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Home My WebLink About12-17-18 City Commission Packet Materials - A5. Downtown Strategic Parking Plan Update1 Commission Memorandum REPORT TO: Honorable Mayor and City Commission FROM: Chuck Winn, Assistant City Manager MEETING DATE: December 17, 2018 SUBJECT: Downtown Strategic Parking Plan Update AGENDA ITEM TYPE: Action RECOMMENDATION: Listen to presentation, ask questions of staff and provide any comment or direction as appropriate. STRATEGIC PLAN ALIGNMENT: This action furthers at least three goals of Bozeman’s Strategic Plan as follows: 2.2 Infrastructure Investments - Strategically invest in infrastructure as a mechanism to encourage economic development. a) Identify Commercial/Industrial Infrastructure Needs. Identify sites for new or redevelopment in areas that lack adequate infrastructure and develop new financing strategies to fund these investments. 4.1 Informed Conversation on Growth - Continue developing an in-depth understanding of how Bozeman is growing and changing and proactively address change in a balanced and coordinated manner. b) Develop and Align Infill Policies. Develop, adopt and align city policies for infill and redevelopment, economic development and public infrastructure. 4.2 High Quality Urban Approach - Continue to support high-quality planning, ranging from building design to neighborhood layouts, while pursuing urban approaches to issues such as multimodal transportation, infill, density, connected trails and parks, and walkable neighborhoods. c) Parking Management by District. Develop a comprehensive, integrated approach to parking management for the downtown, midtown, university, and other districts. Consider a range of solutions including both on-street parking and parking garages. 4.3 Strategic Infrastructure Choices - Prioritize long-term investment and maintenance for existing and new infrastructure. 750 2 c) Complete a Downtown Infrastructure Plan. Complete a plan for downtown infrastructure and prioritize improvements in the various Capital Improvement Programs (CIPs). BACKGROUND: Bozeman has a vibrant and growing downtown with a long history of free 2- hour parking on the block faces on Main Street and the unit blocks of most side streets. Parking Officers enforce the adopted parking regulations which help ensure a healthy turnover of cars which, in turn, creates opportunities for customers of downtown businesses to find parking. Over the years this parking arrangement has, for the most part, facilitated a healthy supply of parking spaces. However, as Downtown continues to experience significant growth, the pressure on the limited supply of parking spaces has also continued to increase. The City of Bozeman with the assistance of the Bozeman Parking Commission (BPC) has worked to increase the supply of available parking by purchasing surface lots and building the Bridger Park Garage in 2009. Determining the exact amount of parking supply needed and management of the parking supplied is as much an art as it is a science. A person’s perception about parking availability can differ by the season, time of day, type of business patronized, feelings of safety and, even by the type of vehicle driven. A person’s background and places they have lived also shape perceptions. It is safe to say people on the same street on the same day can have different perceptions of parking availability. Still, there is a science that uses data to predict the amount of parking needed based on factors such as occupancy type, location, and climate among others. Recently Bozeman has begun to collect and use real time data to help the community make good parking decisions. We will continue to refine our processes as we look toward the future. At the City Manager’s direction, we have established a cross-functional team to look at the parking situation in Bozeman’s downtown and other areas of the city to better understand the issues, and develop options and inform decision makers. The team has identified the following issues as central to the parking conversation in Bozeman and is drafting work plans for each initiative: • 2016 Downtown Strategic Parking Management Plan • Special Improvement District 565 • Bozeman Unified Development Code • Cash-in-lieu of Parking Program • Available Financing It is not a surprise that each of these dynamic issues are interrelated. Modifying one without understanding the impacts to another can result in unintended consequences and negative impacts to the parking program. Downtown Strategic Parking Management Plan: In 2015 the Bozeman Parking Commission retained Rick Williams Consulting to conduct an overall evaluation of the downtown parking system and develop a comprehensive strategic parking management plan (Plan). This evaluation included review of the existing parking operation and assets, previous study findings, and municipal codes. Also included were in-depth discussions with the Parking Commission and six public forums were held to solicit community input. The draft Plan contained 26 recommended 751 3 actions and implementation schedule (Exhibit 1). The actions are divided into three priority levels and are not necessarily sequential. On July 18, 2016 City staff and Mr. Williams presented the draft report to the City Commission. After much discussion, the City Commission voted 4-1 to accept the Downtown Strategic Parking Management Plan and directed staff to continue to work with the Parking Commission to implement the plan. The work is ongoing and staff is making progress (see Exhibit 2). Special Improvement District (SID) 565: In July 1978, the City Commission passed Resolution No. 1808 creating a Special Improvement District (District) in the Downtown known as SID 565. The purpose of SID 565 was to assess properties within the District $750,000 over 20 years “for the purpose of establishing off-street parking facilities in the City of Bozeman, Montana.” The boundaries jogged in and out but were roughly what is known as the downtown urban core area (Third to Church and Lamme to Olive). The assessment formula for SID 565 was driven, it appears, by state law regarding creation of special improvement districts to pay for off-street parking.1 Undeniably, the statutory formula is complicated as it must take into account each property’s area, onsite parking provided, distance to other parking, floor area and zoning code parking demands. Funds from SID 565 were used to purchase the former Carnegie Lot, now known as the Black Ave. Lot, and the middle third of the unit block of the south side of East Mendenhall Street between Black and Tracy Avenues in 1979. The final property owner assessment payments associated with SID 565 were made in 1998. Over the years, the City has administratively provided parking space credits to property owners based on the parking demand component of the SID 565 formula. This parking demand component was, in turn, based on the City’s zoning code parking requirements in place at the time of creation of the SID. These “phantom” parking spaces have been used to gain compliance with the parking minimums outlined in the Uniform Development Code (UDC). The UDC provision regarding SID 565 can be found at 38.540.050.A.3.b(4), BMC. Of particular interest in the discussion of the administrative grant of credits, is the UDC provision that states, “In the event that a new use or an expansion is initiated on any portion of real property or improvements are made subsequent to the assessments for SID No. 565 or other similarly adopted improvement districts, then parking space requirements must be satisfied prior to initiation of those new or expanded uses.” The UDC also contains an exemption from parking requirements for the first 3000 sq. ft. of floor area. This exemption combined with the “phantom” spaces relieves all but the largest downtown properties from needing to provide onsite or offsite parking. The lack of clarity resulting from decades of assumptions relating to parking space entitlements has contributed to confusion and disagreement that need to be rectified. City staff is drafting a set of recommendations that we will bring to the City Commission for discussions in 2019. Cash-In-Lieu: The purpose of a cash-in-lieu (CIL) of parking program is to allow developers to buy out of requirements to provide a minimum number of parking stalls for a given project.2 This 1 See 7-12-4165, MCA (requiring the City Commission to consider seven factors in determining benefit). 2 Cash-in-lieu for the B-3 zoning district is authorized pursuant to 38.540.050.A.3.b, BMC. 752 4 typically reduces development costs and provides options for higher density development. CIL rates are typically related to the market cost of building structured parking but are usually set at levels less than the cost for a developer to provide parking themselves. When correctly structured, CIL programs can reduce development costs making projects more economically feasible. CIL fees collected are deposited in a restricted account used by the City to fund development of new public parking facilities which, when planned and executed properly, can maximize the efficient use of land for shared parking assets. In Bozeman, cash-in-lieu rates are set by the City Commission through resolution. Rates are currently set at $5000 and were last updated in 1999. This rate reflected the realities and costs of surface parking in Bozeman nearly 20 years ago. Staff recently worked with the Parking Commission to adopt BPC Resolution 2018-04 which recommends increasing the rate to more accurately reflect the current development climate and cost of purchasing property and building structured parking. Unified Development Code (UDC): City parking requirements begin in the UDC. Over the last two decades, the demand for parking has been monitored and strategic revisions to the municipal code were made to better align available pubic parking to actual parking demand. The UDC generally establishes parking requirements by use with a certain number of parking spaces required per increment of demand. The types of uses are generally applicable throughout the community. The existing code has several special reductions that are unique to the B-3 zoning district. These reductions began with a research study in 2004 looking at different parking behavior between suburban and downtown environments. Additionally, the 2009 Downtown Improvement Plan recommended many parking requirement reductions that were later incorporated as UDC revisions. The current parking standards and processes are the result of many years of cumulative changes and would benefit from an overall review and update to address the needs and trends of today and into the future. Reasonable access to any property is necessary to its successful use and parking is part of that need. Today, a significant amount of downtown land is being used for surface parking (Exhibit 3). Consideration of changes to UDC minimum parking requirements should include, at a minimum, an evaluation of the CIL program, current and future parking inventory, and enhancement of non- vehicle based transportation systems. Presently, staff believes parking requirements as well as programmatic updates could include at a minimum: • Removing all reference to SID 565 and update the cash-in-lieu of parking program; • Considering a simpler blended rate(s) for provision of parking rather than the detailed breakout of uses in the current code; • Update rates taking into account the various public parking assets that are available downtown; • Review and revision for alternate modes of travel such as biking or transit; • Consider adding current unmanaged public lots to the managed inventory; • Consider the benefits of a parking benefit district around the Downtown; and • Considering possible impacts of ride sharing and autonomous vehicles. 753 5 It is also important to note that the 2019 Downtown Bozeman Improvement Plan, currently underway, is considering several critical parking dynamics including recommendations to modify certain UDC parking requirements. The draft plan, and any potential recommendations, will come before the City Commission in early 2019. Financing: There are several ways to fund a successful parking program. Bozeman’s current parking program is an enterprise fund primarily paid for through citation revenue and parking leases (long-term and monthly). The debt payment on the parking garage is funded utilizing tax increment financing by the Downtown Urban Renewal District and will be retired in 2032. Funding Options: Paid On-Street Parking. One method widely used throughout the country is charging for on-street parking. Bozeman used parking meters between 1946 and 1980. They were removed over concerns about the impact of construction of the Main Mall – and its acres of free parking – on the Downtown. Charging for on-street parking in the urban core continues to be a heated issue. New technology has changed on-street parking and gone are the days of coin operated meters. The newer systems – like recently installed in the Parking Garage – use credit cards and mobile apps to pay for the exact amount or parking needed. Also, since parking is a commodity, the rates can be adjusted based on demand and other factors. Rates can be set differently for periods of high demand and lowered, or eliminated altogether, when there is little or no demand. Special Improvement District (SID). As discussed above, Bozeman has previously utilized a SID to fund parking asset acquisitions. This financing method could be used again to fund any number of parking improvements, land purchase(s), and structured parking construction. An additional benefit to this type of financing option is that boundaries can be set to include only those properties that would benefit from the funding and assets funded by the district. Sale of Existing Assets. The City owns 4 surface parking lots and other property assets that could be sold to provide funding for other improvements. For instance, selling a couple of smaller lots could allow the construction of a larger lot in a more advantageous location. Parking Garage and Surface Lot Charges. Currently the City provides free 2-hour parking in the garage ($1/hour after that) and 2 free hours in our four surface lots with no options to stay longer. We could consider charging from minute 1 and raising the hourly charge from $1 to a market rate. We are considering those options in the context of the greater parking discussion. Parking Benefit District. Investigate a system of actively managed parking in currently unmanaged areas around Downtown Bozeman in an effort to expand downtown parking availability. UNRESOLVED ISSUES: There is no such thing as free parking – someone pays for it. It is expensive to acquire, maintain and manage, but it is one of our downtown’s most valuable assets. Determining the “right” answers for funding Bozeman’s parking program will require a robust 754 6 community conversation and continuing involvement of the BPC, the Downtown businesses, property owners, and City Commission. FISCAL EFFECTS: The current revenue model and inputs (fines, permits, parking fees in the garage, etc.) do not provide sustainable funding for the community’s parking function. Our goal is to provide sustainable and reasonable funding for the program including the acquisition of new assets and proper maintenance of existing assets. A successful funding plan will likely include several different funding sources rather than one large source. Attachments: Exhibit A: Parking Plan Action Items Exhibit B: Parking Plan Tracking Report compiled on: December 10, 2018 755 756 757 758 759 760 761 762 763 COMPLETED PENDING HOLD/NOT STARTED STRATEGY DESCRIPTION PROJECTED COMPLETION ACTUAL COMPLETION COMMENTS 1 Formalize the guiding principles as policies within the parking and transporation system plan. Aug‐16 Adopted by the BPC in 8/2016. 2 Adopt the 85% rule as the standard for measuring performance of the parking supply and triggering specific management strategies. Aug‐16 Adopted by the BPC in 8/2016. 3 Strengthen the role of the Parking Manager and the Parking Services Division ‐ to better integrate with the Community Development and Economic Development planning. On‐Going On‐Going PPM attending DRC meetings, and offering data/comment as staff review. 4 Establish a policy for adjusting rates (on and off‐street) Oct‐16 Adopted by the BPC in 10/2016. 5 Establish a Capital Maintenance Reserve Fund Jul‐16 CC Approval 8/14/17 BPC approved Resolution 2017‐03 (6/2017); City Commission approved Resolution #4837 on 8/14/17. 6 Re‐evaluate and restructure current cash‐in‐lieu program. TBD PPM is working with the Comm. Dev. Department; CDD has assigned this a 'fall 2017' priority status; ACM Winn is re‐assembling an internal "Parking Strategy Team" (at instruction of City Manager); Internal 'Parking Strategy Team' is operating, strategies regarding #6,7,8 are expected to be forthcoming (6/2018); BPC adopted Resolution 2018‐03 recommending CIL increase to $25000 (6/2018),to be forwarded to CC for action. Active Projects: Strategic Parking Management Plan August 2018 764 COMPLETED PENDING HOLD/NOT STARTED STRATEGY DESCRIPTION PROJECTED COMPLETION ACTUAL COMPLETION COMMENTS Active Projects: Strategic Parking Management Plan August 2018 7 Re‐evaluate code based minimum parking requirements PPM worked with the ED dept on changes to the minimum parking standards (UDC) in the B2M zone, approved by CC 9/2017; PPM actively attending internal DRC meetings to offer guidance on policy issues; ACM winn is re‐ assembling an internal "Parking Strategy Team" (at instruction of City Manager), 3/1/18; Internal 'Parking Strategy Team' is operating, strategies regarding #6,7,8 are expected to be forthcoming (6/2018) 8 Re‐evaluate and clarify the purpose and intent of the current code section regarding Special Improvement District # 565. TBD PPM is waiting on the Admin./Legal Depts. For further instruction on this isue; ACM Winn is re‐ assembling an internal "Parking Strategy Team" (at instruction of City Manager), 3/1/18; Internal 'Parking Strategy Team' is operating, strategies regarding #6,7,8 are expected to be forthcoming (6/2018) 9 Implement a Facilities Maintenance Plan. 12/30/2018 On‐going PPM is completing research for facility mgt. best practices, starting to draft Fac. Mgt. plan, 8/17; 765 COMPLETED PENDING HOLD/NOT STARTED STRATEGY DESCRIPTION PROJECTED COMPLETION ACTUAL COMPLETION COMMENTS Active Projects: Strategic Parking Management Plan August 2018 10 Develop a reasonable schedule of data collection to assess performance, including an accurate on and off street inventory (public and private) and an occupancy/utilization analysis. 5/1/17 & 7/1/17 COMPLETE Data collection ocurred, following the Strategic Parking Management Plan, Spring and Summer 2017; WTI report (draft) submitted 9/2017, under staff review at this time; Final comments submitted to WTI for modification, 10/23/17; The final WTI Parking Occupancy Report was released on 11/14/2017, analysis is underway ‐ including review/memorandum from RIck Williams Consulting. 11 Identify off‐street shared use opportunities based on data from strategy 9. Establish goals for transitioning employees, begin outreach to opportunity sites, negotiate agreements, and assign employees to facilities. On‐Going 1st shared use agreement negotiated and approved with Big Sky Western Bank (June 2017); Completion of the WTI Parking Occupancy Study on 11/14/17 is expected to demonstrate areas where new shared space agreements will be most effective; Shared Use Agreement and GIS Layer complete 6/1/18; PPM is identifying several private parking sites as potential areas for shared use parking agreements, initial presentation expected at 12 Complete the 2008 Parking District Identification Signage/Branding Plan On‐going Work has begun to design and implement lot specific signage on "P" towers. Likewise, the PPM is working to develop additional technology related and regulatory signage for the garage and lots based on the 2008 format. 766 COMPLETED PENDING HOLD/NOT STARTED STRATEGY DESCRIPTION PROJECTED COMPLETION ACTUAL COMPLETION COMMENTS Active Projects: Strategic Parking Management Plan August 2018 13 Clarify current on‐street parking signage, particularly in areas where unlimited parking is allowed. Consider incorporating the current City parking logo into on‐street signage. On‐going PSD, in cooperation with the GIS Department, has started an inventory of parking signs and zones within the B‐3. Parking Services Division submitted completed hand recorded field map of B‐3 to GIS, 10/1/18; Estimated completion is late November 2018. This data should demonstrate where additional and/or clearer signage is needed in the B‐3. 14 Rename all publicly owned lots and garages by address. COMPLETED 8/12/18 Resolution 2018‐06 was presented and approved at the 8/12/18 meeting of the BPC. 767 COMPLETED PENDING HOLD/NOT STARTED STRATEGY DESCRIPTION PROJECTED COMPLETION ACTUAL COMPLETION COMMENTS Active Projects: Strategic Parking Management Plan August 2018 15 Upgrade the access/revenue control system at the Bridger Garage. 5/1/2018 RFP Selection Committee is in final stages of award reccomendation, as of 9/7/17. Following 9/2017 bid award, staff is engaged in final contract negotiations and project planning; Contracts signed 10/16/17 ‐ Scope of Work signed 10/27/17; Project launch expected by 12/1/17: Project kick off call held 11/10/17, data conversion and preliminary staff training underway; Data conversion is nearing completion of second data extraction, staff training is underway, transition planning on‐going; estimated GOLIVE of 4/28/18; T2 Software and all technology (inc. LPR) installed; continuing to make operational tweaks, and remedy fixed‐camera accuracy ("context") issues as of 9/6/18. 16 Install a vehicle counter system at Bridger Garage and at the Surface lots.2/1/2019 On‐Going Installation of vehicle counting system has been moved to "Phase II" of the 2018 Parking Technology Project; following successful completion of t "Phase I" ‐ T2 and fixed/mobile LPR. 17 Establish best practice protocols and performance metrics for existing enforcement personnal and support enforcement with appropriate technology. On‐going Court/Appeals Packet (4/17); Uniform Policy (8/17); Enhanced Safety Procedures; Security Camera Policy; LPR Policy; PEO Assigned Routes Policy; 768 COMPLETED PENDING HOLD/NOT STARTED STRATEGY DESCRIPTION PROJECTED COMPLETION ACTUAL COMPLETION COMMENTS Active Projects: Strategic Parking Management Plan August 2018 18 Expand bike parking network to create connections between parking and the downtown to encourage employee bike commute trips and draw customers to sowntown businesses. On‐going PPM met with City's 'bike/pedestrian' consultant to open the door for potential new partnerships; follow up planned for September 2018 19 Explore changes to existing residential on street permit programs and evaluate potentially implement new residential parking permit districts in the neighborhood northa nd south of the downtown commercial district. 1/1/2019 On‐going City Commission requested (11/20/17) that this effort be complete, with recommendation to them, by late Spring/Early Summer 2018. PPM will provide preliminary repor to BPC on 3/8/18, final report on 4/12/18; Presentation to City Commission on 4/23/18; Post‐CC report, the PPM continues to work on revised code changes and RPPD determinations for eventual resubmittal to CC, 1/2019; 20 Evaluate on street pricing in high occupancy areas. No activity at this time. 21 Explore expanding access capacity with new parking supply and/or transit No activity at this time. 22 Develop cost forecasts for preferred parking supply and shuttle options. No activity at this time. 23 Explore and develop funding options. No activity at this time. 24 Explore the implementation of on street pricing. No activity at this time. 25 Consider consolidating current users of the Carnegie Lot into the Bridger Garage. Sell the Carnegie Lot to fund acquisition of lbetter located parking parcels and/or construction of a parking garage. No activity at this time. 769 COMPLETED PENDING HOLD/NOT STARTED STRATEGY DESCRIPTION PROJECTED COMPLETION ACTUAL COMPLETION COMMENTS Active Projects: Strategic Parking Management Plan August 2018 26 Initiate new capacity expansion. On‐going The PPM is participating in several separate economic development projects that would create new public parking facilities (7/2018). The internal parking strategy team has identified this as a priority action, and a siting/funding plan is being developed for further comment and action by community stakeholders ‐ including the BPC. 7/30/18; 770 43,599 39,605 38,315 29,112 31,474 25,994 22,229 22,042 20,727 20,317 20,029 19,61518,633 17,838 17,167 16,66916,342 16,069 15,163 14,595 14,504 11,990 10,860 8,856 8,851 6,068 50,115 34,688 31,110 29,508 19,168 19,428 25,298 13,299 13,798 13,671 13,099 12,847 12,798 12,14711,857 11,490 11,230 9,470 9,351 10,993 25,298 10,769 10,619 10,428 8,254 10,067 10,060 8,256 7,9597,936 7,826 7,683 7,4477,250 7,172 6,711 6,837 6,495 6,405 6,322 6,160 6,041 6,060 5,734 5,561 5,443 5,290 5,169 5,0184,833 4,705 4,635 4,485 4,362 4,308 4,138 4,050 3,688 3,570 3,438 3,341 2,982 2,814 2,731 2,7091,895 E MAIN ST E LAMME ST E OLIVE ST W MAIN ST W KOCH ST W OLIVE ST E MENDENHALL ST W BEALL ST E BABCOCK ST W LAMME ST W CURTISS ST W VILLARD ST S BLACK AVE S TRACY AVE W BABCOCK ST S GRAND AVE S 4TH AVE N 5TH AVE N 3RD AVE S CHURCH AVE S WILLSON AVE S BOZEMAN AVE E BEALL ST N BLACK AVE N TRACY AVE N ROUSE AVE DAVIS ST W MENDENHALL ST N GRAND AVE N CHURCH AVE S 3RD AVE N WILLSON AVE S WALLACE AVE N WALLACE AVE N BOZEMAN AVE LINDLEY PL PLUM AVE S ROUSE AVE E VILLARD ST PERKINS PL E KOCH ST N MONTANA AVE BOGERT PL BUTTONWOOD AVE S 3RD AVE LegendCity LimitsParking AreasMendenhall Parking GarageSouth Lot of Federal BuildingAdditional Parking Areas Parking Areas (800 Ft Buffer) 0 1,000 2,000500FeetMap created by the City of Bozeman GIS Dept. and is intended for planning purposes only - 8/6/2018 ´ B-3 B-3 B-2M 771