Edmonton (Alta.) - 1983-1984 - Downtown parking study [working papers 1-3] (1984-02) by Edmonton Tower Resource Centre Online Library

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DOWNTOWN PARKING STUDY W.P. #1 State-Of-The Art Review W.P. #2 Parking Supply and Demand W.P. #3 Issue Identification W.P. #4 (WilIPAPtY .550hAtAnt

.usizAu The City of Edmonton

DOWNTOWN PARKING STUDY W.P. W.P. W.P. W.P.

#1 State-Of-The Art Review #2 Parking Supply and Demand #3 Issue Identification #4 NOP:PitWnt I.J6RARY The City of Edmonton

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DOWNTOWN PARKING STUDY Working Paper #1 State-of-the-Art-Review TSR/46/83

Prepared by: Transportation Management Department

TABLE OF CONTENTS PAGE NO. PREFACE LIST OF FIGURES

LIST OF TABLES

iii

CHAPTER 1 - INTRODUCTION

1.1 1.2 1.3 1.4

2 2 4 6

Objective Scope Organization Working Paper #1 Overview

CHAPTER 2 - INVENTORY OF PARKING MANAGEMENT TACTICS 2.1 Parking Management Tactics Affecting Supply 2.2 Parking Management Tactics Affecting Use 2.3 Parking Managemen Tactics Affecting Distribution CHPATER 3 - APPLICATION OF TACTICS IN NORTH AMERICA 3.1 Application of Supply Tactics 3.2 Application of Use Tactics 3.3 Application of Distribution Tactics 3.4 Edmonton Parking Promotion Program CHAPTER 4 - SUMMARY AND CONCLUSIONS 4.1 Summary 4.2 Conclusions APPENDIX I

BIBLIOGRAPHY

Parking Standards and Management Tactics in Selected North American Cities

9 9 16 22 26 26 30 32 33 34 34 35

PREFACE

This report is the first of four (4) working papers comprising the Downtown Parking Study for the City of Edmonton. The Transportation Management Department initiated this study on the basis of parking objectives and goals stated in Appendix I of the Downtown Area Redevelopment Plan Bylaw #6477, and Bylaw #6905 to Amend the General Municipal Plan.

Terms of Reference for this study were submitted to City Council on 1983 10 18 for information.

LIST OF FIGURES PAGE NO.

FIGURE 1.1 STUDY AREA

FIGURE 1.2 DOWNTOWN PARKING STUDY ACTIVITIES FLOWCHART

FIGURE 3.1 PARKING MANAGEMENT TACTICS APPLIED IN SELECTED NORTH AMERICAN CITIES

FIGURE 3.2 PARKING STANDARDS IN SELECTED NORTH AMERICAN CITIES

111

LIST OF TABLES PAGE NO.

TABLE 2.1

PARKING MANAGEMENT TACTICS TO AFFECT THE SUPPLY OF PARKING

TABLE 2.2

PARKING MANAGEMENT TACTICS TO AFFECT THE USE OF PARKING

TABLE 2.3

PARKING MANAGEMENT TACTICS TO AFFECT THE DISTRIBUTION OF PARKING

1 CHAPTER 1

INTRODUCTION

Parking is an integral component of an urban transportation system, and can strongly influence the economic and recreational viability of a city's central business district (CBD). The development of effective parking management policies, strategies and tactics to meet employee (commuter) and shopper/visitor parking requirements in the CBD is an important and fundamental city planning activity.

Traditional approaches to resolving parking supply problems in the CBD have typically involved the construction or addition of parking facilities. Increased competition for land within the CBD and/or potentially more productive land uses can make the construction or long term designation of open land for parking uneconomical in today's city. Also, additional parking will not necessarily increase the availability of short term parking for shoppers if it is equally available to CBD employees (commuters). Consequently, it is desireable to identify and evaluate a wider range of parking management alternatives to ensure that the proposed solutions are not only cost effective but successful in their intent.

The Edmonton Downtown Parking Study is the first comprehensive analysis of CBD parking supply, demand and issues in this city. The study is predicated on the identification of parking management strategies to meet the short/long term parking requirements in the CBD within a framework that reflects the city's overall transportation, land use and economic development objectives.

2 1 .1 OBJECTIVE

The objective of the Downtown Parking Study is to define parking standards to replace the existing interim standards and to recommend parking management tactics which will aid in achieving the City's land use and transportation goals and promote the economic viability of the Central Business District (CBD).

Specifically, the Downtown Parking Study will develop, evaluate and recommend short range (5 year) parking standards and other parking management tactics to support the land use and transportation system objectives and policies of the Downtown Area Redevelopment Plan Bylaw #6477 and Bylaw #6905 to Amend the General Municipal Plan.

1.2 SCOPE

The area for the Downtown Parking Study coincides with that designated for inclusion within the Downtown Area Redevelopment Plan as illustrated in Figure 1.1. The boundaries are described below:

Starting at 97 Avenue, north along the western boundary of the CPR railway lands, north along 111 Street, east along the northern boundary of the CNR railway lands, south along 97 Street, east along Jasper Avenue, south along the eastern boundary of the Convention Centre site, west along the top of the bank of the River Valley, north along 100 Street, west along MacDonald Drive, south along 101 Street, west along 99 Avenue, south along Bellamy Hill Road, west

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4 along 97 Avenue, south along 106 Street, west and north of and parallel to River Valley Road, to the point of commencement at the CPR railway lands. Where the boundary line follows streets, it shall be deemed to follow the centre lines thereof.

1.3 DOWNTOWN PARKING STUDY ORGANIZATION

1.3.1 W.P. #1: State-Of-The-Art Review

Strategies and tactics relating to the supply, use and distribution of parking will be identified and discussed. Specific applications in the downtown areas of selected major municipalities in Canada and the United States will also be reviewed in terms of effectiveness, implementation process, etc.

1.3.2 W.P. #2: Identification of Parking Supply and Demand

A 1983 inventory of off-street and on-street parking facilities in Edmonton will be generated, and detailed in terms of type, capacity, pricing, distribution and present usage patterns. Supply/demand estimates for 1990 will also be generated to identify potential areas of parking supply surplus or deficiency

1.3.3 W.P. #3: Issue Identification

Edmonton CBD parking issues and concerns pertaining to the interests of the retail and service sectors, the development and property management sectors, the consumer, and the City's Administration will be identified and discussed.

State of the Art Review

Identification of Parking Supply. and Demand

Identification and Evaluation of Alternative Parking Standartill and Management Tactics

Final Recomendations

Issue Identification

DOWNTOWN PARKING STUDY ACTIVITIgg FLOWCHART FIGURE 1.2

6 1.3.4 W.P. #4: Identification and Evaluation of Alternative Parking Standards and Management Tactics

Alternative parking standards will be evaluated in relation to roadway capacity for vehicles entering the Downtown, modal-split variations, estimated demand for long and short term parking, issue resolution and technical, administrative, and economic feasibility. Other parking management strategies and tactics identified in the state-of-the-art review will also be evaluated for potential application in Edmonton.

1.3.5 Final Report

The final report will contain recommendations concerning parking standards and other management tactics to coincide with the 1986-1990 Five Year Roadway and Transit Improvement Plan. It will also include Terms of Reference for a program to implement the study's recommendations.

1.4 WORKING PAPER #1 OVERVIEW

The State-of-the-Art Review constitutes the first working paper for the Downtown Parking Study.

1.4.1 Objective

The objective of Working Paper #1 is to review state-of-the-art management strategies and tactics; categorize tactics in respect to their affect on the supply, use and/or distribution of parking; and to detail the application of specific tactics in selected municipalities in Canada and the United States. Parking management strategies and tactics reviewed in this working paper will be evaluated in Working Paper #4 for potential application in Edmonton.

7 1.4.2 Methodology

The State-of-the-Art Review is based on a survey of parking management and transportation planning periodicals, reports and studies, as well as verbal and written correspondence with selected cities that have implemented parking management programs and/or tactics.

Initially, an inventory of parking management strategies and tactics was developed from the literature, and described in respect to objectives, implementation process and other pertinent variables relating to effectiveness or constraints. Secondly, eleven cities similar in size, structure or with parking problems similar to Edmonton were surveyed to identify their use of specific parking management tactics. The eleven cities included Boston, Calgary, Chicago, Ottawa, Portland, San Francisco. Seattle, St. Paul, Toronto, Winnipeg and Vancouver. Strategies/tactics used by these cities were described in respect to objectives, implementation process and relative effectiveness. Standards and tactics currently used in Edmonton were also referenced for comparative purposes.

More generally, all parking management strategies and tactics referenced in this working paper were also categorized in relation to their impact on the supply, use or distribution of parking facilities.

1.4.3 Report Organization

Chapter 2 of this report contains a general inventory and description of parking management tactics. The application of various parking management tactics in eleven (11) North American

8 cities is examined in Chapter 3. Chapter 4 summarizes the findings and describes their potential application within the framework of the Downtown Parking study.

Appendix I contains a summary of parking standards and management tactics in selected North American cities. The references to prepare this working paper are contained in the Bibliography following Appendix I.

9 CHAPTER 2

INVENTORY OF PARKING MANAGEMENT TACTICS

This Chapter contains an inventory and brief description of parking management tactics extrapolated from a review of current planning practice, research and literature. A parking management tactic is a specific requirement, guideline or procedure designed to alleviate transportation problems typically associated with an ineffective and/or inefficient use of existing on-street/off-street parking. Parking management tactics can be used to alter the supply, use and/or distribution of parking to meet the demands for short term and long term (commuter/employee) parking in the CBD.

The following discussion reviews the parking management tactics in terms of supply, use and distribution. These categories are provided for convenience and discussion purposes only. It is important to note that the parking management tactics discussed in this paper are interrelated and in some instances may be placed in more than one category.

2.1 PARKING MANAGEMENT TACTICS AFFECTING SUPPLY

Parking management tactics which affect supply are generally designed to control the growth and/or reduce the supply of long-term commuter parking, thereby encouraging greater use of public transit and high occupancy vehicles (HOV) for downtown destined work trips. The tactics affecting supply include: parking standards; no standards; ceilings; freezes or bans; joint use; parking stall size change; restrictions on principal use parking facilities; public investment in parking facilities; reduced minimum parking requirements for proximity to transit; and the addition or removal of on-street parking. These tactics are discussed in more detail below and summarized in Table 2.1.

TABLE 2.1 PARKING MANAGEMENT TACTICS TO AFFECT THE SUPPLY OF PARKING TACTIC

2.1.1 parking

standards, expressed as a minimum required and/or as a maximum permitted per square meter of office building floor area

OBJECTIVES o To control the supply of parking in the CBD associated with new office development.

IMPLEMENTATION o Usually included in a municipal land use bylaw and implemented through the development approvals process.

COMMENT o The selection of an effective parking standard requires coordination with economic, land use and transportation plannig goals as well as existing and projected roadway capacity. o Decreased parking standards can constrain the growth in parking or ve gradually reduce the overall parking supply. o Increased parking standards can expand the existing parking supply.

2.1.2

2.1.3

No standards, an absence of any parking requirements for new office buildings

Ceiling, an upper limit on the total number of parking spaces

o To allow the operation of market mechanisms in the provision of parking spaces.

o To constrain the normal growth in the parking supply in downtown's experiencing rapid growth in traffic volumes,

o The absence of parking standards land use bylaws will encourage developers to provide only the minimum required for successful marketing of the building.

o The absence of parking regulations will generally result in a constrained growth and eventually a a reduced parking supply.

o Usually included in a municipal land use bylaw and implemented through the development approvals process. The ceiling may apply to the total CBD or specific locations within the CBD.

o Effectiveness depends upon the availability of alternative forms of transportation (ie, express bus, carpools and vanpools, etc.).

o The major problem with this tactic is the high risk of long-term undersupply in parking.

o Useful when the capacity of the existing roadway system is being approached and roadway improvements are not feasible.

2.1.4

Freeze or Ban on the number of commuter parking spaces

o To halt the growth of parking in the CBD.

o Usually included in a municipal land use bylaw and implemented through the development approvals process. The freeze may apply to the total CBD or specific locations within the CBD.

2.1.5

Joint use of parking facilities

o To reduce duplication and maximize the use of existing and new parking facilities.

o Usually included in a municipal o Effective, it the time periods for use for each land use bylaw and implemented development do not conflict and parking facility through the development is in close proximity to the proposed development. approvals process.

o Effectiveness depends upon the availability of alternative forms of transportation (ie. express bus, carpools and vanpools, etc.)

TACTIC

2.1.6

Parking stall size change to account for the increasing proportion of small cars in the vehicle fleet

OBJECTIVES

o To provide more parking at leas cost and better utilize existing facilities.

IMPLEMENTATION

COMMENT

o Usually included in a municipal o A cost-effective means of increasing the number of land use bylaw and implemented parking spaces in existing parking facilities. through the development

o Downsize parking stall dimension requirements in the land use bylaw,

2.1.7

Restrictions on principal use (stand alone) parking facilities

o Limit the number of stand alone o Usually included in a municipal o An effective means of reducing the overall CBD parking structures, long-term commuter parking supply. land use bylaw and implemented through the development approvals process. o Effectiveness depends upon the availability of alternative forms of transportation, (is. express bus, carpools and vanpools, etc.).

2.1.8

Public investment in parking facilities

o To increase the amount of short-term parking spaces in the CBD.

2.1.9

Reduced minimum parking require- o To reduce to the supply of long-term commuter parking ments for proximity to transit and to promote transit.

o Investment in parking facilities can be limited to the provision short-term parking within existing facilities.

o May be cost-effective in areas of critical need of short-term parking if used in conjunction with other parking management options.

o Direct access to major bus route on LAT station required.

o Effective only if an efficient system of public transit exists.

o Usually included in a municipal land use bylaw and implemented through the development approvals process.

OBJECTIVES

TACTIC

. 1 .10 Add or remove on-street parking spaces

IMPLEMENTATION

COMMENT

o Increase in short-term parking for shoppers.

o Add curb or angle parking.

o Restricts traffic movement and increases travel time.

o Reduce short-term parking to provide efficient vehicular mobility.

o Prohibit on-street parking or restrict it to time periods of by vehicular movement.

o Reduces the supply of short-term parking, which is critical to the viability of CBD retail businesses.

13 2.1.1 Parking Standards

A parking standard stipulates the amount of parking to be provided by developers constructing office/commercial facilities. A parking standard may set either a minimum and/or a maximum amount of parking. Minimum standards require no less than a specified number of parking stalls per unit of floor area. Maximum standards permit no more than a specified number of stalls per unit of floor area. Minimum and maximum standards may be employed together to establish a discretionary range with an upper and lower limit. Parking standards are intended to balance parking demand with supply, based on the existing and/or projected capacity of the roadway system.

2.1.2 No Standards

The no standards approval to parking requirements allows the amount of parking in new buildings to be determined by the operation of market mechanism. An absence of parking standards will encourage the development industry to balance the cost of constructing expensive parking facilities with the minimum required for successful marketing of the building. The provision of parking through the operation of market mechanisms will generally result in a constrained growth in parking spaces and eventually a reduced parking supply.

2.1.3 Ceiling

A ceiling is an upper limit on the total number of parking spaces and is designed to constrain the normal growth in the parking supply. The ceiling may be applied to the total CBD or specific zones within the CBD. This tactic is particularly useful when the

14 capacity of the existing roadway system is being approached and roadway improvements are not technically or economically feasible. When the total number of parking spaces surpasses the ceiling, this upper limit becomes a freeze or ban on new parking facilities.

2.1.4 Freeze or Ban

A freeze or ban on the number of parking spaces is designed to halt the growth in parking spaces by prohibiting the construction of new parking facilities. The existing inventory of CBD parking may be upgraded over time by replacing obsolete facilities with CBD peripheral garages or underground parking within new office buildings. Spaces removed from the service are placed into a parking space bank that may then be alocated to new development according to specified criteria. This tactic is not useful when the capacity of roadway system providing CBD access and egress has been reached and infrastructure improvements do not appear to be technically or economically feasible.

2.1.5 Joint Use

The joint use of parking facilities is feasible when two or more nearby developments would be able to meet minimum parking standards by constructing fewer total parking spaces than would normally be required if each development were treated separately. This tactic is designed to reduce duplication and maximize the use of existing and new parking facilities. Its effectiveness requires that the time periods of use for each development to not conflict. For example, an office building complex adjacent to a movie theatre could result in the utilization of parking space in the office building by threatre patrons in the evenings when the space would otherwise be vacant.

2.1.6 Parking Stall Size Change

A cost-effective means of increasing the number of parking spaces in existing parking facilities is to increase the number of small car

15 spaces to account for the increasing proportion of small cars in the vehicle fleet.

2.1.7 Restrictions on Principal Use Parking Facilities

Principal use parking facilities are "stand alone" facilities which are not associated with any specific development. These facilities may exist as parking structures or surface parking lots. A limit may be placed upon the construction of new stand alone facilities, particularly those designed to serve long term commuter parking while surface lot commuter parking may be discouraged through the imposition of property taxes, similar to developed land. Surface lot parking is particularly important as it often comprises a significant proportion of total downtown parking. The supply of surface parking may be very dynamic, as it is related to economic growth trends and the demand for land that can be developed. Surface parking supply may be reduced through civic redevelopment incentives designed to encourage the construction of projects on vacant land being used for surface parking.

2.1.8 Public Investment in Construction of Short Term Parking Facilities

Public investment in parking facilities may be employed for the purpose of increasing the supply of parking, particularly short-term parking, within the retail area of the CBD or other areas experiencing a shortage of parking. Funding to construct or develop parking facilities may be channeled through special tax levys and/or application of general revenues.

2.1.9 Reduce Minimum Requirements for Proximity to Transit

The parking standards for CBD commercial buildings may be reduced when the structure is located in close proximity to major bus routes

16 or fixed rail transit (LRT, subway, streetcar, etc). This tactic will encourage the development industry to provide less long-term commuter parking and will encourage increased utilization of transit by CBD destined commuters.

2.1.10 Add or Remove On-Street Parking

The provision of additional on-street parking spaces by adding curb or angle parking is a means of increasing the supply of short-term parking. The major drawback with this approach is that the addition of on-street parking spaces severely restricts vehicular movement, particularly, transit vehicles. This problem may be overcome with a traffic circulation system which includes one-way streets, bus lanes and is designed to provide efficient vehicular movement while allowing additional on-street parking.

The removal of on-street parking facilitates efficient vehicular mobility, especially when applied to time periods of peak hour traffic flow; however, it also reduces the supply of short-term parking which serves the CBD retail businesses.

2.2 PARKING MANAGEMENT TACTICS AFFECTING USE

Parking management tactics affecting use are generally aimed at increasing the supply of short-term parking for shoppers and visitors in the CBD. These tactics also discourage long-term commuter parking and encourage work-trip travel by transit and high occupancy vehicles. Parking management tactics affecting use include: revised hours of operation; preferential parking for high occupancy vehicles; a revised price structure; enforcement of short-term parking; short-term parking allocation; limit parking duration; and marketing. These tactics are discussed in more detail below and summarized in Table 2.2.

TABLE 2.2 PARKING MANAGEMENT TACTICS TO AFFECT THE USE OF PARKING TACTIC

2.2.1

OBJECTIVES

IMPLEMENTATION

COMMENT

Revised hours of operation for parking facilities

o To increase the supply of short-term parking in the CBD.

o Parking facilities would open later in the morning, (ie. 9:00 a.m.) after most CBD commuters have reached their place of work.

o This tactic is a very effective means of increasing the supply of parking for downtown shoppers and tourists.

2.2.2

Preferential parking for high occupancy vehicles (NOV)

o Encourage use of carpools and vanpools and to provide more efficient use of parking space.

o The reservation of parking for high occupancy vehicle use only, and may be accompanied with lower prices for NOV parking and carpool/ vanpool programs.

o Provides for a more efficient use of transportation facilities, aids in reducing traffic congestion and allows more parking for short-term use.

2.2.3

Revised pricing structure (parking stall tax, peak period parking surcharge, removal of employer parking subsidies)

o To increase the short-term parking supply and discourage long-term commuter parking in the CBD.

o Graduated rate structure to favour short-term users and transit use.

o Overall, revised pricing structures depends upon site specific factors and the availability of other transportation alternatives.

o Parking tax on long-term parking. o Parking surcharge on peak period parking. o Discourage employer subsidies.

2.2.4

Enforcement of on-street and short-term parking

o To reduce the mis-use of short-term parking spaces by all day commuters.

o Regular monitoring by the police and bylaw enforcement departments; possible use of Denver Boot enforcement technique (a clamp on the wheel of a vehicle in violation of parking times).

o Potential violators must recognize that they have a relatively high probability of receiving a traffic citation and of having to pay the fines.

2.2.5

Short-term parking allocation at existing municipal parking facilities

o To incrase the supply of short-term parking.

o Allocate a proportion of existing municipal owned facilities for short-term parking.

o Requires effective 'enforcement.

TACTIC

OBJECTIVES

IMPLEMENTATION

COWiENT

2.2.6

Limit parking duration at municipal parking facilities.

o To increase the supply of short-term parking,

o Apply to municipally owned facilities.

o Parking duration must limited to less than six hours.

2.2â&#x20AC;˘7

Marketing

o To attract and inform shoppers of the availability of shortterm parking in the CBD.

o Maps, brochures, media and advertising.

o May provide a more efficient utilization and awareness of existing short-term downtown parking spaces.

o Shopper discounts or Subsidies from merchants. o Transit subsidies from merchants.

19 2.2.1 Revised Hours of Operation

Parking facilities which open at 9:00 a.m. instead of 7:00 a.m. will significantly constrain commuter parking, thereby freeing parking stalls for short-term use by shoppers and visitors. This approach is particularly effective for application to attendant operated garages or lots, where it would otherwise be difficult to place duration restraints (or other tactics) on parking. Additionally, the enforcement costs associated with this tactic may be minimal, as regular enforcement patrols would not be required.

2.2.2 Preferential Parking for High Occupancy Vehicles

High occupancy vehicles (HOV) are generally regarded as vehicles with three or more occupants. The reservation of parking spaces for HOV use is designed to encourage greater use of carpools and vanpools and thereby contribute toward a more efficient use of parking facilities. An increase in work-trips by carpools and vanpools will allow more parking spaces to be available for short-term use. High occupancy vehicles use may be further encouraged through lower prices for HOV parking, and carpool/vanpool programs. Employers that support car/van pools often provide preferential parking in the immediate vicinities of building entrances, etc.

2.2.3 Revised Pricing Structure

A revised pricing structure tactic is designed to increase the supply of short-term parking and to discourage long-term commuter parking in the CBD. This approach may be applied in four different manners; a graduated pricing structure; a parking tax, a parking surcharge; and by discouraging employer parking subsidies.

20 The price of parking is frequently such that the total cost of parking per hour decreases as the duration of parking increases. This type of pricing structure is understandable in terms of profit maximization; however, it does not encourage short-term parking. A graduated rate structure would allow for the cost 9f parking to increase as the duration of parking increases, therby providing short-term parking costs which are relatively, inexpensive in comparison to all day commuter parking.

A parking tax is regarded by most municipalities as a revenue-raising device; however, it also can be used to increase the cost of long-term commuter parking and thereby encourage parkers to divert to high occupancy modes of travel. The revenues may be used by the municipality to provide short-term parking facilities to promote transit and/or to provide park and ride facilities.

A parking surcharge is an additional fee that is added to the existing or regular parking charges, and whereas parking taxes can only be applied situations in which a fee is regularly paid for parking, surcharges may also be applied to employer provided parking. The nature of the surcharge may vary according to the geographic area and the hours of application. It also offers the potential to apply the tactic to a specific group such as long-term commuters, who could be encouraged to switch to transit. The surcharge may be applied to vehicles having a parking duration of greater than three hours, or to vehicles arriving between the hours of 7:00 and 10:00 a.m.

The limitation and/or discouragement of employer parking subsidies can encourage the use of high occupancy vehicles (carpools, vanpools, transit) as well as free up parking spaces for short-term use. A municipality may limit parking subsidies for its own employees and encourage similar action by other levels of

21 government. Additionally, private industry may be requested to limit parking subsidies as a cost cutting measure and as an aid to the municipalities parking policies.

2.2.4 Enforcement of Short-Term Parking

The strict enforcement of on-street and short-term parking is required to reduce the mis-use of short-term parking spaces by, for example, all day parkers. Potential violators must recognize that they have a high probability of receiving a traffic citation and of having to pay the fines for their parking violations. This tactic requires regular monitoring of short-term parking facilities by police and bylaw enforcement departments. An aid to ensuring the payment of fines is the use of the Denver Boot which is a clamp placed on the wheel of a vehicle that has accumulated unpaid fines.

2.2.5 Short-Term Parking Allocation

Parking spaces may be allocated for short-term use within existing municipal parking facilities to increase the supply of short-term parking in the retail area of the CBD. The effectiveness of this approach requires strict enforcement and it may be complimented with other tactics such as revised hours of operation or revised pricing structures.

2.2.6 Limit Parking Duration

A limit on the duration of parking can be applied to municipally owned facilities for the purpose of limiting long-term commuter parking and providing additional short-term spaces. This approach is most effective if parking is limited to a specific time duration of less than six hours.

22 2.2.7 Marketing

Marketing techniques can be used to attract and inform shoppers of the availability of short-term parking in the CBD. The use of brochures, maps, advertising and street signage can be applied as a means of informing shoppers of the location of free/short-term parking as well as shopper discounts or subsidies and transit subsidies from merchants.

2.3 PARKING MANAGEMENT TACTICS AFFECTING DISTRIBUTION

Parking management tactics relating to the spatial distribution of parking facilities are generally designed to provide parking facilities around the perimeter of the CBD and parking within transportation corridors. These tactics are particularly attractive because they do not significantly increase the cost of commuter travel through high parking charges in the CBD. The tactics include: CBD fringe and transportation corridor parking; cash-in-lieu parking; residential parking permit programs; and special zone requirements. These tactics are discussed in more detail below and summarized in Table 2.3.

2.3.1 CBD Fringe and Transportation Corridor Parking

Fringe and transportation corridor parking facilities allow various transportation modes to be used to their best advantage. Low occupancy automobiles are used to travel from dispersed residential facilities to park and ride lots, from which high occupancy vehicles (public transit, carpools and vanpools) are used to travel to the final destinations in the CBD.

TABLE 2.3 PARKING MANAGEMENT TACTICS TO AFFECT THE DISTRIBUTION OF PARKING TACTIC

OBJECTIVES

IMPLEMENTATION

COMMENT

Park-and-Ride lots within transportation corridors

o To promote transit and HOV's and to reduce traffic â&#x20AC;˘congestion.

o Develop lots in conjunction with LAT stations and major hue transfer points.

o Can be effective if coordinated with express transit service.

CBD Fringe parking facilities

o To reduce traffic congestion within the CBD while allowing for short-term parking within the retail sector of the CBD.

o Municipal construction of facilities or joint municipal/ private operation with commercial component.

o Parking facility must he within walking distance of CBD or have shuttle service to CBD.

Cash-in-lieu of parking

o To distribute the amount of parking according to demand or city policies.

o During the development review process a developer is given the option of providing a cash payment to the City in return for a decrase in the required parking spaces.

o Provides funds for constructing municipal parking facilities for fringe area long-term parking and CBD short-term parking.

Residential parking permit program

o To allow the local residents parking and/or limit the use of on-street parking by CBD commuters on selected streets.

o Prohibited period may be from 7 a.m. to 10 a.m. or from 7 a.m. to 6 p.m. thereby affecting commuter parking

2.3.1

2.3.2

.3 â&#x20AC;˘ 3

o The parking facilities on the periphery of the CBD should be at significantly lower rates than the commuter parking provided in the core of the city centre.

This program is generally applied to restdentinl streets located adjacent to congested commercial or employment areas. o May also provide increased short-term parking in the CBD and decrease the long-term supply.

o Permits may he issued to residents allowing them to park at all times.

TACTIC

2.3.4

Special Zone Requirements

OBJECTIVES

o To redistribute parking where required.

IMPLEMENTATION

o Usually associated with sepâ&#x20AC;&#x201D; arate minimum and maximum standards for different sectors of the CBD and impleâ&#x20AC;&#x201D; mented through the development review process.

COMMENT

o The tactic alloys parking to be constructed in locations of short supply, limits parking in areas of over supply.

25 2.3.2 Cash-in-Lieu Payments

This tactic allows the developer to make a cash payment to the municipality instead of constructing a required number of parking spaces based on floor area. The municipality can use these funds for the construction of municipal parking facilities in areas that complement land use and transportation objectives, such as the provision of parking facilities in the CBD fringe or within transportation corridors.

2.3.3 Residential Parking Permit Programs

Residential parking permit programs can also control the distribution of CBD commuter parking by restricting parking on selected streets to local residents only. This tactic is generally applied to residential streets located adjacent to congested commercial or employment areas. Parking may be prohibited between the hours of 7 a.m. to 10 a.m. or 7 a.m. and 6 p.m. except to local residents having parking permits. An additional benefit of this tactic is that it may increase short-term parking and discourage long-term commuter parking.

2.3.4 Special Zone Requirements

Special zone requirements stipulate parking standards applicable to specific CBD areas. Special zoning provisions may also limit the duration of parking in areas of low parking supply, thereby encouraging greater turnover in the use of parking facilities. For example, if the retail area of the CBD is experiencing a shortage in parking, standards for that specific location may be increased to require the construction of additional spaces for each new development. For other locations within the CBD experiencing an oversupply in parking, the standards may be relaxed.

CHAPTER 3

APPLICATION OF TACTICS IN SELECTED NORTH AMERICAN CITIES

Parking management tactics that have been adopted by eleven (11) North American cities are sumamrized in this Chapter. These, cities include: Boston, Calgary, Chicago, Ottawa, Portland, San Francisco, Seattle, St. Paul, Toronto, Winnipeg, and Vancouver. For comparative purposes, parking standards currently used in Edmonton are also discussed in connection with the examples. A separate section in this chapter is also devoted to a discussion of a new parking promotion program in Edmonton. Figure 3.1 summarizes the tactics utilized in the eleven cities. Appendix I provides further detail on the application of these tactics by each city in terms of operating characteristics and implementation processes.

3.1 APPLICATION OF SUPPLY TACTICS

The primary parking management tactic utilized in the surveyed cities to affect the supply of parking is the parking standard. Typically, these cities have parking standards in their zoning ordinances (land use bylaws) that range from 1 space per 93 square meters of gross floor area (GFA) to 1 space per 465 square meters of GFA. Although these zoning ordinances have traditionally specified the minimum amount of parking required, some municipalities have adopted parking standards that specify a maximum limit (refer to Section 3.1). A comparison of the parking standards in the eleven cities and Edmonton is illustrated in Figure 3.2 and discussed in more detail below, and followed by a brief summary of other applied supply tactics.

3.1.1 Maximum Standards

Five cities (Vancouver, Portland, Seattle, San Francisco, and Boston) have implemented low maximum standards to constrain the

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PARKING MANAGEMENT TACTICS APPLIED IN SELECTED NORTH AMERICAN CITIES FIGURE 3.1 '

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PARKING STANDARDS IN SELECTED NORTH AMERICAN CITIES FIGURE 3.2

29 growth of parking in their respective downtowns, and to encourage the use of public transit for CBD destined work trips. The standards in Vancouver, Portland and Seattle are identical, specifying a maximum parking requirement of I space per 93 square meters of GFA. Portland and Seattle are also making use of a discretionary range which allows for a reduced maximum parking standard for areas in close proximity to transit. In San Francisco, the standard permits only 1 parking space per 398 square meters of GFA (7 percent of the gross floor area in a office building). The San Francisco parking standard translates to approximately 75 parking spaces for the average downtown office building. The maximum standard in Boston is more restrictive, permitting only 1 space per 465 square meters of GFA. It should be noted that each of the cited municipalities permit developers to provide less parking space than stipulated by the maximum standard.

3.1.2 Minimum Standard

Four cities (Calgary, Edmonton, Toronto and Chicago) have adopted minimum parking standards. Calgary requires a minimum of 1 space per 139 square meters of GFA while the standard in Edmonton is a minimum of I space for every 200 square meters of GFA. The Toronto standard, which is based on essential parking needs (individuals who use automobiles during the work day), and intended to encourage transit use, requires only I space per 300 square meters of GFA. Chicago has a minimum standard of 1 space per 930 square meters of GFA; furthermore, the first 26,012 square meters of floor area are exempt from any parking requirements. Cities with minimum standards generally permit more parking than the standard specifies; however, in most cases the development industry provides no more than the minimum required.

30 3.1.3 No Standards

In contrast to the cities discussed above, three cities (Winnipeg, Ottawa, and St. Paul) have no minimum or maximum standards. In these cities, the intent is to restrict the growth in the supply of long-term commuter parking by allowing market mechanisms to determine the allocation of parking spaces. Since the provision of parking can be expensive, the development industry must balance the costs obtained from reducing the availability of parking in a building with the degree of difficulty in selling or leasing that building.

3.1.4 Other Supply Tactics

Other tactics that have been implemented successfully for the purpose of controlling supply are most evident in cities where there are viable alternatives to automobile commuting. For instance, in Boston and Portland where transit and HOV use is relatively high, freezes and supply ceilings have been applied in their downtown areas (in Boston, the freeze on CBD parking does not apply to short-term spaces used by shoppers). Principal use parking facilities have been prohibited in San Francisco. In cities with extensive transit facilities (Chicago), parking standards are reduced for office buildings in close proximity to transit.

3.2 APPLICATION OF USE TACTICS

The most commonly applied use tactics include revised pricing structures to favour short-term parking, the municipal allocation or construction of parking facilities exclusively for short-term users and preferential parking for high occupancy vehicles. To ensure designated facilities are used exclusively by short-term users, late morning openings, meters, and time limits on the duration of parking are also utilized.

31 3.2.1 Revised Pricing Structure

Ottawa, St. Paul and San Francisco have implemented revised pricing structures (in expensive short-term and expensive long-term parking) to discourage all-day commuter parking and to favour short-term parking in the retail areas of the CBD. In Ottawa, the imposition of increased parking rates on federal employees created a 23% reduction in the number of employees driving to work and a 16% increase in transit ridership by federal employees. Additionally, St. Paul provides some free parking for short-term users. The overall results of such action indicate a greater use of transit, an increased supply of short-term parking, as well as increased sales reported by CBD merchants.

3.2.2 Short Term Parking Allocation

Vancouver, Ottawa and Portland have initiated municipal parking structure programs to provide facilities exclusively for short-term parking. Portland has been increasing the proportion of short-term parking in municipal garages. In Vancouver and Ottawa parking facilities are being constructed solely for short-term users. The increase in short-term parking in these cities has pleased CBD merchants. It has been noted that short-term parking facilities cannot be effective without strict enforcement of parking duration.

3.2.3 Preferential Parking For High Occupancy Vehicles

Portland and Seattle have instituted preferential parking programs designed to encourage the use of high occupancy vehicles. These preferential parking programs allow for the designation of a number of stalls within a parking facility (usually close to the entrance) for high occupancy vehicle use only. In addition to reducing traffic congestion, another benefit of these programs is an

32 increase in the availability of parking spaces for short-term use.

3.3 APPLICATION OF DISTRIBUTION TACTICS

The management of parking facilities distribution is successfully utilized in most cities through cash-in-lieu policies and the provision of commuter parking along transportation corridors or in CBD fringe locations.

3.3.1 Cash In Lieu Payments

Calgary, Toronto and Vancouver have implemented cash-in-lieu payments where a developer(s) makes a cash payment to the municipality as an alternative to providing a required level of parking. Toronto uses cash-in-lieu funds for the construction of either long-term or short-term parking facilities in locations within the CBD experiencing parking shortages. In Calgary, cash-in-lieu funds are used to provide commuter parking on the CBD fringe. Vancouver uses the funds to construct parking facilities in areas of high demand.

3.3.2 CBD Fringe and Transportation Corridor Parking

St. Paul encourages short-term parking in the city center and long-term commuter parking in the CBD fringe. This approach is supported by a graduated pricing structure for parking, with the city center favouring short-term parking. Furthermore, free bus shuttle service is provided from the commuter fringe facilities to the city center.

33 Portland provides free parking in lots located on the CBD fringe with bus service to various locations within the CBD. Seattle provides free preferential parking for high occupancy vehicles in fringe parking lots. In both cities, the results have indicated that fringe lots located closer to the CBD have a much higher rate of utilization. In addition, transit service, improvements in these cities have resulted in increased ridership.

3.4 EDMONTON PARKING PROMOTION PROGRAM

In December, 1983 the City of Edmonton initiated a 3 month parking promotion program in response to the concerns of the city's business community regarding the cost and availability of short term parking in the C.B.D.

The program involves the provision of free parking in the municipal Library Parkade and the City Hall lot during weekday evenings and on Saturday for the purpose of encouraging shopping within the retail area of the downtown. Parking restrictions on Jasper Avenue and intersecting streets are also being reduced, on a trial basis, from the present 3:30 6:00 p.m. to 3:30 - 5:00 p.m. to increase the availability of short-term on-street parking. A public information campaign supports the program, employing advertisements and brochures showing the location of free parking in the downtown area.

The three month program is being monitored to determine the effectiveness of these tactics in the encouragement of CBD patronage. In addition to these city sponsored initiatives, the business community is also supporting free or short-term parking validations in various designated private parkades and surface parking lots.

34 CHAPTER 4

SUMMARY AND CONCLUSIONS

4.1 SUMMARY

Twenty one (21) parking management strategies and tactics that may be utilized to affect the supply, use and/or distribution were identified and described in this working paper. Specific applications of these tactics in eleven North American cities, as well as recent undertakings in Edmonton, were reviewed in regards to implementation considerations. The city survey revealed that no one tactic was used in each city; however, there was a definite inclination amongst the cities to use a combination of tactics to achieve parking related goals. The specific use of a given tactic can reliably be related to the characteristics of a city in terms of its transportation system infrastructure, parking supply, parking usage/demand, public transit objectives, etc.

The most commonly employed parking management tactic is the "standard" which stipulates an amount or range of parking space that must be provided by developers in connection with the construction of various office/retail/residential complexes. The "standard" takes different forms in different cities, there being no best or optimum "standard" for all cities given their unique development patterns, requirements and characteristics. Of the eleven (11) cities that were surveyed (not including Edmonton), eight (8) had either a minimum or maximum standard. A minimum standard is also currently in effect in Edmonton.

Apart from the "standard", most cities that were surveyed were observed to be using one or more other parking management tactics. Frequently used tactics included a graduated rate structure to favour short term parking; the provision of preferential parking for high occupancy

35 vehicles; restrictions on principal use parking facilities; and CBD fringe parking facilities. The City of Portland not only used all the aforementioned tactics, but others as well, with considerable success in increasing transit ridership and without hindering CBD development.

4.2 CONCLUSIONS

The parking management tactics identified and described in this working paper will form the basis for the selection and evaluation of tactics for application in Edmonton. Given that the parking "standard" is a common and major parking management tactic, Working Paper #4 will review Edmonton's current standard and, if necessary, recommend revisions to reflect the city's longer range parking requirements. In addition, other parking management tactics will be short listed for further consideration and evaluation within the framework of Edmonton's transportation, land use and economic development goals and objectives.

APPENDIX I

Parking Standards and Management Tactics in Selected North American Cities

NOTE: The Parking Standards are expressed as the number of parking stalls required/amount of gross floor area. Gross floor area is abbreviated as gfa.

CITY

PARKING MANAGEMENT TACTICS

Toronto

-Minimum standard

OBJECTIVE

OPERATING CHARACTERISTICS OF PARKING STANDARDS AND MANAGEMENT TACTICS

-to promote transit -1 space/300 sq. m. of gfa -to facilitate essential parking

PRESENT MID WORK TRIP MODE SPLIT(XTRANSIT)

IMPLEMENTATION COMMENTS MECHANISM

-development review process

-with a lower supply of parking, rate increase will change to discourage discount prices for all day commuters, and favour the high turnover, short-term parker

-to reduce the supply of commuter parking and provide shortterm parking -Cash in-lieu payment

-to meet parking -where it is not requirements in physically possible areas of critical to provide the required need by altering parking on the same the spatial distri- site as a development, bution of parking application can be made to make a cash payment in-lieu of parking

-development review process -funds collected are paid to publiclyoperated parking authority which provides facilities in areas priorired according to need

-Joint use

-to promote transit -shared use of parking and reduce the facilities, preferably overall parking when uses occur during requirement different times of the day

-development review process

-Revised hours of operation

-to increase the supply of shortterm parking

-the tactic has -the tactic has increased the supply of short-term parking been applied to only a few municipally owned parking facilities

-Ban off-site parking

-reduce traffic -prohibit off-site problems associated parking in the downtown with off-site core. parking -to limit the supply of commuter parking

-parking facilities open at 9:00 a.m. after the majority of the downtown labour force has reached their workplace

-development review process

-small commercial developments Impacted, and are forced to apply for cash-in-lieu or an exemption -in areas of existing surplus, additional parking will he required to meet the needs of future development

CITY

Calgary

PARKING MANAGEMENT TACTICS

OBJECTIVE

OPERATING CHARACTERISTICS OF PARKING STANDARDS AND MANAGEMENT TACTICS

-minimum parking standards

-reduce CBD traffic congestion

-cash-in-lieu payments

-provide adequate parking in CBD -to provide more short-term parking

Edmonton

-minimun parking standard

-Minimum of 1 stall/ 139 sq. m of gross floor area (gfa). If in the office core, 20% of requirement (or 50 stalls), whichever is greater can be provided on site; will be provided by the city outside the office core by using developers' cash-inlieu payments that payments that are based on the minimum parking requirement

-to provide a stan- -1 space/200 eq. m dard which would of gfa meet the demand for parking

PRESENT CBD WORK TRIP MODE SPLIT(%TRANSIT)

IMPLEMENTATION MECHANISM

-development review process

COMMENTS

-recent policy and therefore impacts have not been determined, however it appears that there is an increase in CBD fringe parking -short-term parking in the CBD continues to he a problem

-development review process

-currently, there is an oversupply of parking in the CBD and a underutilization of transit for CBD destined work trips.

CITY

Chicago

PARKING MANAGEMENT TACTICS

-restrict principal use parking facilities

OBJECTIVE

-reduce parking provided in CBD

OPERATING CHARACTERISTICS OF PARKING STANDARDS AND MANAGEMENT TACTICS

-prohibit construction of principal use parking facilities

-reduce traffic congestion -reduced parking through transit

minimum requirements -reduce parking HOV and congestion incentives

-1st 26,012 sq.m of gfa are exempt from from any parking requirements. 2nd 26,012 sq.m of gfa require a minimum of 1 apace/929 sp.m of gfa. 3rd 26,012 sq.m. of gfa require a minimum of 1 space/465 sp.m of gfa etc. Ten percent reductions In the required parking are permitted for each of the following: 1. if parking is underground, 2. if the building has a good transit connection, 3. if the building has a pedestrian-way connection, or 4. if the building is located in the CBD core.

PRESENT CBD WORK TRIP MODE SPLIT(XTRANSIT)

IMPLEMENTATION COMMENTS MECHANISM

-development review process

-number of parking spaces has decreased by 1000 since 1975; number of long-term parkers has increased however, there is a shortage of short-term parking

-development review process -a 110-story building (Sears Tower) constructed with only 150 spaces

CITY

Boston

PARKING MANAGEMENT TACTICS

OBJECTIVE

OPERATING CHARACTERISTICS OF PARKING STANDARDS AND MANAGEMENT TACTICS

-ceiling (freeze) on total CBD parking supply

-limit on total number -to constrain the growth in CBD park- of allowable commercial spaces; freeze does not apply to customer parking -to reduce traffic congestion without -if ceiling has not impacting the been reached CBD retail sector commercial parking is a maximum of 1 -to reduce air space/465 gross pollution eq. is.

-preferential parking and bus priority measures

-to encourage tran- -preferential parking for high occusit and provide pancy vehicles short-term parking

PRESENT CBD WORK TRIP MODE SPLIT(ZTRANSIT)

-Maximum Standards

-decreased auto usage on CBD destination trips

-bylaw permits a maximum of 7 percent of a building's gfa to be used for parking; this equates to I stall/ 398 sq. m. of gfa

-Restrict principal use parking facilities

-reduce traffic congestion

-new principal use parking facilities require conditional use review

-development review process

-the freeze has not effected development patterns

-development review process

-has contributed to increased use of high occupancy vehicles and transit

-husways an part of roadway improvement projects

-the construction of bus priority lanes

San Francisco

IMPLEMENTATION COMMENTS MECHANISM

-development review process

-moderate growth in private offstreet parking has occurred in contrast to high growth in office and retail space

-development review process

-effective in reducing the growth in the supply of long-term parking

-discourage auto usage and encourage transit usage

-Preferential parklag for carpools and vanpools

-to reduce traffic congestion

-applies to CBD fringe lots only

-must be certi- -program just beginning fled by Caltrans

-to increase the use -407: of under of high occupancy freeway lots reserved vehicles for vanpools; fee is $10/month versus normal fee of $60/month -Revised pricing structure

-to increase the -change in pricing proportion of short- structure at municipal term parking, disparking facilities courage long term in favour of shortparking and promote term users transit

-graduated pricing structure -a parking tax

-has increased the supply of shortterm parking -overall, the City is concerned that is current policy is not achieving the objective of decreased auto use and is now considering a ceiling on total supply in the CBÂ°

CITY

VanCouver

PARKING MANAGEMENT TACTICS

-Maximum parking standard

OBJECTIVE

-to reduce the supply of all-day commuter parking

OPERATING CHARACTERISTICS OF PARKING STANDARDS AND MANAGEMENT TACTICS

PRESENT CBD WORK TRIP MODE SPLIT(ZTRANSIT)

-maximum required 1 stall/93 sq. m. of gfa

IMPLEMENTATION MECHANISM

-development review process

COMMENTS

-has not hindered development and is generally accepted by the development industry -moderate growth is CBD parking spaces

Seattle

-The construction of municipalities or private garages for short-term parking

-to increase short- -short-term parking may be required with term parking certain developments

-development review process

-Cash-in-lieu payment

-to provide parking -funds collected to be used for a municipal in areas where It parking facility is needed

-development review process

-Maximum parking standard

-to reduce auto usage

-maximum allowed parking ranges from I space/ 93 sq. in. to 1 space/ 186 sq. in. of gross floor area

-Restrict principal use parking

-to reduce auto usage

-prohibit new parking lots and garages designed to serve longterm commuters

-development review process

-no new principal-use parking facilities have been built since 1976

-Preferenttal parking for carpools and vanpools

-reduce traffic congestion

-219 spaces under freeway reserved for 3+ carpools at SS/month; 1000 spaces in stadium lot available to poolers of 3+ for free

-carpools must be certified and are audited by the City

-freeway lot is full; stadium lot has low utilization; 40% of of carpoolers formerly used transit

-administered by the local transit authority

-program appears to be effective

-some municipal facilities have been constructed.

-environmental -parking supply is growing in impact statement areas way from the retail core review and the and decreasing within the CBD development review process

-same free preferential parking is provided in CBD fringe lots -On-street preferential parking program for carpools and vanpools

-increase high occupancy vehicle travel

-the purchase of permits allows all day parking for high occupancy vehicles

CITY

Portland, Oregon

PARKING MANAGEMENT TACTICS

-maximum and no minimum parking requirements

OBJECTIVE

-discourage CBD destined auto traffic -promote transit usage

OPERATING CHARACTERISTICS OF PARKING STANDARDS AND MANAGEMENT TACTICS

-no minimum required parking, maximum allowed parking for office development is is 1 space/93 sq.m of gfa, I apace 133 sq.m of gin if the proposed buildings are close to transit facilities

PRESENT CBD WORK TRIP MODE SPLIT(XTRANSIT)

IMPLEMENTATION MECHANISM

-development review process

COMMENTS

-downtown development has not been deterred by these restrictions -transit ridership has doubled since adoption of the program in 1975

-joint use of parking facilities

-provide more short- -zoning bylaw allows term parking developers to share parking facilities for two buildings

-development review process

-Reduced on-street parking

-reduce traffic congestion

-transportation -has provided more efficient planning provehicular movement cess

-Reduced principal use surface parking lots

-discourage CBD auto -redevelopment projects usage and promote encouraged transit usage

-development review process

-contributed to increased transit usage

-On-street preferential parking program for carpools and vanpools

-increase highoccupancy vehicle travel

-the purchase of window permits allows all day parking for high occupancy vehicles

-regional car pooling agency

-results indicated that about twothirds of the people subscribing to the program were already carpooling or previously used transit

-CBD fringe parking facilities

-to reduce CBD traffic congestion

-free parking in CBD fringe parking facilities

-express bus service to CBD

-high utilization of parking facilities

-Maximum Ceiling (Freeze) on Total CBD Parking Supply

-to reduce traffic -limit on total number of congestion and auto allowable parking spaces usage by sector within the CBD

-development review process

-ceiling (freeze) has not been reached; tactic has encouraged parking in desired locations; development has not been hindered

-to promote transit

-included as part of roadway improvement plans

CITY

St. Paul, Minn.

PARKING MANAGEMENT TACTICS

OBJECTIVE

-No minimum or

-no parking standards in zoning bylaw

maximum standards

-Pricing of parking spaces

OPERATING CHARACTERISTICS OF PARKING STANDARDS AND MANAGEMENT TACTICS

-short term parking -pricing based on: to be located in -25 cents/half hour the City-center for the first 3 hours -rate increases -long term commuter (increment depends parking to be on location) for located in CBD parking after the fringe parking lots first 3 hours, total and structures ually ra:e Is about 8 dollars -free parking during evening shopping hours and some municipal parking facilities within the CBD provide free short-term parking

PRESENT CBD WORK TRIP MODE SPLIT(ZTRANSIT)

IMPLEMENTATION MECHANISM

COMMENTS

-market mechan- -very acceptable to the development isms determine industry the provision of parking -free shuttle bus service from fringe parking to CBD

-initially much opposition from the development industry, opposition has diminished as new buildings have been leased successfully

-the construc-has provided increased short-term tion of a skyparking in the CBD and pleased walk system to merchants create an integrated set of parking incentives and disincentives

-private operators participate on a voluntary basis and the City reimburses them for forgone parking fees -municipal construction of short-term parking facilities within the CBD

-to increase the supply of shortterm parking

-operated according to the characteristics described above.

-coordinated with skywalk system

-has provided increased short-term parking

C iTY

Ottawa

Winnipeg

PARKING MANAGEMENT TACTICS

OBJECTIVE

OPERATING CHARACTERISTICS OP PARKING STANDARDS AND MANAGEMENT TACTICS

-no minimum or maximum standards

-to reduce con-no parking requirements gestion and promote In zoning bylaw transit

-revised pricing structure

-to reduce congestion and to promote transit

PRESENT CBD WORK TRIP NODE SPLIT(XTRANSIT)

IMPLEMENTATION MECHANISM

COMMENTS

-market mechanism determine the provision of parking

-developers appear to avoid high parking costs and providing minimal parking

-the removal of free parking to federal civil servants

-action undertaken by Transport

-persons driving alone declined by 20 7. with substantial increase in carpooling and transit usage

-to increase the supply of shortterm parking

-change in pricing structure at municipal parking facilities to favour short-term users

-graduated pricing structure

-moderate increase in supply of short-term parking

-construction of municipal parking facilities

-to increase the supply of shortterm parking

-for short-term users only

-metering and graduated pricing structure

-No standards

-to promote transit and reduce parking supply for all-day commuters

-the zoning bylaw has no parking requirements for office development in CBD.

-market mechanisms determine the provision of parking

=developers appear to he avoiding the costs associated with the provision of parking and therefore providing less parking.

BIBLIOGRAPHY

City Planning and City Engineering Departments, "Downtown Parking Standards, Review for Office Developments" Report to Council, Standing Committees of Council on Transportation and Planning and Development, Vancouver, 1979. Dillon Consulting Engineers and Planners, "Non-Capital-Intensive Transportation Options, Volume 1, State-of-the-Art Review", Winnipeg Tr-Level Committee on Urban Affairs, 1978. Di Renzo, J.F., Cima, B., and Barber, E., "Study of Parking Managements Tactics, Volume 1: Overview, "Report No. FHWA-PL-79-020, Federal Highway Administration, Washington D.C. 1979. Di Renzo, J.F., Cima, B. and Barber, E., "Study of Parking Management Tactics, Volume 2: Overview and Case Studies", Report No. FHWA-PL-79-021, Federal Highway Administration, Washington, D.C., 1979. Ellis, R., "Parking Management Strategies", Peat, Marwick, Mitchell and Company, 1977. Ellis, R., Di Renzo J., and Barber, E., "New Directions in Central Business District Parking Policies", Transportation System Management and Parking, Transportation Research Record 845, National Academy of Sciences, Washington, D.C., 1982. Kulash, D., "Parking Taxes on Roadway Prices: A Case Study of the San Francisco Experience", The Urban Institute, 1974. Levinson, H., "System Management Parking and Loading", Urban Transportation Perspectives and Prospects, ENO Foundation for Transportation, Inc., Westport, Connecticut, 1982. McShane, M., and Meyer, M., "Parking Policy and Urban Goals: Linking Strategy to Needs", Transportation II, Elsevier Scientific Publishing Company, Amsterdam, 1982. Planning and Development Department, City of Toronto, "Response II, Central Area Parking and Loading Study", 1980. Planning and Development Department, City of Toronto, "Summary and Proposals, Central Area Parking and Loading Study", 1980. Planning and Development Department, City of Toronto, "Final Recommenations Report, Central Area Parking and Loading Study", 1980 Planning and Development Department, City of Toronto, "Central Area Parking and Loading Study, Final Report", IBI Group, December, 1977.

Stewart, G., "The Development of Revised Parking Policies in the Central Area of the City of Toronto" Planning and Development Department, unpublished report, 1980. Shoup, D.C. and Pickerell, D.H., "Free Parking as a Transportation Problem", Report DP 130, School of Architecture and Urban Planning, University of California, Los Angeles, 1979. Shoup, D. C., and Pickerell D., "Problems with Parking Requirements in Zoning Ordinances", Journal of the American Planning Association, August 1979. Smith, W. "What's New in Parking", Planning: Parking Trends, the American Planning Association, June, 1983. Tanaka, J. and Meyer, M., "Implementation of a Regional Parking Policy: Institutional and Political Considerations", Transportation System Management - Parking, Enforcement, and Other Issues, Transportation Research Record 816, Transportation Research Board, National Academy of Sciences, Washington, D.C. 1981. Transportation Department, City of Calgary, "Downtown Parking and Employment Study, Part I: The Parking Report", CALTS Series #69, January, 1980. Transport Canada, "The Effects of the Imposition of Parking Charges on Urban Travel in Ottawa", Summary Report TP 291, Montreal: the Urban Transportation Research Branch, 1978. Virginia Highway Research Council, "Implementation of Parking Management Tactics", 1977.

11•••••

.11.•

i'..

,•••••

DOWNTOWN PARKING STUDY

Working Paper #2 Parking Supply and Demand TSR/46/83 (2)

Transportation Department February, 1984

TABLE OF CONTENTS PAGE NO. PREFACE LIST OF FIGURES LIST OF TABLES

CHAPTER 1 - INTRODUCTION

1.1 Study Objective 1.2 Study Area 1.3 Study Organization 1.4 Overview of Working Paper #2 CHAPTER 2 - DOWNTOWN EMPLOYMENT

2.1 1983 Employment 2.2 1990 Employment 2.3 Summary CHAPTER 3 - PARKING SUPPLY 3.1 1983 Parking Supply 3.2 1990 Parking Supply 3.3 Summary CHAPTER 4 7 PARKING USAGE AND DEMAND

4.1 1983 Parking Usage 4.2 1990 Parking Demand 4.3 Summary

CHAPTER 5 - SUMMARY AND CONCLUSIONS

LIST OF FIGURES

PAGE NO.

FIGURE 1.1

STUDY AREA

FIGURE 1.2

DOWNTOWN PARKING STUDY ACTIVITIES FLOWCHART

FIGURE 1.3

WORKING PAPER #2: ACTIVITIES FLOWCHART

FIGURE 1.4

STUDY AREA ZONES

FIGURE 2.1

DOWNTOWN EMPLOYMENT BY TYPE (1983/1990)

FIGURE 2.2

DOWNTOWN EMPLOYMENT BY ZONE (1983-1990)

FIGURE 3.1

OFF—STREET PARKING

FIGURE 3.2

ON—STREET PARKING

FIGURE 3.3

PEAK HOUR PARKING BANS

FIGURE 3.4

RECENT PARKING SUPPLY TRENDS (1978-1983)

FIGURE 3.5

PARKING SUPPLY BY zci-E- (1983/1990)

FIGURE 4.1

1983 PARKING SUPPLY/DEMAND RELATIONSHIP

FIGURE 4.2

1990 PARKING SUPPLY/DEMAND RELATIONSHIP

FIGURE 5.1

1983/1990 PARKING SUPPLY/DEMAND RELATIONSHIP

111

LIST OF TABLES

PAGE NO.

TABLE 2.1

1983 EMPLOYMENT SUMMARY

TABLE 2.2

1990 EMPLOYMENT SUMMARY

TABLE 3.1

1983 OFF-STREET PARKING SUMMARY

TABLE 3.2

1983 ON-STREET PARKING SUMMARY

TABLE 3.3

AVERAGE WALKING DISTANCES

TABLE 3.4

RECENT PARKING SUPPLY TRENDS (1978-1983)

TABLE 3.5

1990 OFF-STREET PARKING SUMMARY

TABLE 3.6

1990 ON-STREET PARKING SUMMARY

TABLE 4.1

1983 PARKING SUPPLY/DEMAND RELATIONSHIP

TABLE 4.2

1983 ESSENTIAL PARKING

TABLE 4.3

TRAVEL DEMAND

TABLE 4.4

1990 PARKING SUPPLY DEMAND RELATIONSHIP

TABLE 4.5

1990 ESSENTIAL PARKING

APPENDIX I

Employment Data: Methodology

APPENDIX II

Parking Supply Data: Methodology

APPENDIX III Parking Usage Data: Methodology

APPENDIX IV

Proposed Developments Review List

APPENDIX V

Basic Data for Travel Demand Estimates

PREFACE

This report is the second of four (4) working papers comprising Stage I of the Downtown Parking Study for the City of Edmonton. The Transportation Management Department initiated this study on the basis of parking objectives and goals stated in Appendix I of the Downtown Area Redevelopment Plan Bylaw #6477, and Bylaw #6905 to Amend the General Municipal Plan.

Terms of Reference for this study were submitted to City Council on 1983 10 18 for information.

CHAPTER 1

INTRODUCTION

Consequently, it is desirable to identify and

evaluate a wider range of parking management alternatives to ensure that the proposed solutions are not only cost effective but successful in their intent.

1.1 OBJECTIVE

1.2 SCOPE

The area for the Downtown Parking Study coincides with that designated for inclusion within the Downtown Area Redevelopment Plan as illustrated in Figure 1.1. The boundaries are described below:

Starting at 97 Avenue, north along the western boundary of the CPR railway lands, north along 111 Street, east along the northern boundary of the CNR railway lands, south along 97 Street, east along Jasper,Avenue, south along the eastern boundary of the Convention Centre site, west along the top of the bank of the River Valley, north along 100 Street, west along MacDonald Drive, south along 101 Street, west along 99 Avenue, south along Bellamy Hill Road, west

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along 97 Avenue, south along 106 Street, west and north of and parallel to River Valley Road, to the point of commencement at the CPR railway lands. Where the boundary line follows streets, it shall be deemed to follow the centre lines thereof.

1.3 DOWNTOWN PARKING STUDY ORGANIZATION

1.3.1 W.P. #1: State-Of-The-Art Review

1.3.2 W.P. #2: Identification of Parking Supply and Demand

A 1983 inventory of off-street and on-street parking facilities, in Edmonton will be generated, and detailed in terms of type, capacity, pricing, distribution and present usage patterns. Supply/demand estimates to 1990 will also be generated to identify potential areas of parking supply surplus or deficiency.

1.3.3 W.P. #3: Issue Identification

Edmonton CBD parking issues and concerns pertaining to the interests of the retail and service sectors, the development and property management sectors, parking lot operators, residential communities in or adjacent to the downtown, the consumer, and the City's Administration will be identified and discussed.

State of. the Art Review

Identification of Parking Supply and Design

Identification and Evaluation of Alternative Parking Standards and Management Tactics

Final Recomendations

Issue Identificationi

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DOWNTOWN PARKING STUDY ACTIVITIES FLOWCHART FIGURE 1.2

1.3.4 W.P. #4: Identification and Evaluation of Alternative Parking Standards and Management Tactics

1.3.5 Final Report

1.4 OVERVIEW OF WORKING PAPER #2

The identification of parking supply and demand constitutes the second working paper for the Downtown Parking Study.

1.4.1 Objectives

The objective of Working Paper #2 is to identify and analyze the current (1983) parking supply and usage characteristics in the Edmonton CBD, and to project the parking supply requirements for the five year period ending 1990. This information will be utilized in the identification and evaluation of alternative parking standards and management strategies in Working Paper #4 of the Downtown Parking Study.

1.4.2 Methodology

An activities flowchart for Working Paper #2 is illustrated in Figure 1.3.

The methodology associated with the major activities is summarized below. Methodological details pertaining to the determination of current (1983) CBD employment, parking supply and parking usage characteristics are contained in the corresponding Appendices. Details regarding the development of CBD employment and parking demand projections (1990) are similarly contained in the corresponding Appendices.

Study Area Zones

To facilitate the generation and analysis of the employment, parking supply, and parking usage data, the study area was divided into twelve (12) zones which reflect the current land use and/or spatial distribution of major developments in the downtown. The twelve study area zones are illustrated in Figure 1.4.

Downtown Employment

Current (1983) and projected (1990) Downtown employment data was generated to estimate the demand for parking in Downtown Edmonton by 1990. Employment data was extrapolated from the Planning Department document titled: Downtown Employment (September 1982). This data was updated to be current to December, 1983. The employment data was broken down into amount and type (office retail, warehouse/wholesale, service and manufacturing) by zone within the study area for 1983 and 1990.

Refer to Appendix I for a detailed description of the methodology used to generate employment data.

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Parking Supply

Current parking supply data was obtained from the semi-annual Transportation Management Department 1982 Parking Inventory, and updated to 1983 through a telephone and field survey of parking operators. On-street and off-street parking facilities were categorized by type and distribution within the zones. The data was also reviewed in relation to five criteria: (1) term, (2) price, (3) jurisdiction, (4) subsidization policies, and (5) associated walking distances. The off-street parking supply data is current to 1983 10 01 and the on-street data is current to 1983 08 01.

Parking supply estimates for 1990 were based on a review of developments approved by City Council or the Development Appeal Board which are currently under construction, with respect to their associated parking requirements and impact on existing parking facilities. It was assumed that all these developments will be built by 1990.

Refer to Appendix II for a detailed description of the methodology used to generate parking supply data.

Parking Usage and Demand

Usage studies (license plate surveys) were carried out at selected parking facilities to determine vehicle accumulations, duration and turnover rates. This data was used to estimate the current (1983) parking usage characteristics, and to estimate the short term parking demand. Long term parking stall demand was estimated based on 1983 employment data. Parking standards developed by the City of Toronto were utilized to estimate the minimum amount of parking that would be required to meet essential parking demand in Edmonton. The usage data is current to 1983 10 01.

The demand projections for short term parking in 1990 were determined by applying the 1983 parking stall/employee ratio to the projected 1990 employee levels. Long term employee parking stall demand was estimated based on 1990 employment data. Essential parking requirements for 1990 were estimated by applying the City of Toronto parking standard to Edmonton's 1990 floor space. A travel demand analysis was conducted to ascertain if the projected parking demand corresponded to Edmonton's modal split goals and projected downtown employment estimates.

Refer to Appendix III for a detailed description of the methodology used to generate the parking usage and demand estimates.

1.4.3 Report Organization

Chapter 2 contains the 1983 estimates and 1990 projections for employment in the study area. Chapter 3 contains the 1983 estimates and the 1990 projections for parking supply in the study area. Chapter 4 contains a description and analysis of 1983 parking supply usage, and the parking demand projections for 1990. Chapter 5 comprises a brief summary of the parking supply/demand data, and a discussion on the application of the findings in the Downtown Parking Study.

Detailed descriptions of the methodology presented in Appendices I, II and III.

Supplementary data pertaining to parking supply/demand data is contained in subsequent appendices.

CHAPTER 2

DOWNTOWN EMPLOYMENT

This chapter contains data on the existing (1983) and projected (1990) distribution of employment, by type, within the study area. This data will be utilized in the determination and analysis of parking demand in Chapter 4.

2.1 1983 EMPLOYMENT

In 1983 the study area contains approximately 61,000 employees. In general, employment is concentrated in areas immediately adjacent to Jasper Avenue, 100 Street, 101 Street, and in the Provincial Government Centre area.

Table 2.1 presents the amount and type of employment (office, retail, warehouse/wholesale, service, manufacturing) by zone for the entire study area in 1983. Approximately 79% (47,545) is office employment; 10% (5,850) is service industry employment; 10% (5,920) is retail employment; and 3% (1,610) is warehouse/wholesale employment. In addition, less than 1% (75) of all employment is classified as manufacturing.

Office employment is largely concentrated in areas immediately adjacent to Jasper Avenue, 101 Street, and in the Provincial Government Centre. Approximately 80% (38,395) of all office employment is located in Zones 5, 8, 9, and 11. Service industry employment is generally interspersed throughout the Downtown, although a minor concentration occurs in areas immediately adjacent to 100 Street. Approximately 45% (2,605) of all service industry employment is located in Zones 6 and 7. Retail employment is concentrated in areas adjacent to 101 Street and a portion of Jasper Avenue (100 Street to 103 Street). Approximately 63% (3,700)

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of all retail employment is located in Zones 5 and 8. Warehouse/wholesale employment is concentrated in areas in the north and western part of the study area. Approximately 69% (1110) of all warehouse/wholesale employment is located in Zone 3. Manufacturing employment, which constitutes less than 1% of all employment is concentrated in Zones 9 and 10.

2.2 1990 EMPLOYMENT

In 1990, the study area will contain approximately 81,000 employees. In general, employment will remain concentrated in areas immediately adjacent to Jasper Avenue, 100 Street, 101 Street, and in the Provincial Government Centre.

Table 2.2 presents the type of employment (office, retail, warehouse/wholesale, service, manufacturing) by zone for the entire study area in 1990. Office employment will remain as the dominant employment type in the study area. Approximately 83% (67,315) of all employment will be office employment, approximately 8% (6,030) will be service industry employment, approximately 7% (5,970) will be retail employment, and 2% (1,610) will be warehouse/wholesale employment. In addition less than 1% (75) will be manufacturing employment (Figure 2.1).

Office employment will be largely concentrated in areas immediately adjacent to Jasper Avenue, 101 Street, and in the Provincial Government Centre. Approximately 84% (56,545) of all office employment will be located in Zones 5, 8, 9, 10, and 11. Service industry employment will remain generally interspersed throughout the study area, with a minor concentration in areas adjacent to 100 Street. Approximately 45% (2,725)

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2.3 SUMMARY

Figure 2.1 summarizes the growth in the amount and type of employment in the study area for 1983 and 1990 and Figure 2.2 presents the employment data by zone for both 1983 and 1990.

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CHAPTER 3

PARKING SUPPLY

Parking supply estimates for 1983 and projections for 1990 in the study area are detailed in this chapter. The data is presented by zones within the study area. In addition, parking supply changes since 1978 are reviewed; and parking supply characteristics discussed in relation to term, price, jurisdiction, subsidy policies and average walking distances.

3.1 1983 PARKING SUPPLY

The 1983 parking supply data was extrapolated from the 1982 parking inventory report prepared by the Transportation Department and updated through a telephone survey of parking lot operators and a field survey.

3.1.1 Supply by Zone

The study area contains a total of 31,890 parking stalls, comprising 30,120 (95%) off-street parking stalls and 1,770 (5%) on-street parking stalls. Approximately 88% (28,210) are non-residential parking stalls. In general, the parking supply is concentrated in areas immediately adjacent to Jasper Avenue, 100 Street, 101 Street, and in the Provincial Government Centre area. Details respecting the distribution of parking supply is presented below. Off-street parking facilities are mapped in Figure 3.1, and on-street parking mapped in Figure 3.2.

Off-Street

Table 3.1 summarizes the off-street parking supply in the study area by amount, type of parking (commercial, residential, customer,

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OFF-STREET PARKING FIGURE

employee and miscellaneous), by zone for 1983. In addition, a breakdown of surface lot parking and structure parking is presented for each zone.

Commercial and employee parking stalls are the most common type of stall available within the study area. Approximately 51% (15,360) of the off-street stalls are commercial stalls, available to both short term and long term parkers. However, 4,460 of these stalls are located in office buildings and are usually occupied by long term parkers even though casual rent is permitted. Approximately 33% (9,940) are specifically reserved for employee parking and 3% (1,010) are specifically reserved for business customers. The remaining 13% (3,680) of the off-street stalls are residential parking stalls. Approximately 40% of all off-street stalls are contained in surface parking lots.

In terms of the distribution, the majority of commercial stalls are located in areas adjacent to Jasper Avenue and 101 Street. Approximately 82% (12,640) of the commercial stalls are contained in Zones 5, 7, 8, 9 and 10. Employee parking is generally interspersed throughout the study area with minor concentrations in Zones 6 (1,140), 10 (1,540) and 11 (2,850). These zones contain a number of government offices (City Hall, the Provincial Government Centre area), that provide some parking for their employees. Customer parking is also interspersed throughout the study area, with minor concentrations in Zones 3 (330) and 10 (360). Approximately 83% (3,060) of the residential parking stalls are located in Zone 12.

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On-Street Table 3.2 summarizes the on-street parking in the study area amount, type of parking (metered, non-metered), time limit (15 minutes, 30 minutes, etc.) and Zone. This table also indicates the number of loading areas (truck and passenger) within each zone.

On-street parking constitutes approximately 6% (1,770) of the entire parking supply and is generaly interspersed across the entire study area. Approximately 70% (1,235) of all on-street stalls are metered, the remaining 30% (535) non-metered. A one hour metered parking stall is the most common type of parking stall, comprising 58% (1,020) of the on-street supply (metered, non-metered). In addition, there are 290 truck and passenger loading areas within the study area, which can be classified as short term parking stalls.

3.1.2 1983 Parking Supply Characteristics

The 1983 parking supply characteristics pertaining to term, price, jurisdiction, parking subsidy policies and average walking distances are discussed below.

Term

Of the 16,370 on-street/off-street parking stalls potentially available to short term parkers, 85% (13,950) are available to both short and long term parkers, while only 15% (2,780) are available to short term parkers only.

Price

The cost of on-street parking, regulated by the City, is common across the entire Downtown. The City charges t0.80 per hour, regardless of meter term.

Three major variables affect the prices charged for off-street parking in Downtown Edmonton: (1) location; (2) type of parker accommodated; and (3) type of facility. Location is the primary determinant of price. The highest prices are charged in areas east of 101 Street to 97 Street, and in areas adjacent to Jasper Avenue (Zones 5-10). Commercial surface lots in these areas charge an average of t1.40 for one hour of parking and t60.00 per month, compared to t1.00 in Zone 3 for one hour of parking and approximately t50.00 per month for monthly parking.

The second major variable that affects price is the type of parker accommodated. Each type of parking has its own fee structure. Long term parking provided by employers to management staff is typically fully subsidized. A more detailed description is provided later in this section (parking subsidy policies). Residential parking stalls are normally included as part of the rental agreement. Customer parking lots accommodate short term hourly parking free of charge. Some merchants also validate the cost of parking in commercial lots for their customers. Commercial lots or facilities provide fee structures to accommodate both long term and short term parkers.

A typical fee structure in a commercial lot or structure would include a one-half hour or hourly rate, a daily maximum, an evening and weekend maximum, and a monthly rate. In areas of high demand, the parking lot operators may not include a daily maximum rate or a monthly rate. In areas of low demand, some parking lots lengthen the parking term rather than lower the price i.e. t1.00 for 4 hours.

The third influence on price is the facility type (lot vs. structure). In general, parking contained in building structures is more expensive than surface lot parking, particularly for monthly parkers.

Jurisdiction

In 1983, City owned and operated parking facilities comprised approximately 9% (2,720) of the entire on-street and off-street supply. This figure includes on-street parking stalls (1,770), the Library Parkade (850 stalls) and the City Hall parking lot (100). The City also leases 3 properties to private parking lot operators that contain 143 parking stalls. The lease terms vary from one to two years.

The City also institutes on-street parking bans during peak morning and afternoon periods to facilitate an efficient transit operation on major arterial roadways. During the 7:00-9:00 A.M. peak period, 152 on-street stalls are eliminated from the supply. During the afternoon peak period (approximately 15:00-18:00), 239 on-street stalls are eliminated from the supply. As shown in Figure 3.3 the parking bans are found primarily along Jasper Avenue and in areas in close proximity to Jasper Avenue.

About 92% (29,170) of the parking supply in the study area is privately owned/controlled.

Employee Parking Subsidies

The City, Provincial and Federal Governments have parking subsidy policies that apply to their respective departments.

LEGEND NS 7:00-9:00,16:00-18:00 NS 7:00-9:00,15:30-18:00 NP 15:00-18:00 NS 15:30-18:00 NS 7:00-9:00,16:30-18:00 NS 16:00-18:00 NS 7:00-9:00 ( NS - NO STOPPING ) ( NP - NO PARKING )

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PEAK HOUR PARKING BANS FIGURE

In order to assess the impact of these parking subsidy programs on the demand for parking, City, Provincial and Federal Government Departments were surveyed to determine the extent of the programs and the manner in which spaces are allocated.

The City provides parking to approximately 600 employees who require a vehicle to carry out their duties, or to those who have a walking disability. For those employees who qualify, the cost is totally subsidized.

The Provincial Government allocates a limited number of stalls to employees based on position and seniority. In addition, employees who are disabled receive special consideration. The initial allocation of stalls is based on rentable floor area (1 2 stall per 173 m ). Those who qualify pay t4.00 per month for an energized stall and $3.00 per month for a parking space only.

The Federal Government generally provides one (1) parking stall for every twenty (20) employees, who pay 70% of the current market value. All handicapped employees, and those that require a vehicle in the performance of their duties receive a parking stall. Each Department decides the distribution of its allocated stalls. In total, the Federal Government provides approximately 150 subsidized parking stalls for its employees in Downtown Edmonton. It appears that senior management staff receive the majority of subsidized parking stalls.

Average Walking Distances

The typical distances walked by parkers in Edmonton from their parking stalls to their ultimate destination was not available or collected; however, trends identified in other cities' research and surveys were reviewed as a basis for developing

estimates for Edmonton. Table 3.3 provides data on the walking habits of parkers, by city size and trip purpose. Two trends are clear. First, walking distances become longer as the population size increases. Second, parkers tend to accept greater walking distances as their parking duration 1 increases.

For a city the size of Edmonton, parkers walk an average of 210 meters from their parking stalls to their workplace, 200 meters to their shopping destination, and 125 meters to a sales 2 3 service location. '

TABLE 3.3: Average Walking Distances, by Trip Purpose (meters)

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Source: Louis J. Pignataro, Traffic Engineering, Pg. 264

1. Louis J. Pignataro, Traffic Engineering 2. Louis J. Pignataro, Traffic Engineering 3. This data conflicts with a recent survey conducted by the City of Calgary, when found that walking distances for work purposes were generally shorter than for shopping or other purposes. Parkers were also willing to walk 2 to 3 times as far to their destination as parkers in other cities of the same size.

3.1.3 Recent Parking Supply Trends

In the past five years, the supply of all on-street and off-street parking in the study area has increased by 27% (6,720) from 25,170 stalls in 1978 to 31,890 stalls in 1983. Table 3.4 and Figure 3.y show the changes in the supply of on-street and off-street surface lot and structure parking from 1978 to 1983.

The most striking trend is the increase in off-street structure parking (office buildings or parkades). Since 1978, this parking supply increased by 85% (8,300), from 9,770 stalls in 1978 to 18,070 in 1973. In contrast, the supply of off-street surface lot parking decreased by 9% (1,170), from 13,220 stalls in 1978 to 12,050 in 1983. In the same time the supply of on-street parking decreased by 19% (410), from 2,180 in 1978 to 1,770 in 1983.

3.2 1990 PARKING SUPPLY

The data presented in this section is partly based on a review of major developments for the downtown that have been approved by City Council or the Development Appeal Review Board. A list of the new developments and their impact on the parking supply is discussed in more detail in Appendix VI. The parking stalls associated with the new developments were added to parking supply projections based on the 1983 data to establish the 1990 parking supply.

3.2.1 Impact of New Development's on Parking Supply

There are four (4) developments in downtown Edmonton that could have an impact on the parking supply: The Hotel Macdonald Project (Zone 7); the Alberta Liquor Control Board Project (Zone 3); the Citadel Expansion (Zone 7); and the Bank of Montreal (Zone 8). The Hotel Macdonald Project will add approximately 600 commercial parking stalls to the available supply, while the latter three will have little or no impact.

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The lack of construction activity in downtown Edmonton to 1990 is a reflection of the economic times. In addition, a number of major developments were substantially completed in 1983, including Scotia Place, Manulife Place, First Edmonton Place, Sterling Place, Kensington Place, the Melcor Building, the Heritage Trust Building and the Convention Centre. The employment and parking provided by these developments were included in the 1983 employment and parking supply figures.

There are an additional 26 developments currently classified as "planned" which were not included in the 1990 employment or supply estimates, including Canada Place (Zone 7), the Royal Centre (Zone 7), the Fidelity Building (Zone 8), Commonwealth Square (Zone 8), Eaton's Square (Zone 5) and Edmonton Centre Stage V (Zone 5). A list of these developments and others and a map showing their locations are provided in Appendix IV.

3.2.2 Changes in the On-Street Parking Supply to 1990

Based on trends observed between 1978 to 1983, it is estimated that the supply of on-street parking will decrease by approximately 6% (110), from 1,770 stalls in 1983 to 1,660 in 1990. Because it is not possible to accurately predict where the decrease in supply will occur the 1983 supply of on-street parking was reduced by approximately 6% in each zone as the basis for projecting the 1990 parking supply by zone.

3.2.3 1990 Parking Supply by Zone

The study area will contain a total of 32,380 parking stalls, comprised of 30,720 (95%) off-street parking stalls and 1,660 (5%) on-street parking stalls. Approximately 89% (28,900) of the supply will be non-residential parking stalls. In general, the parking supply will be concentrated in areas immediately adjacent to Jasper

Avenue, 100 Street, 101 Street and in the Provincial Government Centre. The distribution of the 1990 parking supply is discussed below.

Off-Street

Table 3.5 summarizes the off-street parking supply in the study area by amount, type of parking (commercial, residential, customer, employee, and miscellaneous), and Zone for 1990. In addition, the breakdown of surface lot parking and structure parking is presented for each Zone.

Commercial and employee parking stalls will remain the most common type of stall available within the study area. Approximately 52% (15,960) of the off-street stalls will be commercial stalls. Approximately 32% (9,940) will be specifically reserved for employee parking and 3% (1,010) will be specifically reserved for business customers. Approximately 12% (3,680) of the off-street stalls will be residential parking stalls. Aprpoximately 28% of all off-street stalls will be contained in surfce parking lots.

In terms of the distribution of supply by type, the majority of commercial stalls will be located in areas adjacent to Jasper Avenue and 101 Street. Approximately 83% (13,240) of the commercial stalls will be contained in Zones 5, 7, 8, 9 and 10. Employee parking will remain interspersed across the study area, with minor concentrations in Zones 6, 10 and 11. Customer parking is also interspersed throughout the study area, with minor concentrations in Zones 3 and 10. Approximately 83% (3,060) of the residential parking stalls will be located in Zone 12 (McKay Avenue Area).

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Table 3.6, summarizes the projected on-street parking by amount and zone. On-street parking will constitute 5% (1,660) of the total parking supply and is generally interspersed throughout the study area.

3.3 SUMMARY

Figure 3.5 presents the total parking supply, by zone in 1983 and 1990.

It is estimated that the overall parking supply in the study area will increase by about 2% (490) from 31,890 stalls in 1983 to 32,380 stalls in 1990. These projections are partly based on a review of development proposals to 1990 which suggested that off-street parking will increase by 4% (600) from 30,120 in 1983 to 30,720 in 1990; and partly on a review of on-street parking trends for 1978-83, which suggested that if the trends remain constant, the on-street parking supply will decrease by 6% (110), from 1,770 stalls in 1983 to 1,660 stalls in 1990.

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CHAPTER 4

PARKING USAGE AND DEMAND

This Chapter presents the findings based on the parking usage surveys carried out in the Edmonton CBD during the summer of 1983 and additional traffic analysis. The usage data was analyzed to estimate the demand for short term and long term parking stalls; to identify the characteristics of the demand in 1983, and, to develop projections respecting the number of short term and long term parking stalls that will be required in the CBD in 1990. In addition, data was used to estimate the essential policy requirements through 1990 and to assess the ability of the roadway infrastructure system to absorb the projected vehicular traffic entering the CBD in 1990.

4.1 1983 PARKING USAGE

4.1.1 Usage by Zone

In Table 4.1, a summary of the 1983 supply/demand relationship is presented. Presented for each zone is employment, long term parking stall supply and demand, and short term parking stall supply and demand.

In 1983, there is a demand for 18,510 long term (employee) parking stalls and 5,500 short term (retail/visitor) parking talls. The greatest demand for long term parking is concentrated in areas where there is a significant 'amount of employment, including Jasper Avenue, 101 Street and the Provincial Government Centre. Approximately 75% (45,470) of downtown employment and 72% (13,370) of the long term parking stall demand are located in Zones 5, 8, 9, 10 and 11.

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The greatest demand for short term parking is concentrated in areas where retail floor space is the greatest, including areas immediately adjacent to Jasper Avenue and 101 Street. Approximately 39% (2200) of the demand for short term parking stalls is located in Zones 5 and 8.

There is an overall long term employee parking surplus of approximately 6,920 stalls when the available employee and commercial supply is considered. Private employee parking is not sufficient to accommodate the employee parking demand. As a result, commercial parking plays a major role in accommodating the excess employee parking demand. Approximately 60% (9200) of the commercial parking supply is required to satisfy the employee parking demand. However, minor deficiencies in supply still exist in Zones 3 and 8.

The employee, as a result of his time of arrival in the downtown, has the first opportunity to use available commercial parking. The short term parkers then utilize the remaining unused commercial stalls. Parking stalls designated solely for short term or customer parking (including on-street parking) are insufficient to meet the short term parking needs. There is a shortage of stalls designated solely for short term purposes of

stalls. As a result, that

portion of the commercial parking supply not consumed by employees is required to meet the short term needs. Despite the additional unused commercial stalls, supply deficiencies still exist in Zones 5, 6 and 8. Importantly, 45% (27,450) of downtown employment are located in these zones. Overall, there is a supply surplus of 4,200 stalls in 1983.

Usage ,surveys conducted on Thursday evening to reflect the prime weekday evening shopping period revealed that the usage of off-street facilities is minimal while the use of on-street stalls remains significant. Less than 15% of off-street stalls were occupied during the survey period (18:00-21:00) within the study

area. This may be due in part to the availability of inexpensive or free on-street parking. On-street parking usage remained high during the evening period, ranging from 60% to 90% in all zones except Zone 11. In Zone 11, or the Provincial Government Centre area, the usage approximated 30% for the period which is likely due to the high proportion of government offices in this area and limited retail development.

A summary of the weekday daytime supply/demand relationship in each zone will follow. The information is illustrated in Figure 4.1.

Zone 1

Approximately 2% (1,050) of downtown employment is contained in Zone 1. The demand for short term and long term parking (520 stalls) consumes 56% of the supply (920 stalls) In general, parking durations in this Zone approximates five (5) hours and turnover rates are low (1.0-1.5), indicating that the parkers in this zone are largely long term employees.

Zone 2

Less than 1% (40) of downtown employment is located in Zone 2. The demand for short term and long term parking (60 stalls) consumes 27% of the supply (220 stalls). In general, parking durations in this Zone approximates five (5) hours and turnover rates are low (1.0-1.5) indicating that the parkers in this zone are largely long term parkers.

Zone 3

Approximately 6% (3,575) of downtown employment is located in Zone 3. The demand for short term and long term parking (1,690 stalls)

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consumes 82% of the supply (2,055 stalls). In general, parking durations approximate five (5) hours and turnover rates range from 1.0 to 1.5, indicating that the parkers in this zone are largely long term parkers.

Zone 4

Approximately 3% (1,440) of downtown employment is located in Zone 4. The demand for short term and long term parking stalls (630 stalls) consumes approximately 65% of the supply (975 stalls). In general, parking durations in this Zone approximate five (5) hours and turnover rates range from 1.0 to 1.5, indicating that the parkers in this zone are long term parkers.

Zone 5

Approximately 13% (7,880) of downtown employment is located in Zone 5. The demand for short term and long term parking (3,800 stalls) exceeds the supply of parking (3,275 stalls) by 16% (525 stalls). In general, parking durations in this Zone approximates three (3) hours and turnover rates approximate 2.3, indicating the high demand for short term parking.

Zone 6

Approximately 6% (3,590) of downtown employment is located in Zone 6. The demand for short term and long term parking (1,640 stalls) exceeds the available supply (1,445) by 13% (195 stalls). In general, parking durations in this Zone approximates three (3) hours and turnover rates approximate 2.3, indicating the high demand for short term parking.

Zone 7

Approximately 6% (3,485) of downtown employment contained in Zone 7. The demand for short term and long term parking (1,480 stalls) consumes 58% of the available supply (2,570). In general, parking durations in this Zone approximates three (3) hours and turnover rates approximate 2.3, indicating the high demand for short term parking.

Zone 8

Approximately 26% (15,950) of the Downtown employment is contained in Zone 8. The demand for short and long term parking (4,650) exceeds the supply (3,590) by 30% (1,060 stalls). In general, parking durations in this Zone approximates three (3) hours and turnover rates approximate 2.3, indicating the high demand for short term parking.

Zone 9

Approximately 9% (5,460) of Downtown employment is contained in Zone 9. The demand for short term and long term parking (2,485 stalls) approximates the supply (2,480 stalls). In general, parking durations approximates six (6) hours and turnover rates range from 1.2 to 1.5, indicating the predominance of long term parking.

Zone 10

Approximately 11% (7,440) of Downtown employment is contained in Zone 10. The demand for short and long term parking stalls (2,785) consumes approximately 55% of the supply of stalls (5,030 stalls). In general, parking durations approximates five (5) hours and turnover rates range from 1.2 to 1.5, indicating the predominance of long term parking.

TABLE 4-,z2 CITY OF EDMONTON ESSENTIAL PARKING NEEDS (NON-RESIDENTIAL), 1983 (based on City of Toronto essential parking standards)

LAND USE TYPE

MAXIMUM STANDARD (STALLS/1000 m2 GLA)

FLOOR SPACE (GLA)

MAXIMUM NUMBER OF STALLS MINIMUM STANDARD ALLOWABLE (STALLS/1000 m2 GLA)

FLOOR SPACE (GLA) '

MINIMUM NUMBER OF STALLS REQUIRED

Office, other than Government Office

1/135

513,464

3,803

1/155

513,464

3,312

Government Office

1/65

513,464

7,899

1/75

513,464

6,846

Retail

1/25

234,780

9,391

1/100

234,780

2,348

Service

1/25

297,787

11,911

1/100

297,787

2,978

1/100

81,933

819

1/800

81,933

102

Warehouse

TOTAL NUMBER OF STALLS

33,823

Data Sources 1. City of Toronto, Central Area Parking and Loading Study, December 1977. 2. City of Edmonton, Existing and Projected Downtown Employment, September 1982.

15,586

Zone 11

Approximately 14% (8,740) of Downtown employment is contained in Zone 11. The demand for short term and long term parking (3,080 stalls) consumes approximately 82% of the supply (3,735 stalls). In general, parking durations approximates five (5) hours and turnover rates range from 1.2 to 1.5, indicating the predominance of long term parking.

Zone 12

Approximately 4% (2,350) of downtown employment is contained in Zone 12. The demand for short term and long term parking (1,190 stalls) consumes 62% of the supply (1,915 stalls).

4.1.2 Essential Parking

Table 4.2 presents the essential parking needs of the users of Downtown Edmonton. This table presents the land use types presented in Downtown Edmonton, the amount of foor space of each land use type, the maximum and minimum parking standards and the maximum allowable and minimum number of stalls required in Downtown Edmonton. For the purposes of this study, the essential parking needs are met by the minimum standard. Therefore, in 1983 15,586 parking stalls are required to meet essential needs.

4.1.3 Travel Demand

The travel demand on the existing roadway network was determined. In Table 4.3 the 1981 and projected 1990 Downtown travel demand and roadway capacity are shown. In 1981 there were 19,650 vehicles entering the Downtown during the A.M. peak hour. The Downtown Transportation Study (1982) estimated that the present roadway

TABLE 1 3 : DOWNTOWN TRAVEL DEMAND FORECASTS, 1983 and 1990 (A.M. Peak Hour) YEAR 1981

1990

Employment

60,8001

81,000 5

Downtown Cordon Auto Trips (Inbound A.M. Peak Hour)

19,6502

22,297

Downtown Cordon Capacity (Inbound vehicles per hours)

25,5503

20,500

0.774

0.78

Downtown Volume/Capacity 1.

Estimate from the 1981 Civic Census and 1981 Federal Census.

Inbound vehicles "crossing" the Downtown cordon in the A.M. peak in 1981; From "Recalibraiton of the City of Edmonton Regional Travel Model to 1981 Base", T.M.D. Report, September 1983.

Total capacity for inbound vehicles entering the Downtonw in the A.M. peak hour. From "Downtown Capacity", Downtown Transportation Study Working Paper 16; prepared by the G.C.G. Engineering Partnership for the City of Edmonton, May 1982.

Downtown Cordon Inbound Auto Trips, divided by the Downtown Cordon capacity.

Employment forecase from the 5 and 10 Year Roadwland Transit Improvement.

system had a capacity for 25,500 vehicles entering the Downtown in the A.M. peak hour. Therefore the volume/capacity ratio was 0.77, indicating that there was spare capacity in the roadway system in 1981. For more information Appendix V.

4.2 1990 PARKING DEMAND

4.2.1 Demand by Zone

Table 4.4 summarizes the short term and long term parking supply and demand relationship for 1990. In 1990, there will be as demand for 22,700 long term parking stalls and 7,300 short term parking stalls. The greatest demand for long term parking remains concentrated in areas where there is a significant amount of employment, including areas adjacent to Jasper Avenue, 101 Street and the Provincial Government Centre. Approximately 79% (63,640) of downtown employment and 77% (17,400) of the long term parking stall demand are located in Zones 5, 8, 9, 10 and 11. There is an overall surplus of 3,530 long term parking stalls when the available employee and commercial parking stalls are considered.

The greatest demand for short term parking is concentrated in areas where retail floor space is the greatest, including areas immediately adjacent to Jasper Avenue and 101 Street. Approximately 42% (3,060 stalls) of the demand for short term parking stalls will be located in Zones 5 and 8. Overall, there is a supply shortage of 4,630 parking stalls designated solely for short term use.

In general, the commercial parking supply will still have to be used to satisfy the demand for long term employee parking as the supply of employee parking stalls will remain insufficient in 1990. There will be supply surpluses in Zones 1, 2, 3, 7, 10, 11 and 12 and supply deficiencies in Zones 5, 6, 8 and 9. The supply deficiency

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in Zone 8 is particularly serious where there will be shortage of 5,015 stalls. However, an overall supply deficit of 1,100 parking stalls will occur in 1990.

It is assumed that in 1990 there will be sufficient parking for the weekday evening and Saturday afternoon shopping period based on 1983 data which indicated there was an overwhelming surplus of stalls, specifically in off-street facilities.

A summary of the weekday daytime supply/demand relationship in each zone will follow. The information is illustrated inFigure 4.2.

Zone 1

Approximately 1% (1,200) of downtown employment will be contained in Zone 1. The demand for short term and long term parking (570 stalls) will consume about 62% of the available supply (915 stalls).

Zone 2

Less than 1% (50) of downtown employment will be contained in Zone 2. The demand for short term and long term parking (70 stalls) will consume 32% of the available supply (215 stalls).

Zone 3

Approximately 5% (4,000) of downtown employment will be contained in Zone 3. The demand for short term and long term parking (1,800 stalls) will consume 89% of the available supply (2,030 stalls).

Zone 4

Approximately 2% (1,600) of downtown employment will be contained in Zone 4. The demand for short term and long term parking stalls (670 stalls) will consume about 69% of the available supply (970 stalls).

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Zone 5

Approximately 12% (8,630) of downtown employment will be contained in Zone 5. The demand for short term and long term parking stalls (3,910 stalls) will exceed the available supply (3,270 stalls) by 20% (640 stalls).

Zone 6

Approximately 5% (3,950) of the downtown employment will be contained in Zone 6. The demand for short term and long term parking stalls (1,720 stalls) will exceed the available supply (1,440 stalls) by 20% (280 stalls).

Zone 7

Approximately 5% (3,960) of downtown employment will be contained in Zone 7. The demand for short term and long term parking (1,580 stalls) will consume 47% of the available supply (3,370 stalls).

Zone 8

Approximately 35% (28,000) of downtown employment will be contained in Zone 8. The demand for short term and long term parking (8,600 stalls) will far exceed the available supply (3,585 stalls) by 5,015 stalls.

Zone 9

Approximately 8% (6,720) of downtown employment will be contained in Zone 9. The demand for short term and long term parking stalls (2,900 stalls) will exceed the available supply (2,475 stalls) by 16% (425 stalls).

Zone 10

Approximately 13% (10,230) of downtown employment will be contained in Zone 10. The demand for short term and long term parking (3,600) will consume 72% of the available supply (5,005).

Zone 11

Approximately 12% (10,060) of downtown employment will be contained in Zone 11. The demand for short term and long term parking (3,300 stalls) will consume 89% of the available supply (3,720 stalls). Zone 12

Approximately 3% (2,600) of downtown employment will be contained in Zone 12. The demand for short term and long term parking (1,280 stalls) will consume 67% of the available supply (1,905 stalls).

4.2.2 Essential Parking

Table 4.5 presents the essential parking needs of the users of Downtown Edmonton in 1990. This table presents the land use types and their floor areas in Downtown Edmonton in 1990, the maximum and minimum standards and the maximum allowable and minimum number of stalls required in Downtown Edmonton. For the purposes of this study, the minimum standard will represent the amount of stalls required to meet the essential needs of Downtown users in 1990. In that year, 22,013 stalls will be required.

4.2.3 Travel Demand

The travel demand on the 1990 roadways was estimated given the projected 1990 floor areas. In 1990, the inbound A.M. peak hour

TABLE

LAND USE TYPE Office, other than Government Office

4,..fr

MAXIMUM STANDARD (STALLS/1000 m 2 GLA)

CITY OF EDMONTON ESSENTIAL PARKING NEEDS (NON-RESIDENTIAL), 1990 (hosed on City of Toronto essential parking standards)

FLOOR SPACE (GLA)

MAXIMUM NUMBER OF STALLS , ALLOWABLE

MINIMUM STANDARD (STALLS/1000 m 2 GLA)

FLOOR SPACE (GLA)

MINIMUM NUMBER OF STALLS REQUIRED

1/135

752,733

5,576

1/155

752,733

4,856

Government Office

1/65

752,733

11,581

1/75

752,733

10,036

Retail

1/25

282,591

11,304

1/100

282,591

2,826

Service

1/25

419,002

16,760

1/100

419,002

4,190

1/100

84,109

841

1/800

84,109

105

Warehouse

TOTAL NUMBER OF STALLS

46,062

22,013

auto trips is predicted to be 22,297, given a modal split of 0.50, total employment of 81,000 and an auto occupancy figure of 1.19. In 1990, the Downtown cordon capacity is expected to be 28,500. The volume/capacity ratio is projected to be approximately 0.75. Therefore, spare capacity will exist in the downtown roadways in 1990 (Table 4.3). For more information see Appendix V.

4.3 SUMMARY

The demand for non-residential parking stalls increased by about 25%, from 24,010 in 1983 to 30,000 in 1990. The demand for long term parking will increase by 30%, from 18,510 in 1983 to 22,700 in 1990. The demand for short term parking increased by 33% from 5,500 in 1983 to 7,300 in 1990.

There were parking supply surpluses in both 1983 and 1990 in Zones 1, 2, 3, 4, 7, 10, 11 and 12. There were parking supply deficiencies in Zones 5, 6, 8, and 9 in both 1983 and 1990 at the peak parking demand period (13:00 hours). The supply deficiency in Zone 8 of 5,015 stalls in 1990 will be particularly serious. Policies aimed at relieving parking deficiencies should be directed to Zones 5, 6, 8 and 9. Clearly, Zones 5 and 8 will require the most attention. The parking supply surplus in Zones 7 and 10 may partially off-set these supply deficiencies as some of these stalls are within reasonable walking distances (shoppers 200 metres, employees 210 metres) to some buildings in Zones 5, 6, 8, and 9 for both 1983 and 1990.

In terms of essential parking, there are sufficient stalls to accommodate the essential parking needs only, in both 1983 and 1990. Approximately 15,600 will be required in 1983 and 22,000 in 1990. However, the City is willing to accommodate more traffic and parking than that amount of traffic and parking represented by essential needs.

Similarly, the downtown roadway infrastructure is capable of accommodating the existing (1983) and projected (1990) traffic flows (volume/capacity ratio (0.80).

CHAPTER 5

SUMMARY AND CONCLUSIONS

5.1 SUMMARY

The objective of this study was to identify and analyze the 1983 parking supply and usage characteristics in the Edmonton CBD, and to project the parking supply requirements for the five year period ending 1990. Specifically, this study had three defined objectives for both 1983 and 1990.

1. To identify areas, or zones, within the downtown that contain parking surpluses of deficiencies.

2. To determine if the essential parking needs of downtown users are being met. Essential parking is defined as the amount of parking that must be provided to accommodate all shoppers and visitors to the (CBD) and to accommodate only those commuters who do not have the option of taking public transit; and,

3. To determine if the roadway infrastructure accommodates traffic flows.

In addition, in 1983 a review of the characteristics of the parking supply was undertaken, including price, term, jurisdiction, walking distances and government employee parking subsidization policies.

In 1983 there were approximately 61,000 employed in Downtown Edmonton. Employment is concentrated in areas immediately adjacent to Jasper Avenue, 100 Street, 101 Street and in the Provincial Government Centre. Office employuument is the dominant employment type, accounting for

approximately 79% (48,545) of total employment. There were approximately 31,890 parking stalls available for use in 1983, including 30,120 (95%) off-street stalls and 1,770 on-street stalls. Approximately 88% (28,210) of these stalls were non-residential parking stalls, available to commuters and shoppers/visitors. In general, the supply is concentrated in areas immediately adjacent to Jasper Avenue, 100 Street, 101 Street and in the Provincia Government Centre.

In 1983 there was a demand for 24,010 non-residential parking stalls, including 18,510 long term stalls and 5,500 short term stalls. Designated employee parking stalls are not sufficient to meet the demand for long term parking stall demand. Consequently, commercial parking stalls must be utilized to meet the excess demand. The commuter, by virtue of their early arrival in the downtown, have access to these stalls before the shopper/visitors. Therefore, the shopper/visitors have access to only the unutilized commercial stalls.

Overall, the supply of parking stalls exceeds the demand in all Zones except Zones 5, 6, 8, and . Specifically, there is a shortage of short term stalls in Zones 5, 6 and 9 and a shortage of short term and long term stalls in Zone 8, despite the utilization of the commercial stalls. The supply deficiency in Zone 8 was particularly serious, approximating 1,060 stalls. It should be noted that supply shortages occur during the peak short term parking demand period (approximately 13:00 hours). At other times, there may be supply surpluses. Overall, there was a supply surplus of 4,200 stalls in 1983. The supply/demand relationship (surplus or deficiency) for each zone are illustrated in Figure 5.1 for both 1983 and 1990.

A portion of the deficiencies could be accommodated in adjoining zones where there are supply surpluses, in particular Zones 7 and 10. This is based on the premise that shoppers are willing to walk up to a maximum of 200 metres and commuters up to 210 meters. It should also be noted that the highest parking fees are paid in those zones with the greatest demand, including Zones 5, 6 and 8.

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In terms of jurisdiction, the City at present has only limited control of the parking supply, specifically about 8% (2,700 stalls) of the supply. Any proposed solutions to correct parking deficiencies must deal with this constraint. The City and other government agencies do have control over their respective parking subsidization policies and policy initiatives could be made in this direction.

Despite the fact there are supply deficiencies in specific zones, overall there are enough parking stalls in the downtown to meet the essential needs of downtown users. Approximately 15,600 non-residential parking stalls, or approximately 56% of the supply, were required in 1983 to meet those needs. In practice, however, based on the 5 and 10 Year Roadway and Transit Improvement Plan, the City is willing to accommodate a greater amount of traffic and parking required by essential needs.

Finally, it must be noted that the 1983 roadway infrastructure was capable of accommodating the 1983 traffic flows (volume/capacity ratio 0.80). Infrastructural improvements are not necessary to accommodate the existing parking demand.

By 1990, employment will have increased by about 33% (20,000) from 61,000 in 1983 to 81,000 in 1990. However, the supply will remain virtually unchanged from 1983. In 1990, there will be 32,380 parking stalls, including 30,720 off-street stalls and 1,660 on-street stalls. Approximately 89% (28,900) of the stalls will be non-residential parking stalls. Despite the fact that the supply will remain virtually unchanged, the demand for long term parking stalls will increase markedly. In 1990 there will be a demand for 30,000 non-residential parking stalls, including 22,700 long term stalls and 7,300 short term stalls. Supply deficiencies will be apparent in Zones 5, 6, 8 and 9 (Figure 5.1). Specifically, there will be a shortage of short term stalls in Zones 5, 6, and 9 and a shortage of both short term and long term stalls in Zone 8. The supply shortage in Zone 8 is particularly serious, with a deficiency of 5,015 stalls. Again, the supply shortages

will occur at 13:00 hours while at other times there may be supply surpluses. Overall, there will be a supply shortage of 1,100 stalls within the study area in 1990.

In 1990 the supply of parking will again exceed the needs of essential users in downtown Edmonton, despite the localized supply shortages. About 22,000 parking stalls will be required to meet the needs of the essential users, or approximately 73% of the supply.

The 1990 roadway infrastructure will be able to accommodate the 1990 traffic flows (volume/capacity) ratio < 0.80).

Therefore, additional

infrastructural improvements will not be required to accommodate the 1990 parking demand.

5.2 CONCLUSIONS

Policies to correct supply deficiencies should be directed to Zones 5, 6, 8, and 9. There will be shortages of short term parking stalls in 1990 in all of these zones. In addition, in Zone 8 there will be a shortage of long term parking stalls as well. These zones include areas immediately adjacent to a portion of Jasper Avenue (100 Street to 105 Street) and 101 Street. In Zone 8 alone there will be a supply shortage of 5,015 stalls. The supply deficiency in these Zones could be partially off-set by a supply surplus in Zones 7 and 10. There are currently (1983) supply shortages of concern in Zones 5, 6 and 8, which may require some immediate attention.

APPENDICES

APPENDIX I Employment Methodology

The methodology provided in this Appendix describes how the employment data was generated. Specifically, the employment analysis identifies and categorizes the amount and type of employment (office, retail, warehouse/wholesale, service, manufacturing) for each zone for 1983 and 1990.

The methodological framework to estimate the 1983 employment is presented first, followed by the methodology for projecting the 1990 employment.

1.1 1983 EMPLOYMENT

The 1983 employment was stratified into five types of employment: office; retail; warehouse/wholesale; service; and manufacturing. The amount of each type of employment is provided for each of the twelve (12) zones within the study area.

The primary source of employment information is the document entitled, Existing and Projected Downtown Employment (September 1982), prepared by the Planning Department of the City of Edmonton. To estimate the existing amount of employment, the amount of non-residential floor space (office, retail, warehouse/wholesale), was collected and aggregated on a block by block basis. The primary source of the data was the Business Assessment computer printout BU0707. The data was then updated to be current to 1983 12 31. After a vacancy rate was applied of 0.20 for older office buildings and 0.35 for new office buildings completed in 1983, four indices were used to convert the amount of commercial and industrial floor space to employment figures. The indices were:

(1) Office Space

1 employee/19.5 m2

(2) Retail Space

1 employee/45.5 m 2

(3) Warehouse/Wholesale

1 employee/46.5 m2

(4) Service Space

1 employee/53.3 m2

The vacancy rate information was obtained from the document entitled, "Office Space Survey of the City of Edmonton's Central Business District", December 31, 1983, produced buy Graeme Young and Associates.

The employment to floor space ratios were obtained from the City of Edmonton Planning Department. They were compared to other indices developed by the City of Vancouver Planning Department (April 1982), Peat, Marwick and Partners/I.B.I. Group (July 1975), City of Edmonton Business Development Department (August 1982) and Oxford Development Group Limited (September 1982), and were found comparable. The service space index was obtained from a telephone survey of the service industry itself. Similarly, it was possible to obtain actual manufacturing employment figures by a telephone survey.

The 1983 employment figure is consistent with the employment figure in the 5 and 10 Year Roadway and Transit Improvement Program.

1.2 1990 EMPLOYMENT

To estimate the 1990 employment in the study area, the following methodology was used. The projected amount of floor space by type generated by developments currently under construction was determined for each zone. The employment to floor space indices used to estimate the 1983 employment were then applied to the new developments under construction. Three assumptions were made to this point: (1) all developments under construction would be completed by 1990; (2) all vacant office space in 1983 will be occupied by 1990; and (3) the employee to floor space ratios would remain valid for 1990. The new employment generated by type in each zone and the vacant office space employment would then be added to the 1983 employment to estimate the 1990 employment.

The 1990 employment forecast is consistent with the employment forecast in the 5 and 10 Year Roadway and Transit Improvement Program.

APPENDIX II

SUPPLY METHODOLOGY

The methodology provided in this Appendix describes how the supply data was generated and analyzed. Specifically, for both 1983 and 1990, the supply analysis had three components:

To identify and categorize the type of parking (on-street, off-street) by zone, for 1983 and 1990.

To document changes to the supply of on-street and off-street parking from 1978 to 1983; and,

To identify the characteristics of the supply (term, price, city controlled parking, employer subsidization of parking, walking distances) for 1983, and where possible for 1990.

The methodology to estimate the 1983 supply of parking is presented first, and is followed by the methodology for projecting the 1990 parking supply.

2.1 1983 SUPPLY

2.1.1 Supply by Zone

The 1983 parking supply data was stratified into on-street and off-street parking. Next, off-street parking was subdivided into surface lot parking and parking structures. The off-street parking was further categorized into one of four types, described below, based on the type of parker accommodated:

Commercial - includes any lot/structure which has both a monthly and hourly fee schedule which is available to both shoppers and commuters.

- includes parking structures contained in office buildings which has both a monthly and hourly fee schedule but would be mostly occupied by the occupants of the building (commuters).

Residential - includes any parking specifically restricted to residential use;

Customer

- includes only those lots which indicate free customer parking is allowed; and,

Employee

- includes any parking restricted to employee use without indication the space is available for casual rental.

The category definitions are comparable to the definitions used in 1 the 1982 Parking Inventory.

On-street parking was subdivided into metered and non-metered parking. Both the metered and non-metered categories were further subdivided by the term of the meter: fifteen minutes, one hour, two hour, and five hours. In addition to the above, non-metered parking had additional division, that of "no time limit". On-street parking included the categories of metered; free curb; and service road zones and loading zones, which were previously defined by the 1982 Parking Inventory (TSR/26/82) document.

(1) Random parking is combined with surface lot parking. Random parking is off-street parking with less than six spaces. There are three types of random parking: employee; residential; and customer. For the purpose of this study, random parking was included with the comparable surface lot parking category.

The primary sources of information for the supply of parking were the semi-annual parking inventories prepared by the Technical Services Section of the Transportation Management Department (TMD). The most recent inventory was completed in November of 1982. The data for that inventory were collected by field surveys in May and June of that year. For the purposes of this study, the data was updated to reflect the 1983 parking supply. The off-street supply data is current to 1983 10 01 and the on-street supply data to 1983 08 01.

In the 1982 document, the Downtown Area was divided into 253 block areas. A block area is a square of rectangular area of land that is bounded on all four sides by a roadway. A fieldsheet was prepared for every block area to indicate the location of all on-street and off-street parking stalls, the number of parking stalls provided, the type of off-street parking provided, the type and amount of on-street parking and in some cases the parking fees. These fieldsheets are the primary source of information for the Downtown Parking Study. All changes to the supply of parking since 1982 were noted on them.

The Downtown Area defined by the Downtown Parking Study was smaller than that used for the semi-annual parking inventories conducted by the Technical Services Section of T.M.D. One-hundred and six (106) blocks of the 253 downtown block area comprised the study area. An update of the supply (location, amount, price) of both on-street and off-street parking in the 106 block area was carried out. The update on the off-street parking supply involved three activities. First, all major public and private parking lot operators were contacted by mail and requested to complete an "information sheet" for each facility they operated within the defined study area. The information sheet requested information on the number of stalls provided, the pricing structure, the number of reserved long term

stalls, and the ownership of the facility. In addition, operators were asked to estimate the usage of their facilities during specified time intervals. If the operator did not respond within a month a TMD staff member attempted to meet with the operator personally to gather the information.

Second, a telephone survey was undertaken of the building managers of the major non-residential buildings (greater than six floors) within the study area. Each building manager was asked to respond to a list of pre-determined questions similar to the questions asked of the parking lot operators. In addition, the building managers were asked to estimate the occupancy of the building. Field surveys were also conducted in order to "fill in" gaps in the information that was provided by both the parking lot operators and building managers.

Third, all areas indicated in the 1982 survey field sheets as "under construction" or vacant" were visited in order to determine if parking was now being provided on the site.

The update on the on-street supply of parking involved an examination of internal THD files to identify the location of changes to on-street parking from 1982 08 01 to 1983 08 01 within the defined study area. Field surveys were then undertaken to determine the type change each location.

The updating process did not encompass the entire 1982 parking supply. Specifically, about 1,000 parking stalls allotted to business customers and 4,000 surface lot employee parking stalls were not updated. Instead, the 1982 parking stall supply figures were used for these types of parking. These lots were generally small in size ( 30 stalls) and were evenly disbursed in the study area. It was assumed there was not likely to be a major change in number or location location of these stalls from 1982 to 1983.

2.1.2 Recent Supply Changes

To supplement the parking supply data, changes in the supply of on-street and off-street parking in the study area were reviewed. The parking stalls located in off-street surface lots, off-street structures and on-street curb side stalls for the years 1978, 1980 and 1982 were identified. This data was obtained from the 2 semi-annual parking inventories conducted in 19781, 1980 and 3 1982 by TMD and from the 1983 updating process.

2.1.3 Supply Characteristics

In order to understand the existing parking supply situation, the following supply characteristics were investigated:

1. Price. The factors influencing price in Downtown Edmonton will be presented. The prices charged for commercial parking were identified presented by zone, where possible. This information was acquired from the survey of commercial parking facility operators.

2. Term. The number of exclusively short term parking stalls and the number of parking stalls available to both long term and short term parkers were identified. This data was obtained from the survey of commercial parking facility operators and from the 1982 parking inventory fieldsheets.

3. Jurisdiction. The total number of parking stalls contained in City owned and operated on and off-street parking facilities were identified. This information was obtained from

1. 1978 Parking Inventory 2. 1980 Parking Inventory 3. 1982 Parking Inventory

the survey of commercial parking lot operators. The loss of on-street parking during the peak hour A.M. and P.M. parking bans were identified. This information was obtained as part of the on-street parking inventory. Finally, the number of city owned lots currently leased to private parking lot operators identified. The lot identification was provided by the Planning Department.

4. Employee Parking Subsidies. A survey of City, Provincial and Federal Governments was undertaken to determine the extent of employee parking subsidies and how such programs are administered.

5. Walking Distances. A literature review was undertake to determine the distances shoppers and commuters are willing to walk from their parking stall to their workplace or shopping destination. This review was undertaken in order to establish how convenient parking is within the Downtown area. Two documents were reviewed: Pignataro's Traffic Engineering and the City of Calgary Parking Study.

2.2 1990 PARKING SUPPLY

The amount of each type of parking available (commercial, residential, customer, employee) will be presented by zone. The number of stalls projected to be available in 1990 was estimated by reviewing development proposals within the defined study area. Specifically, the location of each major proposal and the number of stalls to be provided with each development was determined. The loss of surface lot parking, if any, was noted, if the development occured on a lot currently being used for surface lot parking. It was also assumed that all currently vacant office space will be occupied in 1990.

To estimate the loss of the on-street parking supply, the yearly loss of on-street parking stalls from 1978-1983 was estimated and applied to the 1983-1990 period.

APPENDIX III

PARKING USAGE AND DEMAND METHODOLOGY

The methodology provided in this Appendix describes how the demand data was generated and analyzed. The demand analysis had three components:

To estimate the number of short term and long term parking stalls required to satisfy demand in each zone, and to identify the characteristics of the demand;

To estimate the minimum amount of parking (essential parking) that must be provided to meet the needs of those whose use of a car is essential; and,

To determine if the Downtown transportation system can accommodate the Downtown travel demand (traffic volumes).

The methodology to estimate the 1983 demand analysis is presented first, and is followed by the methodology for projecting the 1990 parking demand.

3.1 1983 PARKING USAGE AND DEMAND

3.1.1 Usage and Demand by Zone

On-street and off-street parking usage studies were conducted to estimate the number of short term parking stalls required to satisfy demand and to identify the characteristics of the demand for both a typical weekday and a Thursday evening. The weekday survey period was chosen to reflect the combined commuter and shopper/visitor parking demand characteristics. The Thursday evening survey period was chosen to reflect the evening and Saturday afternoon shopping demand characteristics.

The useage studies estimated the usage (demand) of facilities by time of day. Three statistical indicators of usage were used to estimate the demand for short term parking stalls and to describe the characteristics of the demand for parking:

1. Space Usage - is the percentage of time a space is occupied in a given time period;

2. Space Turnover - is the average number of vehicles using a space in a given time period; and,

3. Parking Duration - is the average length of time vehicles remained parked in a given time period.

Usage studies, or license plate surveys, were conducted in areas containing substantial proportions of office and/or retail land uses. In total, six (6) on-street and six (6) off-street sites were chosen for study. Each on-street site consisted of approximately four (4) block faces and 60-80 parking meters. The off-street sites selected for study consisted of 80-330 parking stalls and could be either a surface parking lot or a parking structure.

The on-street and off-street surveys were conducted from 7:00-19:00 on a weekday (Monday to Thursday) and from 18:00-21:00 on a Thursday evening.

To estimate the short term parking demand for each zone and for the entire study area in 1983, the following equation was used;

OFF-STREET DEMAND/USAGE The Number Of

% Occupancy Of

Off-Street Non- X Non-Residential

Proportion of Short X Term Parkers (Parking

Residential

Off-Street Parking

Durations 3 Hours) At

Parking Stalls

Stalls at 13:00

At 13:00 Hours In Off-

Hours

Street Facilities

ON-STREET DEMAND/USAGE = SHORT TERM DEMAND/USAGE The Number Of

% Occupancy Of

On-Street Stalls X On-Street Stalls At 13:00 Hours

Required Short Term Parking Stalls

The supply of on-street and non-residential off-street parking stalls were previously determined in Chapter 3. The occupancy of figures and the proportion of short term parkers in off-street parking facilities at 13:00 hours were determined in the usage studies.

To estimate the demand for long term parking stalls for each zone and for the entire study area in 1983, the following equation was used:

Employment X % Auto Drivers X % Daytime Parkers = Required Long Term Parking Stalls

Employment data by zone was previously provided in Chapter 2. The % auto drivers for each zone was extrapolated from the 1981 Civic Census and was considered valid for the 1983 and 1990 long term parking stall demand estimate. This factor was applied to determine the number of vehicles that will require a parking stall. The modal split used to estimate the % auto drivers was 0.45, which is consistent with the 5 and 10 Year Roadway and Transit Improvement Plan. The % daytime parkers was estimated from a review of the literature (i.e. New Orleans Study). This factor was applied to discount those employees who are absent from work, and those that work in the downtown during the evening.

For use later in the study (1990 demand estimates), the parking stall data (short term demand) were then expressed as employee ratios (stalls/employment) for each zone.

3.1.2 Essential Parking

Essential parking is defined as the amount of parking that must be provided to accommodate all shoppers and visitors to the Central Business District (CBD) and to accommodate only those commuters who do not have the option of using public transit for their journeys to work. The minimum amount of parking required in Downtown Edmonton, or essential parking, was estimated from parking standards currently enforced by the City of Toronto are based on the premise of essential parking and are applied in the Edmonton context.

Toronto's essential parking figures were generated from a survey that identified two types of auto trips: those for whom parking should be supplied and those for whom parking it should not be, based on their reasons for using a car. Only enough parking is provided in the CBD for those whose use of a car is necessary, as defined below.

The following types of car drivers are defined as those from whom parking should be supplied in the CBD:

1. They work in the CBD and (a) Need a car: (i) to transport equipment; or (ii) as condition of employment; or (iii) because of physical handicap; or (b) Use their car as part of a car pool; or (c) Arrive at work before 7:00 a.m. or leave after 6:00 p.m. and have inconvenient access to transt near their homes at those times; or (d) Use their car during the day at least once a week for trips other than between home and work.

2. They are visitors (customers who drive an automobile and park within the CBD).

Those who use their auto solely for commuting between home and work are excluded from the above criteria. Instead of driving, these people have the option of taking transit directly from home or driving to a TTC or Go Station where they can park and take transit the rest of the way.

To establish standards to supply parking to only those whose vehicle needs are essential, the City of Toronto commissioned a consulting firm to design and conduct a detailed and comprehensive questionnaire survey of visitor and employee parkers in the CBD. In total, 21,700, visitor and 13,000 employee responses were collected for analysis. The standards resulting from the analysis are presnted and are then applied in the Edmonton context (standards X 1983 floor areas) in order to determine the number of essential parking stalls required in Edmonton in 1983.

3.1.3 Travel Demand

An analysis must be undertaken in order to determine if the existing roadways in the Downtown can accommodate the existing traffic volumes, during peak periods given the existing amount of floor space. This is included to determine if more restrictive parking policies are necessary in order to discourage long term commuter parkers to reduce traffic volumes.

The peak period in terms of traffic volumes is experienced between 7:00-9:00 (A.M. peak) and 16:00-18:00 (P.M. peak). To determine if the existing roadways can effectively accommodate the existing traffic volumes, the A.M. peak hour inbound vehicular auto trips were compared to the downtown cordon capacity. The traffic volumes,

A.M. peak hour inbound auto trips, was determined by the cordon counts undertaken annually by TMD. For the purposes of this analysis 1981 cordon count data was used.

The downtown cordon capacity, expressed as the maximum allowable A.M. inbound vehicles per hour, was previously determined by the Downtown Transportation Study (1982). If the volume/capacity ratio exceeds 0.90, travel time delays will result and expensive roadway improvements would be necessary.

3.2 1990 PARKING DEMAND

3.2.1 Demand by Zone

To estimate the 1990 demand for short term parking stalls, the following methodology was utilized. The employee ratios (stalls/employment) determined for 1983 were applied to the projected employment in 1990. The employment data were obtained from the document entitled Existing and Projected Downtown Employment (1982). To determine the 1990 long term parking demand, the 1990 floor space was determined and the long term parking stall equation used in 1983 was applied to determine the 1990 requirements. The transit share of the modal split was estimated to be 0.50, which is consistent with the 5 and 10 Year Transit and Roadway Improvement Plan.

3.2.2 Essential Parking

The minimum amount of parking stalls required in Downtown Edmonton (essential parking) in 1990, was estimated by applying the City of Toronto parking standard to Edmonton's projected 1990 floor area.

3.2.3 Travel Demand

For 1990, it was necessary to determine if the 1990 roadway network could accommodate the projected 1990 traffic volumes. An estimate was made of the A.M. inbound peak hour traffic volumes for 1990

using projected Downtown Edmonton employment figures, modal split goals and the auto occupancy rate. The first two projections were obtained from the 5 and 10 Year Roadway and Transit Improvement Plan. It was assumed that the 1990 auto occupancy rate would remain the same as the 1983 auto occupancy rate.

The network capacity to 1990, or the maximum amount of traffic the 1990 roadways could accommodate, was determined in the following manner.

All

improvements

to the downtown roadway network

(intersection improvements, new

traffic management schemes) were

identified in the 5 and 10 Year Roadway and Transit Improvement Plan. The additional capacity provided by each improvement to the existing roadway network was added to the 1983 roadway traffic volume capacity to determine the 1990 traffic volume/capacity figure.

APPENDIX IV PROPOSED DEVELOPMENTS REVIEW LIST

1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18. 19. 20. 21. 22. 23. 24. 25. 26.

Name/Location

Zone

Type

10611 - 98 Avenue Waterloo Project SE Corner Jasper/104 St. SE Corner 98 Ave./105 St. Chevis Towers NE Corner 97 Ave./106 St. Tankoos/Yarmon Bldg. Bellamy Hill Apts. Carma/Bowlen Bldg. 104 St./102 Ave. NW Corner of 99 Ave./102 St. 106 St./Jasper Avenue Northwoods Inn Fidelity Building Royal Centre Scott Robertson Place Atomic Developments 109 Street Housing Arungton Place Mallab Towers Commonwealth Square Armstrong Block Bank of Commerce Canada Place Edmonton Centre Stage V Eaton's Square

12 10 9 8 3 12 5 12 7 4 12 10 9 8 8 10 12 3 10 5 8 7 7 7 5 5

Residential Primarily Office Office Addition Residential Residential Residential Primarily Office Residential Primarily Office Primarily Office Residential Primarily Office Hotel Expansion Primarily Office Primarily Office Primarily Office Residential Residential Residential Residential Primarily Office Primarily Office Primarily Office Primarily Office Residential/Office Office/Retail

1t.)

104. Ave.

25 20-26

\./ r--

13 2

16 (

11 12

21 1—^ —

L11

17 97

Aue•A-11.AQ

7,7 • 1,

FIGURE IY-1: PLANNED DEVELOPMENT

APPENDIX V BASIC DATA FOR TRAVEL DEMAND ESTIMATES

1981

1990

Employment

60,800 (A)

81,000 (I)

Auto Trips to CBD (AM Peak Hour)

11,986 (B)

14,634 (J)

7,663 (3)

7,663 (K)

CBD Through Auto Trips (AM Peak Hour)

19,650 (C)

22,297

25,500 (D)

28,500

0.77 (E)

0.78

Transit Mode Split (AM Peak Hour)

0.45 (F)

0.50 (M)

Auto Occupancy (AM Peak Hour)

1.19 (G)

1.19 (N)

Person Trips/Employee

0.43 (H)

0.43 (0)

Total Auto Trips Crossing CBD Cordon (AM Peak Hour) Downtown Capacity (Inbound vehicles/hour)

Volume/Capacity Rates and Ratios

(AM Peak Hour)

APPENDIX 4 BASIC DATA FOR TRAVEL DEMAND ESTIMATES

1981

1990

60,000 (A) 11,986 (B)

81,000 (I) 14,634 (J)

C.B.D. Through Auto Trips (A.M. Peak Hour)

7,663 (B)

7,663 (K)

Total Auto Trips Crossing C.B.D. Cordon (A.M. Peak Hour)

19,650 (C)

22,297

Downtown Capacity (Inbound vehicles/hour)

25,500 (D)

28,500

0.77 (E)

0.78

Transit Mode Split (A.M. Peak Hour)

0.45 (F)

0.50 (M)

Auto Occupancy (A.M. Peak Hour)

1.19 (G)

1.19 (N)

Person Trips/Employee (A.M. Peak Hour)

0.43 (H)

0.43 (0)

Employment Auto Trips to C.B.D. (A.M. Peak Hour)

Volume/Capacity Rates and Ratios

NOTES A

From Facility Planning section. Based on information from the 1981 Civic and Federal Census. . Total Auto Trips crossing the C.B.D. 19,650 based on information from "Recalibration of the City of Edmonton Regional Travel Model to 1981 Base" Working Paper #6 September 1983. Through raffic is 39% of the total auto trips based on information from the "Downtown Transportation Study" Working Paper #6. Through trips = 0.39 (Total Auto Trips Crossing C.B.D. Cordon) = 0.39 (19,650) = 7,663

From "Recalibration of the City of Edmonton Regional Travel Model to 1981 Base", Working Paper #6, September 1983.

Total capacity of the inbound entrances to the C.B.D. From the "Downtown Transportation Study" Working Paper #6.

Volume Capacity . A.M. peak hour inbound vehicles capacity (vehicles/hour)

Estimated as follows: Auto trips = (1 - %transit modal split)total person trips to C.B.D. auto occupancy 11,986 = (1 - % transit mode split) 26,144 1.19 % transit = 0.45

From "1981 Civic Census Transportation Data " T.M.D. Report TSR/41/83 August 1983.

Estimates from the 5 and 10 year plan.

Estimates as follows: 1990 Auto Trips = (1-1990 M.S.) X trip rate X emp. auto occupancy . (1-0.50) X 0.43 X 81,000 1.19 = 14,634

Assuming same number of through trips as in 1981.

Assuming in capacity.

From the 5 and 10 year plan.

Assuming same auto occupancy as in 1981.

Assuming same person trips per employee as in 1981.

I•••.•L

1•••

BP.

•

•0•••••

•••X

•

DOWNTOWN PARKING STUDY Working Paper #3 Issue Identification TSR/46/83

Transportation Department February, 1984

TABLE OF CONTENTS PAGE NO. PREFACE LIST OF FIGURES LIST OF TABLES CHAPTER 1 - INTRODUCTION 1.1 1.2 1.3 1.4

ii iii

Study Objective Study Area Study Organization Overview of Working Paper #3

CHAPTER 2 - CITY PARKING POLICIES AND RESPONSIBILITIES

2.1 Parking Management Responsibility Matrix 2.2 Parking Policies and Functions 2.3 Summary CHAPTER 3 - CITY PARKING REVENUES AND EXPENDITURES

3.1 Parking Revenues 3.2 Parking Expenditures 3.3 Summary CHAPTER 4 - PARKING ISSUES AND CONCERNS 4.1 4.2 4.3 4.4 4.5 4.6 4.7

Downtown Businessmen Property Managers Development Industry Parking Lot Operators Residential Communities Civic Administration Summary

CHAPTER 5 - SUMMARY AND ANALYSIS OF PARKING ISSUES 5.1 5.2 5.3 5.4 5.5 5.6 5.7 5.8

Transportation Policy Parking Supply Parking Management Parking Information and Marketing Parking Standards Parking Spillover Parking Revenues/Expenditures Conclusions

APPENDIX I Interest Groups APPENDIX II Parking Documents

40 47

PREFACE This report is the third of four (4) working papers comprising the Downtown Parking Study for the City of Edmonton. The Transportation Management Department initiated this study on the basis of parking objectives and goals stated in Appendix I of the Downtown Area Redevelopment Plan Bylaw #6477, and Bylaw #6905 to Amend the General Municipal Plan. Terms of Reference for this study were submitted to City Council on 1983 10 18 for information.

ii LIST OF FIGURES PAGE NO. FIGURE 1.1

STUDY AREA

FIGURE 1.2

DOWNTOWN AREA STUDY ACTIVITIES FLOWCHART

FIGURE 1.3

WORKING PAPER #3: ACTIVITIES FLOWCHART

iii LIST OF TABLES PAGE NO. TABLE 2.1

CITY PARKING MANAGEMENT RESPONSIBILITY MATRIX

TABLE 2.2

COMMERCIAL AND RESIDENTIAL PARKING

STANDARDS TABLE 2.3

DOWNTOWN PARKING CONTROLLED BY THE CITY,

1983 TABLE 3.1

1983 CITY PARKING REVENUE ESTIMATES

TABLE 3.2

1983 CITY PARKING EXPENDITURE ESTIMATES

CHAPTER 1 INTRODUCTION

Parking is an integral component of an urban transportation system that can strongly influence the economic and recreational viability of a city's central business district (CBD). The development of effective parking management policies, strategies and tactics to meet employee (commuter) and shopper/visitor parking requirements in the CBD is an important and fundamental city planning activity. Traditional approaches to resolving parking supply problems in the CBD have typically involved the construction or addition of parking facilities. Increased competition for land within the CBD and/or potentially more productive land uses can make the construction or long term designation of open land for parking uneconomical in today's city. Also, additional parking will not necessarily increase the availability of short term parking for shoppers if it is equally available to CBD employees (commuters).

Consequently, it is desirable to identify and

evaluate a wider range of parking management alternatives to ensure that the proposed solutions are not only cost effective but successful in their intent. The Edmonton Downtown Parking Study is the first comprehensive analysis of CBD parking supply, demand and issues in this city. The study is predicated on the identification of parking management strategies to meet the short/long term parking requirements in the CBD within a framework that reflects the city's overall transportation, land use and economic development objectives.

1.1 OBJECTIVE The objective of the Downtown Parking Study is to define parking standards to replace the existing interim standards and to recommend parking management tactics which will aid in achieving the City's land use and transportation goals and promote the economic viability of the Central Business District (CBD). Specifically, the Downtown Parking Study will develop, evaluate and recommend short range (5 year) parking standards and other parking management tactics to support the land use and transportation system objectives and policies of the Downtown Area Redevelopment Plan Bylaw #6477 and Bylaw #6905 to Amend the General Municipal Plan. 1.2 SCOPE

The study reflects a seven (7) year planning horizon commencing in 1984 and incorporating the 1986-1990 Five Year Roadway and Transit Improvement Plan. Although parking standards and strategies will be mainly developed for the referenced plan, interim and possibly longer term requirements will also be addressed. The area for the Downtown Parking Study coincides with that designated for inclusion within the Downtown Area Redevelopment Plan as illustrated in Figure 1.1. The boundaries are described below: Starting at 97 Avenue, north along the western boundary of the CPR railway lands, north along 111 Street, east along the northern boundary of the CNR railway lands, south along 97 Street, east along Jasper Avenue, south along the eastern boundary of the Convention Centre site, west along the top of the bank of the River Valley, north along 100 Street, west along MacDonald Drive, south along 101 Street, west along 99 Avenue, south along Bellamy Hill Road, west

1:f

OES

STUDY AREA

FIGURE 1.1

The Downtown Parking Study comprises four (4) working papers and a final report, as described below. The first three working papers will be undertaken simultaneously to establish a data and information base for the analytical tasks in the fourth working paper. An activity flowchart for the study is illustrated in Figure 1.2 1.3.1 W.P. #1: State-Of-The-Art Review Strategies and tactics relating to the supply, use and distribution of parking will be identified and discussed. Specific applications in the downtown areas of selected major municipalities in Canada and the United States will also be reviewed in terms of effectiveness, implementation process, etc. 1.3.2 W.P. #2: Identification of Parking Supply and Demand A 1983 inventory of off-street and on-street parking facilities in Edmonton will be generated, and detailed in terms of type, capacity, pricing, distribution and present usage patterns. Supply/demand estimates to 1990 will also be generated to identify potential areas of parking supply surplus or deficiency

1.3.3 W.P. #3: Issue Identification Edmonton CBD parking issues and concerns pertaining to the interests of the retail and service sectors, the development and property management sectors, parking lot operators, residential communities in or adjacent to the downtown, the consumer, and the City's Administration will be identified and discussed.

State of the Art Review

Identification of Parking Supply and Demand

Identification and Evaluation of Alternative Parking Standards and Management Tactics

Final Recommendations

Issue Identification

DOWNTOWN PARKING STUDY ACTIVITIES FLOWCHART FIGURE 1.2

1.3.4 W.P. 114: Identification and Evaluation of Alternative Parking Standards and Management Tactics Alternative parking standards will be evaluated in relation to roadway capacity for vehicles entering the Downtown, modal-split variations, estimated demand for long and short term parking, issue resolution and technical, administrative, and economic feasibility. Other parking management strategies and tactics identified in the state-of-the-art review will also be evaluated for potential application in Edmonton.

1.3.5 Final Report The final report will contain recommendations concerning parking standards and other management tactics to coincide with the 1986-1990 Five Year Roadway and Transit Improvement Plan. It will also include Terms of Reference for a program to implement the study's recommendations. 1.4 OVERVIEW OF WORKING PAPER 113 Issue identification constitutes the third working paper for the Downtown Parking Study. 1.4.1 Objective The objective of Working Paper 113 is to identify and analyze the issues, concerns and suggestions obtained from a survey of various interest groups, agencies, etc., that could be potentially affected by city parking policies and management strategies for the downtown area. The survey findings will be discussed within the framework of the city's parking policies, responsibilities and operations; and

utilized in the evaluation of alternative parking standards and management strategies in Working Paper #4 of the Downtown Parking Study.

1.4.2 Methodology

An activities flowchart for Working Paper #3 is illustrated in Figure 1.3.

Six interest groups that could be potentially impacted by downtown parking policy and/or management strategies were initially defined as part of the issue identification process. The six groups included:

downtown businessmen . property managers development industry . parking lot operators . residential communities civic administration

Telephone and personal interviews were conducted with representatives of the interest groups to identify and discuss downtown parking issues and concerns.

To supplement the interest groups survey, parking reports and documents previously prepared by the civic administration (including Working Papers #1 and #2 of this study) were reviewed to identify potential issues/concerns. In addition, reports and briefs submitted by interest groups in connection with other planning input processes (e.g. Trans Plan) were reviewed to determine parking related issues. A list of the documents that were referenced for this activity is contained in Appendix II.

INTEREST GROUP INTERVIEWS / SURVEYS PARKING ISSUES INVENTORY â&#x20AC;¢ REVIEW PARKING- DOCUMENTS

SUMMARY OF CITY PARKING POLICIES / FUNCTIONS

SUMMARY AND ANALYSIS OF PARKING ISSUES

WPis 1 (STATE OF THE ART REVIEW)

WP#2 (SUPPLY / DEMAND)

WORKING PAPER # 3 : ACTIVITIES FLOWCHART

FIGURE 1.3

The issues identified from the interviews, surveys and review of documents were categorized and analyzed with reference to the city's transportation policy(s), parking management responsibilities, and data/information contained in Working Papers #1 and #2 of this study.

1.4.3 Report Organization

Chapter 2 contains an outline of the city's parking management responsibilities and downtown parking policies/guidelines. City parking revenue and expenditure estimates for 1983 are presented in Chapter 3. Chapter 4 contains a summary of parking issues and concerns based on the interest groups survey and document review. Chapter 5 comprises an analysis of the parking issues and concerns identified in the previous chapter.

The interest groups contacts are listed in Appendix I. The reports, briefs, and letters reviewed for the preparation of this working paper are listed in Appendix II.

CHAPTER 2 CITY PARKING POLICIES AND RESPONSIBILITIES

This Chapter contains an outline of Edmonton's parking management responsibilities, including parking policies specific to the downtown area. 2.1 PARKING MANAGEMENT RESPONSIBILITY MATRIX

Specific parking responsibilities/functions are presently distributed among five (5) City of Edmonton departments including: Transportation; Planning; Police; Finance; and Central Supply and Services. Their respective responsibilities relate to one or more of the following areas: . development of long range parking policies . administration of parking standards for new developments . control/provision of on-street parking . management/operation of city owned parking facilities . enforcement of parking regulations/bylaws . monitoring/data collection/parking studies

Table 2.1 summarizes the distribution of these parking responsibilities among the five (5) departments. This responsibility matrix reflects the 1984 01 01 consolidation of four (4) former departments (Transportation Management; Edmonton Transit; Engineering; and Bylaw Enforcement) into a new Transportation Department. 2.2 PARKING POLICIES AND FUNCTIONS

The city's parking management responsibilities and policies are described in more detail below.

CIVIC DEPARTMENT PARKING RESPONSIBILITY

u z 0-4 !

FINANCE

-----

POLICE

CITY PARKING MANAGEMENT RESPONSIBILITY MATRIX

TRANSPORTATION

TABLE 2.1

Lw * t.zi ;1 cm)

LEGEND ',PRIMARY RESPO â&#x20AC;&#x201D; SIBILITY X INPUT TO PROCESS

1. LONG RANGE PLANNING

. TRANSPORTATION SYSTEM PLAN

. DOWNTOWN AREA REDEVELOPMENT PLAN

. GENERAL MUNICIPAL PLAN

2. PARKING STANDARDS . LAND USE BYLAW ADMIN. . DEVELOPMENT PROPOSAL REVIEW

41 X

3. ONSTREET PARKING 41

. PARKING REGULATIONS

41 6 41

. METER INSTALLATION/MAINT. . REVENUE COLLECTION/COUNTING . METER RATES

4. OFF STREET PARKING

. PARKING FACILITY MANAGEMENT

. LEASING OF CITY PROPERTY

41 41

. OFF STREET PARKING RATES(CIT . PARK AND RIDE 5. PARKING ENFORCEMENT

. TRAFFIC BYLAW

. HIGHWAY TRAFFIC ACT 6. OTHER . PARKING STUDIES/INVENTORY

2.2.1 Long Range Planning Long range parking policies are contained in the General Municipal Plan Bylaw #6000; the Transportation System Plan Bylaw #6707; and the Downtown Area Redevelopment Plan Bylaw #6477.

General Municipal Plan (GMP) The Planning Department is responsible for the preparation and/or updating of the GMP; and seeks input from other civic departments, as required. The GMP Bylaw #6000 states the broad land use objectives and policies for the City. The downtown transportation goals and objectives for the City are:

(8.C.)

TO DEVELOP AND MAINTAIN A TRANSPORTATION SYSTEM WHICH SUPPORTS AND ENHANCES THE RETENTION AND DEVELOPMENT OF A VIABLE, STRONG DOWNTOWN CONSISTENT WITH THE DOWNTOWN AREA REDEVELOPMENT PLAN.

(8.C.1)

The City will develop and maintain a system of public transit within and radiating from the downtown, including LRT, express bus service and bus priority measures.

(8.C.2)

The City will control the availability of long-term employee parking in the Downtown and fringe areas through supply, pricing or other appropriate mechanisms to encourage the use of public transportation for work trips to this area.

(8.C.3)

The City will encourage the availability of short term parking in the Downtown and major commercial strips for approved business, commercial, cultural and recreational developments..

(8.C.4)

The City will provide commuter park-and-ride and drop-off facilities appropriate locations on the transit system.

Transportation System Plan (TSP) The Transportation Department is responsible for the preparation of the TSP; and seeks input from other civic departments, as required. The TSP Bylaw #6707, adopted in 1983, is the long range transportation plan for the City, and supports the GMP objectives and policies. To accommodate expected employment growth, the downtown transportation strategy combines construction of the South LRT line and major transit priority schemes such as bus only lanes with control of long term parking availability and provision of commuter park and ride facilities. The restriction of capacity improvements to existing arterial roads leading into the CBD is intended to minimize inner city traffic impacts.

Downtown Area Redevelopment Plan (DARP) The Planning Department is responsible for the preparation of the DARP; and seeks input from other civic departments, as required. The DARP Bylaw #6477 is an overall land use plan for the downtown adopted by City Council in 1981. It is consistent with the general objectives and policies of the G.M.P. but specifically outlines objectives, policies and standards for downtown improvement and redevelopment.

* see "Five and Ten Year Roadway and Transit Improvement Program (1984-1993)", Transportation Management Department, May 1983.

The parking policies in DARP Bylaw #6477 are intended to be compatible with the G.M.P. objectives and complement Transportation System Plan downtown strategy. The parking policies include: (5.1.1)

Discourage long-term employee parking by means such as reducing the commercial parking standards, determining appropriate parking rates and supply management, and providing other means appropriate for implementation.

(5.1.2)

Encourage short-term parking for shoppers and visitors by management of parking.

(5.1.3)

Encourage joint-use consolidated parking facilities through comprehensive development agreements, and by management of parking through a parking management organization.

(5.1.4)

Locate access to parking structures from lanes wherever feasible.

(5.1.5)

Encourage off-street parking.

(5.1.6)

Develop residential parking standards to reflect car ownership patterns in Downtown.

(3.1.7)

Ensure that temporary parking lots are property landscaped and separated from the sidewalk.

2.2.2 Parking Standards

Parking standards stipulate the amount of parking to be provided in connection with the development of office/commercial and residential

facilities, etc.The city's current parking standards are contained in Land Use Bylaw 15996 and refer to: the minimum amount of parking stalls which must be provided for different types of development; the type and location of access to parking facilities; aisle and parking stall dimensions; paving, landscaping and curbing requirements for surface parking lots. The Planning Department is responsible for ensuring that proposed developments comply with the parking standards vis a vis the development review process. The required number of parking stalls for downtown commercial and residential developements is summarized in Table 2.2. The commercial parking standard is a minimum of one 2 stall per 200 m of gross floor area. The residential parking standard is expressed as the number of stalls per type of residential unit.

TABLE 2.2

COMMERCIAL AND RESIDENTIAL PARKING STANDARDS*

Commercial Parking Standard 1 parking stall per 200 m2 of gross floor area. Residential Parking Standard 0.5 parking stalls per bachelor unit 0.75 parking stalls per 1 bedroom unit 1.25 parking stalls per 2 bedroom or larger unit 1 guest stall per 7 units * For areas within the boundaries of the Downtown Area Redevelopment Plan. Source: Land Use Bylaw #5996

2.2.3 On-Street and Off-Street Parking

The City controls about 9 percent or approximately 2800 parking stalls of the total 31,900 stalls in the downtown through ownership and operation of off-street parking facilities and regulation of on-street parking. Table 2.3 summarizes the type and amount of parking controlled by the City in the downtown study area. Details pertaining

the

city's

on-street/off-street

parking

on-street

parking

responsibilities are described below.

On-Street Parking

The

Transportation

Department's

responsibilites involve: provision and regulation of on-street parking/loading stalls; parking sign/meter installation and maintenance; meter revenue collection; residential parking permit program administration; and the recommendation of parking meter rates. The Finance Department is responsible for the counting of parking meter coins and parking fine collection/accounting.

As shown in Table 2.3 the on-street parking spaces in the downtown represent about 5% (1,676 stalls) of the total downtown parking supply. About 74% (1,237) of these stalls are metered. About 150 on-street parking spaces are also subject to morning peak period bans and about 240 spaces are subject to afternoon peak period bans.

Afternoon parking restrictions on

TABLE 2.3

DOWNTOWN PARKING CONTROLLED BY THE CITY, 1983

Type

Number of Stalls

Percent of Total Supply

City Controlled Parking On-Street - metered - non-metered, time restrictions - non-metered, no time restrictions

1,237 121 318 1,676

5.3

Municipal Lots, Structures

945

3.0

Parking on Leased City-Owned Land

143

0.4

2,764

8.7

28,979

91.3

31,743

100.0%

Total Privately Controlled Parking Total Downtown Parking Supply

Source: Working Paper 112: Downtown Parking Study (effective 1983 10 01).

Jasper Avenue and intersecting streets were reduced in November 1983 from the former 15:30-18:00 period to 15:30-17:00 to increase on-street, short-term parking availability.

Off-Street Parking

The City owns and operates two major off-street parking facilities in the downtown study area: (1) the Library Parkade; and (2) a surface lot on the north side of City Hall. These facilities are managed by the Transportation Department, and contain 3% (945 stalls) of the total downtown parking supply.

The Central Supply and Services Department is responsible for the leasing of City owned land to private parking operators. Three lots are presently leased to private parking lot operators within the downtown. These lots contain 0.4% (143 stalls) of the total parking supply.

The City also owns and operates commuter park and ride lots at the Clareview and Belvedere L.R.T. stations for the purpose of intercepting auto trips before they reach the downtown.

2.2.4 Parking Enforcement

Parking enforcement responsibilities are shared by the Transportation and Police Departments. Parking offences are defined under both the provincial Highway Traffic Act R.S.A., 1980 and the municipal Traffic Bylaw #5990.

The most common parking offences can be identified from information provided by the Finance Department on parking fines issued in 1983 by category. Under the Highway Traffic Act stopping or parking

on-street during prohibited times such as the afternoon peak period is the most frequent offence. Under the Traffic Bylaw #5990 parking at an expired meter, parking in a no parking area and parking on private property accounted for most of the parking violations. 2.2.5 Other (Parking Studies, etc.) Two types of parking studies are undertaken by the Transportation Department.

The

Parking

Inventory

identifies

parking

facilities/stalls in the Downtown, Commonwealth Stadium and commercial strip areas; and is undertaken on a semi-annual basis. Comprehensive downtown parking studies will also be undertaken at regular intervals by the Transportation Department. 2.3 SUMMARY The five (5) City departments that have parking-related responsibilities include: Transportation; Planning, Police; Finance; and Central Supply & Services. Their responsibilities relate to long range planning; administration of parking standards; on-street parking control; management of City-owned off-street parking facilities; revenue collection; and parking enforcement. This distribution of responsibilities reflects a recent consolidation of city departments where the new Transportation Department now controls parking responsibilities previously under the Transportation Management, Engineering and Bylaw Enforcement departments. The City controls about 9 percent or 2800 of 31,900 parking stalls in the downtown. This figure includes approximately 1700 on-street and 1100 off-street parking stalls. About 91% (29,000) parking stalls are controlled privately.

CHAPTER 3

CITY PARKING REVENUES AND EXPENDITURES

This Chapter contains summaries of city parking revenue and expenditure estimates for 1983. These figures represent city-wide totals as breakdowns for the downtown area could not be obtained at this time. The data was extrapolated from departmental budgets, reports and information provided by the responsible departments.

3.1 PARKING REVENUES

City parking revenues from parking fines, parking meters and City-owned off-street parking totalled $7.9 million in 1983. Another source of parking revenue includes business and property taxes on parking lots and structures. It was not possible to make reliable estimates of the total business and property taxes on these facilities for inclusion in this report.

Revenue estimates are shown in Table 3.1 and described below:

TABLE 3.1

1983 CITY PARKING REVENUE ESTIMATES

Revenue Source Parking Fines Parking Meters City Owned Off-Street Parking Total

Amount ($) 5,000,000 1,500,000 1,400,000 $7,900,000

Notes: 1.

Information provided by the Finance Department for 1983 01 01 to 1983 01 31. It was factored up 20 percent to estimate revenues for the full 1983 year. City wide revenues.

Information provided by the Transportation Department. City wide revenues.

Estimate provided by the Transportation Department for the Library Parkade.

21 3.1.1 Parking Fines

Parking fines were the largest source of parking revenue in 1983 amounting to $5 million. Information from the Finance Department was provided for parking fines collected from 1983 01 01 to 1983 10 31. The ten month totals were factored up by 20 percent to estimate parking fine revenue for the full 1983 year. 3.1.2 Parking Meters The Transportation Department estimate for city wide parking meter revenue in 1983 was estimated to be $1.5 million. There are approximately 2300 metered stalls in the city, of which 52% or about 1200 are located within the Downtown Parking Study area. 3.1.3 City Owned Off-Street Parking In 1983, $1.4 million in revenue was produced by Library Parkade users (Monthly, Daily and Short-term).

3.1.4 Municipal Taxes on Parking Lots and Structures Business and property taxes are the two types of municipal taxes assessed on parking lots and structures. Public parking lots and structures available for hourly parking are assessed a business tax based on the gross rental value of the stalls. In 1983 the business tax assessed per stall ranged from approximately $17 to $48 per downtown stall depending on whether the stall was in a lot or structure. For parking stalls not available for public use, the business tax is assessed on the development as a whole rather than the parking facilities directly. The parking facility tax portion cannot be separated from the business tax assessment on the development as a whole.

Property taxes are assessed on parking lots and structures based on the land value and replacement cost of any structures. In many cases, surface lots are assessed for only the land value because the improvements such as paving, landscaping and fencing are often minimal. Parkades are often assessed much higher property taxes than surface lots because of the additional value of the parking structure. Parking facilities associated with office/commercial developments are assessed as part of the development as a whole. The parking facility tax portion cannot be separated from the property tax assessment on the development as a whole. 3.2 PARKING EXPENDITURES The City parking expenditures estimates in 1983 are summarized in Table 3.2 based on departmental budget information. The Bylaw Enforcement, Edmonton Transit and Engineering Departments had the largest parkingrelated cost responsibilities in 1983. It should be noted that the parking functions of these three departments were consolidated into the new Transportation Department in early 1984. The total parking expenditures in 1983 shown in Table 3.2 amounted to $2.4 million. The Police Department parking enforcement costs were not included in Table 3.2 because this component could not be separated from general traffic enforcement expenditures. Details respecting the expenditure estimates are discussed below: 3.2.1 Bylaw Enforcement The Bylaw Enforcement Department was responsible in 1983 for parking meter installation and maintenance; meter revenue collection and monitoring; parking enforcement and the operation of off-street parking facilities. The 1983 Bylaw Enforcement Department Budget for these responsibilities was $2 million.

TABLE 3.2

1983 CITY DEPARTMENT PARKING EXPENDITURES'

Department and Type of Expenditure Bylaw Enforcement Parking Meter Installation,2 Maintenance, Enforcement Off-Street Parking Operations3 Engineering Department On-Street Parking Control4

Amount ($)

877,00 1,093,000

41,000

Edmonton Transit Major Event Park and Ride5 Commuter Park and Ride Lot6 Maintenance

350,000 4,000

Other Paraplegic Parking Permit7 Program

50,000

TOTAL

2,415,000

NOTES: 1.

Expenditures are shown by the former Bylaw Enforcement, Edmonton Transit, and Engineering Departments.

From the 1983 Bylaw Enforcement Department budget. It includes inter-departmental changes from the Finance Department for parking fine collection and accounting.

From the 1983 Bylaw Enforcement Department budget.

Information provided by the Engineering Department.

Estimated subsidy required for Major Events Park and Ride. From "Transit Service Review; Part IV Major Event Special Transit Service Strategies", TSR/43/83 Transportation Management Department; November 1983.

Information provided by Edmonton Transit.

From Working Paper #1; Handicapped and Elderly Transportation Study, Transportation Management Department; September, 1983.

3.2.2 Engineering Department

The Engineering Department was responsible for installation of parking meter poles and on-street parking control signs. In 1983 the budgetted amount for these responsibilities was t41,000.

3.2.3 Edmonton Transit

In 1983 the required subsidy for Major Events Park and Ride was t350,000. Edmonton Transit was also responsible for the maintenance of commuter park and ride lots which amounted to t4000 in 1983.

3.2.4 Other

Parking permits are issued to handicapped drivers which allow parking for up to two hours at any meter. The permits cost t400 each and are paid for by the Social Services Department at no cost to user. In 1983 the Paraplegic Parking Permit Program cost t50,000.

3.3 SUMMARY

The City of Edmonton obtained approximately t7.9 million in revenue from parking meters, parking fines and City owned off-street parking facilities in 1983. These revenues were offset by expenditures totalling approximately t2.4 million for parking meter installation, maintenance, on-street parking control, Major Event Park and Ride, operation of offstreet parking facilities and parking enforcement (excluding Police Department).

It was not possible to isolate Downtown parking revenues/expenditures from the city wide figures; however; as the majority of parking meters are in the Downtown, (reference W.P. #2), it can be assumed that the largest proportion of parking meter revenue relates to the downtown.

CHAPTER 4 PARKING ISSUES AND CONCERNS

This Chapter contains an inventory of downtown parking issues and concerns identified through the interest group interviews and surveys and a review of parking related documents. The findings are presented in relation to the six interest group categories established for this study, specifically:

. downtown businessmen . property managers . development industry . parking lot operators . residential communities civic administration

A list of the interest group contacts is contained in Appendix I. The documents that were referenced for parking issues and concerns are listed in Appendix II.

4.1 DOWNTOWN BUSINESSMEN

The parking issues and concerns of the downtown businessmen were identified through consultation with interest group representatives, from the Jasper Avenue Improvement Program survey and a review of briefs presented in 1982 to Council regarding the Transportation System Plan. The parking issues and concerns of the downtown businessmen can be generally grouped in relation to the following categories: downtown transportation policy; lack of short-term parking availability; need for a downtown parking management body; and the need to use parking as a means of downtown promotion (information and marketing).

4.1.1 Downtown Transportation Policy

Downtown parking and access are essential for the commercial viability of the core. First and foremost, parking policy should enhance and retain a strong Downtown. . Downtown transportation policy, particularly with regard to parking, has had a negative impact on Downtown business. It has already resulted in the migration of businesses from the core. . The current City parking policy is perceived as too auto restraint" oriented. . There has been too much emphasis on making transit the dominant made for travel Downtown. The automobile is the dominant mode in Edmonton and other North American cities and it must be accommodated. 4.1.2 Short Term Parking Availability

. There is shortage in supply of short term parking. On-street supply should be expanded. . The Downtown merchants have not been able to complete with suburban shopping malls which have free parking. On-street parking is the most-convenient form of parking and the . supply should maintained and expanded where possible.

. There are too many buses on Jasper Avenue. They should re-routed to 102 Avenue so more parking can be put in on Jasper Avenue.

. The locations and the duration of the on-street parking bans are unreasonable. There are side streets which should not have any afternoon parking bans. The duration of the parking bans should be changed from the current 15:30 - 18:00 hours to 16:00 - 17:00. 4.1.3 Downtown Parking Management . The Chamber of Commerce formally approached City Council in 1977 for the establishment of a Parking Authority. Since that time there has been considerable evaluation of either a Parking Authority or Parking Advisory Board but no action has been taken. . A parking management body is still needed (a) to properly plan and manage the provision of parking facilities and (b) enable the downtown business community to have representation and provide direction on parking policy. . Revenues from City-owned lots, meters and fines should be directed toward the provision of public parking facilities. . There should be more City-owned parking lots and structures. 4.1.4 Parking Information and Marketing

. Existing signage/information re: parking in the downtown is inadequate. The City should establish a parking information sign system so shoppers can be directed towards available parking. . There should be a Downtown merchant parking ticket validation program organized for the purpose of subsidizing parking for shoppers.

. The enforcement of the on-street parking bans at 15:30 by towing is completely unreasonable. The peak hour does not start until 16:30 and the merchants feel towing away their customers has severely hurt business. 4.2 PROPERTY MANAGERS The issues and concerns of the downtown property manager were established through consultation with the Building Owners and Managers Association and a survey of 41 property managers.

The property managers have concerns similar to the downtown businessmen regarding: . downtown transportation policy. . short term parking availability. . parking information and marketing. In addition, the property manager survey indicated that lack of short term parking availability for office building visitors was a widespread problem. 4.3 DEVELOPMENT INDUSTRY Briefs and reports submitted by the development industry in connection with the city's public review of the Transportation System Plan were referenced in the identification of parking-related issues and concerns.

. The main concern relates to the administration of parking standards. It is felt that strict adherence to a given parking standard can result in unnecessary construction costs if the actual parking requirements of a building are less than required by the standard. Formal provisions to reflect parking standard

options based on projected building occupancy character and/or relationship to travel mode alternatives (public transit) is required in regard to the existing administration of parking standards.

A general review of current commercial parking standard is also . required.

4.4 PARKING OPERATORS Nine (9) major parking operators were contacted by telephone as part of the Downtown Parking Study and asked to identify parking issues and concerns. Issues and concerns noted included: At the current time there is a surplus of parking supply over . demand. There are too many surface lots downtown and the over supply of . parking has been created by the recent establishment of temporary surface lots. The surface lots can greatly undercut the price charged for . parking provided in structures. This is partly because the business tax assessed for surface lots is much lower per stall than for parkades.

4.5 DOWNTOWN AREA RESIDENTIAL COMMUNITIES

Downtown community league officers were contacted and requested to identify parking related concerns. The basic issue relating to

residential communities in the fringe areas is daytime commuter parking overflow onto residential streets. The spillover not only inconveniences community residents, but also creates a safety problem as traffic is higher than normal.

4.6 CIVIC ADMINISTRATION

Representatives from the Transportation and Planning Departments were consulted regarding downtown parking and related issues. Several suggestions regarding the city's major means of affecting parking supply (parking standards) were noted. Suggestions regarding improvements to on-street/off-street parking operations through immediate measures were also presented. A parking management body was also recommended. The results of the interviews are summarized below:

4.6.1 Short Term Parking Availability

There was general consensus that the downtown area was failing to attract shoppers/visitors because of the relatively high cost and/or perception of short term parking scarcity in the immediate proximity of most Jasper Avenue businesses.

Potential means of improving the short-term parking problems included the following:

. providing better information signage regarding short-term parking availability;

. re-evaluation of existing parking bans for the peak afternoon travel periods, i.e., shortening the bans to provide more off-street parking during the after-work period.

encouraging the establishment of a merchant parking validation . program for free or subsidized parking in off street facilities.

4.6.2 Parking Standards A number of issues were raised with regard to the parking provisions of Land Use Bylaw #5996, including: There should be parking reduction provisions for developments with . direct L.R.T. and pedway connections. Surface lots should have stronger requirements for paving, . landscaping and fencing. The parking provisions of the Land Use Bylaw #5996 should permit a . developer to make a cash payment-in-lieu of meeting parking space requirements. In other North American cities the downgrading of vehicle sizes . has permitted reductions in the aisle and parking stall dimension specified in land use bylaws and/or increasing the permitted number of small car stalls. The parking standards which apply to new development also apply to . buildings only being renovated. This unnecessarily complicates the building renovation process. In some developments specifically designated parking for the . handicapped is provided. At the present time, however, the Land Use Bylaw does not require designated parking stalls be made available of sufficient dimensions to accommodate the access/egress requirements of the handicapped. Another related problem is enforcement of designated "handicapped only" parking stalls.

4.6.3 Parking Policy and Transit Ridership

Parking policy is integrally related to the city's public transportation goals. If parking is equally available at a reasonable price to CBD employees and shoppers, there will be less incentive for CBD employees to use transit, resulting in congestion of roadways during peak travel hours and eventual undersupply of parking for short term users.

. There is considerable potential for improving access from buildings and pedways to L.R.T. stations and main transit transfer points in the downtown.

4.6.4 Proportion of City Controlled Parking

Since the city presently controls less than 10% of the total downtown parking supply, the major impetus to increasing or encouraging CBD patronage through parking promotions, etc., would have to be supported by the private sector (CBD businessmen, parking lot operators, etc.). The Transportation Department could perform a co-ordinating role in this regard.

4.6.5 Parking Management

Although there was no clear consensus on the type of parking management body that should be created, it was felt that co-ordination and expansion of the parking supply/demand data base and inventory process should be an integral element of such a body. The final report of the current parking study should incorporate recommendations pertaining to more efficient parking management co-ordination in the city.

4.7 SUMMARY

A series of interviews and surveys were conducted with representatives and/or members from six interest groups to identify downtown parking issues and concerns. A review of parking documents, reports briefs, etc., was also carried out to supplement the issue identification activity.

Key statements and issues within each interest group were identified and organized into issue categories, whenever possible. These findings will be subsumed into major issue categories and discussed in more detail in Chapter 5.

34 CHAPTER 5

SUMMARY AND ANALYSIS OF PARKING ISSUES

This chapter contains a summary and analysis of the parking issues, concerns and suggestions that were identified through the interest group interviews and surveys, and the review of parking related documents. The findings are discussed in relation to the information contained in Working Papers #1 and #2 of the Downtown Parking Study; city parking policies; and the functional responsibilities of city departments involved in parking management/operations.

Major downtown parking issues, concerns, etc., were grouped into seven (7) categories, as indicated and described below:

. Transportation Policy . Parking Supply . Parking Management . Parking Promotion . Parking Standards Parking Spillover Parking Revenue/Expenditures

5.1 DOWNTOWN PARKING POLICY

The most frequently cited issue/concern pertains to the City's Downtown Transportation Policy. It was often noted that the commercial viability of the downtown is strongly dependent on the extent to which automobile accessibility is maintained and/or encouraged. In turn, there must be sufficient parking to accommodate auto trips made by shoppers and visitors. The downtown commercial sector particularly feels that Edmonton's downtown parking policy/strategy is too transit oriented at

this time, thus discouraging patronage by shoppers/visitors who generally rely on automobiles for their trips. The city's parking policies are variously stated in the General Municipal Plan; the Transportation System Plan; and the Downtown Area Redevelopment Plan (see Chapter 2). These plans, approved by City Council, reflect land use planning priorities that are designed to direct city growth in both the short and long term time frames. With specific reference to parking, the emphasis in the transportation system plan is on the control of long term or employee parking in the CBD, with a modal split goal of 50% by 1990. The modal split goal was determined on the basis a comprehensive review of roadway capacities and the evaluation of various strategies to meet anticipated travel demand. Although this strategy has a negative "auto restraint" connotation for downtown businessmen, the Transportation System Plan states that it is the most reasonable and economic means of accommodating future growth in roadway traffic entering the C.B.D. It is not intended to discourage off-peak traffic (shopper/visitor), or to reduce the availability of short term parking to meet shopper/visitor demand. The future supply/demand projections contained in Working Paper 112 of this study are calculated on the basis of roadway capacity parameters that reflect a 50% modal split by 1990 (up from 45% in 1983). The evaluation of alternative parking standards and management strategies in Working Paper 114 will similarly be based on the projections and goals contained in the Transportation System Plan which was approved by City Council in 1983. 5.2 PARKING SUPPLY The current supply of short term parking availability in the CBD for shoppers/visitors was also an important issue among the downtown

businessmen. This group generally agreed that the city should provide a larger supply of on-street short term parking. Current parking bans to create "bus only" lanes during peak hours were considered to be too long in duration. The introduction of angle parking was considered a possible means of expanding the current off-street parking supply in the immediate vicinity of Jasper Avenue businesses. Rerouting buses off Jasper Avenue was also considered a practical measure to facilitate parking on this business area roadway. The findings in Working Paper #2 suggest that the short term parking problem in the CBD is not one of supply, but rather, distribution. Findings for 1983 indicated that there is an oversupply of parking spaces in the study area, although much of the potential short term parking in the vicinity of Jasper Avenue business tends to be occupied by long term (employee) parkers. One of the major tasks in the identification and evaluation of parking management tactics in Working Paper 1/4 will be, then, the evaluation of parking tactics to discourage long term parking in those areas where short term parking is most desired or required. It should also be noted that the city has recently attempted to increase the availability of short term parking by reducing the peak hour parking ban duration on Jasper Avenue. Consideration is also being given to increasing the number of on-street parking stalls through creation of angle parking on Jasper Avenue. 5.3 PARKING MANAGEMENT There was widespread interest among the surveyed groups regarding the establishment of a Parking Authority (or Advisory Board) similar to the type found in Calgary and other cities. The Chamber of Commerce particularly felt that such an entity could best control and promote parking in the downtown. Reference was frequently made to the city's earlier efforts to draft a Parking Authority by-law; and questions were raised as to why the Parking Authority was never established by the City Administration.

Recent consolidation of former departments with parking responsibilities into one Transportation Department has not obviated further consideration of a parking management authority or body. Working Paper #4 will review parking management implementation options and identify the basic parking information/data requirements that must be co-ordinated for better management of the parking supply in the downtown.

5.4 PARKING INFORMATION/MARKETING

Most of the interest groups agreed that an intensive marketing program was needed to advise potential shoppers/visitors of parking supply in the downtown. It was also felt that parking promotions involving the provision of free or subsidized parking could bring more customers into the area. A merchant parking validation program was suggested in this regard. It was also suggested that better signage should be developed/implemented to guide CBD patrons to parking facilities such as the Library Parkade, etc.

The "Mayor's Task Force on the Heart of the City" has been recently responsible for the implementation of a parking promotion and marketing program to attract more shoppers to the CBD (see Working Paper #1 for a detailed description of this program). Although the overall results of these initiatives are not yet available, the use of such programs in other cities (see Working Paper #1) suggests that effective signage and parking promotions can help to revitalize a CBD.

It should be noted however, that the current Edmonton programs are designed to encourage weekend and evening patronage of the CBD, and that these programs do not address the issues respecting the availability of short term parking during the day when employees use existing facilities. In addition, these programs have required the support of the private sector since less than 10% of the downtown parking supply is actually controlled by the City.

5.5 PARKING STANDARDS

The development industry and Planning Department generally agreed that the current parking standards should be reevaluated. There was concern that the existing standards are too high, thus unnecessarily increasing the costs of new development in the downtown. It was also questioned whether the current standard supports the city's long term transportation/parking supply objectives. Changes to the Land Use Bylaw to facilitate 'cash-in-lieu' (parking standard tradeoffs between developer/city) arrangements were suggested, as well as reducing parking requirements where LRT/pedway connections were developed. The provision of designated parking for the handicapped was also expressed as a concern in connection with the issue of parking standards and requirements in new "developments.

This is one of the major areas in which the city can have a significant impact on future parking supply. The current standards are generally regarded as "interim" standards, and constitute one of the major parking tactics that will be reviewed in Working Paper #4 of the Downtown Parking Study.

5.6 PARKING SPILLOVER

Residential communities in the downtown area were concerned about "spillover onto their streets, particularly by CBD employees seeking free long term parking. Such spillover tends to inconvenience resident on-street parking, as well as creating traffic safety problems on those streets.

The former Engineering Department reviewed the on-street parking problems in Oliver and Rossdale in 1983 and initiated parking restrictions on a block face basis that required at least 50% of the block residents to

support the restrictions. This means of dealing with spillover is still in effect. More generally, Working Paper 1i4 will address the consequences of any parking Management strategies that might lead to further spillover into the fringe communities by CBD employees. 5.7 PARKING REVENUES/EXPENDITURES A number of comments, concerns, etc., directly or indirectly related to parking revenues/expenditures, e.g., the parking operator's concern with the differential business tax on parking facilities; and the idea of pooling parking meter revenues for parking management programs and/or development of facilities. At present, city parking related revenues are not earâ&#x20AC;&#x201D;marked for specific programs in the city. Given the significant level of city revenues/expenditures identified in Chapter 3 of this working paper, it may be desireable to consider a more direct allocation of parking revenues to meet parking requirements and/or support parking programs. The city's business/property tax policies regarding parking facilities also appear to be a potential means of affecting the price of parking as part of a general downtown parking management strategy.

5.8 CONCLUSIONS The information obtained from the interest group interviews and surveys, and the review of parking documents was subsumed into seven (7) major issue categories relating to parking in the downtown. These issue categories will be referenced in the evaluation of alternative parking standards and management tactics in Working Paper #4 of the Downtown Parking Study.

APPENDIX I

Interest Groups

Note: The following Interest Groups comprise the mailing list for all documents circulated in connection with the Downtown Parking Study. Additional groups/names may be added, as requested.

DOWNTOWN BUSINESS ASSOCIATIONS Central Area Assoc. of Edmonton c/o Murray Van Vliet Oxford Development 2300 Royal Trust Tower EDMONTON, ALBERTA T5J 3A4 Edmonton Chamber of Commerce 600 Sun Life Place 10123 - 99 Street EDMONTON, ALBERTA T5J 3H1 Jasper Avenue Business Assoc. c/o Joe Healy Healy Ford Centre 10620 - Jasper Avenue EDMONTON, ALBERTA T5J 2A4 Jasper Avenue Improvement Program c/o Ed Romanowski, Chairman IDI Engineer Co. 1i807, Centre 104 5240 Calgary Trail EDMONTON, ALBERTA T6H 5G8 McCauley Plaza Merchants Assoc. Mery Steward, President #15, 10025 - Jasper Avenue EDMONTON, ALBERTA T6L 1R2

PROPERTY MANAGERS /DEVELOPMENT INDUSTRY Building Owners & Manager Assoc. Dennis Freeman, President #2, 12415 - Stony Plain Road EDMONTON, ALBERTA T5N 3N3 HUDAC - EDMONTON Mr. Brian Carleton 210, 10544 - 114 Street EDMONTON, ALBERTA T5H 3J7 The Edmonton Centre Ltd. Jim Charuk Suite 1910, Royal Trust Tower EDMONTON, ALBERTA T5J 2Z2 Urban Development Institute Commercial Development Committee c/o Mark Jones Montrose Group 700, 10150 - 100 Street EDMONTON, ALBERTA T5J OP6

PARKING LOT OPERATORS Canpark Services Ltd. 10590 - 109 Street EDMONTON, ALBERTA T5H 3B2 Central Car Park 10036 - 102 Street EDMONTON, ALBERTA T5J OV6 Chateau Lacombe Manager 101 Street at Bellamy Hill EDMONTON, ALBERTA T5J 1N7 Citipark, A Division of Citicom Inc. City Manager #202, 10127 - 102 Street EDMONNTON, ALBERTA T5J OW3 Highbury Parking Services Ltd. 10622 - 81 Avenue EDMONTON, ALBERTA Hudson's Bay Company Manager, Licensed Depts. 10230 - Jasper Avenue EDMONTON, ALBERTA T5J 1Y4 Imperial Parking Limited General Manager 10157 - 106 Street EDMONTON, ALBERTA T5J 1H3 102 Street Car Park Project Manager 10245 - 102 Street EDMONTON, ALBERTA T5J UW9 Western Autopark Ltd. #200, 600 - 6 Avenue S.W. CALGARY, ALBERTA T2P 2S3

RESIDENTIAL COMMUNITIES Boyle Street Community League President 3923 - 115A Street EDMONTON, ALBERTA T6J 1R2 Central McDougall Community League President 10833 - 109 Street EDMONTON, ALBERTA T5H 3B9 McCauley Community League 9643 - 109 Avenue EDMONTON, ALBERTA T5H 1C9 Oliver Community League President Box 39 NEW SAREPTA, ALBERTA TOB 3M0 Rossdale Community League President 9741 - 102 Street EDMONTON, ALBERTA T5K OX3 Edmonton Federation of Community Leagues President 7103 - 105 Street EDMONTON, ALBERTA T6E 4G8

CIVIC ADMINISTRATION TRANSPORTATION DEPARTMENT W. D. Liggett, Director Transit Development TRANSPORTATION DEPARTMENT G. King, Director Traffic Engineering TRANSPORTATION DEPARTMENT B. Strynadka, Supervisor Monitoring Technical Services TRANSPORTATION DEPARTMENT Jim Weisner Manager of Parking and Security TRANSPORTATION DEPARTMENT Bob Caldwell, Senior Planner Special Projects Group Central Area Section PLANNING DEPARTMENT Jim Lowden, Director Strategic Planning Section PLANNING DEPARTMENT A. Konye City Solicitor LAW DEPARTMENT T. Shandro, Staff Sergeant Traffic Section POLICE DEPARTMENT

OTHER ASSOCIATIONS Edmonton Voters Association Brian Mason, President Box 1633 EDMONTON, ALBERTA T5J 2N9 Urban Reform Group of Edmonton Joe Donahue, President 5627 - 115 Street EDMONTON, ALBERTA T6H 3P5

APPENDIX II

Parking Documents

CITY OF EDMONTON DOCUMENTS

. General Municipal Plan . Draft Bylaw #6905 to Amend the General Municipal Plan Five and Ten Year Roadway and Transit Improvement Program; Transportation Department report TSR/38/83, May 1983 Downtown Area Redevelopment Plan Bylaw #6477 Edmonton Land Use Bylaw #5996 . Downtown Commercial Parking Review, Planning Department, 1980 . Edmonton Park and Ride Study Working Paper #1 - Industry Survey and Literature Review Working Paper #2 - Preliminary Demand Estimates Downtown Area Redevelopment Plan Working Paper #6: Residential Parking Study . "Survey Results: Jasper Avenue Improvement Program"; report prepared by the Planning Department; February, 1983 . P.R.I.D.E.: Program to Improve Downtown Edmonton, report prepared by the Planning Department, 1983 . Other Letters/Reports/Etc., on file (Transportation Department) EXTERNAL DOCUMENTS . Edmonton Chamber of Commerce; letter 1983 09 23 regarding Downtown Parking Study. . Edmonton Chamber of Commerce; letter 1982 11 29. Regarding the Edmonton Parking Authority. . Edmonton Chamber of Commerce; Public Submission on Bylaw #6905 and #6707 regarding Transplan; 1982 11 29. . Oxford Development Group, Public Submission on Bylaw #6905 and #6707 regarding Transplan; 1982 11 30. . Building Owners and Managers Association; Public Submission on Bylaw #6905 and #6707 regarding Transplan; 1982 11 30. . Other Letters/Reports/Etc., on File (Transportation Department).