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Parking Master Plan

DRAFT FINAL February 2020

Acknowledgements

The data collection and analysis as well as preliminary recommendation were completed by IBI. The recommendation were expanded by Town of Whitby staff based on residents comments and concerns, input from other Departments, and knowledge of the Downtown parking needs and challenges. Thank you to stakeholders, residents, businesses, the Town’s consultant and staff for their input and contribution to the project.

Table of Contents

Executive Summary...................................................................................................................... 1 Public and Stakeholder Consultation.................................................................................... 1

Financial Assessment........................................................................................................... 2

Parking Supply and Demand................................................................................................ 2

Transportation Demand Management .................................................................................. 4

Cash-in-Lieu of Parking ........................................................................................................ 4

Parking Technology Review ................................................................................................. 4

Parking Policies and Strategies ............................................................................................ 5

Residential Parking Permit Program .................................................................................... 6

1 Introduction......................................................................................................................... 1 1.1 Parking Master Plan Objectives and Guiding Principles ................................... 1

1.2 Project Scope ......................................................................................................... 2

1.3 Parking Governance in Whitby............................................................................. 3

2 Other Relevant Plans/Studies ........................................................................................... 7 2.1 Town of Whitby Transportation Master Plan Study (2010) ................................ 7

2.2 Brooklin Transportation Master Plan (2017) ....................................................... 7

2.3 Whitby Official Plan ............................................................................................... 8

2.4 Interim Payment-in-Lieu Policy, Staff Report (2016) .......................................... 8

2.5 Passenger Pick-up / Drop-off (PPUDO) Zones and Taxicab Stands in Downtown Whitby (2014, 2016) ............................................................................ 9

2.6 Metrolinx Bus Rapid Transit Study ...................................................................... 9

3 Public and Stakeholder Consultation............................................................................. 10

4 Financial Assessment ...................................................................................................... 11 4.1 Parking Price Comparison .................................................................................. 11

4.2 On-Street Paid Parking and Opportunities........................................................ 12

4.3 Municipal Lot Parking and Opportunities ......................................................... 15

5 Parking Supply and Demand ........................................................................................... 16

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Table of Contents

5.1 Parking Inventory and Utilization Survey.......................................................... 16

5.2 Existing Parking Inventory.................................................................................. 16

5.3 Existing Parking Utilization................................................................................. 18

5.4 Parking Turnover ................................................................................................. 20

5.5 Transportation Demand Management ............................................................... 20

5.6 Shared Parking Provisions ................................................................................. 22

5.7 Peer-to-peer Shared Parking .............................................................................. 22

5.8 Future Parking Needs .......................................................................................... 23

6 Parking Technology Review ............................................................................................ 25 6.1 Existing Parking Technologies .......................................................................... 25

6.2 Opportunities and Recommendations............................................................... 25

7 Parking Policies and Strategies ...................................................................................... 28 7.1 Parking Standards and Zoning By-Laws........................................................... 28

7.2 Cash-in-Lieu of Parking....................................................................................... 31

7.3 Parking Price Strategies...................................................................................... 32

7.4 Parking Fines ....................................................................................................... 33

7.5 Best Practice Parking Lot Design Considerations ........................................... 33

7.6 Special Parking Zones......................................................................................... 35

7.7 Alternative Seasonal Parking Uses.................................................................... 36

7.8 Public Communications Plan ............................................................................. 37

8 Residential Parking Permit Program .............................................................................. 38

9 Conclusions and Recommendations ............................................................................. 42

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Exhibit ES-1: Parking Master Plan Recommendations................................................................... 7

Exhibit 1-1: Downtown Whitby Study Area ..................................................................................... 5

Exhibit 1-2: Downtown Brooklin Study Area ................................................................................... 6

Exhibit 4-1: Current Parking Prices (Whitby) ................................................................................ 11

Exhibit 4-2: Hourly and Daily Parking Price Comparison ............................................................. 12

Exhibit 5-1: On-Street and Off-Street Parking Inventory .............................................................. 17

Exhibit 8-1: Residential Permit Program Review .......................................................................... 39

Exhibit 9-1: Parking Master Plan Recommendations ................................................................... 43

List of Appendices

Appendix A: Public Consultation Appendix B: Financial Assessment Appendix C: Parking Utilization Appendix D: Transportation Demand Management Appendix E: Future Parking Demand Analysis Appendix F: Parking Technology Review Appendix G: Parking Polices and Strategies Appendix H: Residential Parking Permit

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Draft Parking Master Plan February 2020

Executive Summary Parking is an important component of public policy in any municipality, but it is especially important for Downtown commercial districts. Policies and operating practices affecting parking have direct impacts on land use, traffic conditions, travel behaviour, transit use, public safety, economic development, and revenues for the parking operators. Recognizing the importance of parking, the Town of Whitby has completed a Parking Master Plan study for the Whitby and Brooklin Downtown cores. The Parking Master Plan has been completed with a proactive approach by anticipating growth in parking demand, then planning for the accommodation of the demand through environmentally, socially, and economically sustainable policies, rather than simply reacting to parking issues after growth and economic development has occurred. The purpose of the Study is to develop a parking strategy that provides a long term vision for parking within Downtown Whitby and Downtown Brooklin. The Master Plan was developed considering the following Guiding Principles: Parking will be located within the Downtown to support the local

businesses, visitors and Whitby residents while respecting the area residents and historical Downtown.

Municipal parking will be designed and constructed considering user safety and Vision Zero principles and include sustainable design elements where practical.

Alternative transportation modes including walking and transit will be encouraged to decrease single occupancy trips and reduce parking demand.

Town of Whitby staff will engage local businesses, the Downtown Whitby Business Improvement Area (BIA) and the Whitby Chamber of Commerce when planning for and implementing parking strategies.

Parking will be financially sustainable. A review of relevant studies and plans, public and stakeholder consultation and a review of existing policies and practices as well as a financial review were completed to form the recommendations contained within the Parking Master Plan.

Public and Stakeholder Consultation The project’s public and stakeholder engagement was completed in two phases. The first phase was conducted near the beginning of the study to obtain

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feedback regarding existing parking operations, identify concerns, and understand desired study outcomes. The second phase was conducted to present the study’s preliminary findings and recommendations. Some of the parking issues and challenges raised during the consultation are provided below. It is noted however that there are contrasting viewpoints related to parking.

Inadequate information for motorists on parking availability and price;

Inefficient parking time limits for user needs;

Inconvenient parking pricing methods;

Convenient and affordable;

Excessive automobile use;

Spillover parking congestion in nearby residential areas;

Economic, environmental and aesthetic impacts of parking facilities;

Winter maintenance on sidewalks;

Accommodation of all users; and

Elimination of existing free parking.

Financial Assessment The financial assessment of the Parking Master Plan examined the financial state of Whitby’s historical parking operations and explored pricing plans and policies aimed at achieving financial sustainability. The review considered the parking prices of other Southern Ontario municipalities to determine if Whitby was consistent with other comparable municipalities and then reviewed the historical financial performance. Parking within Whitby is intended to be financially sustainable. It is recommended that off-street parking rates be increased in 2023 by $0.50 and then parking rates increased every five years by $0.25. Lease rates and daily parking rates would be increased appropriately. A parking structure is needed to support parking needs yet cannot be fully funded through the existing Parking Reserve. Options such as a Private Public Partnership (3P) are recommended to be explored. Once the parking structure payment period as passed, the Whitby parking system is anticipated to generate a surplus and any parking structure loan can be paid. In other words, long term financial sustainability is projected.

Parking Supply and Demand Whitby’s existing and future parking supply and demand has been assessed using existing parking data and then planning for future development and intensification. Based on existing data both Downtown Whitby and Downtown

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Brooklin have reserve capacity in the overall system; however, there are municipal lots and roadway sections that are operating at or above theoretic capacity of 85%. From a parking perspective the results of the review indicate that there is a need for additional future on-street parking in both Downtown Whitby and Downtown Brooklin as well as a need for additional off-street parking in Downtown Whitby. It is recommended that additional on-street parking be provided through parking meters, pay and display machines or pay by phone mobile on key streets within the Downtown core. As well, a future parking structure is needed in Downtown Whitby to support parking, particularly following the redevelopment of Municipal Lot 4 (Fire Hall site) and anticipated growth. The duration of permitted on-street and municipal lot parking was a comment heard many times during the consultation and as such it is recommended to increase the duration where practical and permitting overnight parking in select municipal lots. In order to provide better connectivity to the municipal parking system, and therefore better utilization, a number of pedestrian traffic signals are recommended. It is recommended that controlled pedestrian crossings be provided at Brock Street/Colborne Street, Dundas Street/Athol Street, Dundas Street/Centre Street in Downtown Whitby and also at Baldwin Street/Cassels Road in Downtown Brooklin. Consideration of potential paid parking in Downtown Brooklin resulted in the identification of approximately 80-100 parking spaces where paid parking is considered appropriate. The identified parking spaces are at strategically determined locations on Baldwin Street, Cassels Road, Roebuck Street, Campbell Street, and Way Street. It is recommended that paid parking be implemented once the Town has jurisdiction of Baldwin Street. In summary, the following additional parking recommendations are identified:

New on-street paid parking in Downtown Whitby and Downtown Brooklin;

New parking structure parking in Downtown Whitby;

On-street lease parking on key streets in Downtown Whitby;

Increase 2 hour limit to 3 hour maximum parking on key streets in Downtown Whitby;

Offer overnight seasonal parking in specified municipal lots; and

Consider paid parking at the Centennial Building.

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Transportation Demand Management Although new parking is proposed, Transportation Demand Management (TDM) is also proposed to manage Downtown parking demand. The TDM review’s objective was to provide a high level overview of potential parking-related TDM measures Whitby could adopt. Strategies available include carpooling, cycling infrastructure, car share, transit improvements, and requiring TDM plans in new developments. In addition to TDM it is further recommended that the Town consider the parking requirements and consider the reduction or elimination of parking for new developments, particularly in the Downtown core where parking may not be able to be accommodated but redevelopment is desired. As well, Whitby is recommended to adopt a shared parking policy to assist private developers in making shared parking decisions for various land uses, reducing the overall parking required.

Cash-in-Lieu of Parking Cash-in-lieu of parking is a main component of the Parking Master Plan, particularly as a future parking structure cannot be funded by the reserve fund, and municipal parking is provided to support businesses and visitors to the Downtown. Industry best practice suggests that cash-in-lieu of parking rates are optimally set at approximately 50% of the costs to construct parking. The rationale for this is the shared use nature of the municipal parking supply, where a single space is able to serve the parking needs of various land uses. Given that structured parking is needed in the near future, and that structured parking can cost between $35,000 and $45,000 per space, there is an argument that an appropriate cash-in-lieu rate for Whitby could be as high as $17,500 to $22,500 per space. However, such a high cash-in-lieu is not realistic and will not encourage development within the Downtown areas. It is therefore recommended to increasing the current cash-in-lieu to $5,000 and then increase the rate by 5% per year to $10,000 per space. This is an increase from the current cash-in-lieu rate of $3,750.

Parking Technology Review Parking technology plays an important role in the parking experience of users. On-street and municipal lot parking if often the initial impression of the Downtown area and it should be pleasant. The ease at which parking can be located and utilized sets the tone for the visit. The parking technology review provides a summary of existing on- and off-street parking technologies, identifies issues and opportunities, and explores potential technologies aimed at mitigating identified issues and providing a positive user experience. The following is recommended:

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Supplement the existing directional and identification wayfinding signage with introduction and pedestrian signage to complete the four layers of a static wayfinding system.

Improve existing wayfinding signage to be more aesthetically pleasing and improve location of signage.

When a parking structure is constructed, provide dynamic signage at the garage’s entrance to quickly determine the availability of parking in the garage.

Improve existing paid parking through enhancements to the pay and display machines and through upgrading the single space meters.

Parking Policies and Strategies Whitby’s existing parking policies and strategies were reviewed and recommendations were provided which are aimed at optimizing and improving overall operations.

Although Whitby’s parking requirements are fairly consistent with the average of comparable municipalities it is recommended the impacts of reduced parking requirements for certain land uses within the Downtown core be considered. This would require the establishment of a second set of parking requirements for the Downtown zone, separate from the requirements of the rest of the Town. A shared parking policy is also recommended.

A parking reduction may also be considered through Transportation Demand Management (TDM) and it is proposed that a TDM checklist be developed and adopted.

In terms of accessible parking requirements, Whitby’s requirements are aligned with AODA’s and are considered appropriate. However, on-street accessible parking must be identified, parallel accessible parking design be established, and consultation with the Accessibility Advisory Committee (AAC) be undertaken. As a starting point, eight accessible on-street parking spaces in Downtown Whitby are recommended. When paid parking is implemented in Brooklin, or roads are reconstructed accessible on-street parking will be implemented. Additional discussion with the AAC is also recommended related to charging for accessible parking and being able to park in a signed No Parking area with an accessible permit.

Municipal lots should be modernized considering users experience and comfort. When constructing or reconstructing municipal parking lots they should be upgraded following the best practices for lighting, pedestrian linkages, signage and landscaping.

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Seasonal parking uses such as patios and seating areas should continue to be explored.

A recurring issue identified during each public and stakeholder consultation event was the lack of awareness regarding various parking policies or programs. An improved communications plan aimed at improving user information and educating Whitby residents and visitors about Downtown parking is recommended.

Residential Parking Permit Program A Residential Parking Permit Program is often requested by residents that cannot accommodate their parking needs for various reasons. It is recommended that a residential parking permit system be implemented as a pilot project in 2020. Based on requests for on-street parking and ticketing, staff have identified two streets per ward to be considered as part of the pilot project. At this time, the proposed pilot streets include Ocean Pearl Crescent, Bettina Place, Tallships Drive, Willowbrook Drive, Haverhill Crescent, and Harrongate Place. Prior to implementation, residents on the selected streets will be surveyed to gauge interest in participating in the pilot (minimum 70 percent support will be required). At this time, as no further staff resources are being identified to support the program. The study recommendations, as well as high level price estimates and implementation timelines for each recommendation, are presented in Exhibit ES-1. The timelines are categorized as either short term (1-5 years), medium term (5-10 years), or long term (10-20 years). Many of the recommendations require support from various Town divisions, which have been identified.

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- -

- -

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$225,000 for lot expansion $200,000 for a pedestrian signal

Corporate Services

Minimal costs to develop EOI

Corporate Communication Legal and Enforcement

Minimal

Planning Minimal

Corporate $5,000 per meter

Exhibit ES-1: Parking Master Plan Recommendations

RECOMMENDATION(S) PLANNING HORIZON

LEAD DEPARTMENT

SUPPORT DEPARTMENT

COST ESTIMATE

Expand Municipal Lot 5 and install pedestrian signal at the intersection of Brock Street and Colborne Street. Continue to pursue opportunities to optimize public parking. Install pedestrian signals on Dundas Street at Athol Street and Centre Street.

Short term Public Works Engineering

Public Works Transportation Public Works Operations Legal and Enforcement Region of Durham

Issue an Expression of Interest (EOI) for the construction of a parking structure, including private public partnership opportunities. The EOI to also include opportunities to pursue other operator/service delivery models to manage the day to day operation and maintenance of municipal parking.

Short term Public Works Transportation

Improve information available online and through social media regarding municipal parking.


Increase the cash in lieu to $5,000 and then at a rate of 5% per year to a rate of $10,000 per parking space. The rate should be reviewed regularly and when the Parking Master Plan is updated to reflect growing construction costs and land value.


Upgrade the existing pay and display machines in Downtown Whitby.

Short term Public Works Transportation Services

-

- -

-

-


LEAD DEPARTMENT

SUPPORT DEPARTMENT

COST ESTIMATE

On street pay parking operations are recommended along Gordon Street.


Public Works Operations Legal and Enforcement Corporate Communication

$500 - 800 per on-street meter plus pavement marking costs

As a policy to support the Official Plan objective of promoting alternative modes of transportation, evaluate the impacts of reduced parking rates for certain developments within the Downtown core. Additionally, a shared parking policy is recommended for adoption.

Short term Planning Public Works Transportation Durham Region Transit

Zoning By-law update required (on-going)

Consult with the Accessibility Advisory Committee regarding parking with an accessible permit and cost of parking when a valid permit is displayed.


Community Services Legal and Enforcement

Minimal costs to updated Traffic By-law

Charge for parking between 8:00 a.m. and 6:00 p.m. for both off street facilities and on street metered parking.


Legal and Enforcement

Minimal costs to upgrade signage

Reduce the hourly parking rate in the Brooklin Municipal Lot 9 to 50% of the Downtown Whitby parking rate.



Minimal costs to upgrade signage and communicate the reduction

Introduce on street lease parking on select streets.


Strategic Initiatives

Minimal signage costs

Increase on street parking limit to 3 hour maximum on select streets.


Strategic Initiatives

Minimal

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-

-

-

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LEAD DEPARTMENT

SUPPORT DEPARTMENT

COST ESTIMATE

Develop a Special Event Strategy for parking in municipal lots.


Corporate Communication Legal and Enforcement

Minimal

Review parking violations and adjust fines as appropriate.

Short term Legal and Enforcement

Public Works Transportation

Minimal

Include new on street parking where practical. Paid parking may be through individual meters, pay and display machines, or pay by phone mobile application.

Short/medium Public Works Transportation

Public Works Operations Legal and Enforcement

$500 - 800 per on-street meter $5,000 - $10,000 per pay and display

Pilot a residential preferred parking program on two streets per ward. Permit holders are granted exemption from the 3 hour maximum time limit for on street parking, as well as permitted to park overnight except during winter maintenance activities. Recommendations for considerations include the designated zones, staffing and operating costs, permit duration, number of permits issued, costs, fines, enforcement, and technology requirements. This includes Licence Plate Recognition Software (LPRS) and Administrative Monetary Penalties System (AMPS).


Public Works Operations Legal and Enforcement Corporate Communication

No costs to implement pilot project $50,000 to implement the full program $75,000 annual cost for new Transportation employee $70,000 annual cost for Enforcement officer LPRS and AMPS to be costed for longer term

Develop an accessible on street parking space design and identify optimal location of accessible parking based on the proposed


Public Works Operations

Dependant on design and construction of

-

-


LEAD DEPARTMENT

SUPPORT DEPARTMENT

COST ESTIMATE

guidelines. Consult with the Accessibility Advisory Committee. As municipal lots are reconstructed ensure compliance with AODA.

Community Services

accessible space

Develop a communication plan which includes brochures and distribution materials to improve the delivery of information to the public.

Short/medium Corporate Communication

Public Works Transportation Legal and Enforcement

$10,000 for promotional material

Provide limited seasonal overnight parking in Municipal Lots 3, 5 and 6 at a reduced rate.


Public Works Operations Legal and Enforcement

$10,000 for signage and administration

Continue to explore and implement alternate seasonal use of parking spaces (i.e. pop up patios).

Short/medium Strategic Initiatives

Public Works Transportation Public Works Operations

$15,000

Adopt TDM strategies in an attempt to manage Downtown parking demand. Strategies include carpool incentives, cycling infrastructure, transit improvements, micro transit support service, carshare service, etc. Develop a TDM checklist that allows for the reduction of parking requirements. Develop and adopt a shared parking policy to assist private developers.


Planning Variable depending on adopted TDM strategies

Consider interim parking supply and demand strategies prior to building structured parking: adopting aggressive TDM strategies, monitor


Planning Strategic

Variable depending on the strategies adopted.

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-

-- -

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LEAD DEPARTMENT

SUPPORT DEPARTMENT

COST ESTIMATE

parking demand growth, shared parking opportunities with new development or underutilized existing properties.

Initiatives

Rename the municipal lots to be more recognizable and easier to locate.


Corporate Communication

To be implemented as part of wayfinding initiative

Supplement/improve the existing directional and identification wayfinding signage with introduction and pedestrian signage to complete the four layers of a static wayfinding system.


Corporate Communication Community Services

Approximately $10,000 to identify optimal sign locations Additional $10,000 to purchase various static wayfinding signage Cost for signage is dependent on number of signs required.

Upgrade the existing on street parking meters in Whitby with new machines that accept credit card payments.


Public Works Operations

$500 - 800 per on-street meter

Implement paid parking at the Whitby Centennial Building parking lot.

Medium term Public Works Transportation

Legal and Enforcement Corporate Communication

Pay and Display machine cost $5,000 - $10,000

Adopt Scenario 3 as the long term parking price plan which includes a $0.50 increase in hourly off street prices in 2023 followed by $0.25 increases in hourly on and off street


Corporate Communication

Minimal costs associated with social media and notification of rate

-

-

-

- -

-

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LEAD DEPARTMENT

SUPPORT DEPARTMENT

COST ESTIMATE

prices every 5 years. Daily parking and permit price increases are recommended to be proportionally increased based on the on street hourly price increase

increase Parking revenues are anticipated to increase

Upgrade the existing pay and display machine in Municipal Lot 9 in Brooklin with a machine that accepts both coin and debit/credit card payments, has touch screen capabilities, etc.



$5,000 - $10,000 per pay display machine

Develop design guidelines to modernize municipal parking lot facilities related to lighting, pedestrian links, signage, and landscaping. Include bicycle parking in all municipal lots and consider self cleaning washroom facilities, electric vehicle charging stations, panic buttons, etc.


Planning $50,000 to develop guidelines

If on street parking from the Downtown spills over into the residential areas consider additional paid parking and/or streets where parking is available by residential permit only.

Medium/long Public Works Transportation


There would be costs associated with signage and administration of permit program

An off street parking supply expansion of 250 300 spaces is needed to accommodate the projected growth. The parking supply expansion is recommended to be constructed in the form of a parking structure.

Medium/long Public Works Transportation

Corporate Services Planning Strategic Initiatives

$10,000,000 to be confirmed through design

Implement paid parking operations at on street parking spaces in Brooklin. A maximum paid parking duration of 2 hours is recommended

Long term Public Works Transportation

Public Works Operations Legal and

$500 - 800 per on-street meter or $5,000 - $10,000

RECOMMENDATION(S) PLANNING LEAD SUPPORT COST ESTIMATE HORIZON DEPARTMENT DEPARTMENT

when first initiated and future consideration of Enforcement p er pay and display 3 hours as needed. Corporate

Communication

Adopt the pay on foot system when Whitby Long term Public Works Corporate $500,000 -constructs a parking structure and consider Transportation Services $600,000 for pay on

the Bluetooth payment system for one entry foot machines, and one exit lane. gates, and parking

Procure a parking management system capable of automatically tracking vehicle

management system

occupancy in real time. Cost for parking management

system may vary

Long term Public Works Corporate significantly

$10,000 Following the construction of the parking structure, collect new parking utilization data, Transportation Communication

and adopt a variable parking price strategy where highly demanded parking facilities are

priced higher than lower demanded facilities. Regularly monitor the parking demand and On-going Public Works Public Works Minimal

prices and propose adjustments as Transportation Operations appropriate. Legal and

Monitor the performance of the Enforcement recommendations of the Parking Master Plan and update as needed. Corporate

Communication Report back to Council with the results of the

Parking Permit Program. Planning

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1 Introduction Parking is an important component of public policy in any municipality, but it is especially important for Downtown commercial districts. Policies and operating practices affecting parking have direct impacts on land use, traffic conditions, travel behaviour, transit use, public safety, economic development, and revenues for the parking operators. When people plan where, when, and how they travel, they are often responding to the provision of parking near their destination. If the parking supply appears insufficient, inconvenient, expensive, or difficult to find, travellers may make alternative plans. In some cases, future financial investments in Downtown areas are affected by the location, availability, and cost of parking. The Town of Whitby is committed to ensuring that Downtown Whitby and Downtown Brooklin are seen as destinations that are friendly, comfortable and supportive to visitors/employees and residents regardless of their mode of travel. Altering the existing parking system in a Downtown environment can be a complex process, requiring the consideration of different user groups, geographic zones, price ranges, and time periods. Parking in Downtown areas must accommodate various users ranging from visitors with short-term parking needs to employees. Ideally, parking must serve the needs of retail and office employees, customers, patrons of special institutions and Downtown residents, and all these stakeholders have different parking needs. Recognizing the importance of parking, the Town of Whitby has completed the Parking Master Plan Study to proactively anticipate growth in parking demand, and plan for the accommodation of demand through environmentally, socially, and economically sustainable policies, rather than simply reacting to parking issues after growth and economic development has occurred. By understanding existing challenges and identifying sustainable parking solutions, there is an opportunity to support and foster new development in the Downtowns.

1.1 Parking Master Plan Objectives and Guiding Principles The Parking Master Plan considers the existing parking operations within the Downtown Whitby and Downtown Brooklin cores individually. A mixture of short term (hourly and daily) and long term (monthly permits) public parking opportunities are provided in on-street and off-street municipal facilities. There are seven off-street parking lots located within Downtown Whitby and one within Downtown Brooklin. A municipal lot is also located in South Whitby (Municipal Lot 8) but is currently managed by Community Services. The Whitby on-street parking system is composed of paid on-street and paid municipal lot parking opportunities, while on-street parking in Brooklin is free. In general, paid parking spaces are located within Whitby’s commercial core, although the commercial core limits are not absolute definite and homes are converted to business/commercial. On-street parking does extend into the

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surrounding residential areas as users avoid paying for parking, or because it is closer to their destination. In addition to the municipal parking there are private parking lots available for users within both of the Downtowns. Exhibit 1-1 and Exhibit 1-2 illustrate the Downtown Whitby and Brooklin Study Areas as well as the location of all off-street parking lots and on-street meters. Note that Municipal Lot 8 is located by the harbour, which is outside the study area. It is also noted that Municipal Lot 4 (Fire Hall site) has been decommissioned, although was included in data collection. The objective of the Parking Master Plan is to provide strategic directions and a future implementation plan that will provide technical and policy guidance to best manage parking within Downtown Whitby and Brooklin. The Guiding Principles of the Parking Master Plan are as follows: Parking will be located within the Downtown to support the local

businesses, visitors and Whitby residents while respecting the area residents and historical Downtown.

Municipal parking will be designed and constructed considering user safety and Vision Zero principles and include sustainable design elements where practical.

Alternative transportation modes including walking and transit will be encouraged to decrease single occupancy trips and reduce parking demand.

Town of Whitby staff will engage local businesses, the Downtown Whitby Business Improvement Area (BIA) and the Whitby Chamber of Commerce when planning for and implementing parking strategies.

Parking will be financially sustainable.

1.2 Project Scope The Parking Master Plan Study was divided into nine (9) primary tasks: 1. Project Start-up. 2. Data Collection: Collect all data required for a successful study,

including background documents, financial information, and conduct parking supply and demand surveys.

3. Public and Stakeholder Consultation: Receive public and stakeholder input into the study.

4. Parking Assessment: Assess the existing and future parking supply needs in Downtown Whitby and Brooklin. Also review existing transportation demand management initiatives and recommend potential strategies to manage parking demand by promoting alternative modes of transportation.

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5. Financial Assessment: Examine the existing financial condition of the Downtown parking system and consider future parking pricing and cash-in-lieu of parking.

6. Parking Technology Review: Review the current parking technologies deployed in Whitby and identify improved technologies.

7. Parking Policies and Strategies: Develop new parking strategies. 8. Conclusions and Recommendations: Based on the

recommendations developed throughout the other tasks, a short, medium, and long term action plan is proposed that will guide Whitby.

9. Residential Parking Permit Program: Consider impacts, anticipated costs, and requirements for implementation of a residential parking permit program.

The work plan for the Parking Master Plan is as follows:

Consult with Downtown parking users, stakeholder and impacted area residents and address their concerns;

Examine existing and future parking demand and determine how to support future parking needs;

Identify opportunities and quick wins for improvements to parking;

Support existing Town of Whitby policies and plans, such as the Official Plan, Whitby Council Goals, and the Intensification Strategy;

Review existing financial operations and provide recommendations for maintaining long term financial sustainability;

Review parking best practices of other municipalities; and

Considers the impacts and requirements of a Residential Parking Permit Program suitable for Whitby’s needs.

1.3 Parking Governance in Whitby Within the Town of Whitby the various aspects of parking are managed by different departments/divisions. Transportation Services staff within the Public Works Department manages the paid parking municipal lots (with the exception of Municipal Lot 8), on-street parking meters, and parking within the road right-of-way. The Traffic By-law which regulates parking within the municipality is also managed by Transportation Services. If a Town owned parking lot is attached to a Town facility or park the lot is the responsibility of Community Services staff but is maintained by Public Works for maintenance. Community Services also manages Municipal Lot 8 on Gordon Street. The enforcement of parking, collection of fines, and management of private property parking is through Legal and Enforcement Services. Parking infractions

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are enforced on a complaint basis with the exception of safety issues (i.e. vehicle parked on/over a sidewalk) which may be proactively enforced. Parking proposed as part of a development application is reviewed by Public Works as well as the Planning and Development Department for compliance with the Zoning By-law.

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Exhibit 1-1: Downtown Whitby Study Area

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Exhibit 1-2: Downtown Brooklin Study Area

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2 Other Relevant Plans/Studies A key task to any study is to understand existing planning documents, strategies, and policies and how they relate to the subject study context. This is completed through a review of background materials and relevant plans/studies. The intent is to establish the groundwork for the Parking Master Plan by examining the Downtown core’s parking history, and reviewing the policies and guiding principles to which the study recommendations must adhere.

2.1 Town of Whitby Transportation Master Plan Study (2010) The Town of Whitby Transportation Master Plan Study was designed to integrate Regional and Provincial transportation and environmental planning and policies into a strategic plan intended to guide the Town’s growth and development. A large portion of the population growth is expected in West Whitby and Brooklin. Employment is expected to increase in areas adjacent to the Highway 401 Transportation Corridor, the Des Newman Boulevard and along the future Mid-Block Arterial road. Urban intensification is also anticipated along major arterials including Dundas Street, Taunton Road, Brock Street, and Thickson Road. Specific to parking, the Transportation Master Plan’s main objective is to ensure sufficient parking opportunities are provided to meet the existing and future demand while promoting alternative modes of transportation.

All modes of transportation are encouraged while planning for an increased use of alternative modes of transportation such as transit, cycling, and pedestrian.

Increased intensification surrounding the Whitby GO Station and in Downtown Whitby to achieve the Metrolinx Mobility Hub designation and promote transit oriented development and reduce auto usage and parking demands;

More bicycle parking facilities to be provided at higher density residential developments, along higher order transit routes, and at stations to encourage a large cyclist mode share; and

Parking management will be a large factor in supporting transit. Parking price should be comparable to the cost of transit and on-street parking should not interfere with bus operations.

2.2 Brooklin Transportation Master Plan (2017) The Brooklin Transportation Master Plan was created to provide a framework to facilitate transportation network improvements to accommodate existing and future demand in Brooklin. Brooklin is expecting significant urban intensification within the Secondary Plan Area.

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Specific to parking, it is stated in the Brooklin Transportation Master Plan that:

Several TDM strategies may be implemented that relate to parking, such as new commuter parking lots, the addition of bicycle parking at key destinations and transit stops, and altering parking prices;

While on-street parking in Downtown Brooklin is currently free, paid on-street parking may be implemented in the future;

The existing capacity along Baldwin Street is not able to accommodate the future traffic demand, but removal of on-street parking along Baldwin Street is not viable. This problem may be alleviated by increasing capacity along parallel roads; and

The implementation of a cash-in-lieu policy may be beneficial in areas where sufficient parking supply is not able to be provided.

2.3 Whitby Official Plan The Whitby Official Plan contains policies adopted by Council which define basic goals, objectives, and policies for the coordinated growth and development of the Town. Parking for various uses is identified and parking is further referenced in numerous section of the Official Plan including, but not limited to:

The development of additional surface parking is discouraged within Intensification Areas and Intensification Corridors. Future parking spaces shall be encouraged to be included within structured parking garages or underground (4.2.3.1).

Municipal and commercial parking facilities shall be located so as to minimize conflict with adjacent land use and adjacent street movement and to provide accessible parking (8.1.3.6.2)

On-street parking in the Downtown Brooklin and Downtown Whitby Major Central Areas, and in proximity to community facilities, is supported to enhance the supply of parking and maximize the use of existing infrastructure (8.1.3.6.3)

2.4 Interim Payment-in-Lieu Policy, Staff Report (2016) This Town of Whitby report, PW 31-16, dated September 12, 2016, summarizes the recommendations for implementing an interim payment in lieu of parking policy. The Town of Whitby has previously accepted payment in lieu of the provision of parking spaces but it has been infrequent and no formal rate has been established. Through a jurisdictional review of payment in lieu of parking costs, the Town noted the Mississauga model, which applies a 50% cost of the price of a parking space for new buildings. The Town estimated that as of 2016, the cost of a surface parking space was $7,500 and the cost of an above-ground or

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underground space ranges from $35,000 to $45,000 per space. The report outlines an interim payment in lieu of parking rate. A component of the Parking Master Plan is to recommend a formalized cash-in-lieu of parking policy. The parking space cost estimate, as well as existing practices in comparable municipalities, are examined as part of the Parking Master Plan.

2.5 Passenger Pick-up / Drop-off (PPUDO) Zones and Taxicab Stands in Downtown Whitby

In September 2014, Council approved the creation of 19 parking spaces to be used as taxi parking and PPUDO zones for a one-year trial period. The spaces are located on Brock Street, Dundas Street, and Green Street, and are in effect Thursday to Saturday between 9:00 p.m. and 4:00 a.m. the next day. The zones were requested by the Durham Regional Police Service, Downtown business owners, and taxi companies. After the one-year trial period, the Town staff conducted interviews with the stakeholder groups. All of these groups were in support of the zones and were in favour of permanent implementation with some modifications to some locations. In February 1, 2016, a status update report for the passenger pick-up / drop-off zones and taxi stands that have been implemented in Downtown Whitby was delivered to Council recommending the continuation of the zones. The implementation of the zones have reduced taxi drivers searching for parking or double parking while waiting to pick up passengers, which has had a positive impact on traffic operations in those areas. Special attention will be made to ensure that the recommendations formulated through this study will not affect the current operations of those zones.

2.6 Metrolinx Bus Rapid Transit Study Metrolinx is undertaking a Durham-Scarborough Bus Rapid Transit (BRT) study along the Highway 2/Ellesmere corridor. The proposal will consider options including the widening of Dundas Street to six (6) lanes outside of the Downtown and the reassignment of existing vehicular lanes to transit only within the Downtown. Transit only lanes through Downtown Whitby would result is the loss of on-street parking west of Brock Street. Transit only lanes and the potential reduction in on-street parking along Dundas Street has not been taken into consideration as part of the Parking Master Plan. At the time of writing the Parking Master Plan discussions are ongoing between the Town of Whitby, Region of Durham and Metrolinx.

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3 Public and Stakeholder Consultation The project’s public and stakeholder engagement was completed in two phases. The first phase was conducted near the beginning of the study to obtain feedback regarding existing parking operations, identification of existing parking challenges (real or perceived), and desired study outcomes. The second phase was conducted with the intent of presenting the study’s findings and preliminary recommendations. Members of the public and relevant stakeholders were given an opportunity to provide feedback which was used to develop the conclusions and recommendations. Consultation included public meetings, an online survey, and crowdsource mapping. A summary of the consultation is provided in Appendix A. Some of the parking issues and challenges raised during the consultation are provided below, however, it is noted that there are contrasting viewpoints related to parking. There are different views

Inadequate information for motorists on parking availability and price;

Inefficient parking time limits for user needs;

Inconvenient parking pricing methods;

Convenient and affordable;

Excessive automobile use;

Spillover parking congestion in nearby residential areas;

Economic, environmental and aesthetic impacts of parking facilities;

Winter maintenance on sidewalks;

Accommodation of all users; and

Elimination of existing free parking. The stakeholders invited to participate in the development of the Parking Master Plan included representation from the Downtown Development Steering Committees, the Chamber of Commerce, Downtown Whitby Business Improvement Area (BIA), and Town of Whitby staff.

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4 Financial Assessment Section 4 considers the financial state of Whitby’s Downtown parking operations and explores pricing plans and policies aimed at achieving long term financial sustainability. The financial assessment included:

Comparison of existing parking prices to those of comparable municipalities;

Review of the historical revenue and expenditure trends;

Evaluation of the impacts of several potential price plans on the long term financial sustainability; and

Examination of parking price policies including cash-in-lieu of parking and the existing limits of on-street pay parking operations.

All figures presented within Section 4 are in current dollars.

4.1 Parking Price Comparison Whitby’s current parking prices are displayed in Exhibit 4-1.

Exhibit 4-1: Current Parking Prices (Whitby)

Parking Current Rate Hourly (On-Street) $1.50 Hourly (Off-Street) $1.00 Daily $7.00 Monthly $80.00 - $100.00

(depending on duration) On-street parking in Downtown Brooklin is free while off-street parking is available in Municipal Lot 9 at a rate of $1.00 per hour. To evaluate the appropriateness of the current hourly and daily parking prices, Whitby and Brooklin prices were compared with similar municipalities across Southern Ontario. The hour and daily parking price comparison results are displayed in Exhibit 4-2.

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Exhibit 4-2: Hourly and Daily Parking Price Comparison

Based on the comparable municipalities, Whitby’s parking is considered appropriately priced. While the parking price comparison provides a good indicator of the appropriateness of Whitby’s and Brooklin’s Downtown parking prices, a more detailed assessment was completed to develop parking prices suitable for Downtown Whitby and Brooklin. A comprehensive assessment evaluating the financial sustainability of Whitby’s Downtown parking operations is included in Appendix B. In order to remain cost neutral and fiscally sustainable parking rate increases will be required. Of the scenarios considered Scenario 3 is proposed. Recommendation: Match on- and off-street hourly rates in 2023 by increasing the off-street hourly price by $0.50. After consistency is achieved, the hourly parking rates are increased every 5 years by $0.25. Daily parking and permit price increases are recommended to be proportionally increased based on the off-street hourly price.

4.2 On-Street Paid Parking and Opportunities In general, on-street paid parking operations are in effect within the Downtown’s commercial core (retail, commercial, office, and restaurant land uses). However, as homes are converted to business/commercial uses the limits between commercial and residential becomes less clear/ less defined. While free on-street parking is available in the surrounding residential areas, these parking opportunities are not intended to support the Downtown parking needs. This trend is consistent with the practices of many municipalities across Southern Ontario.

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With the intent of rationalizing the appropriateness of Whitby’s Downtown on-street paid parking extents, the existing limits are compared to the collected land use data and new paid parking locations in new areas are identified. The following locations were identified where new paid parking or removal of a restriction is recommended for one side of the road:

Ash Street between Dundas Street and Mary Street; Centre St between Colborne Street and Dunlop Street; Colborne Street between King Street and Centre Street; Colborne Street between Green Street and Athol Street; Gilbert Street between Byron Street and King Street; Green Street between Colborne Street and Ontario Street; Ontario Street between Brock Street and Green Street; and Perry Street between Mary Street and John Street;

Recommendation: Include new on-street paid parking where practical. Paid parking may be through individual on-street meters, pay and display meters, or through pay by phone mobile application only (i.e. Honk Mobile). In addition, it is recommended that on-street leased parking be considered in locations where parking is not at capacity and daily parking can be accommodated. This may relocate leased parking from the municipal lots and provide additional leased parking opportunities. Lease parking would be available for a portion of the available on-street parking. Recommendation: Implement monthly lease option on select streets, including Ash Street, Byron Street South, Gilbert Street, and Ontario Street. Additional residential streets were also considered for additional on-street paid parking. However, given the residential adjacent land uses, expanding paid parking operations was not well received. As an alternative strategy to preventing Downtown parking demand from parking in residential areas, it may be necessary to consider restricting parking during weekday business hours and allowing for residential parking permits which would exempt local residents from the business hour parking restriction. Note that visitors of local residents staying for periods less than 3 hours would be required to apply for a short term on-street permit if parking is restricted during business hours. Recommendation: If on-street parking from the Downtown continues to spill over into the residential areas consider additional on-street paid parking and/or streets where parking is available by residential permit only. This would be a future consideration. A similar review of on-street paid parking was conducted in Downtown Brooklin with the intent of identifying locations where on-street paid parking operations are recommended to be implemented once the Town has care and control of

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Baldwin Street. Considering the adjacent land uses, the following locations are considered appropriate:

Baldwin Street between Winchester Road and Queen Street; Cassels Road between Heber Down Crescent and Princess Street; Roebuck Street; Campbell Street; Way Street between Baldwin Street and Price Street; and Durham Street.

With the implementation of on-street paid parking operations, some parking demand is anticipated to shift from the targeted on-street segments to Municipal Lot 9. This is desirable as Lot 9 is currently significantly underutilized. The maximum parking time limit is also recommended to be 2 hours, consistent with Downtown Whitby. The introduction of paid parking can potentially affect local businesses. Typically, local business owners are of the opinion that the availability of free parking dictates where customers will direct their business. However, research suggests that this is not the case. According to the Canadian Parking Association (CPA), increasing paid parking prices or introducing paid parking for the first time does not have a significant impact on parking demand. On the contrary, free parking may be detrimental to local business as users park for longer periods of time, decreasing the available parking opportunities for customers overall. Recommendation: Implement paid on-street parking in Brooklin, consistent with Downtown Whitby. The timing is proposed to be when the Town has jurisdiction of Baldwin Street. Individual meters and pay and display would both be considered based on number of spaces and locations. At present, Municipal Lot 9 in Brooklin is significantly underutilized and opportunities to increase usage should be explored. This includes improved communication to area businesses and customers and parking for transit users and commuters. As parking at the Whitby GO Station in South Whitby is mostly fully occupied on a daily basis, the promotion of Municipal Lot 9 as a commuter lot would assist to ease congestion to/from the south. In order to support transit ridership and Lot 9 as a commuter lot Town staff will continue to advocate for a controlled pedestrian crossing at the intersection of Baldwin Street and Cassels Road. Recommendation: Discuss opportunities with Durham Region Transit and Metrolinx to provide commuter parking in Municipal Lot 9 in Brooklin. The underutilization of the municipal lot is likely due to the availability of on-street parking, in Brooklin, at no cost. While offering free parking in the Brooklin municipal lot is not proposed as this would be a significant imbalanced to the parking in Downtown Whitby, it is proposed that the cost to park in the Brooklin

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lot be reduced. In an effort to increase the usage of Municipal Lot 9 in Brooklin it is recommended to reduce the parking rate to 50% of the rate of the municipal lot parking in Downtown Whitby. The lease rate for the Brooklin Municipal Lot would be adjusted accordingly. This strategy to increase use would be further considered when on-street paid parking is implemented in Brooklin. Recommendation: Reduce the parking rate in Municipal Lot 9 to 50% of the Downtown Whitby municipal lots. While outside of the study area, on-street paid parking operations are also recommended along Gordon Street near Municipal Lot 8. On-street parking is a daily occurrence in this area and can be accommodated within the existing pavement width with modifications to the existing pavement markings. A Pedestrian Crossover is planned to assist pedestrians across Gordon Street. Recommendation: Implement paid on-street parking on Gordon Street.

4.3 Municipal Lot Parking and Opportunities The municipal parking south of Dundas Street, both on-street and off-street, is predominately operating at or close to theoretical capacity. The decommissioning of Municipal Lot 4 (Fire Hall) has intensified the need for parking in this area. In order to alleviate some of the demand it is proposed that Municipal Lot 5 be expanded. The lands to the east can be developed to expand the parking and it is expected that approximately 20 additional parking spaces may be achievable. In order to facilitate pedestrian travel between Municipal Lot 5 and the area businesses it is recommended that the pedestrian traffic signals be installed at Brock Street/Colborne Street. The municipal parking north of Dundas Street has been found to have available capacity. However, to redistribute parking throughout the Downtown it is recommended that communication regarding the location of parking in the Downtown be heightened, that staff discuss the redistribution of existing permits to alternate lots if feasible and that pedestrian crossings along Dundas Street be planned and implemented. In addition, it is proposed that the Centennial Building be considered for paid parking as it is within a comfortable walking distance to the Downtown. Recommendation: Expand Municipal Lot 5 and install pedestrian traffic signals at the intersection of Brock Street and Colborne Street and on Dundas Street at Athol Street and Centre Street. Recommendation: Consider paid parking at the Centennial Building.

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5 Parking Supply and Demand 5.1 Parking Inventory and Utilization Survey A complete review of the Downtown Whitby and Brooklin study area existing parking utilization was undertaken for the summer weekday and non-summer weekday and weekend periods. The parking counts captured off-street parking demand on an hourly basis, while parking demand and turnover data was collected in 20 minute intervals for on-street parking. The counts were collected on the following days:

August 31, 2017: summer weekday period;

September 28, 2017: non-summer weekday period; and

October 14, 2017: non-summer weekend period. An additional survey was completed on October 12, 2017 in Brooklin and October 19, 2017 in Whitby to supplement the non-summer weekday period survey conducted in September.

5.2 Existing Parking Inventory The Downtown Whitby and Brooklin municipal parking supply consists of on-and off-street parking. Paid off-street parking is in effect between 8:00 a.m. and 6:00 p.m. Monday to Friday at a rate of $1.00 per hour, with no charge at all other times. A daily rate of $7.00 is available in municipal lots. The Whitby on-street parking system includes individual metered paid parking opportunities, which are in effect between 9:00 a.m. and 6:00 p.m. Monday to Friday at a rate of $1.50 per hour. On-street paid parking is limited to a maximum of two hours in metered parking spaces. On-street parking in Downtown Brooklin is free. The existing Whitby and Brooklin parking supply as of September 2017 is summarized in Exhibit 5-1. On-street meters accept coins only, except for Centre Street between Dundas Street and Mary Street which also accepts credit cards. Municipal lot pay and display machines accept coins and credit cards, except for Municipal Lot 9 which only accepts coins. Payment though pay by phone mobile payment (Honk Mobile) is available for all paid parking. The smart meters on Centre Street is a pilot project to explore the interest in meters that accept credit cards and determine if there is a reduction in coin collection.

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Exhibit 5-1: On-Street and Off-Street Parking Inventory

Location Supply Downtown Whitby Parking On-Street Metered 277 On-Street Unmetered 152 Whitby On-Street Total 429 Lot 1 (Colborne St and Byron St) 18 Lot 2 (Byron St and Elm St) 25 Lot 3 (Byron St and Mary St) 89 Lot 4 (Colborne St and Green St) 76 Lot 5 (Colborne St and Green St) 83 Lot 6 (Perry St and Mary St) 82 Lot 7* (Colborne St and Centre St) 81 Whitby Off-Street Total 454 Whitby System Total 883 Downtown Brooklin Parking On-Street Metered 0 On-Street Unmetered 193 Brooklin On-Street Total 193 Lot 9 (Price St and Baldwin St) 75 Brooklin Off-Street Total 75 Brooklin System Total 268

*The Town of Whitby noted that Lot 7 has 92 spaces; this discrepancy was due to spaces that are reserved for business use. The spaces are not accessible to the general public, and were not included in the surveys.

As shown in Exhibit 5-1, the surveyed Downtown Whitby parking supply is comprised of 883 parking spaces (including accessible spaces) divided in the following manner:

277 on-street metered parking spaces;

152 on-street unmetered parking spaces; and

454 municipally owned off-street parking spaces. The surveyed Downtown Brooklin parking supply is composed of 268 spaces:

193 on-street unmetered parking spaces; and

75 municipally owned off-street parking spaces. It is noted for clarification that the unmetered supply includes on-street parking opportunities within the surveyed study area. The capacity of the on-street segments were calculated by measuring the distance where parking was permitted and dividing by 7 metres (m), a typical length of a parallel parking space.

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It is also noted that the inventory and analysis was completed prior to the decommissioning of Municipal Lot 4 for redevelopment.

5.3 Existing Parking Utilization Using the parking utilization data collected through the parking surveys, a complete review of the study area’s existing parking utilization was undertaken.

5.3.1 Downtown Whitby Parking Utilization Parking systems are considered “effectively full” at an occupancy of 85%, depending on lot size and other characteristics. This represents the point where finding a space is challenging for drivers, resulting in an increased likelihood of a driver having to search for an available parking space. A parking utilization analysis was conducted using the seasonally adjusted parking demand data to identify locations where parking operates at or near capacity. Based on the review (see Appendix C for details), both Whitby and Brooklin overall parking systems are operating below the 85 percent effective capacity threshold. In Downtown Whitby, there are currently 655 parking spaces (excluding Municipal Lot 4, Fire Hall) comprising of 378 spaces (approx. 60 percent) in municipal lots and 277 (approx. 40 percent) spaces on-street. Based on field investigations, the current demand was found to be 515 vehicles per weekday resulting in the 79 percent utilization rate. Notwithstanding the available capacity, there are certain sections of the parking facilities, specifically in Downtown Whitby that are operating at or approaching capacity. The Exhibit 5-2 illustrates the current utilization rate by quadrant and overall system in Downtown Whitby. In general, the municipal lots and parking meters south of Dundas Street are operating near/at capacity, while north of Dundas Street there remains reserve capacity in the system.

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Exhibit 5-2: Existing Parking Demand

Reasons that may cause an imbalance in parking distribution between the various quadrants which can create parking problems in one area while having reserve capacity in another are typically related to:

Convenience (i.e. shorter walking distance to destination);

Safety and comfort concerns such as the need to cross a busy arterial, no convenient traffic signalization, inadequate street or parking lot lighting, sidewalk/walkways too close to the road, winter maintenance issues, etc.; and

Access and accessibility needs. Whitby’s existing and future parking supply and demand was assessed based on actual data which is important as parking challenges should be defined by actual data and not perception. The results of such effect which solutions are considered and how they are evaluated.

5.3.2 Downtown Brooklin Parking Utilization Similar to Downtown Whitby, a parking utilization analysis was also conducted for Downtown Brooklin. The results of the analysis indicate that overall Brooklin has available on-street and off-street capacity. Municipal Lot 9 operated under capacity at all times with a peak parking demand of 5 vehicles (7% utilization) observed during the summer. While three on-street

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segments operated above the 85% effective capacity threshold during the system wide peak, available on-street parking opportunities are available nearby. The over effective capacity segments are as follows: Baldwin Street (Cassels Road to Campbell Street), Way Street (Price Street to Baldwin Street), and Vipond Road (Price Street to Heber Down Crescent). Although there appears to be capacity in the overall system, there is a perceived parking problem in Downtown Brooklin. Similar to Downtown Whitby customers, visitors and employees may not be able to find convenient parking close to their destination. This is exacerbated by the limited crossing opportunities along Baldwin Street to get to/from Municipal Lot 9.

5.4 Parking Turnover On-street parking is intended to serve short term visitors to the Downtown core, and experience higher turnover rates than off-street parking in a municipal lot. Currently, vehicles in Whitby are permitted to park up to 2 hours in metered on-street spaces and up to 3 hours in unmetered spaces. Baldwin Street in Downtown Brooklin is under the jurisdiction of the MTO but signage indicating a two-hour limit along Baldwin Street is expected in the near term. Municipal roads in Brooklin have a three-hour maximum. Daily parking opportunities are available at the municipal lot parking facilities for both Downtown core areas. A complete review of Whitby’s and Brooklin’s on-street parking turnover and duration was undertaken for the summer weekday, non-summer weekday, and non-summer weekend periods. The results of the review are provided in Appendix C. In general, the majority of on-street parked vehicles in Whitby and Brooklin parked for 20 minutes or less, which is the desired intent of on-street parking. Shorter on-street parking durations benefit local establishments as higher turnover results in a greater number of daily vehicles parked and more customers. However, it was also observed that many vehicles exceeded the maximum allowable parking of two hours at meters and exceeded three hours at other locations. In order to ensure that regular parking turnover is occurring and maximum allowable time limits are adhered to, regular enforcement is required. A number of users are exceeding the allowable parking time limit suggesting that a two hour limit is not sufficient for all visitors/guests to the Downtown. It is proposed that paid parking be extended to three hours in the outermost parking from the Downtown core. Recommendation: Implement three hour parking on Ash Street, Byron Street (south of Dunlop Street) and Ontario Street.

5.5 Transportation Demand Management Transportation Demand Management initiatives are often used by municipalities to influence travel behaviour to improve transportation system efficiency and

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also to help manage parking demand by decreasing the volume of single-occupancy vehicles. These initiatives take many forms, including policies, programs, services, and products to influence why, when, where, and how people travel. TDM measures have three overarching benefits:

Enhance the Town’s environmental sustainability goals;

Make it easier and more convenient for employees, shoppers, and residents to access Downtown Whitby and Brooklin; and

Improve parking management within the Downtown cores. The object of the Transportation Demand Management (TDM) review is to provide a high level overview of potential parking-related TDM measures to adopt. See Appendix D for details of the TDM review. In Whitby and Brooklin, TDM measures can be applied to manage long-term parking demand, while supporting mobility to, from, and within the Downtown. Appendix D outlines various approaches and opportunities to manage parking demand. Recommendation: The following is recommended to reduce single occupancy vehicle trips:

Encourage carpooling through the promotion of carpool/ride matching, such as Smart Commute.

Continue to provide bicycle parking and bicycle infrastructure, such as repair stands, adjacent to off-street parking lots and at key locations within the Downtowns, including transit stops. As well, continue to build a connected active network.

Support transit supportive designs and work with Durham Region Transit to encourage and promote transit usage.

Complete a commuter origin-destination study to determine where Downtown users are originating and improve transit connections.

Discuss with Durham Region Transit and Metrolinx the opportunity to provide commuter/carpool parking in Municipal Lot 9 in Brooklin to supplement the planned carpool lot at Highway 7 and Baldwin Street.

Create a TDM Checklist that allows development applicants to reduce the by-law parking requirements through TDM measures.

Develop a Transportation Demand Management Plan and require large scale office, institutional, and residential developments to prepare TDM plans that demonstrate how they will support the reduction of single occupancy vehicle travel.

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Investigate feasibility and cost/benefit of sponsored/discounted micro-transit support services for trips to/from Downtown Whitby within a 5 km radius.

5.6 Shared Parking Provisions Shared parking involves the use of one parking facility by more than one land use, taking advantage of different parking demand patterns by time of day to reduce the total amount of parking that would have been required if facilities were not shared. Shared parking ensures that parking spaces are not designated for any particular user, but operate as a pooled parking resource. The biggest benefits are realized with mixed-use developments, where uses have different peak demand times. For example, a restaurant and an office can share a parking facility with fewer total parking spaces than would otherwise be required for two separate parking facilities. As a result, shared parking encourages more efficient use of the parking supply. See Appendix D for additional details. Recommendation: Develop and adopt a shared parking policy to assist private developers in making shared parking decisions. When evaluating development proposals that include shared parking between land uses, it is recommended that the applicant be required to provide shared parking analysis to ensure the proposed shared parking supply is adequate.

5.7 Peer-to-peer Shared Parking Peer-to-peer shared parking refers to individuals sharing their private parking spaces and driveways with other members of the public who are looking for parking supply. Peer-to-peer shared parking has become more prevalent through the emergence of the shared-economy and through mobile payment and supply-demand search pairing applications. Recent advancements in mobile technology have provided an opportunity for private services that leverages private parking supplies that are underutilized to address parking demand. That is, home owners may potentially rent their home parking spaces when not in use. This is called the peer-to-peer parking market and several applications have gained user popularity recently, such as Rover. These applications are used extensively in more urban contexts, but are starting to become more popular in suburban areas, where paid parking has been implemented as well. While Rover is primarily available in Toronto, the application is expanding across North America. This service can be effective at opening up private parking supplies that are underutilized, to address the demands of the parking market. Although there are several benefits of these types of services from a user’s perspective, the outcomes of the mass and unregulated use of these services could result in unwanted traffic in residential neighbourhoods and unwanted competition for publicly owned parking supply. Potential liability concerns, and other unintended

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consequences, do not make this a viable recommendation without further understanding the impacts. As these services expand into the market, they will need to be studied further to understand their net effects on the community and to realize the potential to partner with these services to ultimately leverage their strengths.

5.8 Future Parking Needs There is significant growth expected in Whitby over the next 20 years. Given the significant projected growth, long term planning is required to ensure that the parking supply is appropriate to accommodate the future demand. Future parking demand within the Downtown core, assessed for the 2022, 2027, and 2037 horizon years, is anticipated to be impacted by the factors identified below. Additional details are provided in Appendix E.

Parking demand growth due to Town-wide population growth outside the Downtown core ( calculated to be 1.1% annually);

Personal vehicle use reduction (15% over the 20 year horizon based on the 2010 Transportation Master Plan);

New known developments within the Downtown study area; and

Redevelopment of Municipal Lot 4 resulting in a loss of parking supply. Based on the analysis of future conditions over the next 20 years, the Downtown Whitby parking system is anticipated to need a parking supply expansion in order to accommodate the projected parking demand growth. It is estimated that 225 to 275 additional parking spaces are projected to be required to achieve the targeted 85% utilization. To provide additional parking supply for future growth, a parking supply expansion of 250-300 parking spaces is recommended. The parking supply in Downtown Brooklin is expected to be sufficient with the introduction of formalized on-street paid parking. However, as transit usage increases additional commuter parking may be needed. Recommendation: In order to achieve the additional parking needed in Downtown Whitby the following is recommended:

Issue and Expression of Interest (EOI) for the construction of a parking structure, including private public partnership opportunities;

Monitor development applications within the Downtown for opportunities to develop a shared parking facility (i.e. public-private shared use);

Provide incentives to new developments to build additional parking for public use; and

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Assess if potential vacant/underutilized sites might be appropriate opportunities for municipal acquisition/lease to provide short or medium term parking solutions.

Recommendation: Design a parking structure for people, keeping in mind that users will be all ages and abilities. The structure design should consider

Sustainable design including such initiatives as green roofs, bicycle storage lockers, electric vehicle charging, etc.;

Pedestrian safety and comfort is fundamental; Good lighting is essential; Signage and wayfinding must be well designed and must be

provided for both drivers and pedestrians; Consider technology to improve the user experience such as

illuminated signage, automated vehicle identification, Bluetooth payment, pay-on-foot system, etc.; and

Aesthetics to integrate into the Downtown.

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6 Parking Technology Review Parking technology plays an important role in the parking experience of users. A summary of existing on- and off-street parking technologies, issues and opportunities, and potential technologies aimed at mitigating identified issues and providing a positive user experience is provided in Appendix F.

6.1 Existing Parking Technologies In an attempt to optimize parking operations through improved technologies, the existing parking technologies were first reviewed and issues identified. A variety of paid parking technologies are used within Whitby. The municipal lots use pay and display machines and on-street paid parking is through individual parking meters. The Whitby pay and display machines all accept credit card and coin payments. However, only coin payments are currently accepted at the machines in Brooklin. On-street pay parking only accept coin payments, with the exception of Centre Street between Dundas Street and Mary Street which also accepts credit cards. To provide an alternative method of payment, the Town implemented the pay by phone technology in Downtown Whitby and Brooklin which is currently managed by Honk Mobile. The technology allows users to download an application on their smart phone, register an account, and pay for parking through their phone. Since the introduction of pay by phone in 2015 the use has more than doubled. In 2019 there were almost fifty thousand Honk transactions. Static parking wayfinding signs are distributed through the core assisting drivers in finding off-street municipal parking.

6.2 Opportunities and Recommendations Whitby’s parking management system is dated and there are opportunities to improve the aesthetics and functionality of the paid parking system. Some of the recommendations are quick wins that can be completed within a short term time frame. Recommendations to be implemented to improve the parking management system are provided in Exhibit 6-1. Additional details are provided in Appendix F. Exhibit 6-1: Parking Management Recommendations

Recommendation(s) Additional Comments Upgrade the existing pay and display machines within the municipal lots with touch screens, pay by plate capability, and mobile wallet.

The existing pay and display machines can be updated with new technologies to improve the users’ parking experience. In addition to upgrading the meters the landing area where the meter is locationed should also be

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Recommendation(s) Additional Comments updated to ensure accessibility and comfort (i.e. ramp, shelter from elements, etc.)

When possible, remove Depending on the location of parking, two parking one post by combining meters may be added to one post reducing the two individual on-street infrastructure in the pedestrian realm. The meters meters on a single post may also be upgraded to accept credit cards on a

corridor basis for consistency. Replace individual The replacement of single space meters with a pay parking meters with pay and display machine will allow more space for trees, and display machines as benches, etc. Depending on the area however a road corridors are single pay and display meter may not be cost reconstructed and where effective. appropriate Improve aesthetics of Work with the Downtown Whitby BIA, the parking meters Chamber of Commerce and local businesses to

incorporate art into the meters (i.e. painting the meters).

Consider a Caring Meter where collected funds go towards a local charity.

Improve online conspicuity of municipal parking

Update the Town’s website to include additional parking maps and parking details (i.e. costs, time limits, lease options, Honk Mobile).

Add municipal parking to google maps and appropriate gps applications.

Continue to work with the Downtown Whitby BIA and Chamber of Commerce to provide information and new initiatives related to parking.

Consider phone app / website displaying real time parking availability data.

Improve wayfinding signage

Improve the consistency and aesthetics of the existing parking signage, acknowledging the new corporate brand.

Install additional wayfinding signage (Introduction, Directional, Identification and Pedestrian).

Rename the municipal By including a location or destination within the lot lots name will make the municipal lots more

recognizable and easier to locate i.e. Library Lot (Municipal Lot 7).

Plan for, design, and Issue an Expression of Interest for the construct a parking construction of a parking structure within garage Downtown Whitby.

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Recommendation(s) Additional Comments acquisition/lease to provide interim parking solutions or for a parking structure.

Pursue other operator/ service delivery models to manage the day-to-day operation and maintenance of municipal parking

Issue an Expression of Interest (EOI) for Private Public Partnerships for municipal lot management. Municipal lots at the Downtown Whitby library, the boat launch/marina and the Centennial Building, should it become paid parking, to be exempt from the EOI for the Town continue to be a knowledgeable owner for parking management.

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7 Parking Policies and Strategies This section assesses Whitby’s existing parking policies and strategies and provides recommendations aimed at optimizing and improving overall operations. The below policies and strategies are reviewed. Details are provided in Appendix G.

Parking Standards and Zoning By-laws;

Parking Price Strategies;

Parking Fines;

Best Practice Design Considerations;

Special Parking Zones; and

Alternative Seasonal Parking Uses.

7.1 Parking Standards and Zoning By-Laws Whitby’s existing parking standards including parking space requirements, parking space dimensions, and parking requirement reductions, were evaluated.

7.1.1 Parking Space Requirements This section examines Whitby general and accessible parking space requirements through a comparison with the requirements of similar municipalities. In terms of Town wide requirements, Whitby’s parking requirements are fairly consistent with the average of comparable municipalities. As a policy to support the Transportation Master Plan objective of promoting alternative modes of transportation, Whitby should evaluate the impacts of reduced parking requirements for certain land uses within the Downtown core. This would require the establishment of a second set of parking requirements for the Downtown zone, separate from the requirements of the rest of the Town. The residential and restaurant parking requirements are recommended to be reduced for the new Downtown requirements. Additionally, consideration of basing the residential parking requirements on the bedroom type, similar to other municipalities, is recommended. In addition, a growing trend across many municipalities is the adoption of maximum parking requirements within the Downtown which places a limit on the maximum number of parking spaces permitted per development. The maximum requirements are intended to serve as a TDM measure to control the Downtown core’s parking supply and therefore the appeal of single occupancy vehicles is diminished. For developments where the parking requirements have been reduced or eliminated a Parking Management Plan for the development should

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be required to be included as part of the development agreement. Such a plan would include resident policies related to vehicle ownership and provide information related to municipal by-laws and parking availability for visitors, guests and delivery vehicles. Recommendation: Update the Town’s Zoning By-law related to minimum parking requirements for specific uses and considering a Downtown specific area. Recommendation: Require development applications with reduced/eliminated parking to provide a Parking Management Plan.

7.1.1.1 Accessible Parking Municipalities are moving towards adopting accessible parking requirements that are consistent with the requirements outlined by the Accessibility for Ontarians with Disabilities Act (AODA). Ontario’s Accessibility Action Plan outlines a timeline to fully mandate AODA guidelines by 2025, which includes the provision of accessible parking spaces. AODA does not specify on-street accessible parking requirements. Section 80.39 suggests the municipality consult with its Accessibility Advisory Committee (AAC) in establishing the number and locations of on-street accessible spaces, which is recommended for Whitby. However, if the metered on-street parking system in Downtown Whitby were treated as an off-street parking lot (277 spaces), 8 on-street accessible parking spaces would be required by AODA guidelines. The following general guidelines are recommended for consideration when determining the locations for on-street accessible parking:

Adjacent to land uses anticipated to generate accessible parking demand (such as medical offices and certain government services buildings);

Adjacent to a curb cut (or add a curb cut to serve the accessible parking space);

Does not conflict with existing street furniture;

Does not impede snow clearing activities;

The space is not already designated for passenger pick-up/drop-off; and

The space is not anticipated to serve alternative seasonal uses. At this time preliminary new/improved on-street accessible parking is proposed on Brock Street North, Brock Street South, Byron Street South, Byron Street North, Green Street, Colborne Street and Centre Street. Consultation regarding these locations will occur with the AAC.

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On-street accessible parking in Downtown Brooklin would be considered when paid parking is implemented or when roads are reconstructed. The same guidelines used for Downtown Whitby would be applicable for Brooklin. Recommendation: Develop an accessible parking design standard for on-street parking and determine the location of on-street accessible parking through consultation with the Accessibility Advisory Committee. Currently within the Town of Whitby, vehicles with a valid accessible permit may park in an area that is signed No Parking and at any paid parking space for free. There are several reasons why this is not recommended:

Parking restrictions are by-lawed for a purpose, generally safety, and should be upheld;

Few Canadian cities offer completely free accessible parking. Those that do, or have special exemptions such as time limits are typically very large cities such as Toronto, Mississauga, and Ottawa where the large parking supply can absorb the loss of parking revenue from free parking;

The Ontario Ministry of Transportation has reported on the growing amount of accessible parking permit misuse in the province. Such misuse stems from using expired permits, transferring permits, using fake permits, and using permits when no longer required. Such misuse should not be rewarded with free parking; and

One objective of accessibility is to achieve transportation equity wherever possible. This means the ability of those with accessibility limitations to park on- and off-street as conveniently as possible. Equity should extend to the cost parking as well.

Recommendation: Consult with the Accessibility Advisory Committee regarding the ability to park in a restricted area, paid parking with accessible permit and update the Traffic By-law as required. As an alternative, parking in an accessible parking space (through signage and pavement markings) could remain free parking but vehicles in a general paid parking space would be required to pay for the space. This could be implemented when new accessible on-street parking is constructed.

7.1.2 Parking Space Dimensions Whitby’s general parking space dimension requirements are consistent with the average of similar sized municipalities and no changes to dimension is proposed.

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Whitby’s accessible parking space dimension requirements were also reviewed and compared with those of the similar municipalities and AODA. The majority of municipalities have adopted accessible parking space dimension requirements similar to AODA. AODA specifies two types of accessible parking spaces. Half of the required accessible parking supply must be Type A, while the other half Type B. Type A spaces are wider parking spaces intended to accommodate mobility friendly vans and have a minimum width of 3.4 m, while Type B spaces have a standard minimum width of 2.4 m. Accessible parking spaces must also include a 1.5 m access aisle adjacent to an parking space. The length of a parking space is 5.8 metres. The Town is consistent with AODA in terms of number of accessible parking spaces required. However, Whitby requires that all accessible parking spaces are Type A (3.4 m x 5.8 m with 1.5 m aisle) which exceeds AODA minimum requirements.

7.1.3 Parking Requirement Reductions Many municipalities offer options that allow for a reduction in the number of parking spaces required by the zoning by-laws. Through a best practices review of other Southern Ontario municipalities, initiatives such as shared parking, bicycle parking, carshare and cash-in-lieu were reviewed and are included in Appendix D: As an example, the City of Kitchener provides developers with an official Transportation Demand Management (TDM) checklist which allows for car space requirement reductions in exchange for various TDM measures. Potential TDM measures include shared parking, providing occupants with fully subsidized transit passes, providing a shuttle service to destinations such as the Whitby GO Station, etc. Recommendation: In consultation with other Town of Whitby Divisions develop of a TDM checklist that would potentially allows for reduced parking when alternative transportation infrastructure is provided.

7.2 Cash-in-Lieu of Parking Cash-in-lieu of parking allows developers to contribute funds to a reserve as an alternative to providing the minimum number of parking spaces required by the Zoning By-law. The collected funds are placed in the parking reserve fund, which is normally used for the acquisition, improvement, and construction of municipally owned parking facilities. Cash-in-lieu of parking is used by many Canadian municipalities as a mechanism to address parking supply management. The cash-in-lieu collected can also be used to facilitate redevelopment where providing parking on-site is either too costly or difficult due to site configuration/ condition or to intensify and re-urbanize Downtown cores.

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Policies generally focus on a specific geographic area, often a Downtown or area that the municipality has targeted for intensification or redevelopment. Based on the review’s results (see Appendix B), Whitby’s interim cash-in-lieu rate of $3,750 is lower than the average cost of $5,182 based on similar sized municipalities. The Town’s current rate is more in line with the costs for the municipality to provide surface parking. Given that structured parking supply expansion is necessary to accommodate future demand, it could be reasoned that an appropriate cash-in-lieu rate could be as high as $17,500 to $22,500 per space (assuming a 50% contribution). As such, it is recommended to increase the current cash-in-lieu of parking rate to $10,000 per space. However, it is proposed that the increase be phased at 5% increase per year from an initial increased rate to $5,000, until the $10,000 per space is achieved. The $10,000 per space recommendation represents a balance between surface and structured parking costs. The formalization of a cash-in-lieu rate will allow for cash-in-lieu to be applied consistently to development applications. It is noted that cash-in-lieu can be applied towards non-residential uses only and is only considered in a Downtown area where the municipality can reasonably use the funds towards municipal parking. Recommendation: Increase the cash-in-lieu rate to $5,000 per parking space and increase at 5% per year until a cash-in-lieu rate of $10,000 per space is achieved.

7.3 Parking Price Strategies Various parking price strategies that Whitby could potentially adopt have been reviewed. The operational benefits of the following strategies are explored in Appendix G.

Variable parking prices (location based pricing);

Dynamic parking prices (time and location based pricing);

Pay parking time limits; and Performance based pricing (demand, time, and location based

pricing). Currently, paid parking operations are in effect Monday to Friday between 8:00 a.m. and 6:00 p.m. off-street and between 9:00 a.m. and 6:00 p.m. on-street. Free parking is in effect after 6:00 p.m. on weekdays, and at all times during Saturdays and Sundays. Parking demand starts at 8:00 a.m., peaks during the midday, and slowly declines in the evening starting at 5:00 p.m. While demand may start declining at 5:00 p.m., the demand is still relatively high at 6:00 p.m. Considering the observations, and to maintain consistency between on- and off-street, it is

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proposed that on-street paid parking begin at 8:00 a.m., consistent with off-street parking. Once paid parking is implemented in Brooklin it is recommended to be consistent with Downtown Whitby. Recommendation: Change the paid on-street parking time limit from 9:00 a.m. to 8:00 a.m. to be consistent with the municipal lot off-street parking. Overnight parking has often been requested by Downtown Whitby residents that do not have parking available, visitors to Downtown residents and customers of Downtown businesses. Overnight is typically when maintenance operations are performed as the municipal lot would be free of vehicles. However, recognizing that there appears to be a need for overnight parking, it is proposed that seasonal overnight parking be provided in select municipal lots (Lots 3, 6, and 5) and offered at a reduced rate. The location of overnight parking may be identified through signage so as to limit the interference with maintenance activities. Overnight parking would not be permitted following snow events to allow for the clearing of snow. Recommendation: Provide limited seasonal overnight parking in Municipal Lots 3, 6, and 5 at a reduced rate. In coordination with permitting overnight parking a strategy for use of municipal parking lots for event space should be developed. The municipal parking area offers a distinctive area that can be used for a smaller event or to supplement a larger event. The procedure and requirements (i.e. signage, notification, etc.) to use a municipal lot should be clearly defined. Recommendation: Develop a Strategy for use of municipal parking lots for special events.

7.4 Parking Fines Parking practices in Whitby are regulated by Traffic By-Law 1862-85, and Municipal Parking Lot By-law #4910-0. Common parking related violations in Whitby were compared to other municipalities and it was found that Whitby is lower is some instances and higher than the average fine for other infractions. Whitby has the lowest fine for being parked at an expired meter when compared to all other municipalities surveyed. However, the fine for No Stopping is amongst the highest fine for all municipalities surveyed. Recommendation: It is proposed that Legal and Enforcement Services review the fines of all parking violations and increase the fines as appropriate.

7.5 Best Practice Parking Lot Design Considerations Parking facility lighting, pedestrian operations, signage, and landscaping design best practices have been considered and recommendations to improve the

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user’s overall parking experience are provided below. Additional details are provided in Appendix G. As municipal parking lots are reconstructed there are opportunities for improvements that enhance the user experience. Exhibit 7-1: Parking Lot Improvement Recommendations

Recommendation(s) Details/Considerations Lighting Be designed to be aesthetically integrated

with the architecture, landscape, and streetscape;

Ensure no blind sports or hiding places are created;

Be appropriately scaled to its purpose and avoid “over lighting”;

Directed downward and inward to avoid light overspill on adjacent properties;

Support the sustainable development through energy-efficient lighting;

Incorporate off-grid power generation (e.g. solar) if feasible; and

Provide pedestrian-scaled lighting, such as bollards or smaller scale pole fixtures along pedestrian routes.

Pedestrian Linkages Provide a safe and interconnected pedestrian network;

Consider panic buttons; Include self-cleaning washroom facilities; Provide at least one direct pedestrian route

between the municipal sidewalk and the main building entrance;

Pathways to be distinctly paved and barrier-free, and include benches, bike parking, and waste receptacles, etc.;

Consider all users when determining width and configuration of pedestrian routes; and

Provide unobstructed sight lines. Signage Regulatory signage and pavement markings

should be consistent and adhere to standards for roadway applications, where practical;

Provide clear, concise, easily readable, and consistent advisory signage that is AODA compliant;

Signage with large amounts of text be

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Recommendation(s) Details/Considerations located such that they do not constitute a hazard to vehicle traffic in motion;

Consistent appearance of all signage; Use of common logos and colours; Signage placement at or near eye level; Use reflective and durable material; and Consider letter height.

Landscaping Include a variety of vegetation (plant, shrub, and trees);

Use drought and salt resistant species; Maximize and distribute landscaping

throughout the site to soften and screen parking lot edges, reinforce circulation routes, create a pleasant pedestrian realm, and maximize shade and storm water benefits;

Screen headlights from adjacent land uses; Maximize shade for pedestrians; and Manage stormwater flow in environmentally

sensitive ways.

As municipal parking lots are redeveloped/reconstructed they should be planned to improve the aesthetics and user comfort through lighting, landscaping and the active amenities. Safety and the implementation of Vision Zero principles should be considered as part of the design. Vision Zero is an approach to road safety thinking and it originated in Sweden in 1997. In essence, the Vision Zero concept is that no loss of life resulting from a motor vehicle collision is acceptable. While the road system must keep people moving it must also be designed to prevent collisions from occurring and designing the road network to minimize the consequences of collisions that do occur. The construction of a parking structure will also include similar design elements with user safety and comfort being a key consideration. To date municipal parking has been primarily for motor vehicles, however, parking for bicycles should also be provided. This may result in the loss of 1-2 vehicle parking; however more users can be accommodated as one parking space can accommodate eight bicycles.

7.6 Special Parking Zones Special parking zones in Whitby are designated under By-law 6918-14, which is an amendment to Traffic By-Law 1862-85. The By-law designates certain on-street parking spaces as passenger pick-up /drop-off zones or taxi stands.

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Passenger drop-off/pick-up zones and taxi stands are in effect Thursdays to Saturdays, between 9:00 p.m. and 4:00 a.m. As well, with the increase in on-demand transportation services (i.e. Uber, Lyft, taxi services) there is a need for greater consideration of short term parking for passenger pick-up and drop-off. As an example, a recent development constructed in Downtown Whitby includes short-term parking for customer drop-off/pick-up or good pick-up. Due to the nature of the venue the on-street parking was constructed to accommodate a limousine. Pick-up/drop-off area needs will be a consideration as development and re-development occurs. Whitby currently has no designated commercial loading/unloading zones within the Downtown areas. There have been very few requests to provide loading/unloading zones and some commercial locations have access from a private rear laneway. Given the inability to provide loading/unloading adjacent to every business and the resultant loss of on-street parking, dedicated loading/unloading spaces are not recommended at this time. It is noted that deliveries may be accommodated during the morning or evening when stores may not be open and stores are not open to the public. With respect to accessible parking, there are 14 accessible parking spaces distributed throughout Downtown Whitby. Three accessible parking spaces are on-street and 11 are in off-street municipal lots. With the exception of Municipal Lot 1 located at Colborne Street/Byron Street, each municipal parking lot has at least one accessible parking space. When municipal lots are reconstructed/resurfaced they will be updated to meet AODA requirements as needed. This will result in new/relocated accessible parking within the municipal lots. Municipal Lot 9 in Brooklin has seven accessible parking spaces with three located at the north end of the lot and four located at the south end.

7.7 Alternative Seasonal Parking Uses A growing trend among municipalities is the implementation of alternative seasonal use of parking spaces including pop-up patios, boardwalks, parklets, etc. where on-street parking spaces are temporarily replaced. Alternative seasonal uses create a welcoming environment and contribute to the walkability of the Downtown. It is recommended that opportunities to use on-street parking for other uses on a temporary basis continue to be explored with the Community Advancement division, Downtown businesses and stakeholders. Recommendation: Continue to explore and implement alternate seasonal use of parking spaces, including the development of a policy. The following guidelines are proposed for future seasonal uses in parking areas:

The parking spaces temporarily replaced should be located immediately adjacent to the land use proposing the seasonal use;

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The alternative seasonal parking use does not interfere with transit operations, emergency vehicle service operations, or street drainage;

The parking space(s) temporarily replaced should not be a special parking zone (accessible parking space, taxi stand, or passenger pick-up/drop-off zone);

The alternative seasonal parking use is protected by an adjacent bump-out or other safety delineation;

No safety hazards are created for pedestrian, cycling, and vehicle traffic; and

On-street parking opportunities are available in close proximity.

7.8 Public Communications Plan A recurring issue identified during the public and stakeholder consultation events was the lack of awareness regarding various parking policies or programs. Communication with residents and visitors is available through a variety of avenues including the Town’s website, the Whitby Perspective, local newspapers and social media platforms. However, improvements to the availability as well as presentation of information will assist in reaching more users. Potential options improvement communications include:

A new parking brochure for the Downtown. The brochure could include information similar to the current Whitby Downtown parking website such as a map identifying the various parking options. The brochure can be available online and at Downtown destinations.

Develop materials for distribution at major events, trade-shows, etc. on Downtown parking.

Website links to site on alternative transportation options (carshare, cycling routes, Durham Region Transit, etc.).

Update the Town’s website to be more user friendly and intuitive. The website should include information outlining future parking plans. This is intended to illustrate how parking revenues are used to fund parking related improvements and to provide transparency for upcoming changes.

Include municipal parking on online media such as Google Maps The updating and dissemination of parking information is recommended to be an on-going process. Recommendation: Develop a communications plan aimed at improving user information and educating Whitby residents and visitors about Downtown parking.

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8 Residential Parking Permit Program Currently, the Town of Whitby allows on-street parking along all unmetered streets for a maximum of three hours unless otherwise prohibited by signs .This by-law is in effect year round. Additionally, vehicles are prohibited from parking on-street on all municipal streets between 2:00 a.m. and 6:00 a.m. from November 1 to April 15 of the following year for road maintenance, including snow removal. To accommodate occasions where residents have special circumstances that require vehicles to be parking on-street for more than three hours or overnight, a short term on-street permit program is available. The program grants permission to park on-street beyond the three hour limit to a maximum of 7 days. Each household is permitted to make an annual maximum of 12 such requests. No physical permits are distributed. However, records of registered vehicles are kept in the Whitby database. If a parking ticket for the granted by-law exemptions is received by mistake, the user can contact the Town to waive the parking infraction, if appropriate. As part of the Parking Master Plan the feasibility of adopting a residential on-street parking permit program is being investigated. An on-street residential parking program would provide an on-street parking option for residents who do not have sufficient off-street parking; This residential parking permit assessment (see Appendix H) includes the following:

Best practices review: Review the residential permit programs offered by municipalities of comparable size to Whitby;

Recommended strategies: Based on the best practices review and the specific needs of Whitby residents, a preferred residential permit program is identified;

Program Requirements: Identifies and discusses various requirements for supporting a residential on-street permit program including enforcement, technology, staffing, and program cost; and

Considering the best practices review of municipalities comparable to Whitby, several different forms of residential parking permit programs have been implemented. The majority of municipalities offer a short-term on-street parking permit similar to what is already offered within Whitby. However, as property sizes are decreased and adult children may stay in the family home longer, many properties cannot accommodate the family parking needs. A residential parking permit program is proposed as a pilot to better understand the challenges associated with a permit program. A residential parking permit program would allow for vehicles to exceed the three hour parking limit. Permit holders are also permitted to park overnight

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except during winter maintenance activities. That the existing short term on-street permit program is recommended to be maintained to serve temporary parking needs. Pros and cons associated with the proposed residential permit program are explored in Exhibit 8-1. Exhibit 8-1: Residential Permit Program Review

Pros Cons Local residents are permitted to park

for periods longer than 3 hours Visitors are still provided parking

opportunities for periods shorter than 3 hours

Additional revenue generated from permit sales

On street parking may reduce vehicle travel speeds

Local residents are not guaranteed an on-street parking space

Additional operational costs associated with maintaining a residential permit program

Additional parking enforcement needs/expenses

The maneuverability of emergency service vehicles (fire, police, and ambulance) may be restricted

Restrictions still required during winter and maintenance operations

Waste collection may be impacted As general guidelines, the following is recommended: Exhibit 8-2: Residential Permit Program Proposed Guidelines

Recommendation Details/Considerations Existing parking restrictions/by-laws

Existing parking by-laws are recommended to be maintained, save and except the three hour limit.

Parking program support

Require the support of the majority of homeowners affected by the residential permit program application (70% of affected resident support or greater)

Permit zones Consider requests on a case by case basis taking into account road geometry, road right-of-way, etc.

12 month permit at a cost of $480/year

Annual permits minimize the program’s management and processing requirements when compared to monthly permits.

Number of permits issued

Approximately 50% of the available on-street parking capacity. This allows for visitors and short-term parking needs. This may be revisited and increased on a case-by-case basis as needed.

Winter maintenance Vehicles must be removed to allow for winter maintenance. This should be communicated through

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Recommendation Details/Considerations email and social media (i.e. parking ban is in effect).

Electronic permit Consistent with current practice a physical permit will not be provided. Vehicle licence plates will be entered into a database.

Enforcement Consider future Licence Plate Recognition Software as well as implementation of an Administrative Monetary Penalty System for improved efficiencies.

Additional staff One Transportation staff person is recommended to administer the program. Responsibilities would include reviewing applications, neighbourhood survey, implementation and monitoring. One additional Enforcement Officer is proposed due to the expected increase in on-street parking.

It is recommended that a residential parking permit system be implemented as a one year pilot project with staff identifying streets where numerous requests have been received. At this time, the proposed pilot streets include Stokely Crescent, Rimrock Crescent, Ocean Pearl Crescent, Bettina Place, Tallships Drive, Willowbrook Drive, Haverhill Crescent, and Harrongate Place. Prior to implementation, residents on the selected streets will be surveyed to gauge interest in participating in the pilot (minimum 70 percent support will be required). At this time, as no further staff resources are being identified to support the program, the suggested pilot is being limited to a maximum of two streets per ward during the trial. An online survey was posted on the Town’s website to engage resident feedback on a residential on-street parking permit system. The results were somewhat balanced between needing an opportunity to park on the street and not wanting on-street parking. A residential parking permit system would consider the following:

A survey of the area residents would be completed and 70 percent in favour of, or not opposed to, the on-street parking is required.

Spaces would not be assigned and therefore neighbours could be parking in front of other neighbours homes for longer periods of time.

Restriction of at least one side of the road may be required.

Fire Services has indicated that a minimum clear width of 6 metres shall be available at all times between a parked car and the curb. If a municipal road is 8.5 meters wide, parking shall only be permitted in locations that allow for minimum clear width of 6 meters.

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A physical permit would not be issued but the licence plate would be entered into the parking system, similar to the short-term parking registration.

The cost of the permit is expected to be in the order of $40/month.

Road maintenance will be impacted if vehicles are parked on the road during a snow event. Restricting one side of road through by-law and signage may be required for flow of traffic and maintenance purposes.

Waste services may be impacted and restrictions may be required during waste collection days.

Once the residential on-street parking pilot has been completed, the results will be assessed and a policy will be prepared that outlines requirements and impacts. If successful, it is anticipated that the residential parking permit program may be based on a resident’s request, followed by a survey for support. This approach responds to localized demand for on-street parking. If resident support is received Town staff will conduct a detailed review to determine if the street is appropriate for an on-street residential parking permit program, considering geometry of the road, parking capacity, maintenance and emergency services impacts, etc.

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9 Conclusions and Recommendations The Town of Whitby initiated the Parking Master Plan study with the purpose of developing a parking strategy that provides a long term vision for parking within Downtown Whitby and Brooklin. Section 9 summarizes the conclusions and recommendations from the study findings, presents high level cost estimates for each recommendation, and proposes a recommended implementation timetable. The Parking Master Plan should be updated every five year. Occupancy and parking turnover data should be collected on a yearly basis to confirm parking and pricing needs. Rates adjustments would be proposed as appropriate.

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Exhibit 9-1: Parking Master Plan Recommendations

Task Recommendation(s) Section Reference

Cost Estimate Planning Horizon

Financial Assessment

Implement paid parking in the Whitby Centennial Building parking lot.

Section 4.3 Page 15

Pay and Display machine cost $5,000 -$10,000

Medium term

Reduce the hourly parking rate in Municipal Lot 9 in Brooklin to 50% of the parking rate in Downtown Whitby municipal lots.

Section 4.2 Page 15

Minimal costs associated with modifying signage and communication of the change

Short term

On-street pay parking operations are recommended along Gordon Street.

Section 4.2 Page 15

$500 - 800 per on-street meter plus pavement marking costs

Short term

Adopt Scenario 3 as the long term parking price plan which includes a $0.50 increase in hourly off-street prices in 2023 followed by $0.25 increases in hourly on- and off-street prices every 5 years. Daily parking and permit price increases are recommended to be proportionally increased based on the on-street hourly price increase.

Section 4.1 Page 12

Minimal costs associated with social media and notification of rate increase Parking revenues are anticipated to increase

Medium term

Include new on-street parking where practical. Paid parking may be through individual meters, pay and display machines, or pay by phone mobile application.

Section 4.2 Page 13

$500 - 800 per on-street meter or $5,000 -$10,000 per pay and display

Short/medium term



Implement paid parking operations at on-street parking spaces in Brooklin. A maximum pay parking duration of 2 hours is recommended when first initiated and future consideration of 3 hours as needed.

Section 4.2 Page 14

$500 - 800 per on-street meter or $5,000 -$10,000 per pay and display

Long term

If on-street parking from the Downtown spills over into the residential areas consider additional paid parking and/or streets where parking is available by residential permit only.

Section 4.2 Page 13

Costs associated with signage and administration of permit program

Medium/long term

Adopt a cash-in-lieu rate of $10,000 per parking space. Implement by increasing to $5,000 and then 5% per year. The rate should be reviewed regularly to reflect growing construction costs and land value.

Section 7.2 Page 31-32

Minimal Short term

Parking Supply and Demand

Adopt TDM strategies in an attempt to manage Downtown parking demand. Strategies include carpool incentives, cycling infrastructure, transit improvements, carshare service, etc. Develop a TDM checklist that allows for the reduction of parking requirements. Develop and adopt a shared parking policy to assist private developers.

Section 5.5 Page 21 Section 7.1 Page 31 Section 5.6 Page 22

Variable depending on adopted TDM strategies

Short/medium term

Expand Municipal Lot 5 and install pedestrian signal at the intersection of Brock Street and Colborne Street.

Section 4.3 Page 15

$225,000 for lot expansion

Short term



Improve distribution of parking utilization through improved communication and new pedestrian crossings across Baldwin Street and Dundas Street. Pursue opportunities to optimize public parking, including installing pedestrian signals on Dundas Street at Athol Street and Centre Street.

Section 4.2 Page 14 Section 4.3 Page 15

$200,000 per pedestrian crossing, per location

Short/medium term

An off-street parking supply expansion of 250- Section 5.8 $10,000,000 Medium/long 300 spaces is needed to accommodate the projected growth. The parking supply expansion is recommended to be constructed in the form of a parking structure.

Page 23 To be confirmed through design

term

Issue an Expression of Interest (EOI) for the Section 5.8 Minimal costs to Short term construction of a parking structure, including Page 23 develop and EOI private public partnership opportunities. Section 6.2 Issue an EOI to pursue other operator/service delivery models to manage the day-to-day operation and maintenance of municipal parking.

Page 27

Consider the following parking supply and Section 5.5 Variable depending on Short/medium demand strategies as an interim solution to Page 20 the strategies adopted term building structured parking: adopting Section 5.6 aggressive TDM strategies, monitor parking Page 22 demand growth, shared parking opportunities with new development or underutilized existing Section 5.7 properties. Page 22



Parking Technology

Supplement/improve the existing directional and identification wayfinding signage with introduction and pedestrian signage to complete the four layers of a static wayfinding system.

Section 6.2 Page 26

Approximately $10,000 to identify optimal sign locations, type and design Additional $10,000 to purchase various static wayfinding signage Cost for signage is dependent on number of signs required

Short/medium term

Rename the municipal lots to be more recognizable and easier to locate.

Section 6.2 Page 26

To be implemented as part of wayfinding initiative

Short/medium term

Improve information available online and through social media regarding municipal parking.

Section 6.2 Page 26

Minimal costs Short term

Upgrade the existing pay and display machines in Downtown Whitby to include touch screen capabilities.

Section 6.2 Page 25

$5,000 per meter Short term

Upgrade the existing pay and display machine in Municipal Lot 9 in Brooklin with a machine that accepts both coin and debit/credit card payments, has touch screen capabilities, etc.

Section 6.2 Page 25

$5,000 - $10,000 per pay display machine

Medium term

Upgrade the existing on-street parking meters in Downtown Whitby with new machines that accept credit card payments, as appropriate.

Section 6.2 Page 26


Short/medium term



Implement parking meters that can accept credit card payments and/or pay and display machines when on-street paid parking operations are adopted in Brooklin.

Section 6.2 Page 26


Medium term

Adopt the pay on foot system when Whitby constructs a parking structure and consider the Bluetooth payment system for one entry and one exit lane. Procure a parking management system capable of automatically tracking vehicle occupancy in real time.

Section 5.8 Page 24

$500,000 - $600,000 for pay on foot machines, gates, and parking management system Cost for parking management system may vary significantly

Long term

Parking Policies and Strategies

As a policy to support the Official Plan objective of promoting alternative modes of transportation, evaluate the impacts of reduced parking rates for certain developments within the Downtown core. Additionally, a shared parking policy is recommended for adoption.

Section 7.1.1.1 Page 28

Zoning By-law update required (on-going)

Short term

Develop an accessible on-street parking space design and identify optimal location of accessible parking based on the proposed guidelines. Consult with the Accessibility Advisory Committee. As municipal lots are reconstructed ensure compliance with AODA.


Variable costs to construct on-street accessible parking.

Short/medium term



Consult with the Accessibility Advisory Committee regarding parking with an accessible permit and cost of parking when a valid permit is displayed.


Minimal cost to update Traffic By-law

Short term

Following the construction of the parking structure, collect new parking utilization data, and adopt a variable parking price strategy where highly demanded parking facilities are priced higher than lower demanded facilities.

Section 7.3 Page 32

$10,000 Long term

Charge for parking between 8:00 a.m. and 6:00 p.m. for both off-street facilities and on-street metered parking.

Section 7.3 Page 32

Minimal costs to upgrade signage

Short term

Introduce on-street lease parking on select streets.

Section 4.2 Page 13

Minimal signage costs Short term

Increase on-street parking limit to 3 hour maximum on select streets.

Section 5.4 Page 20

Minimal Short term

Provide limited seasonal overnight parking in Municipal Lots 3, 5 and 6 at a reduced rate.

Section 7.3 Page 32

$10,000 for signage and administration

Short/medium term

Develop a Special Event Strategy for parking in municipal lots.

Section 7.3 Page 32

Minimal Short term

Enforcement Services staff to review parking violations and adjust fines as appropriate.

Section 7.5 Page 33

Minimal Short term

Develop design guidelines to modernize municipal parking lot facilities related to lighting, pedestrian links, signage, and landscaping. Include bicycle parking, self-cleaning washroom facilities, electric vehicles, etc. as appropriate based on location.

Section 7.5 Page 33

$50,000 to develop guidelines

Medium term



Continue to explore and implement season use of parking spaces such as pop-up patios, etc.

Section 7.7 Page 35

$15,000 Short/medium term

Develop a communication plan which includes brochures and distribution materials to improve the delivery of information to the public.

Section 7.8 Page 36

$10,000 for promotional material

Short/medium term

Residential Pilot a residential parking permit program on Section 8 No additional costs to Short/medium Parking two streets per ward. Permit holders are Page 37 implement a pilot term Permit granted exemption from the 3 hour maximum project Program time limit for on-street parking, as well as

permitted to park overnight except during winter maintenance activities. Recommendations for considerations include the designated zones, staffing and operating costs, permit duration, number of permits issued, costs, fines, enforcement, and technology requirements. This includes Licence Plate Recognition Software (LPRS) and Administrative Monetary Penalties System (AMPS).

$50,000 to implement a full program $75,000 annual cost for new Transportation employee $70,000 annual cost for Enforcement officer LPRS and AMPS to be costed



Monitor Regularly monitor the parking demand and prices and propose adjustments as appropriate. Monitor the performance of the recommendations of the Parking Master Plan and update as needed. Report back to Council with the results of the pilot project for a residential parking permit.

Section 9 Page 42

Minimal On-going

parking master plan€¦ · 1.2 project scope ... present the study’s preliminary findings and...

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