Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
TABLE OF CONTENTS
Executive Summary.............................................................................. 1-5 Executive Report
Overview....................................................................................................... 6 History .......................................................................................................... 6 Purpose ........................................................................................................ 7 Scope of Services......................................................................................... 8 Parking and Economic Development ........................................................... 8 Available Parking Supply .............................................................................. 9 Parking Utilization and Characteristics ......................................................... 10 Parking and Employment ............................................................................. 12 Parking Supply v.s Demand ......................................................................... 14 Effective Capacity of Parking........................................................................ 16 Major Findings .............................................................................................. 17 Recommendations........................................................................................ 18 Recommended Market Practices ................................................................. 18 Recommended On-Street Management Practices ....................................... 19 Recommended Off-Street Management Practices ....................................... 19 Recommended Institutional and Financing Structure ................................... 20 Partnership Opportunities ............................................................................. 20 Recommended 10-Year Capital Improvement and Renewal Plan ............... 21 Capital Improvements................................................................................... 23 Parking Control Technology Upgrade ........................................................... 23 Benefits of Improved Parking Control Technology........................................ 23 Capital Repair and Replacement.................................................................. 24 10-Year Parking Fund Pro Forma ................................................................. 24 Parking Rate Analysis................................................................................... 26
City of San Antonio | June 2007 i City of San Antonio | February 2008
i
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
Summary of Findings and Recommendations
Downtown Comprehensive Parking Management Program City of San Antonio, Texas
Parking is a fundamental component of downtown infrastructure. Parking demands vary widely based on the mix of activities going on in the downtown at a given time. Conventions, trade shows, festivals, sporting events, and community activities cause widely varying demands for parking at hotels and in downtown lots and garages. Downtown San Antonio is witnessing rapid changes in its unique
character that are influencing the demand and supply of parking in downtown. The Parking Division of the Department of Downtown Operations operates, maintains, and enforces on-street and off-street parking spaces under the control of the City of San Antonio (COSA). Projection of current financial trends show that the Parking Division would face a revenue shortfall starting as early as 2009.
Parking Study Area
City of San Antonio | February 2008
1
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
S tudy Goals & Objectives
The City undertook this study to develop a Comprehensive Parking Management Program to create a long-term strategy for city’s parking operations that is in the best interest of the downtown residents, businesses, and visitors. The study focuses on a 125-block, 732-acre area in downtown, bounded by Martin Street and Houston Street on the north, Cherry Street on the east, Durango Boulevard on the south, and I-35/I-10 on the west. The program is designed to effectively manage the City’s parking assets, stimulate economic development, and integrate best management practices. Within the study area, the City owns and operates 9,546 parking spaces, which is 27.4% of the total spaces, and 43.0% of the public use spaces. City facilities within the study area include four garages with 2,791 spaces (8.0%), 27 surface lots with 5,476 spaces (15.7%), and 1,299 on-street spaces An evaluation of all existing parking facilities, Cityowned and private, was carried out to identify surpluses and deficiencies on typical weekdays and weekends. The total parking supply is 34,976 spaces. The total parking demand in the study area is approximately 32,000 spaces. Therefore, there is an overall surplus of approximately 3,000 spaces. A large portion of the surplus is located at the AlamoDome lots. The desirable occupancy level is only 85% of the total supply, or about 29,730 spaces for the study area. The remaining 15% of spaces allow for turnover and circulation so that motorists are able to find spaces without a lengthy time searching. (3.7%). Field observations, utilization counts, and parker interviews were performed to determine parking characteristics, accumulation, and turnover rates.
M a j or F i n d i n g s
At peak periods on typical weekdays, there is sufficient parking supply to serve the study area as a whole. However, deficiencies exist in high activity areas such as Riverbend, Historic Civic Center, Alamo, and Houston Street districts, where the supply is lower than the demand. In addition, new developments taking place in downtown are increasing parking demands, thereby increasing the gap between supply and demand. Many new developments are taking place on surface parking lots, further reducing the parking supply. Since 2004, approximately 2,500 parking spaces have been lost. An additional 900 spaces were lost since 2006. Because the City’s zoning regulations for development in the downtown area do not require parking, coupled with high land values and increasing construction costs, developers have opted to build minimal parking. Many historic buildings and developments do not have adequate parking. Therefore, new developments are taking away existing parking spaces and are not building enough new parking spaces. The users and visitors rely on lots and garages nearby for parking. The City will need to build one new 600-space garage by 2010, and another by 2015. Considering an average cost of $20,000 per space, each garage would cost approximately $12.0 million (2007 dollars).
City of San Antonio | February 2008
2
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
It is not a unique practice for cities to charge lower than market rates for parking; however, the City’s rates are nearly 50% below market rates. Keeping the rates low helped support patronage and encouraged development. However, lower rates constrain the revenues from existing facilities, and limit the ability of the parking system to develop needed new facilities.
R e c o m m e n d ati o n s
Parking is a fundamental component of downtown infrastructure. While it is not the only critical factor in the success of a development, parking, or the lack thereof, is a key determinant of a feasible development project. Parking is becoming a scarce and thus a valuable commodity because of high land values, increasing construction costs, and current below-market rates charged at City-owned parking facilities.
F ina nc i al
In 2006, the parking system’s annual expenditure was $8.9 million, and revenue was $9.9 million. Enforcement of parking (parking tickets and fines) contributed about half a million dollars, raising the gross revenue to about $10.4 million. Therefore, net revenue was approximately $1.5 million. The parking system had an annual debt service of $1.9 million and the general fund paid an additional $1.7 million. Therefore, the parking system had no substantial net revenue in the year 2006. Though the Parking Division is an enterprise intended to be financially self-sustaining, the division does not actually operate as one. Currently, the City’s General Fund receives the revenue from parking enforcement. Until 2008, the General Fund paid part of the parking debt service. Therefore, the Parking Division’s financial records show net revenue, and the General Fund’s records show net parking related expense of approximately one million dollars. Overall, the parking system has no substantial budget surplus or deficit, and thus, no The City should also use innovative public-private partnership opportunities to fund joint-development of new public- and shared-use parking facilities in areas of high demand. The City should require the developers contribute for provision of shared-use parking. Alternatively, a developer may provide parking for shared-use with other developments. Future parking facilities should be strategically loThe City should change the financial and institutional structure of the parking system. The new financial configuration should allow the system to operate truly as an enterprise that meets its expenses and generates enough net revenue to fund new facilities, such as the two $12.0-million garages by 2010 and 2015. The City should restructure the existing system debt using taxable debt backed by the revenues from the parking system. significant capital reserves. The parking system currently lacks funding capacity to build additional garages to serve existing and future needs.
City of San Antonio | February 2008
3
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
cated on the fringe of these high-demand districts to serve existing deficiencies and meet future needs. A number of such locations were identified based upon discussions with downtown stakeholders. The City established a Parking Rate Structure Task Force to develop a strategy to revise the rates charged at city-owned parking facilities to bring them close to, if not equal to, the market rates. The Task Force recommended a strategy to establish performance-based rates to balance parking supply and demand, and cover operating expenditures and debt service. A rate increase approaching the prevailing market rate should be implemented in two steps, in FY 2008 and in FY 2010.
I ns t it u ti o n al
The City should seek state enabling legislation in 2009 to create a Parking Authority to assume responsibility for the parking system. The authority would facilitate effective operation and management of the parking system, and with the necessary legislative powers to acquire property and issue long-term debt for future parking improvements. As an interim step to the Parking Authority, the City should create an Advisory Council to oversee the parking system, and provide advisory recommendations.
C a p it a l I m p r o v e m e n t
The City should install advanced information systems, such as trailblazing signs and changeable message signs, and multiple payment options to improve utilization of available spaces, and to attract patrons by providing multiple payment options for easy transactions. The City should develop two new 600-space parking garages, one each by 2010 and 2015, to serve existing deficiencies and meet future needs. Each garage is expected to cost roughly $12.0 million (2007 dollars). The City could either use its own funds, or collaborate with private-sector developers to provide parking and promote economic development. The City could provide either land, or parking operations support, or incentive for future developments consistent with the City’s plans for the study area and the downtown.
O p e r a ti o n s
The City should restructure permissible parking durations and rates to promote short-term (less than 2 hours), high turnover use of on-street spaces, medium-term (2 to 4 hours), medium turnover use of surface lots, and long-term (more than 4 hours), low-turnover use of garages. The City should also permit longer use of under-utilized commercial loading zones, and install meters in high-use loading zones.
City of San Antonio | February 2008
4
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
The City should promote use of remote surface lots (such as AlamoDome lots) by offering park-andshuttle monthly pass and providing shuttle service (in collaboration with VIA) between the lots and activity centers. In addition, the City should expand merchant validation programs for parking and transit, and encourage employers to offer transit subsidy or parking cash-out options to reduce demand for parking.
M a r ke ti n g
The City should make parking information easily accessible through various information dissemination tools such as on-line and brochure maps. The City should also make parking availability information easily accessible and available through advanced information systems, such as changeable message signs and trailblazing signs. The City should expand branding by installing signage on all City, and potentially all public-use facilities. The City should also bundle parking with downtown events (include costs in event tickets, coupons etc.)
C o n c lus i o n
Parking is a fundamental component of downtown infrastructure. Parking or the lack thereof, is a key determinant of a feasible development project. The City should use parking as a tool to facilitate economic development by collaborating with the private sector to provide needed parking and, when in the City’s best interest, participate in joint-development of mixed-use projects that include parking. It should clearly identify, widely publicize, and market public-use parking facilities in the study area to residents and visitors. The City should price parking in centrally located garages and lots to improve performance and balancing supply and demand. The City should develop peripheral parking with transit shuttle service to serve workers and other longterm users, and improve parking control technology. The City should make capital improvements and preventive maintenance to promote increased utilization of performance-priced parking facilities.
City of San Antonio | February 2008
5
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
O VERVIEW
The unique character of downtown San Antonio is undergoing changes as new development and redevelopment are taking place on lots previously used as surface parking, reducing the overall supply of available parking. At the same time, the rising value of land and higher construction costs are increasing the cost of providing parking. As a result, between 2004 and 2006, downtown San Antonio has lost over 2,500 public parking spaces, including demolition of the HemisFair Garage, parking under I-10/I-35 converted to UTSA downtown campus parking, and surface lots were replaced by new development including hotels and condominiums. Since 2006, 900 more public parking spaces were lost. While parking, by itself, does not cause development, the lack of adequate parking can prevent development from happening or reaching its full potential.
H is t or y
Alamo Plaza, ca. 1919, Eugene O. Goldbeck
“Parking has always been a problem.”
► 1965 ► 1967-68 ► 1980 -
City of San Antonio began managing and operating parking facilities with the acquisition of the City’s first 173-space lot at Market Square. Constructed first City-owned and operated garage, 465-space Marina Garage. “Parking Facilities Fund” established to provide a self-sustaining operation of City owned parking facilities and meters while encouraging downtown development and revi talization.
► 2000 -
City issued $24,845,000 in Parking System Revenue Bonds to construct St. Mary’s Street Garage, plus surface parking to support Convention Center Hotel (on SAWS Headquarters site) and improvements to existing parking facilities.
► 2007 -
City Parking System includes 5 parking garages, 20 surface lots and 1,878 parking meters for a combined total of 8,906 parking spaces.
City of San Antonio | February 2008
6
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
Today’s City of San Antonio Municipal Parking System
P URP O SE
The purpose of the study is to develop a parking management program for the next 10 years to effectively manage the City’s parking assets by promoting utilization, encouraging patronage of parking facilities and stimulating economic development downtown. The study focuses on the study area bounded by Martin Street and Houston Street on the north, Cherry Street on the east, Durango Boulevard on the south, and Frio Street on the west, which includes 125 blocks and covers 732 acres in downtown. The study area is sub-divided into 10 districts based on the City’s pedestrian wayfinding system.
Parking Study Area
City of San Antonio | February 2008
7
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
S c o p e o f Se rv i c e s
The work program for the parking management study included the following tasks: 1. Conduct Two Stakeholder Meetings and Key Person Interviews 2. Evaluate Parking Supply and Demand 3. Describe Parking and Economic Development Relationship 4. Identify Partnerships, Marketing Strategies, and Economic Development Opportunities 5. Recommend Best Management Practices 6. Develop 10-year Capital Improvement Plan 7. Develop a 10-year Parking Fund Pro Forma 8. Recommend a Financial Structure and Parking Rates 9. Make Three Presentations to City 10. Submit a Parking Management Program Report
P a r king an d E c o n o m i c D evelo pment
Parking is a fundamental component of downtown infrastructure. San Antonio’s tourism- based economy is particularly dependent on availability of an adequate supply of parking. Conventions, trade shows, festivals, sporting events, and community activities cause widely varying demands for parking at hotels and in downtown lots and garages. Parking (or the lack thereof) is a key determinant of a feasible development project. Surface parking is an interim land use, likely to change in the future as available property in downtown is developed for higher land uses. Land availability is further constrained by the high number of historic properties in downtown San Antonio. Development of new parking is becoming increasingly difficult for both the City and for developers due to high land values, increasing construction cost, and current below-market user rates. Parking pricing is an important tool for influencing the use of available parking. Plentiful and inexpensive parking discourages the use of transit, ridesharing, and other modes. In the long term, cheap parking is a constraint to economic development because it precludes the construction of non-subsidized parking to support future development. A goal of 85% occupancy for public-use parking represents optimal utilization of available parking. Market rates balance supply and demand and provide the most effective use of available spaces. Currently parking rates are held below what the market would allow because the City owns and subsidizes the operation of 43% of available public-use spaces. The future role of City should be to facilitate economic development by partnering with others to provide parking and, when in the City’s interest, to participate in joint development of mixed use projects including public parking.
City of San Antonio | February 2008
8
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
A v a ila b l e P ar k i n g Sup p ly
The study includes an evaluation of the existing parking supply and demand to identify surpluses and deficiencies. In 2006, there were a total of 34,974 parking spaces available within the study area, with over 33,675 (96.3%) spaces in off-street garages and lots, and 1,299 (3.7%) on-street spaces. Onstreet spaces consist of metered spaces (2.4%), loading zones (1.0%), non-metered spaces (0.2%), and some reserved and handicapped spaces. Parking is categorized as “public-use” when the spaces are available for use by the general public, or as “private-use” when the spaces are restricted for use by certain individuals or groups. Public-use parking in off-street lots or garages includes 19,717 spaces, or 56.4% of all available parking spaces in the study area. There are 15 garages providing 7,493 (21.4%) public spaces, and 89 surface parking lots providing 12,224 (35.0%) public spaces. Of these, four garages providing 2,791 (8.0%) spaces, and 13 surface lots providing 4,921 (14.1%) spaces, are owned and operated by the City of San Antonio. The remaining public use parking facilities are privately owned and operated. The City also provides 1,299 on-street spaces. These on-street spaces combined with the 7,712 city-owned off-street spaces represent 43% of the spaces available to the public.
34,974 Total Spaces
* Includes Alamodome parking lots. Source: Parking Inventory by Jacobs Carter Burgess, Inc., October 2006
Number of Number of Spaces Percent of Type of Parking Facilities Public Private Total Total Garage 36 7,493 6,373 13,866 39.6% City Owned 4 2,791 - 2,791 8.0% Non-City Owned 32 4,702 6,373 11,075 31.7% Surface Lot 237 12,224 7,585 19,809 56.6% City Owned 27 4,921 1,737 6,658 19.0% Non-City Owned 210 7,303 5,848 13,151 37.6% Off-Street 273 19,717 13,958 33,675 96.3% Non Metered 12 61 0 61 0.2% No Limit 10 55 0 55 0.2% 20 min 1 1 0 1 0.0% 1 hour 1 5 0 5 0.0% Metered 103 825 0 825 2.4% 1 hour 13 83 0 83 0.2% 2 hour 73 568 0 568 1.6% 8 hour 6 41 0 41 0.1% 10 hour 11 133 0 133 0.4% Loading Zones 103 347 0 347 1.0% Handicapped 1 2 0 2 0.0% Reserved 10 64 0 64 0.2% On-Street 229 1,299 0 1,299 3.7% Total Parking 502 21,016 13,958 34,974 100%
City of San Antonio | February 2008
9
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
The Parking Division of the Downtown Operations Department is responsible for management and operation of the City’s municipal parking system. The City owns (or leases) and operates 10,048 parking spaces, which is 27% of total available parking supply. The city-owned facilities within the study area include four garages with 2,791 (8.0%) spaces, 27 surface lots with 6,658 spaces (19.0%), and 1,299 (3.7%) on-street spaces. The City provides 43% of the available public-use parking supply in downtown.
P a r king U ti l i z ati o n an d Cha ra ct eri st i c s
Other (Medical) 22% Work 35% Business 17%
Convent'n /Tourism 12%
Work 10% Shopping 10%
Other Business 8% 11%
Convent'n
Tourism
Dining/ Entertnm't
26%
33% Education 2%
Shopping 5%
Education 1%
Dining/ Entertnm't 7%
Typcial Weekday, 10 A.M. to 6 P.M.
Typical Saturday, 3 to 11 P.M.
Based on 1,584 interviews with parkers in public-use lots, garages and on-street spaces.
Source: Parking Utilization Survey by Jacobs Carter Burgess, Inc. November 2006
Why Do People Come Downtown? Trip Purpose for Public-Use Spaces
Field observations, utilization counts and parker interviews were performed to determine parking characteristics, accumulation, and turnover rates within the study area. It was found that a large percentage of trips to downtown originate north of downtown along IH-10 and US-281, between downtown and Charles W. Anderson Loop (Loop 1604). On a typical weekday morning, 35% of parkers are going to their work places, and 17% are in down-
town for a business-related activity. However, on a weekend evening, 33% of parkers are going to a restaurant or a bar, and 26% are attending a convention or visiting a tourist destination. Employmentrelated purposes were most frequent response with over 50% trips being either work or other business related trips. Vehicle occupancy varies significantly with the purpose of trip. Convention and tourist trips, and work
City of San Antonio | February 2008
10
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
trips have the highest and lowest vehicle occupancy respectively. Over one-third of the parkers come to downtown and park on a daily basis. The average parking duration is 3 hours and 38 minutes, with off-street public facilities averaging 3 hours and 48 minutes. A peak for both arrival and departure times occurs at about 10:00 a.m., and then a sustained peak for departure occurs between 1:00 p.m. and 5:00 p.m. The morning peak for departures is comprised of a large number of workers going to lunch. The average daily turn-over rate for on-street parking is approximately 3.49 vehicles per space; turnover for surface lots is 1.82 vehicles per space, and turnover for garages is 1.05 vehicles per space. Peak utilization occurs at about 2:00 p.m. when 6,761 (62%) spaces out of the total 10,387 surveyed spaces were occupied. The effective capacity of the surveyed spaces at 85% utilization is 9,211 spaces.
*Turnover = Average no. of parkers per space during typical weekday from 10 A.M. to 6 P.M.
Source: Parking Utilization Survey by Jacobs Carter Burgess, Inc. November 2006
Parking Space Turnover
City of San Antonio | February 2008
11
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
P a r king an d E m p l o y m e nt
In comparison with other peer cities in the United States, San Antonio has roughly the same total amount of downtown parking (34,974 spaces) as is found in Austin (38,086 spaces) or Phoenix (31, 937 spaces). When the parking supply is compared to downtown employment, San Antonio has about the same proportion of parking per employee (0.49 spaces per job) as Houston (0.61) or San Diego
Downtown Area CBD Employment
(0.69). Transit ridership is another factor that is important to consider as it relates to downtown parking demand. The capture rate for downtown work trips in San Antonio is approximately 7.3%, compared to 3.8% in Austin, 8.7% in Phoenix, 11.8% in San Diego, and 16.8% in Houston. Future growth in transit ridership will reduce parking demands for continued development in downtown San Antonio.
Parking Spaces Spaces per Job Transit Capture
San Francisco Portland Austin San Antonio Houston San Diego Denver Charlotte Phoenix
291,036 103,872 86,000 71,540 118,889 72,964 93,012 52,800 35,267
39,756 41,861 38,086 34,974 72,797 50,234 67,757 44,000 31,937
0.14 0.40 0.44 0.49 0.61 0.69 0.73 0.83 0.91
49.5% 29.8% 3.8% 7.3% 16.8% 11.8% 21.3% 4.3% 8.7%
Source: Demographia Central Business Districts, 2000. San Antonio from Census 2000 and Carter & Burgess, 2006. Austin from Downtown Austin Parking Management Study, 2000. Other cities from International Sourcebook of Auto Dependency in Cities, 1950-1990, by Jeffrey Kenworthy and Jeffrey Laube, 1999.
Entertainment, accommodations, food services 15.2% Educational, health and social services 17.0% Agriculture, forestry, mining 0.1% Armed forces 0.2% Wholesale trade 2.5% Other services (except public) 3.4% Construction 4.3% Manufacturing 4.9% Public administration 13.1% Professional, management, administrative services 11.4%
Parking Spaces Per Employee
Information 8.8% Finance, insurance, real estate Retail trade 7.3% 6.4% Transportation, warehousing, utilities 5.3%
Source: Census Transportation Planning Package (CTPP2000) data on place-of-work of the U.S. population based on 2000 Census long-form questionnaire responses for Census Tracts 1101 -1106. Place-of-Work Drill Downs were prepared by the University of Wisconsin-Milwaukee Employment and Training Institute, 2005.
Downtown Employment (2000)
City of San Antonio | February 2008
12
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
P a r king Sup p l y v s . D e ma nd
Available spaces within each block and district were compared to the calculated demand for spaces needed to serve existing land uses and activities during the peak demand period on a typical weekday. The peak period in downtown San Antonio is from 1:30 to 2:30 P.M. on typical weekdays (Tuesday, Wednesday or Thursday), provided there is not a major event occurring at the Convention Center or AlamoDome. On typical weekends, peak demand occurs later in the early evening and is concentrated in the Riverbend, Alamo and Houston Street Districts. Parking deficiencies exist where supply is inadequate to satisfy demand. In a block or district with a parking deficit, parkers arriving later must accept a longer walking distance or use transit to reach their destination. Where supply exceeds demand, a surplus of available spaces exists and serves the spillover of demand from other areas. Acceptable walking distance between a parking space and downtown destination varies depending on trip purpose, duration, cost of parking, and other factors including the parker’s age and physical condition. Average walking distance is typically about 2 blocks (500 feet) and maximum acceptable is about 5 blocks (1,500 feet).
Parking demands were calculated based upon existing land use and typical parking generation rates for urban land uses, adjusted for shared trips and variation in the peak period for each type of use. Existing land use was inventoried to determine the type of uses and total gross floor area for each use within each block. Total spaces required to satisfy demand were compared to available supply within each block and district. Resulting surpluses and deficiencies identify the existing supply/demand relationship for blocks and districts. Deficiencies in a given block are satisfied by surpluses in other nearby blocks. Where blocks with deficiencies are concentrated and exceed the nearby surpluses, parking needs are identified. At the district level, net deficits representing concentrated areas of need exist in the Houston Street, Historic Civic Center, Convention Center, Alamo, Riverbend, and Market Square Districts. Net surpluses exist in the AlamoDome, La Villita, North River, and University Districts. Within the overall downtown study area, there is a net surplus of parking with over 3,000 more total spaces than total demands. The AlamoDome parking lots comprise most of the net available surplus.
Land Use Area
26.9 Million Sq. Ft. GFA
City of San Antonio | February 2008
13
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
Medical 2.9% Office 26.7%
Lodging 21.1%
Institutional 11.0%
Parking 15.5% Retail 8.3% Port and Terminal 0.1% Recreational 4.8%
Industrial 1.9% Entertainment 3.1% Services 0.4% Residential 3.9%
Vacant 0.3%
Downtown Land Use - 2007
Existing Land Use Survey by Jacobs Carter Burgess, Inc. January 2007
Surpluses and Deficiencies by Block
City of San Antonio | February 2008
14
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
E f f ec t i v e C ap ac i ty o f P a rki ng
As the number of vacant spaces diminishes during peak demand periods, motorists spend more time circulating in downtown seeking the few remaining available spaces, adding to traffic congestion and air pollution. The effective capacity of parking is considered to be 85 percent for off-street lots and garages, and 90 percent for on-street spaces. Therefore the desirable occupancy level for the downtown parking system is 85 percent of the total supply. Maintaining a balance between supply and demand to not exceed 85 percent occupancy in peak periods is a parking management goal.
Weekday Utilization of City-Owned and Operated Parking Garages
10 A.M. to 6 P.M. on Typcial Weekdays (Tues., Wed. or Thurs.)
Source: Parking Utilization Survey by Jacobs Carter Burgess, Inc. November 2006
City of San Antonio | February 2008
15
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
Surplus and Deficiencies by District Overall Surplus of 3,018 Spaces
City of San Antonio | February 2008
16
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
M a j or F i n d i n g s
Since the previous Downtown Parking Supply/Demand Study was completed in 2004, approximately 2,500 surface parking spaces were lost due to development on surface lots, conversion of public lots under I-35/I-10 to UTSA downtown campus parking, and demolition of the HemisFair Garage at the site of the new Convention Center Hotel. Since this study began in October 2006, another 900 spaces were lost. Development often includes parking to serve its anticipated needs, but some projects are not able to provide adequate parking and few projects include any public-use parking to replace the surface lots that they are eliminating. Therefore, convenient public parking in garages and lots is highly utilized during peak demand periods on typical weekdays. On-street parking meters for shortterm use and spaces designated as commercial loading zones (CLZs) are fully utilized throughout weekdays. Weekday parking deficiencies exist in the Convention Center, Alamo, Riverbend, Houston Street, Historic Civic Center, and Market Square Districts. Weekend parking deficiencies are concentrated in the Alamo, Riverbend, and Convention Center Districts. There are few available surface lots in these districts that might serve as sites for future parking garages, and the high land values dictate that higher land uses will be served by the areas. Future parking development should be carefully planned and strategically located on the fringe of these high demand districts, to serve existing deficiencies and future needs. Parking available in peripheral areas is highly utilized even though it requires longer walking distances or shuttle service for users. The current City parking rates are 30-50% below market pricing, based on comparison with comparable rates in private-owned, publicuse lots and garages in the same general vicinities. Development of additional off-street parking is constrained by current pricing that limits income-producing capacity.
Guiding Principles for Downtown Parking Management
1. Use parking as a tool to facilitate economic development by partnering with others to provide needed parking and, when in the City’s interest, to participate in joint development of mixed use projects including parking. 2. Public-use parking facilities in downtown should be clearly identified, widely publicized, and marketed to residents and visitors. 3. Price parking in centrally located garages and lots to improve performance by balancing supply and demand. 4. Develop more peripheral parking with transit shuttle service to serve workers and other long-term users. 5. Improve parking control technology and make other capital improvements and preventive maintenance to promote increased utilization of performance-priced parking facilities.
City of San Antonio | February 2008
17
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
R ecommendations
Best management practices used in the parking industry were reviewed to identify recommended management practices to meet the parking issues and needs in downtown San Antonio.
The recommended management practices are grouped into five areas: 1. Marketing Practices 2. On-Street Parking Management Practices 3. Off-Street Parking Management Practices 4. Parking Control Technology Upgrade 5. Institutional and Financial Mechanisms
R e c o m m e n d e d M ark e ti ng Pra c t i c es
► Implement new parking control technology for more flexible payment options
► Bundle parking with downtown events
(include cost in event tickets, coupons, etc.)
► Expand Merchant Validation Program for
parking and transit
► Combine Monthly Passes for remote
parking and transit
► Improve the Downtown Alliance’s On-line
Parking Directory
► Offer promotions and news releases for
parking system
► Install Changeable Message Signs to
identify space availability at City Garages
► Conduct annual customer satisfaction
survey in city garages, lots and on-street spaces
► Expand Parking System Branding Signs
to include City lots and potentially all public-use parking facilities
► Create Public Information/Customer Service position for Downtown Operations Department
► Install Parking Trailblazing Signs at major entry routes to downtown
City of San Antonio | February 2008
18
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
R e c o m m e n d e d O n - s tr e e t Ma na g ement Pra ct i c es
► Install new multi-space parking meters in
high turnover locations to provide more flexible payment options for users
► Establish valet parking regulations/ permits for use of public right-of-way
► Sell Commercial Loading Zone (CLZ)
permits for longer use of zones
► Increase parking meter rates to encourage turnover and balance supply/demand
► Install CLZ meters in high activity loading
zones
► Add more long-term meters for on-street
parking in perimeter areas
► Enforce on-street regulations to promote
compliance and promote turnover.
R e c o m m e n d e d O ff- s tre e t Ma na g ement Pra c t i c es
► Install Pay-on-Foot Stations in high
activity garages and lots to allow more flexible payment options for users
parking cash-out option
► Implement Urban Design Guidelines for
off-street parking
► Use Alamodome parking for remote lot
with transit shuttle service
► Increase rates to price parking in centrally located garages and lots to improve performance by balancing supply and demand
► Construct new city garages and parking
lots in future near high-demand areas
► Coordinate with VIA to promote use of
parking and transit
► Expand Merchant Validation Program for
parking and transit
► Create Park-and-Shuttle Monthly Pass
with VIA bus/trolley service
► Perform recurring maintenance and repairs to extend lifespan of parking facilities.
City of San Antonio | February 2008
19
► Encourage employer transit subsidy or
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
R e c o m m e n d e d I n s ti tutio na l a nd Fi na nc i a l S t ruct ure
Options for institutional structures and financial mechanisms were evaluated to develop the following recommendations.
Institutional Structure: 1. Establish Downtown Commission to oversee parking enterprise and provide advisory recommendations as interim step to Parking Authority 2. Consider seeking state enabling legislation in 2009 to create a Parking Authority, to assume responsibility for the Parking Enterprise Financial Mechanisms: 1. Maintain parking as Enterprise System, fully integrated among city lots, garages and on-street operations, expenditures and revenue
2. Restructure parking fund with taxable debt backed by property tax pledge with debt paid from parking system revenues 3. Increase parking rates over time to maintain performance-based rates that balance supply and demand, and provide financial coverage of operating expenditures and debt 4. Consider opportunities for public-private partnerships and joint development 5. Partner with Downtown PID to expand role/services for marketing public parking
P a r t ne r s h i p O p p o r tun i t i es
Partnership opportunities for economic development including parking were identified based upon discussions with downtown stakeholders (see map on next page). These areas represent opportunities for the City to facilitate economic development by providing either land, parking development and operation, or incentives to promote future development that is consistent with the City’s Downtown Development Plan and will achieve mutual objectives for land use and economic development. Joint development opportunities or partnerships for mixed-use development including parking should be considered in these areas. This is not an exclusive listing of all partnership opportunities. Other opportunities exist and should be identified and considered as they emerge from further coordination with downtown stakeholders.
City of San Antonio | February 2008
20
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
Partnership Opportunities for Economic Development
R e c o m m e n d e d 10 - Y e ar Ca pi t a l I mpro vement a nd R enew a l P lan
Parking system finances were reviewed to determine the financial status and contribution of the various components of the parking system to the existing revenue stream and debt coverage. Anticipated changes in revenue, maintenance and operating costs, including the annual debt service associated with replacement or new construction were estimated and considered in the financial analysis. Loss of existing parking spaces and revenue generated or transferred due to potential sale of assets was also estimated in the financial analysis. The following elements of the parking system that pertain to finance and use were reviewed and evaluated:
► Surface lot parking revenue generation ► Garage/ramp parking (visitor/hourly) revenue
generation
► Garage/ramp permit parking revenue generation
► Parking tickets, fines, collection rates and
revenue generation
► Existing parking fee schedule ► Operation and maintenance costs for garages/ramps, surface lots and on-street parking spaces
► Special event parking revenue generation
included in annual revenues
City of San Antonio | February 2008
21
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
Increases/decreases expected in revenue, maintenance and operating costs, including the annual debt service associated with replacement or new construction, were estimated in the financial analysis. Loss of existing parking spaces and revenue generated/transferred through sale or leaseback agreements was estimated in the financial analysis. A 10-year capital improvement and renewal plan was developed that schedules and makes specific recommendations for capital improvements as well as maintenance and repair activities, including the procurement and installation of cost effective parking control equipment. Potential future expansion of the municipal parking system was considered to serve identified demands and deficiencies. Analysis of alternative sites for new parking garages included functional and aesthetic considerations. Preliminary design analysis was performed to assess suitability of alternate sites. Identification of possible sites for new parking facilities resulting in the four candidate site chosen for evaluation, including the following locations:
► ► ► ►
SAWS property CPS parking lot West Houston Corridor Dolorosa lot
Potential placement of a 500 to 700-space parking structure was evaluated for each of the four sites, including location relative to identified parking demands and deficiencies, as well as vehicular access points, adjacent roadway capacity, and on-site vehicular and pedestrian circulation opportunities and constraints.
MAIN
SANTA RO SA
SAINT MARYS
SOLEDAD
JEFFERSON
NAVARRO
TAYLOR
M CA AR
FLOR ES
BR
O
FRIO
6
7
19
20
21
22
23
24
25
26 27
AV E
8
11
13
N
UE
9
10 12 14
E
15
16
17
18
A AL
M
O
38 47 50 52 51 56 46 48 49 85 53 58 59
CHESTNUT
28
29
30 31
32
33
34
35
36
37
64
COMMERCE
1
2
DAWSON
39
40
41
42
43
44
3
45
65 61 66 67
BUENA VIS
4
TA
76
77 78 79 80 81 82 83 84 54 86 101 88 109 102 111 110 112 113 103 104 105 107 106 55 57 60 87
CHERRY
BO
BOWIE
N
H
A
M
IH
37
MARTIN
A
D
AY W
ON
HOUSTON
68 69
95 5
96 97 98 100 99
62 63
70 71 72
CROCKETT
108
73 89 90 91 92
CENTER
74 75
FRIO
IH 35
URBAN
COM MER C
94
OS A
E
114 115 116 118 120 119 122 117 121 93
SA N
TA R
OR E
S
MONTANA
FL
MAIN
ALA M
O
S PRE
TO N
123
HI NG
O RD
M AT AG
SAIN TM
A
A
124
W AS
IA N
O
LABOR
IN D
Parking Garage Site Alternatives
CHERRY
IH 37
ARY S
LA
125
DU R
AN
GO
City of San Antonio | February 2008
22
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
C a p it a l I m p r o v e m e n ts
► Parking Technology Upgrade ..................... $5.1 million over 3 years (includes on-street, offstreet and CLZ meters)
► Two additional 600-space garages
in 2000 and 2015 ....................................... $12 million const. cost each
► Changeable Message Signs and
Space Availability Count System at garages .................................................. $400,000
► Parking Trailblazing Sign System ............... $2.5 million
C a p it a l R e p ai r an d R e p la c ement
► $7.3 million for Parking System Maintenance & Repair
► Concrete deck repair and maintenance for
garages
► ► ► ► ► ► ►
Corrosion control Lighting upgrade Elevator rehabilitation Security surveillance system upgrade Restroom rehabilitation Repaving surface lots Parking signage for surface lots
► Monitor and repair structural cracks and joints
in garages
► Repaint curbs, pavement markings and interior
surfaces in garages and lots
► Apply traffic topping coat on upper deck of
parking garages
P a r king C o n tro l T e c h n olo g y Upg ra de
1. Multi-space Pay & Display parking meters for high turnover on-street spaces 2. Pay-on-Foot stations in lots and garages 3. Pay & Display meters in selected Commercial Loading Zones (CLZ)
City of San Antonio | February 2008
23
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
B en e f its o f I m p r o v e d P arki ng Co nt ro l Techno lo g y
► Provides more payment options including credit cards, prepaid parking cards and coins
► Provides receipts with expiration time ► Easier to maintain equipment and monitor
operating status of system
► Allows easy programming for rate changes, holidays and special events
► CLZ meters allow longer use of loading zones
1 0 -Y ear P ar k i n g F un d P ro Fo rma
Carter & Burgess prepared financial summaries of the parking system based on the existing operations with proposed capital improvements and additional facilities. A financial model has been developed to analyze the impact of assumptions, alternatives and changes in the parking system operations. The model summaries the scenarios developed with the City staff. Each scenario shows the operations and maintenance expenditures, capital costs, debt service and the magnitude of parking revenue increases required for each scenario. Current System The operations and maintenance expenditures are based on the Fiscal Year Ending 2007 budget and projected cost increase developed by the City of San Antonio Budget Department. The revenues are based on the Fiscal Year Ending 2007 projected revenues and are not projected to increase. The capital costs are based on the proposed capital improvements including renewal projects and technology improvements. The debt service for additional facilities is based on debt service schedules prepared by the City’s financial advisors. The financial scenarios developed as a part of the parking system study present the timing and magnitude of the potential adjustments to the parking fee schedules. The City of San Antonio’s parking system provides public parking for citizens in the downtown area. The system also provides non-public parking to selected groups, such as public employees and officials. The parking system is currently funding all of the operations and maintenance costs and a portion of the debt service. The General Fund is currently subsidizing the system by paying the General Obligation debt of the parking system. The parking system is paying the revenue bond debt service. The system has a backlog of deferred maintenance due to a lack of financial resources. The current funding is not sufficient to finance technology improvements or additional parking system facilities. Three basic scenarios presented to City staff include:
1. Continuing with current operations 2. Special Revenue Fund - operating the parking
system as special revenue fund and refunding all debt with General Obligations bonds
3. Enterprise Fund - operating the parking system as a self-sufficient enterprise
City of San Antonio | February 2008
24
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
Special Revenue Approach Special Revenue fund projects are not expected to be self-sufficient. These projects generally receive General Fund support based on the social and economic benefits to the citizens as a whole. Operating as a special revenue fund addresses the economic benefit to the downtown area from the City’s provision of discounted and subsidized parking facilities. To implement this approach, additional subsidies will be required by the General Fund to make up the shortfall in the revenues from operations. Some fee adjustment will be required to provide sufficient revenue to comply with the bond covenants on the outstanding revenue bond indebtedness. Enterprise Approach As an enterprise, the City’s parking system is expected to generate sufficient funds to cover the The major advantage to operating the parking system as an enterprise is the citizens and visitors using the facilities will be paying the true cost for providing those facilities. The major disadvantage is the fees will need to be increased. A change in pricing policies is required to operate the parking system as a self-sufficient enterprise. The parking fee schedules will need to be adjusted to meet coverage within the next three years. To fund additional facilities and/or to pay the General Obligation parking system debt service, immediate adjustments would be required. operations, maintenance, debt service and capital requirements for the parking system. This includes funding new capital improvements and renewal projects.
P a r king R ate Str uc ture Ta sk Fo rce
The Downtown Operations Department established a Parking Rate Structure Task Force in the fall of 2007. The Task Force grew out of early stakeholder involvement, in response to the need for additional public input for developing the proposed new parking rate structure. The Task Force was formed to ensure that a broad cross-section of downtown parking interests and views were heard during the study’s development. Task Force members 1. Rate Structure should: a. Support the operation of the Parking System without a General Fund subsidy b. Support the capital improvements, repair and replacement recommendations c. Be fair and equitable to the Parking System users
City of San Antonio | February 2008
25
► Paseo del Rio Association ► Tourism Council ► VIA Metropolitan Transit
City staff and consultants met five times with a Parking Rate Structure Task Force for the study. The following objectives were identified by the Task Force for the propose parking rate structure:
were asked to assist staff to develop a proposed parking rate structure. The Task Force included representatives of the following stakeholders:
► ► ► ►
Central Area Business Council Downtown Alliance Downtown Residents Association Downtown Advisory Board
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
d. Not limit the income producing capacity of parking (Market Rate) to stimulate the development of new parking, both public and private 2. Explore creative parking options to stimulate downtown economic growth a. Discount rates for locals visiting downtown b. Special event rates Stakeholder input on the parking rates and parking management findings and recommendations has been incorporated into this report. In addition, the final consultant recommendations were presented to the Task Force to engage their feedback on the priorities and response to the study’s parking management recommendations. The Task Force recommended the proposed parking rate structure and incentives be phased-in over a period of 3 years, using a tiered-rate structure with higher rates for the centrally located garages Incentives for locals and downtown residents to come downtown should include free parking after 6 PM on Wednesdays, an expanded Merchant Validation Program, a combined fee for parking and transit in downtown, and special event Rates for 27 specific days of downtown-wide events. and lots with highest parking demand (higher than 85 percent average utilization), moderate rates for less centrally located facilities with moderate demand (between 85 and 50 percent average utilization), and affordable rates for fringe parking lots with lower demand (below 50 percent average utilization). An initial small step-up in rates should be instituted in 2008, with a second step-up to near market rates in 2010, after the implementation of new parking control technology for City garages and lots. Affordable rates should be maintained at fringe lots, the Library garage and Market Square Lot, with VIA bus and trolley service.
City Phoenix, AZ San Antonio, TX Dallas, TX Orlando, FL Austin, TX Denver, CO Nashville, TN San Diego, CA U.S. median
High $55 $77 $100 $100 $150 $200 $168 $175 $199
Low $25 $40 $40 $65 $80 $90 $65 $115 $104
Median $43 $58 $65 $84 $115 $120 $125 $150 $148
Daily Public Parking Rates
Monthly Unreserved Parking Rates
City of San Antonio | February 2008
26
Comprehensive Parking Management Program for Downtown San Antonio
S UMMARY R EPO RT
Duration
City-Owned Garages
Westin RiverMarket Center Street Garage Garage $3.50 $1.00 1st hr $5.00 2nd hr $18.00
Hyatt Losoya Street Garage $3.00
Hourly Rate
$2.00
Daily Rate Monthly Rate -Reg. Monthly
-Dwtn. Res.
$6.00-$8.00
$12.00
$18.00
$55.00-$77.00 $45.00
$97.31
Waiting list
$70.00
Employee Only
$97.31
Waiting list
Comparable Rates for Other Downtown Public Parking Garages
City Garages Hourly Daily Monthly Permit Dwntn. Resident Current $2.00 $6.00 - $8.00 $55.00 - $77.00 $45.00 FY 2008 $2.50 $7.00 - $8.00 $70.00 - $97.00 $50.00 FY 2008 $2.50 $2.00 - $7.50 $30.00 - $40.00 FY 2008 $1.00 $0.20 FY 2010 $3.50 $10.00 $70.00 - $97.00 $55.00 FY 2010 $3.00 $3.00 - $9.00 $40.00 - $50.00 FY 2010 $1.25 $0.25
City Surface Lots Current Hourly $2.00 Daily $1.50 - $6.00 Monthly Permit $25.00 - $40.00 On-Street Meters Current 1 & 2-Hour Meters $1.00 10-Hour Meters $0.20
Current and Recommended COSA Parking Rates*
* Rates at individual facilities vary within these ranges
Fiscal Year
Facilities Affected Parking Meters Riverbend Garage Houston St. Garage Parking Meters garages lots Parking Meters Garages
Percent Increase
FY 2000
40%
FY 2002
31%
FY 2003
27%
Previous Parking Rate Increases
Source: City of San Antonio Finance Department
City of San Antonio | February 2008
27