palo alto (ca) planning report: parking management program (2011)

8/6/2019 Palo Alto (CA) Planning Report: Parking Management Program (2011)

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TO:FROM:

DATE:SUBJECT:

PLANNINGANDTRANSPORTATION DIVISION

MEMORANDUM

PLANNING & TRANSPORTATION COMMISSIONJaime O. Rodriguez DEPARTMENT: Planning andChief Transportation Official Community EnvironmentAugust 24, 2011Study Session Regarding Parking Management Strategies

RECOMMENDATION:Staff recommends that the Planning & Transportation Commission provide feedback regardingrecommended parking management program strategies.BACKGROUND:The Transportation Division began the development of an analysis of the City's parkingmanagement strategies in April as part of the Transportation Work Plan for 2011. The analysisincludes a focused review of parking strategies in the Downtown and California AvenueBusiness Districts. Several citywide parking policies are also being explored for futureconsideration to address areas of community interest, including bicycle parking, on-streetdisabled parking, electric vehicle charging stations, and residential permit parking.The following list outlines recent studies and summarizes community input provided to date tohelp identify enhancements to the City'S parking management program: Contract Parking ManagerIn April 2011, a contract Parking Manager, Gil Candelaria, was hired to assist the

Transportation Division with the development of parking strategies to address the parkingimpacts at City owned and operated garages and lots, as well as in neighborhoods adjacent tothe Downtown and California Business Districts. The parking manager provides directresponse to requests for parking improvements within the Downtown and California AvenueBusiness Districts

. Downtown Business District Parking StudyIn April and May 2011, a parking occupancy study of the Greater Downtown was conductedto identity the total number of vehicles parked on the street on a typical weekday andweekend. The study included counting every vehicle parked on-street and off-street in publicfacilities at various times of the day to determine occupancy.

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The study also included a survey to detennine the actual number of available on-streetparking spaces, hourly vs. pennit parking spaces in public garages and surface lots, loadingzones, passenger zones, and special time-limit parking areas. The boundaries for theDowntown parking occupancy study are: Alma Street to the west, Middlefield to the east,Palo Alto Avenue to the north and Embarcadero to the south.Parking occupancy maps for each time period of the study area are available online(www.cityofpaloalto.org/parking) but were not included in this staff report.

On-Street and Off-Street Downtown Parking ModificationsUpon the completion ofthe parking survey, s taff immediately began analyzing the data toidentify locations where on-street parking supply could be improved to convert underutilizedspaces (red curb or loading zones) to provide 2-hour or longer tenn parking. To date, 18 newon-street parking spaces have been or planned for installation. This represents the equivalentof $1.8M in parking improvements if new garage spaces were constructed.Within the off-street parking facilities, staff converted the 4Lh floor of the Bryant StreetParking Garage (Garage S/L) from hourly parking to pennit parking, providing 104additional pennit parking spaces. This allowed the City to issue pennits to everyone on thewait list for a pennit at the garage.

California Avenue District Parking StudySurveys of parking in the California A venue business district parking have also beenconducted, though the level of analysis is not yet as complete as for the Downtown area. Theboundaries for the California survey were as follows: EI Camino Real to the west, ParkAvenue to the east, Stanford A venue to the north and Oregon Expressway to the south. Pennit Management Software

Staffis completing a Request for Proposals that will be released in August for procurementof a new Pennit Management Software and Server system to replace the City'S currentspreadsheet and hand-managed system. A new penni t system will allow the City tointroduce tier-pricing strategies for pennit distribution as well as online payment systems andto allow for monthly vs. quarterly pennit distribution. The Parking Pennit Program generatesapproximately $1.2SM per year to the General Fund.

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Palo Alto Bicycle CorralOn July 28 th the City installed a new bicyclecorral in front of Coupa Cafe at 538 RamonaStreet. Bicycle parking is a critical element ofthe City' s parking management program tohelp reduce the City's carbon footprint and toreduce on- and off-street parking demand.Up to ten additional Bicycle Corralinstallations are planned in Downtown th isFall. Mini-Corrals with decorative public artbicycle racks are also being plarUled alongstrategic locations. The new VT A Bike ShareProgram is being considered for a similardesign concept in both the Downtown andCalifornia Avenue Business Districts.

Residential Permit Parking (RPP)

Palo Alto - Bicycle Corml at Coupo Cafe

The City's only current installation of a RPP program is within the College Terraceneighborhood. The area covered includes Amherst Street to the west, Stanford Avenue to thenorth, El Camino Real to the east, and California Avenue to the south. The permit programlimits daytime parking to 2 hours without a permit, and prohibits reparking within the sameblock following the two-hour expiration. The program is approaching its third year. Recently,however, residents of three streets have either opted-out or are completing a petition processto have their blocks be removed from the program. A petition for an RPP program aroundthe Professorville neighborhood was received in July 20 II, and a few other neighborhoodshave at one time or another requested such consideration.

Community Outreach to DateImmediately upon the start of the review of the City's Parking Management Program the Citybegan scheduling and holding community meetings to share data and solicit feedback on ideasbeing formulated by the City. In the downtown area the City has held meetings with residentsfocused on residential parking concerns, business focused meetings to discuss downtown coreparking strategies, and with the Palo Alto Downtown (PAD) Parking Committee. One meetinghas focused on the California Avenue district study. A summary of community meetings andfeedback from each meeting is provided below.April 26, 20 II : An evening community meeting was held with residents in and around theProfessorville Neighborhood with a focused discussion regarding the pros and

cons of creating a Residential Parking Permit (RPP) Program.April 26, 20 II : A presentation was made to the Downtown Business and Professional groupfocused on sharing preliminary results of the space inventory and vehicleoccupancy study. Staff also shared some broad conceptual ideas forhighlighting downtown parking facilities and improving the permit parking

program.



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July 27,2011: A presentation to the California Avenue Business District was made to presentpreliminary results of the space inventory and the vehicle occupancy study forthat district. Staff also presented some recommendations for improving parkingpermit distribution and on and off-street parking strategies.July 28,20 II : An evening community meeting was held with downtown businesses andinterested community members. Flyers to every business were hand-deliveredand outreach coordination through the Palo Alto Downtown Business andProfessional Group was done to encourage merchant participation. The meetingincluded a detailed presentation on program modifications being considered forforwarding to the Planning & Transportation Commission, including the results

of the Parking Survey, Way-Finding Signage, Permit DistributionModifications, Suggested Pilot Projects at Garages for Gate-Control Facilities,and on-street improvements.In addition to the community meetings, staff also met regularly with ad-hoc resident communitymembers to solicit input on residential parking strategies.Parking Management in Downtown CoreThe City ofPalo Alto addresses parking in somewhat different ways in the Downtown Core ascompared to the California Avenue area. The current Parking Management Program within theDowntown Core was set up in 1994 as a pilot project and was adopted in 1996. The programincludes the use of a Color Zone system to create parking districts in which vehicles may parkfor up to 2 hours on the street and 3 hours in garages in each color zone. Drivers may move theirvehicles but not repark within the same zone in the same day.Figure 1 below provides a visual designation of the Color Zone system within the DowntownCore and also includes the location of off-street public parking facilities. Table I notes thenumber of parking spaces' available within each facility. Attachment A provides a detailedoccupancy report for each facility by time-of-day.The Color Zone system was last modified in July 2011 with the inclusion of the Main Libraryparking lot and its Bryant Street frontage into the Coral Zone.Employees working within the Downtown Core between Lytton Avenue, Forest Avenue, AlmaStreet, and Waverly Street are allowed to purchase parking permits that allow them to park indesignated permit parking spaces in specified garages and surface lots. The permits cost $135per quarter or may be purchased on a yearly basis at a discount rate of$420 per year.

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Figure 1Downtown Palo Alto Color Zone Parking Management SystemP I." ' ~ .

CORAL ZONE

Table 1Number of Parking Spaces in Downtown Palo Alto

Off-Street Parking FacilitiesGarages Surface Lots

Letter Name Hourly Pennit Total Leiter Name Hourly Permit TotalQ AlmafHigh (North) 134 134 0 Emerson/High 78 78R Alma/High (South) 77 134 211 A EmersonfLytton 68 68

SIL Bryant St 296 392 688 C Ramona/Lytlon 18 32 50WC Cowperrwebster 201 388 589 F Florencc!Lytlon 46 46CC City Hall 187 519 706 T Lytton/Kipling 25 25 50B RamonalUniversity 63 63 H Cowper/Hamilton 90 90

D HamiltonfWaverly 86 86E Gilman/Bryant 34 34G Gilman/Waverly 53 53P HighIHamillon 51 51K LyUonIWaverly 15 57N EmersonIRamona 48 48



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Parking Management in California Avenue AreaWithin the California Avenue Business District, the Permit Management program does notinclude restrictions on where vehicles are permit ted to park. Vehicles with designated placardsmay park in any off-street garage or surface lot facility. The permit cost in the California AvenueBusiness District is $43 per quarter or may be purchased on a yearly basis at a discount rate of$123 per year. There is currently also no restriction on the number of permits that a person mayobtain once they are eligible to purchase a permit. The California Avenue Business District doesnot have a color zone parking system.Table 2 notes the number of parking spaces available within each facility. Attachment Bprovides a detailed occupancy report for each facility by time-of-day.

Table 2Number of Parking Spaces in California Avenue Business DistrictOff-Street Parking FacilitiesGarages Surface Lois

Lot # Name Hourly Permit Total Letter Name Hourly Pemlit Total3 Cambridge West 183 183 CambridgclPark 27 275 Cambridge EAst 157 157 2 Cambridge/Birch 27 27

4 CambridgclBirch 89 896 Sherman/Park 154 1547 Sherman/Birch 161 1618 Shermanl Ash 89 30 1199 Birch/Cambridge 28 28

DISCUSSION:The City has invested a significant amOtmt of time and funds in the current Parking ManagementProgram and facilities for both the Downtown and California Avenue Business Districts. Toprotect the current investments, the following program modifications are being evaluated tomake the programs more efficient. to allow for improved enforcement, to be more accessible toemployees who rely on parking availability, to preserve valuable on-street parking for patrons ofeach district and to preserve the quality of life of adjacent residential neighborhoods.Efforts currently under review include: Permit Parking Distribution:

The new permit management system currently under procurement by the City will allow forbetter tracking and distribution of permits. 111e system will also allow for querying of datathat is currently not available through the current spreadsheet system and manual cardprogram. The new system will also allow for more efficient distribution of parking permits.Currently if a pemlit is not renewed, it takes one quarter (three months) for permit holders tobe notified to return their permits. This represents a significant loss in revenue and delay indistribution of permits to employees who are waiting for a permit.

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The following Tier-Pricing Permit Structure for the Downtown Business District is proposedwith new elements shown in italics:$135 per Quarter$420 per Year$45lMonth$30lMonth$100lMonth

(Regular Permit)(Regular Permit Pain in Full)(Regular Permit)(Roof Level Parking - Hardship)(Fleet Vehicle Parking)

Within the California Avenue Business District, permit program modifications are still beingevaluated and discussed with merchants. An immediate change being implemented by staff,though, is a restriction on the number of permits that an individual is allowed to obtain oncethey are eligible for a distribution of a permit. Historically, once an individual becameeligible for a permit and multiple permits obtained, those permits were distributed separatelyto persons who never waited for procurement of a permit, bypassing persons waiting toobtain a permit correctly. To help eliminate permits from People who obtained themincorrectly, development of a new Business Lot of permits is being proposed as part of thedistribution of the new permit system. Persons who did not obtain a permit correctly wouldnot be allowed to renew their permit but may work through their employer to transfer thepermit to the business directly with a maximum number ofpermits per business allowed.This helps ensure people who cannot renew their permit have an opportunity to still obtainone immediately and makes the businesses responsible for future distribution.

Day Permit Parking Distribution:Day Permits are currently available for purchase at Revenue Collections on the lobby floor ofCity Hall. The permits cost $16 per day and businesses regularly purchase as many daypermits on a monthly or yearly basis to provide parking for visitors. Visitors may use the daypermits to park on the street. In the Downtown Business District, visitors may also purchasea permit at convenient Day Permit distribution machines available at the Bryant StreetGarage (Lots S/L) and the Alma Street/High Street Garage (Lot R).The Day Permits currently distributed in the Downtown Business District are paper permitsthat the City's Parking Enforcement Team has identified as being misused regularly throughthe modification of dates on the permits. The same process is used for permits sold for theCalifornia Avenue Business District but at a rate of $6 per day.Starting in September 20 II, Day Permits will be sold as a "scratcher" type of permit that canonly be modified once. In the California Avenue Business District, additional parking datawill be collected in September to measure the number of vehicles parking per day in lotsusing day permits to determine whether day permit distribution machines should be madeavailable to distribute a limited number of permits per day.

Way-Finding Program (Downtown Business District):Staff proposes that new Way-Finding signage be installed throughout the DowntownBusiness District to promote the availability of free public parking, at strategic gatewaylocations and selected garages to help identify and encourage easy parking. Way-Findingsignage would direct visitors to desired parking locations and provide information such as:



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pricing, location of facilities, and/or parking spaces available at each facility. Staff has alsocontracted with a graphic designer to help in the development of static and dynamic parkingsigns and banners to brand parking in Palo Alto.

Pilot Program - Access Controls to Downtown Business District Garages:Staff proposes the installation ofAccess Control Equipment in selected garages and lots.Access Control would provide the City with a means to control entry/exit into selectedfacilities, better regulating the length of time parkers spend in a facility and would allowvisitors to stay longer at a fee. A constant complaint heard by staff during certain times of theyear is that shoppers need more time to shop and dine. Access control would accommodatethat request while still preserving the existing free parking time limits of the parking garages.Access Control would also reduce the need for parking enforcement and would provide anautomated system for distributing and tracking Parking Pennits on a daily, quarterly andannual basis.

On-Street Disabled Vehicle Parking Policy:Several unpennitted on-street disabled parking spaces were identified in the Downtown areaas part of the parking survey. The availability of on-street disabled parking facilities is atypical encroachment permit function available through many local agencies and should beconsidered by the City of Palo Alto. Allowance of on-street disabled parking spaces should,though, be limited to certain circumstances.A policy will be proposed to provide consistent guidelines for considering, approving andinstalling requested on-street disabled parking spaces in neighborhoods. Unpermitted onstreet disabled parking facilities should be removed through the City'S code enforcementprogram.

Pilot Program - On Street Electric Vehicle Charging Stations on Residential StreetsStaff proposes the development of a policy that would allow for the installation of on-streetelectric charging stations in residential neighborhoods. The policy would provide a feestructure with guidelines for permit application, installation and maintenance standards, aswell as the need to allow for public use.

Residential Pennit Parking Program (RPPP)Staff is preparing a draft ordinance amendment to better facilitate the potential developmentof additional Residential Pennit Parking (RPP) districts. CUiTently, Chapter 10.46 in the CityOrdinance only addresses the College Terrace Residential Pennit Parking Program. Theamendment will allow for additional RPP districts to be implemented in conjunction withparking strategies to address parking intrusion.Several other neighborhoods have expressed interest in RPP, most recently residents of theProfessorville area have submitted a petition for a RPP program due to intrusion fromdowntown employees parking in the neighborhood. Staff believes, however, that it isimportant for the City to establish some basic policies for all RPP requests before expandingbeyond the current College Terrace program.



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In particular, the following criteria should be established:a) Process for a neighborhood requestb) Thresholds for neighborhood participationc) Whether to establish block-by-block or neighborhood wided) How to treat multi-family and non-residential propertiese) How to detennine costs of penn tsf) Other relevant factorsStaff suggests presenting an outline of criteria to the Professorville and other neighborhoods,and returning to the Planning and Transportation Commission within 90 days withrecommended program criteria. Following the Planning and Transportation Commissionreview, the policy guidelines would be presented to Council for adoption prior to processingneighborhood requests and implementation.

POLICY IMPLICATIONS:Input from this study session and input from future study sessions of the City Council will betaken into consideration for the development of new policy and programs/projects. Anysuggested policy changes to the City's Parking Management Program will be presented to thePlanning & Transportation Commission again before presentation to the City Council.RESOURCE IMPACT:Capital Improvement Program (CIP) PL-12000 for Parking & Transportation Improvements isavailable to fund future projects.TIMELINE:A Study Session with the City Council is scheduled for September 19,2011 to discuss ParkingManagement Program.ENVIRONMENTAL REVIEW:No environmental review is necessary for a Study Session.ATTACHMENTS:Attachment A: Downtown Occupancy Study, Off-Strect FacilitiesAttachment B: California Avenue Occupancy Study, Off-Street FacilitiesAttachment C: Correspondence

G J v r ~ EPARTMENTIDIVISION HEAD APPROVAL:_____________Curtis Williams, Director

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G 53

K 57

City of Palo AltoDowntown Off-Street Parking FacilitiesOccupancy Analysis

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City of Palo AltoCal ifom ia Avenue Off-Str eet Pa/1(ing Facilities

Occupancy Analysis

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Ken Alsman1057 Ramona StreetPalo Alto, CA [email protected] 17, 2011

Memo to: Transportation and Planning Commission Members

ATTACHMENT C

Subject: Commercial District Parking and its Negative Impacts on the HistoricProfess orville, Single-Family Residential District

Good Evening. I am traveling and will not be able to at tend your upcoming meetingwhen jaime Rodriguez, the Traffic Engineer will present the progress he is makingon parking issues in the Downtown Palo Alto commercial areas. I am vitallyinterested in the subject and sorry to miss your meeting. I heard jaime's report at anearlier meeting and assume yours will be very similar.First, let me applaud the work that jaime and Gil are engaged in and their efforts toget a handle on several problems with the policies and management of parking andthe use of parking in the downtown commercial districts. jaime's present emphasisseems to be to enhance the shopper 's parking experience, providing better signingto guide them to the parking structures and restriping to free up more short- termon-street parking for customers. He is also laying the groundwork for ways to bettermanage the downtown parking resources.As a long-term res ident of the Professorville Historic District single-familyneighborhood my interest is principally toward solutions to the ever-increasingproblems caused by commercial district employees who use our neighborhood astheir daylong parking lots. Our neighborhood is loosing its intrinsic character withresidential streets now lined bumper-to-bumper with employee cars from 8:00 a.m.to 6:00 p.m. We are directly being asked to subsidize the success of the nearbycommercial districts with the quality and values of our homes and neighborhood.One of the clear tenants of zoning is to prevent the problems of one district fromimpacting another zone. You shouldn't bring your commercial traffic, your trash,your noise, your fumes, your pollution, your problems and your parking needs into asingle-family residential district - or a National Register Historic ResidentialDistrict.Yes, it is inconvenient for us to have to drive around looking for parking. But it ismuch more than inconvenient. We are now inundated with strangers everyday, wequestion our safety, we remove their litter, we don' t recognize what was once, just ashort time ago, an absolutely wonderful area that we have all worked to restore. We


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object to the fact that this neighborhood is being inundated with commercialparking-1 and we object to the failure of the City, businesses and property owners toprovide for the uses allowed on their land. This is a National Register HistoricDistrict one where we are asked to maintain certain standards, but apparently thatrespect is not expected of or given by the City or the local businesses.I understand that jaime and Gil have added 100 new employee permit parkingspaces in one of the lots. While this is a valid and much appreciated first step, I amstill amazed that more space in the structures isn't provided for employees. I amalso at a loss as to why 300 to 400 designated permit spaces are empty every day,spaces just sitting unused although apparently paid for but not occupied --- and theCity will not issue new permits to those on the waiting list. (see attached August 16survey). I understand jaime has long-term plans to improve the management of thelots and garages with new equipment that will potentially address a more efficientway to handle employee parking. My fear is that since there is a cost involved thismay take years. (I still don' t understand why the City doesn't just open more floorsto employees and give out more permits until the spaces fill up, maybe discountingor eliminating the charges to encourage full use of these $50,000 per space publicfacilities.)There is also apparently a "principal" that the fees have to come to $15 a day - adaily cost far beyond what most employees will find acceptable. A year-long parkingpermit costs about $450 or about $1.75 a day for a five-day work week - areasonable cost for most employees if they can apply it daily, not as a lump sum andnot a program that requires the bureaucracy involved in gaining a permit. Managedproperly, at current development levels the parking structures can accommodatemore employees, make more money and still provide more than ample parking forcustomers.However, even the most successful efforts of jaime and Gil will eventually fall shortgiven the pressure from the growth and use changes taking place under current CityLand Use and Entitlement Policies - policies largely under the purview of thePlanning Commission and the Planning Department.

-1 We have been asked why we refer to this as an invasion of employees from commercial districtsusing this for parking. They exit their cares, swing on a backpack, lock their cars and head towardsthe commercial district. Obviously we did not survey everyone however, we have asked and somehave told us where they work. We also think some may be City Hall employees since Friday, when theCity flex-time is in effect the impact "feels" a little less intensive. Recently it was suggested thatStanford's commuter incentive program, where they pay people not to drive onto campus, leadssome to park here and walk or take the Margarita to Campus. Any other such incentive programscould have the same unintended consequence with individuals scamming the program meant toreduce travel trips. In any event, we believe the core are individuals who work in the commercialdistricts.


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At the top of the list are the parking exceptions/incentives granted to downtowndevelopment for offices, retail and housing - most based on worthy but unprovenand unworkable theory, assumptions and - well, wishful thinking. As an example:approvals give parking exceptions to uses near transit - the fact is that evensomeone living in a housing unit and taking transit will likely have a car parked onsite or in the neighborhood on a daily basis. Some of these exceptions approach 50%or more of the actual parking needed for the uses that will occupy the space. Evenwith parking provided owner and business policies are prohibiting or limiting thefull use of on-site parking by some, if not all employees -- spaces sit empty all day.By our estimate for every 12 to 15 employees without a designated parking space inthe commercial district pushes the parking one block further into the low-densityresidential nei ghborhood.One of the questions you can ask staff is for a comprehensive report of the projectsapproved, occupied, built, under construction and in the pipeline, the exceptions &incentives granted, how they are handling employee parking and what parking isunaccounted for. It seems to be the only way to begin to get a handle on how muchthis parking problem is likely to grow.In addition, especially with the wave of start-ups coming into Palo Alto, traditionalassumptions about parking standards are no longer valid. Where the typical officemodule of a few years ago gave employees each about 250 square feet of spaceleading to a requirement of 1 parking space for every 250 square feet ofbuildingarea for parking. The current trend is to put many more employees in the samespace - clusters of people working with their laptops around a table at 3 or 4 timesthe employee density once considered standard.Link this increased intensity of employees with the failure of the City to applynormal "nonconforming" rules to properties in downtown commercial districts andthe problems magnifY exponentially. Take a look at 818 Emerson, a small space nextto Saint Michaels Alley, formally occupied by a furniture store with one or twoemployees and an occasional customer -- and no parking. Now 818 Emerson ishome to a start-up with 30, or more, young backpacking employees building thenext Iphone app - each person driving as a single in a car, parking in theneighborhood and walking blocks to their jobs.The nonconforming conversions, the well-intended parking reduction incentives,the need to update parking demand data and the ability to demand solutions thatkeep commercial parking in commercial districts are all within the purview of thePlanning Commission.We recognize that it may take years for the City processes to fully understand,accept and address the problem. In the meantime we are confident that the onlyway to regain the integrity ofour neighborhood is through establishment of aResidential Parking Permit program, an "RPP." A petition with 147 signatures was


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submitted to the City within the last month requesting that Jaime begin the"process" immediately. We are fully aware what the RPP can become anotherbureaucratic maze of rules and regulations. However, we are also confident that itcan be applied to our area simply with the need for minimal enforcement andinconvenience to residents.As you consider the work program that Jaime will be discussing please keep in mindthe needs of our neighborhood and immediately begin the process of findingsolutions to the invasion and damage that employee parking is doing to ourresidential neighborhood. We understand that downtown commercial interests areprimarily interested in customer parking, not their employees. At every juncture,ask yourself and the applicants seeking exceptions and approvals: "Where will youremployees park?"Thank you for your attention.Sincerely,Ken Alsman


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Attachment APARKING GARAGE SURVEY - 10:45 am to 11:25 am, Tuesday, August 16, 2011This is the result of a drive-through survey of just four public parking garages. It isconsistent with previous surveys taken at other times during the day.10:45 HIGH STREET GARAGE

EMPTY PERMIT SPACES 2811:00 BRYANT STREET GARAGE

EMPTY PERMIT SPACES 10511:10 COWPER GARAGE

EMPTY PERMIT SPACES 15211:20 CITY HALL GARAGE

EMPTY PERMIT SPACES 84TOTAL EMPTY PERMIT SPACES 369

369 X$50,000 per space =$18,450,000 of unused permit parking.At least two to three times this number of3-hour "customer" parking spaces werealso vacant.Fully using these 369 permit spaces could reduce employee parking in theresidential areas by 25 to 32 city blocks.

palo alto (ca) planning report: parking management program (2011)

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