downtown Elk River, a 90% factor is appropriate for the off-street lots. A lower 85% factor is applicable to the on- street spaces due to the more difficult circulation pattern. September 2007 Carl Walker, Inc. 2 Elk -~} Kiver Downtown Parking Study Figure 1 - Study Area i i t - 1 * ~' _ _ ~ r , r ~ ~ I t•- I ~ ( ~ _ 1 ! ~ 1 ~ 1 ~; J i ~ I 1 1~ °° a~ ~; L~_~~~~~~~~ September 2007 nr Carl Walker, Inc. 3 E1 ) lover Downtown Parking Study Table 1 Parking Supply Effective Actual Supply Effective Capacity Factor Supply Block 1 On -Street Spaces Main Street 14 85% 12 Off -Street Lots 1-1 Private 20 90% 18 1-2 Private 4 90% 4 1-3 Private 45 90% 41 Block 2 On -Street Spaces Main Street 15 85% 13 King Avenue 6 85% 5 Off -Street Lots 2-1 Private 4S 90% 43 2-2 Private 55 90% 50 Block 3 On -Street Spaces Main Street 13 85% 11 Block 4 On -Street Spaces Main Street 8 85% 7 Off -Street Lots 4-1 Private/Const. 20 90% 18 4-2 Private 34 90% 31 4-3 Private/Const. 12 90°/ 11 Effective Actual Supply Effective Capacity Factor Supply Block 5 On -Street Spaces Main Street 12 85% 10 Jackson Avenue 15 85% 13 Off -Street Lots King Avenue Lot Employee 96 90% 86 Public 55 90% 50 Residential 8 85% 7 Block 6 On -Street Spaces Lowell Avenue 25 85% 21 Main Street 12 85% 10 Off -Street Lots 6-1 Private 38 90% 34 6-2 Private 18 90% 16 6-3 School Dist. 31 90% 28 6-4 School Dist. 18 90% 16 Block 7 Off -Street Lots City S. of Tracks 63 90% 57 Block 8 Off -Street Lots City N. of Tracks 25 90% 23 8-1 Private/Bank Lot 35 90% 32 Actual Effective TOTAL EXISTING SUPPLY 745 664 The actual supply of parking spaces in the study area totals 745 spaces. After applying the appropriate factors the effective supply is estimated at about 664 spaces. Overall, the effective supply is about 89% of the actual supply. September 2007 Carl Walker, Inc. 4 \\ Elk~~~. . Ftivcr Downtown Parking Study PARKING UTILIZATION A parking utilization survey for the study area was performed on Wednesday, June 20, 2007. Carl Walker personnel performed the field work and observed overall activity on the survey day. Occupancy counts were conducted hourly starting at Sam through 3pm. In addition, turnover and duration data for the City controlled spaces within the study area was collected. License plate digits were used to track the usage of the City on-street and off-street spaces at each hourly interval. The utilization data was collected before the regulations and employee permit procedures were changed. The changes were enacted on July 1. Occupancy Table 2 presents a summary of the occupancy survey results. Detailed tabulations are included in Appendix 2 and 3. Overall, occupancy was steady at about 50% occupied from about gam through 1 pm. The peak recorded occupancy was 373 vehicles at about 10 am. Three of the on-street block faces, Blocks 2 8~ 3 Main Street and Block 5 Jackson Avenue, had peak occupancies at 100% or greater. It appears that lunch time dining generates the spike in parking demand being accommodated by the on- street spaces. September 2007 Carl Walker, Inc. 5 I El'' 1Liacr Downtown Parking Study Table 2 -Parking Occupancy y U ~ C R ~ d 7 ~ U Q U Q U Y C R ~ d ~ a T '6 3 c Y l0 a c C n ~ o o Z N ~ 'O d d >_ T ~ j Y_ ~ W fn September 2007 o_ o e ~ ~ ~ 0 o e O N u7 ~ N ~ ~ ° O lA ~ N ~ M ~ o O o ~ e 00 N ~ r~i N e M ~ 00 o Qf fD v~ M V M ~ I~ ° Oi ° h m 1f1 V N Q M V r o u~ o ~ p M in M ~ M o N ~ N ~ 1~ p N V M ~n M u~ ~ o ~ N p M~ M y v o ao a f`~7 N N V M y O N N N N ~ ~ n (O U (O U J U O m O A ~ m n n (n U (n U O U ~ ~ Q Q N N N N Q: U U U ~ a ~ a Q a } C ~ ^ ~ ~ ~ b Carl Walker, Inc. Elk w~ ~vcr Downtown Parking Study Turnover and Duration Appendices 2 and 3 also summarize the turnover survey. Average turnover is the number of different vehicles observed during the specified time frame divided by the capacity of the lot or block face. Turnover and duration data provides an indication of whether spaces are being used for short or long term parking. In addition, turnover and duration data indicates if there is a relative compliance with posted time restrictions. However, turnover calculations must be used with care especially in lightly used spaces. An empty space is obviously "not turning over". The turnover rates for the on-street spaces along Main Street ranged from 1.3 to 3.6. The higher rates, as expected, were in the higher demand Blocks 2 and 3. It means that the average space on Blocks 2 and 3 was used by at least 3.2 different vehicles during the survey period. Jackson Avenue had a turnover rate of about 3.9 during the study period. The King Avenue Lot and the City Lot across Highway 10 had lower turnover rates. The conclusion from this data is that the short term on-street spaces were used as intended. September 2007 Carl Walker, Inc. 7 4 F.l l~vcr Downtown Parking Study PARKING DEMAND It is important to define conditions which will be used as a part of the model to estimate future demand. Because the new developments in the Downtown are still under construction, there were an unusual number of construction workers, and their vehicles, in the study area. To avoid including those vehicles in the parking demand model adjustments to the observed occupancy have been applied. Table 3 presents the adjustments to subtract the construction worker's vehicles from the existing demand. The estimates are based upon observations made during the occupancy survey. The adjustment results in reducing the peak period occupancy by 39 vehicles down to about 330 vehicles. Therefore, the model of existing parking demand, which is used to estimate future demand, will target approximately 330 spaces rather than 370 spaces. Table 3 Adjustment Factor Block 8:00 AM 9:00 AM 10:00 AM 11:00 AM 12:00 PM 1:00 PM 2:00 PM 3:00 PM Total Observed Occupancy 6-20-07 308 367 373 365 356 369 327 309 Construction Worker Adjustments 40% 3 Main Street 3 5 4 5 4 5 4 6 60% 7 City Lot 22 22 22 22 22 21 18 8 100% 4 Bank Lot 12 12 13 15 11 10 9 9 100% 4 Jackson PI. 6 6 6 6 4 3 2 2 Subtotal Adjustment for Construction (43) (45) (45) (48) (41) (39) (33) (24) TOTAL DESIGN DAY OCCUPANCY 265 322 328 317 315 330 294 285 September 2007 Carl Walker, Inc. 8 El k ".~} Kivcr Downtown Parking Study Existing and Future Demand The size of the existing land uses in the downtown, as provided by the City, is summarized as follows: Table 4 Existing Land Use Medical General General Funeral Office Office Retaurant Commercial Home Block S.F. S.F. S.F. S.F. S.F. 1 5,800 2,400 14,500 2 6,500 25,900 3 1,200 12,100 2,800 4 21,000 5 10,900 3,800 24,400 6 6,300 23,300 7 8 Totals 7,500 52,100 13,100 73,700 14,500 Table 5 presents the estimated existing and future demand. The upper portion is a model of existing demand. The model applies demand ratios to the land use data shown in Table 4. The model estimates the parking demand for a weekday similar to the survey day of June 20, 2007. Some future businesses and the visitors to the residential units may generate a peak parking demand at other times of the day. The demand generated by a funeral home is characterized by peaks and valleys and is difficult to predict. The number of mourners present at a specific service will also vary widely. Therefore, the model does not include an estimate of the demand generated by the funeral home. Likewise the existing spaces in the funeral home parking lot will not be used in the calculations concerning future supply versus demand. The model also does not include the demand for parking generated by residents of the apartments and condominiums in the new developments or in the existing residential units located above commercial space. Below grade spaces in the new developments will provide parking for the residents. Again the supply of September 2007 Carl Walker, Inc. 9 ~ak'~ Kivcr Downtown Parking Study those "reserved" residential spaces is not included in calculations concerning supply and demand. Typically the demand generated by downtown residential units ranges from 1.0 to 1.5 spaces per unit. However, the residential parking demand peaks in the evening. Currently there are about six residential units in the apartments above the commercial space. The peak demand for those residential units is estimated at six to nine spaces. The demand ratios reflect a shared parking concept that is similar to the Urban Land Institute's (ULI) Shared Parking publication. The approach accounts for variations in parking demand by time of day, day of the week, and by season. In addition, the approach also accounts for the natural reduction in parking demand by a "captive market". For example, in Downtown Elk River some of the noon time customers to the restaurants are employees of other downtown businesses. Their visit to the restaurant does not generate the demand for an additional parking space. Because the nature of the business that will be tenants of the new developments is unknown at this time, a demand ratio of 4.00 spaces / 1,000 s.f. is used to conservatively estimate demand. The unadjusted parking demand model developed for this study patterns the conditions observed in the study area on a Wednesday in June. However, parking demand can vary based upon the time of the year. For example, at most commercial centers the holiday shopping season generates the largest demand for spaces. However, it is uneconomical to design a parking system to accommodate the busiest day of the year. The resulting parking system would be overbuilt with an excessive number of unused spaces throughout the rest of the year. Using average conditions would result in a deficit of spaces for half of the year. The design day conditions should represent a typically busy day that occurs several times per month. For those same reasons, traffic engineers typically use an 85'" percentile ranking for the modeling and design of roads and intersections. The 85'" percentile is a common goal of design day conditions for a parking system. Data contained in Shared Parking indicates that visitor parking demand in June at Shopping Centers is typically 67% of the peak month. Employee demand during June is typically 80% of the peak month. To conservatively estimate demand an 18% (85 - 67 = 18) factor will be added to the modeled general commercial demand. This adjustment is conservatively high as the mix of businesses in Downtown Elk River does not reflect the largely retail mix found in shopping centers and is applied to both visitor and employee demand. The other land use categories included in the model are all above the 85'" percentile seasonal demand levels listed in Shared Parking. September 2007 Carl Walker, Inc. 10 Elk Kim er Downtown Parking Study The ratios and reduction factors model an existing demand of about 330 spaces. This closely matches the design day occupancy determined from the occupancy survey. The future demand, when the new developments are fully occupied, is estimated at about 460 spaces. September 2007 Carl Walker, Inc. F.1 jZivcr Downtown Parking Study Table 5 Parking Demand Demand Ratio per Existing Season Existing Land Use S.F. 1,000 s.f. 2007 Adjust 2008 2009 2010 2011 2012 Medical Office 7,500 3.50 26 0% 26 26 26 26 26 General Office 52,100 2.25 117 0% 117 117 117 117 117 Restaurant 13,100 3.00 39 0% 39 39 39 39 39 General Commercial 73,700 2.00 147 18% 174 174 174 174 174 Estimated Demand -Existing Land Uses 330 357 357 357 357 357 New Developments Project Occupancy Assumed 0% 25% 50% 100% 100% 100% Undefined Businesses 22,300 4.00 - 22 45 89 89 89 Residential Units -Visitors 99 0.15 - 4 7 15 15 15 Total Estimated Future Demand 330 383 409 461 461 461 September 2007 Carl Walker, Inc. 12 Elk, ~tivcr Downtown Parking Study PARKING ADEQUACY Parking adequacy is the ability of the parking supply to satisfy the demand. Adequacy is calculated by subtracting the demand for spaces from the "effective" supply of spaces. Since changes to the supply of spaces are anticipated in the future, the projected "effective" supply is used to calculate the future adequacy. Table 6 shows the parking adequacy calculations. Currently, on the survey day, there is a surplus of about 284 parking spaces in the study area. The surplus of spaces is expected to reduce to about 168 spaces when the new developments are fully occupied. The residential units in the two new developments represent a significant change in the parking demand characteristics in Downtown Elk River. However, the peak demand generated by residential units typically occurs during the evening hours and on weekends. Residential parking demand and the demand generated by service and office land uses can often share a supply of parking spaces because of the differing peak demand periods. ~:_~:. The surplus of spaces will continue to be an asset to the businesses in Downtown Elk River. Many commercial districts do not have a surplus of spaces. The estimates of demand developed in this analysis use a model of current utilization of the parking system serving Downtown. When the new developments are fully occupied the current demand patterns and parking dynamics may change. It is hoped that development projects will be occupied with successful businesses and attract more customers to Downtown and promote longer visits. The mix of businesses in the older existing buildings may also evolve and change over time. It is difficult to quantify these unpredictable effects on Downtown Elk River and the resulting impact on the parking system. The inclusion of the effective supply factors is intended to help accommodate unknown changes to commercial activity in Downtown. September 2007 Carl Walker, Inc. 13 F.lk" ~~~ l~ccr Downtown Parking Study Table 6 Parking Adequacy 2007 2008 2009 2010 2011 2012 Existing Effective Parking Supply (1) 614 614 614 614 614 614 Block 3 Main Street Spaces (2) 15 15 15 15 15 Subtotal Future Effective Supply 629 629 629 629 629 Estimated Future Demand minus 330 383 409 461 461 461 Adequacy 284 246 220 168 168 168 Notes: (1) Funeral home lots not included -Lots 1-2 and 1-3 (2) On street spaces reestablished following construction activity September 2007 Carl Walker, Inc. 14 El-~'~ l~ivcr Downtown Parking Study SUPPORTING ADDITIONAL DEVELOPMENT Clearly the existing parking system has an adequate number of spaces to support the existing businesses and the anticipated demand generated by residents and businesses in the new developments. The calculations of future adequacy indicate that a surplus of spaces will exist even after the new developments are fully occupied. The calculations of existing and future adequacy include the publicly controlled parking and the privately controlled spaces in the study area. To assess the amount of additional development that could be accommodated with the anticipated surplus it is necessary to consider only the publicly controlled spaces. The privately owned spaces may not be available to help satisfy demand. Table 7 presents an estimate of the amount of future development that could be accommodated with the anticipated surplus of spaces in the publicly controlled areas. This estimate includes the spaces in the municipal lots located north of Highway 10. The estimate also conservatively uses a parking demand ratio of 4.00 spaces per 1,000 S.F. of development. The existing parking demand model ratios range from 2.00 to 3.50 spaces per 1,000 S.F. Using the entire municipal parking supply, the surplus could accommodate approximately 15,700 S.F. of development. Table 7 Parking Available for Future Development Including Lots North of Highway 10 Municipal Lots -Approximate Existing Vacancy -Observed King Avenue Lot 73 South of RR Tracks 27 North of RR Tracks 14 On-Street Spaces 60 Subtotal -Available Spaces 174 Bluffs and Jackson Place Estimated "Public" Demand 104 (Commercial and Residential Visitors) Remaining Spaces Available 70 Effective Supply Factor 90% Effective Spaces Available 63 Assumed Demand Ratio 4.00 ! 1,000 S. F. of Development Anticipated Surplus Supports Approximately 15,700 S.F. Additional Development September 2007 Carl Walker, Inc. 15 F.]k' iZivcr Downtown Parking Study A common perception exists that the municipal lots located north of Highway 10 are not convenient, and crossing the highway can be dangerous at times. Table 8 presents a similar calculation of the amount of development that can be supported if the lots north of Highway 10 are not considered as part of the supply. The resulting reduced municipal supply could support approximately 6,500 S.F. of additional development. Table 8 Parking Available for Future Development Not Including Lots North of Highway 10 Municipal Lots -Approximate Existing Vacancy -Observed King Avenue Lot 73 On-Street Spaces 60 Subtotal -Available Spaces 133 Bluffs and Jackson Place Estimated "Public" Demand 104 (Commercial and Residential Visitors) Remaining Spaces Available 29 Effective Supply Factor 90% Effective Spaces Available 26 Assumed Demand Ratio 4.00 / 1,000 S.F. of Development Anticipated Surplus Supports Approximately 6,500 S.F. Additional Development September 2007 Carl Walker, Inc. 16 Y~ E1 River Downtown Parking Study PARKING MANAGEMENT and CONCEPT DESIGNS Sites for Additional Parking Facilities The existing King Avenue Lot is well located for public parking spaces serving Downtown Elk River. The lot is close enough to provide convenient parking supporting the businesses along Main Street and Jackson Avenue. The site dimensions and the topography of the site are adequate for a reasonably efficient parking structure design. The site is the most centrally located viable site within the downtown area and could serve future redevelopment efforts along Main Street. Approximately 50 parking spaces could be added to the King Avenue Lot if the existing HRA buildings and the Elk River Meat Market were removed. However, in the long term, removing those buildings for surface parking spaces is not the ideal use for that portion of the site. An expansion of the Lot onto this site should be viewed as an interim phase until further development occurs on the King Avenue Lot. The existing School District administration building has also been suggested as a potential site for a parking structure. The site offers several advantages: • Any spaces added at the site would be 100% net gain to the municipal parking system as the use of the existing spaces is restricted. • Lowell Avenue provides direct access to Highway 10. However, the school district site is further from the core area of the downtown and any municipal parking system spaces located here will not be as convenient as the King Avenue Lot. However, in the future if the school district relocates the administration office, the site could be "land banked" as a surface parking lot providing employee parking. For these reasons the analysis and development of conceptual structure designs will focus on the King Avenue Lot. Four conceptual designs fora parking structure were developed for the King Avenue Lot. Figures 2.0 through 5.1 depict the conceptual designs. The concept designs were developed to demonstrate different orientations of a parking structure on the site. September 2007 Carl Walker, Inc. 17 F.1 k iLfr-cr Downtown Parking Study Concept Designs Table 9 presents a summary of the conceptual design options. All of the concepts are above grade parking structures. The construction costs and operating and maintenance costs fora below grade parking structure are significantly higher than above grade parking structure. Construction costs have been estimated using $47 per square foot plus a 10% estimating contingency resulting in a $52 per square foot estimated cost. Figures 5 and 6 present typical parking structures that were constructed at comparable prices. The images are intended to demonstrate the type and quality of fagade finishes that can be obtained in this construction cost range. The images do not necessarily depict a fagade design appropriate to Downtown Elk River. In addition the images are of structures larger than the concept design developed for Elk River. The two images are of structures with five supported levels. The concept options are two or three supported levels. Figure 5 -Lansing, MI Figure 6 -Milwaukee, WI September 2007 Carl Walker, Inc. 18 F.1._-~ ~Livcr Downtown Parking Study Table 9 King Avenue Lot Summary of Concept Options Option 1 Option 2 Option 3 Option 4 Spaces in Structure -Conceptual Design 287 293 256 453 Spaces in Structure -Design Refinements 273 278 243 430 Levels Above Grade 2 2 3 2 Foot Print 124' X 275' 124' X 280' 124' X 260' 186' X 275' Circulation System Two Way Two Way Two Way Two Way Single Thread Single Thread Single Thread Single Thread Square Feet -Parking Structure 90,808 92,344 92,608 142,881 Efficiency (s.f. per space) 333 332 381 332 Construction Cost (1) $4,695,000 $4,774,000 $4,788,000 $7,387,000 Waterproofing Over Retail Space $0 $0 $506,000 $0 Parking Structure Cost -subtotal $4,695,000 $4,774,000 $5,294,000 $7,387,000 Parking Structure Cost per Space $17,200 $17,200 $21,800 $17,200 Fees, Surveys, Design, Geotechnical 12% $563,000 $573,000 $635,000 $886,000 Existing Building Demolition Allowance $40,000 $0 $40,000 $40,000 Project Cost (2) $5,298,000 $5,347,000 $5,969,000 $8,313,000 Existing Spaces 158 158 158 158 Surface Spaces Remaining 50 51 105 54 Net Added Spaces 165 171 190 326 Project Cost per Added Space $32,200 $31,200 $31,400 $25,500 Notes (1) Structure Construction Cost $52 /Square Foot (includes 10% estimating contingency) (2) Acquisition of existing buildings not included. Site work north of structure not included. September 2007 Carl Walker, Inc. 19 7 l 1Livcr Downtown Parking Study The overall height of the structures has been limited to two to three supported levels so that the structure will be compatible with the existing buildings in downtown Elk River. It is possible to design parking structures to accommodate a horizontal or a vertical expansion. In most cases a horizontal expansion is easier than a vertical expansion. A vertical expansion requires that a significant portion of the structure must be closed to the public during the construction period. If parking demand is high enough to warrant an expansion, the structure is likely to be regularly full; finding alternate parking locations for the current users of the structure can be difficult. All of the concepts shown include spaces that are 9'0" wide set at 90° to drive aisles. The circulation pattern in each of the concepts utilizes a two way traffic flow. September 2007 Carl Walker, Inc. 20 E1 ftivcr Downtown Parking Study Operating and Maintenance Costs The costs to operate and maintain a parking structure are significant ongoing costs. These ongoing costs must be considered as the feasibility of any parking structure is explored. The following Table 10 presents the typical costs to operate and maintain a parking structure. These costs are based upon a nationwide survey. The typical annual cost to operate and maintain a parking structure totals about $184 per space. The costs do not include the labor costs to operate the structure with the traditional exit lane cashiers. The labor costs for a cashiered operation will add significant annual costs. Table 10 Typical Annual per Space Costs Liability Insurance $ 12.00 Utilities & Phone $ 45.00 Elevator Maintenance $ 20.00 Equipment Maintenance $ 6.00 General Maintenance $ 12.00 Parking Supplies $ 6.00 Legal & Accounting $ 4.00 Loss & Damage $ 8.00 Maintenance Supplies $ 8.00 Snow Removal $ 8.00 Miscellaneous $ 5.00 $184 Annual Options Spaces O&M Costs 1 273 $ 50,000 2 278 $ 51,000 3 243 $ 45,000 4 430 $ 79,000 Structural Repair Reserve Fund $ 50.00 Management Overhead $ - Estimated Annual O & M Costs $184.00 Costs above assume the parking structure will not be operated with cashiers. Labor costs for cashiers is not included. September 2007 Carl Walker, Inc. 21 E1`' kLivcr Downtown Parking Study ,» w q ~ a 3 ~ 0 0 ~ I ~ ~ q O W ~ U Z q y ~ Z v1 q O Z Z Y ~ q O ~ Z N z Z J r J W W J September 2007 Carl Walker, Inc. 22 Figure 2.0 - Optionl Elk'., _~~ Esvcr Downtown Parking Study Figure 2.1 - Optionl September 2007 o~ Z U H W O ~~ z Z Q J M J W W J ~~ z Carl Walker, Inc. 23 „o-,rz~ El l~vcr Downtown Parking Study W w o ~ o o ~ I w ~ Q J w ~ v z Y a ~ ~ a c~ ~ z = Y ~ K ~ a ~ a z 0 z z a a N September 2007 a 0 m 0 n Z o 0 J j ~~ r J W° ~o W „ J Carl Walker, Inc. 24 Figure 3.0 -Option 2 __ „ Elk'• ~- itiver Downtown Parking Study Figure 3.1 -Option 2 ~4a +®o N/ ~../ U H w O 0 a- J P' _~ w + I~ . ~. ~. J 6i w + J b 4 ~o ,,\ `~ b 1 O y; ~ .n 4 II o~ ~~ W + p Z w ~ G w 0 i ~ ~~, M 0 N ~ o- ~ I ~ M w ~° -f? w + ~°rn w + O ~ b4 0 ~ ~ b4 V V [O i1y II O ~ ~f? 1i~p .- II O ~ ~m w + ~ ~~ w + L September 2007 z°~ z a F- O O Z~ O O N M J W°, o w o J t 0 z z a a N I H a 0 a O O J ~ N N J W° `o ~ ~ J _u Carl Walker, Inc. 25 M ~N+ ~ ~ w ktivcr Downtown Parking Study W V W o a 3 ~' 0 0 ~ I w ~ Q O W V U Z Q y a ~ ~ 4 ~ a z = Y h K ~ Q O N ~ I ~ ] L ~ O ~w iZ >I ~ ', ~ . p '., ~ ~ Q 1 O a J ~ Z J r J W W J September 2007 Carl Walker, Inc. 26 Figure 4.0 -Option 3 Elk " ~-~ lLivcr Downtown Parking Study Figure 4.1 -Option 3 ~~ z V H W N „0-,bZl L ~J .~0-,bZl z~ I 0 Z a J M JIB Z d J CL September 2007 Carl Walker, Inc. 27 a n N d d d d ~~++77 I C.l FZivcr Downtown Parking Study W U w Q ~ a 3 ~ a ~ I am ~ ~ Q O w ~ U Z Q y d ~ VI Q C7 d Z = Y ~ a o d z ~~ Z z Q J r J W W J September 2007 Carl Walker, Inc. 28 Figure 5.0 -Option 4 I E1 FL.iver Figure 5.1 -Option 4 ~~ z U iY W O N „0 -, 98 l o ~I'm a ~ w + -0 ~c~ Ila m w + b4 b4 b4 I c~ i I'. o ;., w + -0 ~~ °rn w+ Downtown Parking Study ~~ Z z J N J W W J September 2007 Carl Walker, Inc. 29 4 ~.~ 1Livcr Downtown Parking Study Option 1 Option 1 places the parking structure set back from Main Street about 100 feet from the curb. An area for commercial buildings with a foot print of about 14,335 square feet fronts Main Street. A service drive is shown along the north side of the commercial building. The commercial building could be a single story or multiple levels. This option would require the acquisition of the Elk River Meats building and the demolition of the other HRA owned one story buildings fronting Main Street. The Option 1 parking structure concept has about 287 gross parking spaces. However, the concept plans do not account for code required accessible spaces. During the refinement of the design additional spaces may also be lost. Approximately 5% of the spaces may be lost during the design phases. In Option 1 the number of spaces in the structure is reduced to about 273 spaces. The structure has two supported levels plus the on grade spaces. The concept design has two parking bays with the northern bay sloped providing vertical vehicular circulation. The southern bay is essentially "flat", sloped only for drainage. The overall footprint of the structure measures 124 feet wide by 275 feet in length. Approximately 50 parking spaces are shown in the area north of the parking structure. Access to these spaces is by driving through the structure on the west end. The conceptual construction cost is estimated at about $4.7 million. This estimate is based upon typical parking structure costs in the Minneapolis market and includes a 10% estimating contingency. The construction cost is about $17,200 per parking space. This estimated cost does not include any site work for the area located north of the parking structure. Subsurface soil conditions can have large influence on the constructions costs for a parking structure. The estimated costs do not include allowances for poor soil conditions or for environmental remediation. Fees for design work, geotechnical engineering, site surveys, etc are estimated at 12% of the construction costs. An allowance of $40,000 is included for the demolition of the existing buildings. The total project cost for the structure is estimated at about $5.3 million. Because the structure is displacing existing parking spaces consideration should be given to the net number of spaces that will be added. The project, including the remaining surface lot spaces, yields 165 additional spaces. The total project cost per added space is $32,200 per space. September 2007 Carl Walker, Inc. 30 Elk-~.-j lover Downtown Parking Study Option 2 Concept Option 2 is a similar parking structure layout, but the structure is turned 90° with the long side of the structure perpendicular to Main Street. This configuration allows the existing commercial buildings to remain in place or to be replaced with new developments. The structure is again two parking bays wide with the sloping bay on the west side of the structure. Access to the remaining portion of the surface lot is provided mid way along the length of the structure. The 278 space structure has construction costs estimated at about $4.8 million. Demolition of the existing buildings is not required so the demolition cost allowance is not included. The total project cost is estimated at $5.3 million or about $31,200 per added space. Option 3 This option places the parking structure above commercial space that fronts Main Street. This option frees the north portion of the King Avenue Lot to remain as a surface parking lot or could be used for additional development. The structure design uses a speed ramp to rise 15 feet above grade level. With an approximate depth of structure of about three feet, the commercial space would have a height of about 12 feet. The ramp to the parking area above the retail is too steep for parking spaces. However, the costs to construct the ramp should be included in the overall project costs. Because of the speed ramp the square feet of construction per space is much higher at 381 square feet per space. The construction costs are estimated at $5.3 million which includes $506,000 for waterproofing the commercial areas from the parking areas located above. By placing the parking structure over the commercial space, the north portion of the lot can remain unchanged so those spaces are not lost. There are 190 net added spaces with Option 3. The total project cost is estimated at $5.9 million. The project cost per added space is $31,400. September 2007 Carl Walker, Inc. 31 F.I IZi~•cr Downtown Parking Study Option 4 Option 4 includes a three bay parking structure with no commercial space. The middle bay is sloped, proving vertical circulation. The outer bays are essentially "flat" sloped only for drainage. The overall structure footprint measures 186' X 275'. With two supported levels the structure contains about 453 spaces. Construction costs for the option are estimated at about $7.4 million or $17,200 per space. Including fees and demolition of the existing buildings raises the total project costs to $8.3 million. Option 4 adds approximately 326 spaces to the municipal parking supply. The total project cost for Option 4 equates to about $25,500 per added space. September 2007 Cari Walker, Inc. 32 1Livcr Downtown Parking Study MANAGEMENT APPROACHES The purpose of this section is to provide parking management strategies to help improve downtown parking conditions, both currently and in the future. The parking management options detailed in this section will help improve parking efficiency, increase utilization, and meet future needs. The existing municipal parking system currently has a surplus of spaces serving the downtown area. The surplus is expected to remain in place following the full occupancy of the two new redevelopments. The existing management regulations, policies and procedures overall appear to be satisfactory given the existing surplus of spaces. Making major changes to the existing regulations is not necessary at this time. During the occupancy and turnover surveys most parkers appeared to be adhering to the posted time regulations. Not every parker will be able to find an empty space directly in front of their destination. However, empty spaces can usually be located within a reasonable distance. Striking the balance between employee, customer, and downtown resident spaces is more difficult in municipal parking systems where parking fees are not charged for every space. In systems where every space has a fee, the most convenient spaces should have the highest hourly fee and less convenient spaces have a lower fee for all day parking. The current policies in Elk River are intended to keep the most convenient spaces available for visitors/customers. This is a worthy goal and the current policies should remain in effect. However, a re-evaluation should be made after the new developments are fully occupied and the effect on the demand for spaces is known. Then if a large surplus of spaces still exists some modifications may be warranted. What ever policies are in effect they should be fair and consistent. The same rules should be applied across user groups. September 2007 Carl Walker, Inc. 33 tLivcr Downtown Parking Study Parking Guiding Principles When planning for parking there is a built in conflict to which all downtown stakeholders can easily relate. The conflict revolves around three primary factors: Cost, Convenience and Supply. Unfortunately, usually you can have only two of the three. For example, parking can be inexpensive and convenient, but you won't have enough. Or, you can have enough inexpensive parking, but it won't be convenient. Lastly you can have enough parking conveniently located, but it won't be cheap. 1NESPENSI~'E ~/\~ CONVENIENT ~~ ENOUGH Given this basic problem, keeping all customers satisfied is an on-going challenge. As much as everyone would like to, not everyone can park at the front door. Having well-defined parking principles is a good first step in attempting to balance this inherent conflict. A statement of operating guidelines or principles is a worthwhile effort for any enterprise, but it seems especially useful for municipal parking systems. Given the diverse base of customers that parking operations serve, defining operating philosophies and service parameters can help keep the operation focused on set goals and objectives. For parking operations that do not already have a set of parking principles, taking a pro-active role in the development of these principles can provide significant benefits. Having an approved set of parking principles protects the city from being perceived as unwilling to provide services that are clearly outside of the approved parking guidelines. When faced with a new development proposal which will cause the elimination of parking spaces, having a predefined and approved policy to address the funding of replacement parking can help the city meet operational budgets and avoid unexpected capital expenses. Another advantage to having awell-defined set of parking principles is that it provides city planners with a concise set of guidelines, within which they are free September 2007 Carl Walker, Inc. 34 Elk-_.l ~vcr Downtown Parking Study to be creative and resourceful in providing development services to their various clienteles. It also gives them boundaries so that they know when a request falls outside the scope of parking guidelines. Having a well-crafted set of parking principles establishes the goals and objectives that will ultimately help define the character of downtown. Having established these principles, the community will know what is expected, and hopefully, have had the opportunity to be involved in the definition of the downtown parking principles. Community involvement and consensus is crucial to the development of strong guiding principles. Parking principles are not intended to replace traditional regulations, policies and procedures. In general, the parking principles should be kept short and concise, a maximum of one or two typed pages. Some of the items typically incorporated in such a document include: • Mission Statement/Statement of Purpose -Describes how the parking operation contributes to the success or mission of the downtown community. • Operations/Funding Strategies -Describes how parking facilities and/or operations are to be funded and also whether the operation is intended to be aself-supporting entity, aprofit/revenue center, or a support service sustained through other primary revenue sources. • Interdepartmental Relationships -Defines relationships between various departments with respect to downtown parking, especially other support departments such as Maintenance, Security, Communications, Development, etc. • Responsibility for Parking Operations - Is parking to be managed by the city or another ancillary organization? Are parking operations to be managed through a centralized operation or can other departments get involved in parking management? • Rate Setting Guidelines -Should parking require acharge/fee? If yes, how are the parking rates set? Should rates be set to cover operational costs? Should parking rates cover bond debt? • Options for Allocating Parking -Defining how parking is allocated goes to the heart of downtown parking, due to the prioritization process that is required. How much short-term parking should be provided? How much long-term? September 2007 Carl Walker, Inc. 35 F.1 [~vcr Downtown Parking Study Inclusion of Parking in Strategic and Master Planning Processes -One of the most important outcomes of having a parking principles document is getting city administration buy-in of the importance of having parking represented in strategic and master planning processes. • Procedures for Managing Losses of Parking Supply (both temporary and long-term) -Having procedures/guidelines in place for the coordination and replacement of parking spaces lost due to new development is another benefit of establishing "parking planning" as a fundamental element of your parking principles. Definition and Communication of Parking Rules and Regulations -Having clearly defined parking rules and regulations is essential to any parking operation. How these rules and regulations are communicated can vary widely depending on the customer groups served and the environment. Having an effective communications plan can also keep your customers informed of changes brought on by construction and maintenance projects, implementation of new technologies, rate changes, new policies, etc. Additionally, a good communications plan can act as a marketing and public relations tool for downtown parking. Parking departments are often criticized because of misperceptions or a lack of information about the performance and contributions made by parking. Enforcing and Adjudicating Parking Rules and Regulations -Will parking enforcement be provided in downtown, and by whom? Defining who is responsible for day-to-day parking enforcement and adjudication is an important operational decision. Other key parking enforcement issues that should be defined include: Who defines parking enforcement policies? Who administers the adjudication process? Who set the rates for parking fines? Defining Parking Facility Maintenance Responsibilities -Parking facility maintenance is something that is too easily cut from capital budgets. The result is often a larger price tag at a later date and can involve significant operational disruptions. Identification of parking facility maintenance as an important parking management principle should not be overlooked. Maintenance becomes even more important if the system includes parking structures. • Special Event Parking - If any one area requires a cooperative effort from the larger community, it is providing parking for special events. If parking supplies are tight, even small events can have a big impact on available parking. Having awell-defined system for coordination of special events parking can provide improved service for all patrons. September 2007 Carl Walker, Inc. 36 Elk -: -~ River Downtown Parking Study • Budgeting and Planning Cycles -Because of the high costs associated with the development of new parking resources, and the lead-time required for design and construction of new facilities, parking budgets can benefit greatly by the development of extended budgeting and planning cycles. In summary, Parking Principles add value in two primary areas: 1. Establishing a set of approved operating guidelines, which help define the role and relationships of parking within the larger city government and the downtown community. 2. Emphasizing the importance of planning for parking. Establishing a set of "Parking Principles" for the City of Elk River is just one opportunity for improving the way downtown parking is perceived. Using this approach as a first step to parking management can build recognition and increase respect and support for downtown parking goals and operations. Carl Walker recommends that the City of Elk River create and approve a set of guiding parking principles. To assist this process, a draft version of guiding principles has been developed as follows: September 2007 Carl Walker, Inc. 37 I ~~ l~vcr Downtown Parking Study City of Elk River -Suggested Downtown Parking Guiding Principles 1. In order to encourage the continued economic development of Downtown Elk River, the City of Elk River will endeavor to provide and/or designate necessary short-term and long-term parking for downtown businesses and visitors. In order to construct maintain and operate public parking facilities, the City of Elk River will secure necessary funds through the best combination of taxes, parking fees, special assessments and/or parking in-lieu fees charged to downtown developers. 3. The city will designate a single department to be responsible for the maintenance and management of the public parking system, and no other city department will be authorized to construct, designated, operate or manage downtown parking spaces/facilities. The department will also be responsible for assisting with the allocation of available parking spaces among the downtown user groups. 4. Future parking fees charged, if enacted, to downtown parkers (e.g. employees, visitors, etc.J in public parking areas will be designated by the city, with input from the city department responsible for the parking system. Any parking fees charged will be reviewed annually to ensure all financial goals/objectives are met. Parking fees will be used to help support the parking system. 5. The city department responsible for the parking system will be included in future downtown development projects to ensure parking related concerns are addressed. The department will be responsible for managing parking losses/gains due to downtown development. 6. Parking rules and regulations will be set by the department responsible for the parking system, with approval as necessary from the City Council, and these rules/regulations will be clearly communicated to downtown user groups via printed materials and the Internet. 7. Parking enforcement will be provided by the City of Elk River Police Department. Parking fines will be established by the City of Elk River, and set to discourage illegal parking. 8. Special event parking needs will be coordinated by the department responsible for the parking system when needed. The department will be reimbursed for direct and indirect costs related to special event parking when appropriate. 9. Parking related budgets will be developed and reviewed on an annual basis. September 2007 Carl Walker, Inc. 38 I El-..-t. lover Downtown Parking Study Parking Organization Communities the size of Elk River rarely have complicated parking management structures. As parking revenues are not collected on a daily basis, and there are no parking service employees, a distinct parking department is not currently necessary. However, parking service related responsibilities do exist. For example, some person or department must be responsible for issues like parking system maintenance, selling permits, planning for future developments, special event planning, handling parking related complaints/concerns, communicating parking issues to the public, etc. While a parking specific department is not currently recommended, the city should designated one department as responsible for parking related issues. This department would coordinate parking maintenance, participate in planning for future parking needs, provide assistance with planning for special event parking, deal with parking complaints/concerns, etc. This department need not directly provide all of these services, as these responsibilities could be distributed horizontally throughout the existing city department structure. For example, parking maintenance could be provided by public works and parking communications could be developed by community services. However, the community should have a single city contact for all of their parking related concerns. In most municipalities, the parking system is managed by the public works department, a separate parking department or by a downtown redevelopment agency (or similar agency). As the downtown grows in the future, the need for a parking specific department could arise. Downtown parking services tend to evolve over time. At first, parking is largely unregulated. During this stage most off-street parking is privately owned, and the largest supply of public parking exist on-street. The initial formation of parking system management typically begins as a small component of an existing city department, such as public works or the city police department. As downtown becomes more densely developed, off-street parking tends to combine into larger facilities or parking structures. At this point, paid parking is established to pay for the growing parking infrastructure and parking enforcement is instituted. As parking structures tend to be publicly owned, the need arises for an organization to operate and manage the parking supply. There are typically three approaches commonly used to address the need for parking system operations and management. First, an internal city parking services department could be created. This department could stand alone, or be asub-department of another department. The operation of the system could be completely in-house, or the department could receive services from another September 2007 Carl Walker, Inc. 39 r ~.~ lZivcr Downtown Parking Study city department or private parking operator. Second, the city could create a parking authority. This authority would consist of an executive director and a board composed of members of the downtown community. Board members could include members of other downtown organizations (e.g. the Chamber of Commerce, River's Edge Downtown Businesses, etc.), downtown business owners, members of the general public, and city staff. Finally, the city could contract with an outside organization to provide parking system operations and management. For example, the city could contract with a downtown business organization to provide parking system management. It is important to note that whatever the parking management approach is ultimately taken by the City of Elk River, several concepts are always necessary. First, the management of downtown parking resources requires the input and involvement of the private business stakeholders. They must remain a part of the parking planning process, and they can offer real world options based on their experience. Also, lines of communication must remain open between those responsible for parking within the city and downtown stakeholders. Second, parking policies and regulations must be consistently applied. Once the system guiding principles have been established, they must be adhered to, or they will lose their importance. Third, the parking system must be properly maintained and provide a safe parking environment. Finally, the parking system must be promoted effectively to ensure both visitors and business owners understand the system. Parking Enforcement In the long term it may be necessary to modify the time limit regulations of the on-street spaces. The on-street time limits were recently changed from a three hour limit to a two hour limit with some spaces having a one hour limit. As downtown becomes more prosperous and more employees are working downtown, some employees may start moving their vehicles every two hours to avoid a citation. This "two hour shuffle" can be detrimental as visitors and customers of the businesses will be unable to use the most convenient parking spaces. Strategies to discourage employee use of the on-street spaces include: • Increasing the number of on-street spaces with one hour time limits. • Enact regulations that force parkers to move their vehicles a minimum number of feet to avoid a citation. For example, a required 500 foot minimum move will discourage the "two hour shuffle". September 2007 Carl Walker, Inc. 40 Elk' . ~~. River Downtown Parking Study Increased enforcement of posted regulations. The downside is that legitimate visitors/customers may also receive citations. Policies and fine rate structures however can be implemented that reduce the negative perceptions about Downtown Elk River that will arise when a visitor/customer receives a parking citation. Carl Walker recommends an approach that reduces the impact on downtown visitors and increases the penalties on continual parking policy violators. This is typically achieved through the use of an escalating fine structure. For example, the first ticket for a specific offense received within a certain timeframe (e.g. every six months or per year) is an automatic warning. The second ticket received within the set timeframe would result in a set fine, perhaps $20. The third ticket received for the same offense within the set timeframe would result in a higher fine, perhaps $40. The fine would continue to escalate to discourage breaking the same regulation. This would reduce the impact on visitors, as it is less likely they will continually break the rules. However, the penalties will continue to grow for downtown employees abusing set parking time limits. September 2007 Carl Walker, Inc. 41 F.1-..-~ lZir~cr Downtown Parking Study Many communities have enlisted the efforts of the downtown business community to help discourage employee parking in spaces intended for visitors/customers. Notice cards can be used to exert peer pressure on habitual violators. Examples of the notice cards are: PleCtse SM~pper Sto#~p,er The space wher9 you have pork~a means uP rQ SZJD a boy in Shies fcr ~Jpt~,~wn Sh3:by. badYler~ Y4N prevent ^ +~~~storr,er frc7m Rorkin® here. YCU aruy your rwel•.~hC50flfrg bUStn195S95 IoSg rn~gy 1Uae~p four tjpfa+Mn 57raa{I -- Park Where +fi mOkBS C9r1?51 Concemsd b~aslrwwas X01 llpttYwn Shelby Rem9mber We're In ihls tog6th9rl FeQbl~e Excuses Fpr Rarkit~g In C~s'tc>rr~er Spaces t.ns r . r:,,.,.,. ~ ,,... I;a~.. ~.rra .... r,IVaI l: 'il'4Lr, rT4'4 Ral!/t rU ~r U(r Vtt {711 ~K'IJ(7 v . ..~~ m . rr..~ ,v_..~ .awe. ; 1; .u 'r rarv'd a ~ruswa ,rvcr A• 'jn l:! tart •: ,,..... ' . A!r•~. r••hr ,~r•at :.t 2 Dr.!.c'n] r.:A~r, 1r ~ •' s ~.4nr ro rKrn ;:rtci~hr~r 1 [auat n, ,a:va. t ,,. . 'it ~ ,f:: "••C: r. ,...,.... i.,r :~..z! .::rx•r s ~:!ir, a m;a nAa[ rnahee ya~nr rigAra wrnny' 1 c.. nGCrk rP Irr. ~ n/ our ,r: ,rn i,hrr:YS~r.a.::-r.-,n..,.~.•'r.prs.n.n.~l~. our •rtsre I: 'S ^nn r,;. rrGr'^• G 11'f1;P4 s;l'Jrd ;.. .: !'prp 1 ir_ r,:y Y71: I'arl ICaSf bb[!dl'.e-w ilt~ih I h.~.; A;~. .,, ,,;y.".C'„ a.plr wr. !'n, to cnc ~u:.~.'I air. cn~erorganrcywrcay~~Irrr::r ~cr,al.;~~'cM1Cr~..,~r wakri7 ar• rorour Ivass~l :~•xr l aon't wont ro .uctk a broth from my ear r4 u;or! Ycau natnmersdl~a wear rn mthec rl,ue krsa all rr,r n_ahircrrh wx wll rHN nwA hl rsTrN ,aplarwr, A'. a: I'm rust , t~rnh lnzy. ~..r. r . wr :ar('. I:alo y[:u [hrrr ~ tux f»axr F' _ ~ e s.r. v,~..~ a ..,,.,., . ~ ~ tar P. r..rcr.+r.wlt i r.. '~ --"rYrS .:~+dr-C.~l ~ ~ i 11r w~ •a..r~ 4rM .• +I . ~.,~'~~'.; a~~~~. '.. ~~ }'r;r~r :,~~ ceper:~~ ~,r, l_,~. cr:~tcr;:er, . . ~., .. ~...,.. (AY. rand pour c~swrrer 2xrecu co~u ^~eni y,.:r~kr.G ~. ,~ »,~ ~ .»~ ~ ~, , Ctlb ,fAlSS fda(T HI'.Sr'A (A~F ¢~ C.A'f., (FR IXM LlrJN'.i V(~tiCA 11~Y'4tiyV>f"ta rfQ.V ` V L f'ANM17tit: C'C~,xar(rl t t•'7 W LA r i. ® ~ y~ p ~+ A ~'ay ~: A1rP.:x~~~.~.AL .~P~~.~K y y y ~~y , ~`,. ~w ~ . '.~~r.'.~6~ (w~C . ~M1~ ~~.ta~\~''..6~~'.R0.Y ..~f" 'r~F~ p ~y~ ~,q ~ .Y~11' .,~[' ^~ ~^~ September 2007 42 Carl Walker, Inc. Elk. „~ Kiver Downtown Parking Study Paid Parking In the v~r r long term charging for parking in on-street spaces may become necessary in order to keep spaces available for visitors/customers. Parking meters have been the traditional method used to control the use of on-street spaces. In fact, parking meters were invented to promote on-street turnover, not to generate revenue. However, other methods such as pay-by-space and pay- and-display devices to control an entire block face of spaces are becoming more common. If a paid parking program is ever implemented in Downtown Elk River care must be taken so that the entire municipal parking rate structure has the desired effect. The most convenient spaces should have the highest fee if utilized for longer than intended. The less convenient spaces should have the lowest cost for a full days worth of parking. Pedestrian Facility Improvements The City should continue its effort to provide a safe appealing pedestrian oriented downtown. If safe attractive pedestrian paths are provided from parking spaces to the downtown destinations the perceived convenience of the parking system rises. In addition, if using the pedestrian paths is pleasant, a "Park Once" situation will occur. Downtown employees and visitors will be encouraged to walk between destinations rather than moving their vehicles so fewer spaces will be required. In addition, the increased foot traffic will make Downtown Elk River livelier and increase business for downtown merchants. During the public input sessions, people expressed displeasure with having to cross Highway 10 in order to use the employee parking areas. Re-design studies of the intersections should be made with a goal of enhancing pedestrian safety in the intersection crosswalks. Significant deign improvements to the lots should also be made to make the lots more attractive, appealing and help alleviate safety concerns. Making the employee spaces seem more convenient will mean more employees will be willing to use the lot thus freeing up spaces in the core downtown area for visitors/customers. September 2007 Carl Walker, Inc. 43 f ~.~ luvcr Downtown Parking Study Recommendations • Develop and approve a set of Guiding Principles for downtown parking. The Guiding Principles will guide the future development of the downtown parking system, as well as provide reasonable constraints within which future parking issues can be addressed. • Steps should be taken to begin investigating options to generate sufficient revenue to fund future parking projects, such as parking in-lieu fees. Once recommendations are made, steps should be taken to include the provision in the city zoning code as soon as possible. This will help account for upcoming development projects and provide adequate time to generate sufficient funds for future parking projects. • Designate a single city department as responsible for downtown parking management. While the actual operation, maintenance and planning of the system may be handled by several city departments, the system will appear to have a single responsible department. • Implement a means where part-time and occasional downtown employees can purchase affordable permits relative to their occasional and/or part-time use. Examples include pre-purchased scratch off permits that are valid for specified days, or in-car meters. In-car meters are electronic devices that are preloaded with an amount of time. To use the device the parker activates the device and displays it on their dashboard. The activated device informs enforcement personnel that the vehicle has paid the appropriate fee. When the parker returns the device is turned off, thus the parker only pays for the time actually parked. • Continue to enhance the pedestrian facilities, including intersection improvements, to ensure adequate pedestrian paths exist to and from parking areas. • Continue improving lighting levels in downtown parking areas and major pedestrian paths. Work with community stakeholders to improve both real and perceived safety levels in parking areas and on pedestrian pathways. Parking area lighting should provide a minimum of 2.0 footcandles per square foot. • With respect to new developments, attempt to better utilize existing parking supplies prior to designing and constructing new parking September 2007 Carl Walker, Inc. 44 El ~Livcr Downtown Parking Study areas. As stated previously, there is currently enough unused parking to accommodate projected parking needs. Changes in the mix of businesses downtown (evening and daytime, retail and office, etc.) and any new construction should trigger the need to re-evaluate the parking supply and demand. • Develop a parking marketing program to include information for downtown visitors and businesses. Create downtown parking maps, detailing on-street and off-street parking supplies. Include downtown parking information on the City of Elk River website, and encourage other downtown organizations to include parking information. • Create and utilize lines of communication between the city and downtown businesses concerning parking issues. • Conduct an update of the parking inventory and occupancy surveys contained in this report. These counts should be updated as necessary (when new developments occur), and updates should be conducted annually at a minimum. • Should average short-term parking duration begin to exceed posted time limits, additional steps will be necessary to deter excessive length of stays. These steps could include vigorous parking enforcement or a combination of vigorous parking enforcement and paid parking. • Develop a system to monitor on-street parking turnover through periodic duration/turnover surveys and community "policing". Develop a notice that can be placed on vehicles by business groups to remind them of the two-hour time limits. • The surface parking lots north of Highway 10 should be enhanced to encourage downtown employees to use the lots in order to keep more of the convenient parking open for visitors. The costs associated with surface lot improvement or construction is far less than parking garage construction. The city should ensure all surface options are explored prior to moving forward with parking structure designs. The phased transition to a parking structure by constructing a surface lot on the site of the HRA owned buildings and the Elk River Meat Market would help delay the construction of a parking structure. September 2007 Carl Walker, Inc. 45 £l-..-~ EZivcr Downtown Parking Study The city should discuss the school district's plans for the administration building property. A surface lot on the school district property should be viewed as land banking, and not as a permanent downtown parking solution. As the downtown continues to develop, and new developments are constructed on available parcels (typically surface parking lots), a parking structure may be needed to provide for future parking demands. Alternatively, those spaces could be included within the new developments. The creation of a downtown parking structure should be viewed as an option for the future. Today, a downtown parking garage will likely not be financially viable, relative to the revenues and expenses generated. However, the value of a parking garage could extend beyond any revenues it generates by providing an incentive for downtown development. Ideally, the development of a downtown parking garage would coincide with the development(s) it is serving. Building a parking structure with the hope of attracting downtown development should only occur if sufficient downtown development warrants. Should developments not occur, a garage built on speculation could result in a severely underutilized facility. If a developer is interested in developing a portion of downtown, and sufficient parking supplies cannot be provided using other methods, then the city could propose providing the necessary parking along with the construction of the development. Other revenue streams for the municipal parking system should be explored. First, the city could seek the use of tax increment financing in the future. This would be a way to fund parking system expansion, and is used by many communities today. Second, the city could team with downtown developers in funding public parking facilities. Assuming the future demand patterns are favorable, a multi-use facility could help reduce city expenses. Finally, the city could create a parking fee charged to downtown developers to help fund the additional parking facilities. September 2007 Carl Walker, Inc. 46 Elk, ~~~ lLivcr Appendices Downtown Parking Study September 2007 Carl Walker, Inc. F.l '' l~ticr Downtown Parking Study Appendix 1 -Study Scope Phase 1- Existina and Future Parkins Conditions Task 1- Review Existing Data. Review pertinent parking and traffic studies, master plans, statistical data, annual reports, base maps, etc. provided by the City. Task 2- Initial Meeting. Meet with City officials to clarify study objectives, confirm the study area, and to discuss the work plan and study schedule. We will also walk/drive the study area in order to develop afirst-hand understanding of the parking and traffic systems. Task 3- Verification of Parking and Review of Policies. Verify the inventory of the current parking supply by type, allocation, restrictions and rates. Parking polices will be reviewed to determine if they restrict the maximum usage of the parking supply. Task 4- Interviews. Interview key property and business owners, developers, organizations, and City staff to determine key parking issues and concerns, determine and probable future development activities. It is anticipated that the City will identify the persons to be interviewed and will set the meetings to be conducted over the course of a single business day in conjunction with another scheduled visit to Elk River, ideally following the start up meeting. Task 5- Parking Surveys and Existing Parking Conditions. Prepare and coordinate parking occupancy surveys to be completed on an hourly basis for the parking within the study area. The data on parking occupancy will be adjusted as necessary to reflect conditions during a normally busy period downtown and compared to the effective parking supply. Parking demand ratios will be developed by land use category for the downtown area. This analysis of existing conditions will provide the base from which future parking conditions can be determined. Determine parking duration and turnover for all marked on-street spaces and City controlled off-street spaces within the study area. We will perform a turnover survey of parked vehicles on an hourly basis. From the data, we will determine the following: 1. The number of vehicles parking on street. 2. The average parking duration. 3. The average turnover of each space during the survey period. 4. The number of short-term parkers (3 hours or less) versus long- term parkers (more than 3 hours). 5. The number/percentage of parkers violating time limits. September 2007 Carl Walker, Inc. i Elk' Kiver Downtown Parking Study Task 6- Future Parking Conditions. Parking demand ratios will be used to determine the demand for parking associated with new, planned, and proposed projects and any other changes within the study area. The future demand for parking will be compared to the adjusted supply, parking surpluses and deficiencies calculated, and the best location(s) for parking expansion determined. Prepare an analysis of the amount of additional downtown development can be accommodated with the existing supply of spaces. Task 7- Interim Report. Prepare an interim report detailing existing and future parking conditions for review and comment by City officials. After review and approval of the interim report, we will proceed to Phase II - Parking Management and Conceptual Design Alternatives. Phase 2- Parking Management and Conceptual Design Alternatives Task 1- Based on the review of current parking conditions in the study area, future projections, and the information provided during the discussions with the stakeholders and City staff, we will prepare alternative approaches to meeting existing and/or future deficits. The alternative approaches may include a combination of changes to current parking management policies, procedures, and control of the spaces, lot reconfigurations, as well as the development of additional parking facilities. Task 2 -Evaluation of Parking Structure Sites. Potential sites for parking structures will be identified and evaluated. Evaluation criteria will include, but not necessarily limited to, the following: • Parking Needs • Distance to Primary Destinations • User Groups Served • Size, Current Use and Topography of the Site • Parking Efficiencies and Spaces Replaced • Site Access and the Intermixing of Vehicles and Pedestrians • Visual Impact/Architectural Compatibility/Historic Integrity • Shared-Use Capabilities • Development Potential of the Site • Mixed-Use Possibilities Task 3- Site Selection. Based on the Task 2 evaluation, preferred sites for further study will be selected. September 2007 Carl Walker, Inc. F.1 k~vcr Downtown Parking Study Task 4 -Conceptual Parking Layouts. Concept designs for parking facilities will be developed. The concept designs will depict the parking structure footprint and relationship to the site, number of parking bays, space layout, circulation, ramping, elevators and stairs, entry/exit locations, parking control equipment, accessible spaces, and commercial space (if applicable). Task 5 -Final Designs and Cost Estimate. Review the plans with you via telephone and discuss any modifications to be incorporated into final concept designs. Provide conceptual cost estimates for each design. Task 6 -Interim Report. An interim report will be prepared outlining the Phase 2 tasks above. Phase 3 -Final Report and Presentation of Study Findings Task 1 -Draft Final Report. A draft final report will be prepared covering Phases 1 and 2. A meeting will then be held with City staff to discuss findings and recommendations in the report. Task 2 -Final Report. A final report will be prepared detailing the supply/demand findings, parking management recommendations, and alternatives analysis. Issues discussed in the review meeting will be incorporated into the final report. Copies of the report will be issued to the City. Task 3- Final Presentation. Prepare a summary presentation of the findings of the study. Make one final presentation and discuss the findings. September 2007 Carl Walker, Inc. El-..-'~ fuvcr Downtown Parking Study Appendix 2 ~. o ~~ o E x v, C ~ y y' a ~ `c ~ = E z M `c d ~ C A R C Q l C J l Y C ~ R d C a e a e a= o a D o 0 N~ N O H O O M O O v~n° ono o v~ v C')N (D oov rn ~~ n ~ (h C7 N N N M 0 0 O a a e a o 0 0 0 o e I N (O W N M M ~ N O LLN") o°° o 0 0 ° e o o I M O O O N O O f`') O N V ~ ~ ANN ~ c] tD LL] O R N~ LL~ O M ~ M (h O m O 7 O ~ (h ~ V' ~~~ N t0 N N ~ O C O C'1 I~ N ~ N ~ N lf1 N O N (D [") W N ~ M I t0 1~ ~ S O N O M ~ M T 7 N Y A a c 0 ~ O O Z N ~ ~ >_ T a' d Y 7 W Vl O ~ ~ ~ ~~ O V o ~ ~ 7 °v D v, e ~ ~ T °o~ A ~ 7 0 A v S e '~ m N ~a L.L.L.. L L L y N y y 7 v t0 f0 d (n (n (n Z Z Z C~ ~ W 3 W ~ O U j C ? ` ~ N a fA d ~ Q ~ N a ~ C~ N C) a N O Y O d (D ~ N O ~ ~ i ~ ~ ~ ~ J Y C O September 2007 Carl Walker, Inc. FLivcr Downtown Parking Study Appendix 3 ~ e v o e o co = E m n i ° rn M O ~ N d ` o a ~ E E N N N v = Z M O d O tD m M r c O H O 0 7 F T y V C m a a o o e o a o o a e o v o o a o e~ o 0 d 7 OJ N M N N l0 a O V O 1~ C (O N N? V O OD > M t0 N R ~ M V ~O N S N r M t0 f~ 47 In W O a ~ 0 T U Y C R~ O 0 0 0 0 o a o 0 0 o a o a o 0 o a o a e . y W W 4] O O V " <f W O N tD VJ W O M W a U ~ h N LL] ~i i C t0 t0 V N ~ I~ W~ r W N W r N U O 0. A N N ~ M W W W O W O N N M 7 Q> W °~ O O .- N ~ N ~ ~ ~ ~ . - N ~ e+1 a a N~ O W W W W O W O N N W M~ O OJ ,p e O O N ~ N (p M ~ M N N ~ ~ ~ ~ OD to N Q 4' W N O ~ O ~ O c0 O I~ O N M r a r O n CC o O ~ M h M .- N M ~ N N •- ~ ~ ~ O rn M ~ a N r M O N r O~ ~~~ N N W W W T p ~ M N ~ ~ ~ ro N e N Q O I~ N N W r O N O W S W ~ r W ~ LO h ~ M A o O M N (p M ~ N N ~ N N ~ ~ '- N M h Q O O W N N M ~ et ~ r I~ M N f0 N N OD ~ N °\ O ( p C ') ') N c r ~ ~ N . - M N O ~ M O N K ~ QI O M ~ ~ f~ N O W r N M N W ~ .- N O v O M in O Q C a N ~ M N N LL] f~ W M ~ ~ N a 0 a N O (O ~ M V N N W N ~ ~- ~t N 7 v N T W ~ ~_ N V W W W O M~ CO N O a f O V N OD c0 ~ c0 ~ O O~ C O. tE W ~(] UJ (O N V h N V N M I M ~ M ~ M ~ Y U ° N N ° a 3 ~ m m a YY m m °? d d d a~ oo m m o o a~ : 8 a N > jp ~ ~p ~p ~p N ~p N (Q N O O N ~ U O >. ~ ~ ~ F H > > ` ` > > > ` ` ` o .? o ` ? ? v v ` ~ ` t~ O C .V _ 0 o 0 o a a a a a v a v a a ~ rn a p^ d . E~ N J UJ Z ~ N ~ N (`~ ~ N M ~ N M d' ~ d v Q O ~ J W a d' ~ N N ~ ~ ~ ? 7 C f0 cD tD t0 a0 ` o O. m c N a Z N Y f/1 c j O O N IA l!) 1fl Q N 1~ W N N .- ~ ~ V a a t0 (O tD cD eo ~ m d ~ Q m J > >~ d f/1 m Y _>. x ~ Y U W 77 O September 2007 Carl Walker, Inc. Previous permits issued with no charge: 341 (Including 110 to First National Financial Services and 54 to the Bank of Elk River) Current permits issued: 57 to Downtown businesses including some to the Bank of Elk River, and 31 to First National Financial Services If a change is going to be made with permitting, now is the time. Any delay will cause us to be mid-permit process, and that would be a difficult time to make the change-both in terms of what the Police Department, would do at the end of September when the current permits expire-and how would we pro-rate the monthly charge through the end of the year. With residential parking, I would request that the City Council remain consistent and committed in following the recommendation of the Parking Task Force, staff and most of the business community in keeping the residential parking across Highway 10 on the west side of Jackson. There has been discussion of allowing certain rental property to use the King Lot for residential parking. This is problematic for a number of reasons. First-The greatest demand for space is still daytime parking spots for employees. Resident parking was moved across Highway 10 for that reason. The City should stay with that move as it positively impacts the larger section of our downtown population. Second-The study really hammers home the point that policies and enforcement need to be uniform for all entities involved. If one small section of population is allowed to park in the King lot, how will this be explained to the Cinema Block residents, the Bluff residents and the Jackson Square residents that they can't park there? They will all be required to walk across to the overflow residential lot and will walk much farther than the other residents. I am not confident that offering special privileges in the interest of a very small faction is an appropriate course of action. Last-The report has suggested, and I agree, that we look at improving the Highway 10 Residential Parking Area to make it safer, and more appealing to residents. Suggestions include: • Decorative metal fencing-around the perimeter of the lot, being black steel or black aluminum in design, approximately 48" tall -This would define the lot, give those who park there some security, and would add a nice aesthetic touch to the lot itself. (48" tall, black aluminum is approximately $40 a foot installed. To fence half the lot- 35 spaces, would require 800 feet of fence or $24,000) {One quote only by phone} Move the primary entrance -The current entrance is right next to the Jackson intersection and has been the cause of several accidents and other traffic problems. That entry could be closed, and the more westerly vehicle entrance could be used or another one added. • Install a security camera - Place a recorded camera on a pole to monitor and record events at the lot-making record of anything that might occur. • Install a remote call box - Install a remote call box in the lot for emergencies. Evaluate gate/card access -Price out gate card access for the lot to determine fiscal feasibility. This might be an inexpensive way to keep unwanted vehicles out of the reserved area. Intersection safety enhancements -Evaluate our ability to add any pedestrian safety features to the intersection. This will require some dialogue with the State Department of Transportation. 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