HomeMy WebLinkAboutResolution 10-58 09/20/2010RESOLUTION NO. 10-58
A RESOLUTION OF THE COMMON COUNCIL OF THE CITY OF SPRINGFIELD
ADOPTING THE SPRINGFIELD DOWNTOWN PARKING MANAGEMENT PLAN.
WHEREAS, the City Council initiated a Downtown District planning project on
July 7, 2008 to address the key roles of urban design, parking management and a strategic
implementation plan in successful downtown revitalization; and
WHEREAS, the City and its urban renewal agency commissioned Rick Williams
Consulting to prepare a parking management plan for Downtown Springfield; and
WHEREAS, the Downtown Parking Management Plan completes Task lA of the
Downtown District Plan project; and
WHEREAS, the Downtown Parking Management Plan is a work product of a 13-
month Downtown planning Citizen Involvement process conducted by Development
Services staff; and
WHEREAS, the City Council appointed a Downtown Urban Renewal Advisory
Committee (DURAC) to make recommendations for revitalizing Springfield's
Downtown District; and
WHEREAS, DURAC was appointed by the Committee for Citizen Involvement
to serve as the Citizen Advisory Committee (CAC) for the Downtown District Plan
project and the CAC designated a Parking Advisory Subcommittee; and
WHEREAS, the Parking Advisory Subcommittee met 8 times with the consultant
team from July 2009 - Apri12010 to discuss parking principles, issues, and
recommendations and the Downtown Parking Management Plan is the work product of
this process; and
WHEREAS, the Parking Advisory Subcommittee forwarded their recommended
Downtown Parking Management Plan to the City Council at a work session on June 28,
2010; and
WHEREAS, adoption and implementation of the plan will support Downtown's
further development as a viable mixed use City center district by managing the public
parking supply to ensure sufficient and on-street parking for customers of Downtown
businesses and accommodate the needs of all users; and
WHEREAS, adoption and implementation of the plan intended to establish the
City's expectations and support for Downtown's further development as a viable mixed
use district, consistent with Downtown Refinement Plan policies and the Downtown
Urban Renewal Plan; and
WHEREAS, the Springfield Commercial and Industrial Buildable Lands Study
(GIBE) Buildable Lands Inventory, Economic Opportunities Analysis and Economic
Development Objectives and Implementation Strategies adopted by the City Council on
January 19, 2010 identify downtown redevelopment as a key strategy for accommodating
future growth; and
WHEREAS, the Springfield Downtown District is designated for Mixed Use
Nodal Development in the Eugene-Springfield Metropolitan Plan; and
WHEREAS, parking management strategies are identified in the Eugene-
Springfield Transportation System Plan as an important part of an integrated set of
implementation actions that support nodal development, system improvements, and
demand management; and
WHEREAS, adoption of this resolution does not include amendment to
any comprehensive plan policies, land use designations or zoning regulations; and
WHEREAS, future amendments to the Downtown Refinement Plan and/or
Springfield Development Code and/or Springfield Municipal Code will be required to
implement the recommendations of the plan and the City Council directed staff to initiate
preparation of amendments to the Downtown Refinement Plan and/or Springfield
Development Code and/or Springfield Municipal Code to implement the plans.
NOW THEREFORE BE IT RESOLVED, that the Common Council of the
City of Springfield hereby declares its intention as follows:
Section 1: The Common Council of the City of Springfield adopts the
Springfield Downtown Parking Management Plan (Case No. LRP 2009-00008), and
attached hereto as Exhibit "A."
ADOPTED by the Common Counci nd ap
Springfield, Oregon, this 20th day of Septe er, 201
against (1 Absent -Lundberg)
ved by the Mayor.of the City of
-y a vote~of 4 fQr and 0
l.9"
Mayor
ATTEST:
EV6EE® AP~ROVE~
~T® o=o~~l
®ATE: 1 ~ t
OFFICE OF CITY ATTORNEY
RESOLUTION N0. 10-58
EXHIBIT A
Final Report
SPRINGFIELD DOWNTOWN URBAN DESIGN PLAN -
PARKING MANAGEMENT
Prepared for
City of Springfield, Oregon
Submitted by:
Rick Williams Consulting
610 SW Alder Street, Suite 610
Portland, Oregon 97205
July 2010
1
Acknowledgements
Downtown Parking Advisory Subcommittee
Karen Hageman Downtown Business Owner
Lisa Sprague Downtown Business Owner
Bill Ruff
Tess Chedsey Downtown Property Owner
~ Downtown Citizen Advisory Committee
James Yarnall Downtown Citizen Advisory Committee
Shannon Mudge Downtown Citizen Advisory Committee
John Tamulonis City Manager's Office- Economic Development & Urban Renewal Agency
Tom Draggoo Springfield Renaissance Development Corporation
Stefano Viggiano Lane Transit District
Mary Archer Lane Transit District
. Steve Moe Planning Commission
Rob Everett Springfield Library Director
Kevin Ko Springfield DSD Community Development
Brian Barnett Springfield PW Traffic Engineer
David Reesor Springfield PW Transportation Planner
Jim Donovan Springfield DSD Urban Planning Supervisor
Mike Harman Springfield Police Department
Jim Polston Springfield PW Facilities Maintenance Manager '
Project Coordinators (City of Springfield)
Linda Pauly Planning Supervisor, Community Planning & Revitalization
Bill Grile Development Services Director
Greg Mott Planning Manager
Susie Smith Public Works Director
Tom Boyatt Public Works Transportation and Engineering Manager
Consultant Team '
Rick Williams Rick Williams Consulting ~ .
Owen Ronchelli Rick Williams Consultin s
g
Table of Contents
Executive Summary .... ... i
Introduction ................:...............................................................................................................:.............. ..1
Section I: Stakeholder Priorities: Opportunities and Challenges ...................................................... .. 5
Section II: Guiding Themes and Principles ...........................................:....:........................................ 15
Section III: Parking Inventory and Utilization Analysis ........................................................................ 25
Section IV: Parking Demand Analysis .......................:................................:......................................:.. 43
Section V: On-Street Parking'Add-Backs' ........................................................................................... 47
Section VI: Parking Management Plan -Operating Principals .............................................................. 51
Section VII: Parking Management Plan -Strategy Recommendations ................................................. 59
Section VIII: .Summary :................ ................ 88
APPENDICES
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Executive Summary '
Springfield Downtown Urban Design Plan -Parking Management
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Executive Summary
Purpose of the Parking Study: to develop and implement a comprehensive, effective and workable
parking management plan for Downtown Springfield. The parking management plan will maximize
the parking supply and strategically support the development of a vibrant, growing and attractive
destination for shopping, working, living, recreating and entertainment.
A: ISSUES THAT LED TO PARKING STUDY
The City and downtown stakeholders are committed to a more vibrant and friendly downtown for
Springfield. The City recognizes the importance of serving existing downtown businesses and attracting
new and denser mixed uses. Success in this area will result in increasing demands for parking in the
downtown districts, which will lead to conflicts for access between customers and employees. If the
City is to be successful in attracting more diverse business users (that include retail, office and
residential) a strategic and innovative parking management strategy is essential. Currently, the
downtown has many different users each with their own parking demands. Several challenges are in
place that will need to be understood and solutions developed to address them. According to
downtown stakeholders participating in the study, key challenges include:
/ The downtown parking system is not yet formatted in a woy that best serves the area.
The issue of how parking is provided in Springfield to meet economic goals and objectives is critical
to the success of a parking management plan. Issues of who the priority "customer " is and how to
accommodate other, secondary priorities will be a key to establishing a balanced and workable plan
for the business district.
/ The system is not easy to use, particularly for newcomers to the district.
The current parking format is difficult to use and understand. This can have an adverse impact
on district business viability. Compounding this is the sense that directional and information systems
for patrons are inadequate. The need for aggressive and sustained marketing and communications
will be as important as specific parking management strategies.
/ While starting with a good foundation, Springfield needs to attract a more diverse mix of "business"
that includes retail, office and residential.
The parking plan needs to be structured to assure that (a) existing businesses benefit and (b) new
businesses are attracted to Springfield because access systems are effective and business
supportive. The parking plan should be complimentary of the visioning work now underway by the
City.
B. PARKING STUDY REVIEW PROCESS
To find a solution to the downtown parking issues, the City employed Rick Williams Consulting to
facilitate a study of downtown parking and provide recommendations to address the various needs and
competing uses.
Executive Summary
Page ii
To assist with this study, a stakeholder committee was formed in July 2009. The Committee met eight
times from July 2009 to April 2010 to discuss parking principles, issues, and recommendations. A
comprehensive parking data inventory and capacity demand analysis was conducted in September 2009
and served as a foundation piece for understanding downtown parking dynamics and strategy
development.
Rick Williams Consulting, working with the Stakeholder Committee, has developed a parking
management study and plan complete with recommendations to the City. The City is in the process of
discussing the recommendations both internally and with the community to determine how best to
implement the recommendations and address existing issues.
C. GENERAL STUDY FINDINGS
• The current parking system is not easy to use.
• The current parking system is not yet
formatted in a way that best serves the area.
• The unique uses in the downtown can both
complement its vision and compete with its
vision.
• The parking plan needs to be structured to
assure that (a) existing businesses benefit and
(b) new businesses are attracted to
Springfield.
• Conflicts currently exist between employees
and customers for on-street parking.
• Better integration between the parking supply and other modes of access (i.e.,
transit/bike/walk) is needed.
• Springfield needs to work on its front door "curb appeal" and perceptions of downtown.
Downtown District Findings:
• There are 1,819 parking stalls (on and off-street) in the Downtown District, of which 647 are on-
street. Of the remaining off-street parking (1,172 stalls), 889 stalls are in private ownership (on
47 sites) and 283 are in public ownership (on 12 sites).
• These on-street stalls are regulated by 7 different parking types, ranging from 10 minutes to no
limit.
• A high percentage of on-street stalls in the downtown (40.5% or 264 stalls) allow unlimited
parking. This is a very high percentage for a downtown desiring a high activity, street level
retail environment.
Downtown Usage by Stall Type:
• Peak on-street occupancy reaches 49.8% between noon and 1:00 p.m. 317 on-street stalls are
occupied leaving 330 empty stalls available within the downtown.
Rick Williams Consulting
Parking ~ Transportation Demand Management
Executive Summary
Page iii
• The average time stay for all on-street parkers is 3 hours and 29 minutes.
• Parking is readily available on-street throughout the day, with some pockets of high occupancy
on specific block faces (though those block faces are generally adjacent to blocks with available
parking).
• 1,031 unique license plate numbers were recorded parking in the on-street system between the
hours of 9:00 a.m. and 6:00 p.m. Over the course of an average day, this would translate to
approximately 115 vehicles arriving each hour.
• The downtown on-street parking system has an average turnover rate of 2.87 turns per stall
extrapolated to a 10 hour period. A rate of less than 5.00 indicates that the Springfield system is
operating sluggishly and is not turning over in a manner that would be considered supportive of
vital street level activity.
Downtown Subzone : "Node of Highest Occupancy"
The study also identified a "node of highest occupancy" as a means to identify the area of downtown
with the greatest parking activity.
• The "node of highest occupancy" has 296 on-street stalls or about 48% of the total on-street
supply.
• 69.8% of these 296 on-street stalls are occupied at the peak hour.
• The turnover time ofthe on-street supply in the node of highest occupancy is 3.0, which is
below the desired rate of 5.0.
• Off-street parking in this node reaches 62.8% in the peak hour.
• As with the larger study zone, the node of highest occupancy maintains a substantial supply of
unused and available parking.
D. GUIDING THEMES DEVELOPED BY STAKEHOLDERS
1. Access
- Correlate parking requirements more directly to mixed-use development vision for
downtown.
- Strategically locate and actively manage parking under public control and/or ownership to
accommodate customer and employee access to the area.
- Parking should be just one of a diverse mix of access options available to users of the
downtown.
Springfield Downtown Urban Design Plan -Parking Management
Executive Summary
Page iv
2. Priority Customer
- Make the downtown conveniently accessible for the priority user of the public parking
system -the patron of downtown.
- Reserve the most convenient parking spaces to support customer, client, and vendor and
visitor access to downtown.
3. Priority Parking (On-Street)
- Recognize that on-street parking is a finite resource and should be managed to assure
maximum access for the priority customer.
4. Employee Parking &Off-Street City Owned Supply
- Provide sufficient and affordable parking to meet
downtown employee demand, in conjunction with an
access system that provides balanced and reasonable
travel mode options.
- If parking in City owned supply exceeds the 85
percent full standard, employee parking should be
transitioned and/or phased out to assure priority
customer parking is accommodated.
5. Understandability & Quality
- Make downtown parking user-friendly - easy to
access, easy to understand.
- Provide a "parking product" in the downtown that is of the highest quality to create a safe
and positive customer experience with parking and the downtown.
- The City's public information system should provide a clear and consistent message about
auto parking and access to and within downtown in order to optimize utility and
convenience for all users.
- Provide safe, secure and well-lit parking to allow a sense of security at all times on street
and off-street.
6. Multi-Modal Access
- Transition more downtown employees into alternative modes (i.e., transit, bike, walk,.
rideshare) through business-based programs and incentives.
- Calibrate parking standards to support the City's goals for transit, biking, walking and
ridesharing.
Rick Williams Consulting
Parking ~ Transportation Demand Management
Executive Summary
Page v
7. Coordination
- Centralize management of the public parking supply and assure a representative body of
affected private and public constituents from within the downtown informs decision-
making.
- Provide clear and strategic direction to new development in downtown to assure that new
growth improves the overall system of access.
- Implement measurements and reporting that assures Guiding Principles are supported and
achieved.
- Manage the public parking supply using the "85% Rule" to inform and guide decision-
making.
- Encourage and create incentives for shared parking in areas where parking is underutilized.
E. RECOMMENDATIONS TOIMPROVE DOWNTOWN'S PARKING ENVIRONMENT & ECONOMIC
SUCCESS
• Create the position of "Parking Manager/Coordinator.
• Create a permanent Parking Advisory Committee.
• Establish three "Parking Management Zones" based on usage and desired economic
development.
• Establish a Downtown Parking and Transportation Fund as a mechanism to direct funds derived
from parking into a dedicated fund.
• Add parking to the on-street system in the downtown in areas currently designated as no
parking areas. This parking will be provided as either 2-hour parking or"2-hour or by permit"
(based on location and proximity to downtown core). This would translate to as many as 71
total new stalls.
• Reduce and/or eliminate all 30 minute and No-limit parking stalls in Zone A and convert all stalls
to 2-hour parking. Requests for any other type of stalls in the future would be coordinated
through an exception process.
• Develop an on-street employee parking permit program (i.e., paid permits) that would allow
limited use of 2 hour stalls for on street all day parking in Zone B.
• Reduce and/or eliminate all 10 minute, 15 minute, 30 minute, 1-hour and No-limit parking stalls
in Zone B and convert all stalls to 2-hour parking "or by permit." Requests for any other type of
stalls in this Zone would be coordinated through an exception process.
• Re-stripe all on-street parking in Zones A & B to better identify parking availability and location.
Springfield Downtown Urban Design Plan -Parking Management
Executive Summary
Page vi
• Initiate parking enforcement activities in Zone A to assure existing time zones are honored and
system utilization/turnover is operating as intended.
• Re-evaluate and reformat stalls in publicly owned off-street lots to balance employee use and
short-term access. Explore employee parking permit pricing based on 85% standard.
• Initiate a new and comprehensive outreach program to all businesses within the study zone that
communicates the parameters of the new Parking Management Plan.
• Develop a Residential Parking Permit Zone (RPPZ)
policy and program for adoption by the City Council
for future implementation in residential areas
affected by spillover from commercial parking (i.e.,
Zone C).
• Negotiate shared use and/or lease agreements with
owners of strategically placed existing private surface
lots in Zones A & B to provide for an interim supply of
parking where needed. Begin focus on Blocks 15, 18,
26, 37, 32 & 41 as identified in the 2009 - 2010
Parking Study.
• Develop and install a signage package of uniform
design, logo and color at public and private (shared
use) off-street parking facilities.
• Strategically place new and coordinated way finding signage in the right-of-way at locations
chosen carefully to direct visitors to off-street locations.
• Partner with the business community to develop/refine a marketing and communication system
for access in Springfield. The marketing/communication system could include (but not be limited
to): branding; maps and Transportation Demand Management (TDM) alternatives.
• Evaluate and develop a minimum parking ratios policy for new development in the downtown,
to assure that access impacts of new development are (a) meaningfully addressed, (b)
correlated to actual parking demand and (c) provide potential for generating a revenue source
for future parking through a parking fee-in-lieu option.
• Evaluate and develop restrictions on new surface parking lot development within Zones A & B.
• Evaluate and develop afee-in-lieu option for new parking development in the downtown.
• Develop a recommended package of incentives for the private development of publicly available
parking.
• Lease/acquire strategically located land parcel(s) for use as future public off-street parking in the
downtown.
Rick Williams Consulting
Parking ~ Transportation Demand Management
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• Executive Summary
Page vii
• Sponsor employer-based initiatives to encourage employee use of alternate travel modes.
• Establish commuter mode split targets for employee access in the downtown.
• Monitor downtown parking utilization continuously and periodically. Conduct parking
inventory analyses.
• Evaluate the impact of near and mid-term strategies based on an updated utilization and
demand study. If and when warranted, develop a pricing policy strategy and implement paid on
street parking in downtown districts based on the 85% Rule.
• Complete development and open new public supply in the downtown.
f._ CONCLUSION
Sufficient supplies of parking exist in the downtown area to accommodate today's use and near term
growth of the downtown. A significant quantity of the parking supply is in private ownership. To
provide for the downtown's further development as a viable commercial district, on-street parking must
be managed to insure the priority customer's demand for parking is met. Additionally, given the multi
uses envisioned for the downtown core, parking must be managed to insure the needs of all users can
be accommodated.
Parking is a resource to all users of the system. All users must share the cost of managing, maintaining
and growing the parking resource. This will be accomplished, through implementation of the strategies
outlined and recommended in the parking plan. Key to the implementation strategy is recognition of (a)
the role the City will need to play to assure that the urban form envisioned for the downtown is
attained, (b) the need to maximize use of existing surpluses of parking to create constraints necessary to
establish a market for pricing parking, (c) the need to control/limit surface lot development, (d) actively
managing the on-street system to support customer/patron access to support street level businesses
and (e) transitioning employees to off-street facilities and alternative modes of transportation.
Springfield Downtown Urban Design, Plan -Parking Management
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Introduction
Springfield Downtown Urban Design Plan -Parking Management
Introduction
This report has been produced to fulfill requirements of the work scope for the Downtown Springfield
Parking Study. The study process and its ensuing recommendations were initiated by the City of
Springfield, Oregon in association with a Parking Advisory Committee (PAC) comprised of
representatives of retail and commercial businesses, the development community, citizens and City
staff. The purpose of the study has been to evaluate existing downtown parking policies, standards and
actual usage as well as to develop a comprehensive parking management plan that responds to the
unique access environment, goals and objectives of Downtown Springfield. The parking management
plan and the process to develop it are compiled and summarized in this report.
The firm of Rick Williams Consulting (RWC) assisted the City and the PAC in conducting the study and
compiling findings and recommendations.
A. THE ROLE OF PARKING IN DOWNTOWN
The role of parking in downtown cannot be seen as a stand-alone solution in and of itself. The key to a
successful downtown is truly the land uses that comprise it. A vital downtown is an area that has a clear
sense of place and identity, comprised of an exciting and attractive mix of uses and amenities. In a
nutshell, "people do not come downtown to park." People come downtown to experience an
environment that is unique, active and diverse. As such, the true role of parking is to assure that the
desired vision for downtown is fully supported.
1 Parking is just one tool in a downtown's economic development toolbox. Parking must be managed to
assure that priority land uses are supported with an effective and efficient system of access that caters
to the needs of priority users. In the case of Springfield, the priority user for the City owned system of
parking has been identified as the short-term trip, the person who shops, visits or recreates. As the
Parking Advisory Committee concluded, the objective of parking management in downtown should be
to implement a plan that:
"...that is innovative and flexible to meet the changing demands of an evolving downtown.
The plan should] stress the need for an affordable, safe and secure parking system. The
parking program should contribute to the overall viability of Springfield and its goals and
vision. At root, a successful parking system is convenient and user friendly."
B. STUDY PURPOSE
The purpose of this study is to develop a workable parking and transportation management plan for the
Downtown. The plan has been developed to be specific enough to address known parking and access
constraints with immediate to near-term improvements. This will assure on-going improvements in
access opportunities for patrons, employees and residents of the downtown. The plan is also flexible
enough to provide the City with mid and long-term solutions (and decision-making guidelines and
triggers) to assure that parking management strategies and programs are implemented in a manner that
best serves the unique and changing nature of the downtown business environment.
Key elements of the study work scope called for development of a parking management plan that is:
Introduction
Page ~
Correlated to a clear vision for downtown's economic development (see Section I: Stakeholder
Priorities);
• Grounded in a set of principles that provide a lasting framework for decision-making (see Section II:
Guiding Themes and Principles;
• Based on an accurate and objective understanding of the dynamics of downtown access (see
Section III: Parking Inventory and Utilization and Section IV: Parking Demand Analysis for results of
the comprehensive data survey of the downtown); and
• Comprised of both near-term and on-going strategies for parking and transportation management
that allows for flexibility and effective responses to the evolving access needs of the downtown (see
Section V: On-street Parking'Add Backs', Section VI: Parking Management Plan -Operating
Principles and Section VII: Parking Management Plan - Strategies for Implementation).
• A review of existing parking standards and guidelines with recommendations for possible revisions
to these standards that better support the downtown development vision (see Supplemental
Technical Memorandum: Overview of City of Springfield Development Code).
This report documents the process and results of an extensive study effort carried out in partnership
with the City of Springfield and the Parking Advisory Committee. The plan contained within this report
will provide the City with the information necessary to adopt and implement a comprehensive strategic
access management plan. This will equip the City with a useful and strategically coordinated "tool box"
of strategies that will assure priority users are accommodated and priority land uses are fully supported.
C. PUBLIC INVOLVEMENT
The consultant team participated with the City in a comprehensive
education and involvement process that engaged key stakeholders,
City staff and leadership. The primary objective was to identify key
issues regarding parking, transportation and access in the downtown
and their impact on the continuing economic vitality of the
downtown. From this dialogue, functional alternatives and strategies
were deve{oped to improve identified deficiencies or shortcomings
and initiate a framework plan for the on-going management of, and
planning for, access in the downtown.
The work leading up to completion of this study was conducted in
concert with a Parking Advisory Committee (PAC). The PAC was
established to provide oversight, guidance and review of the study
process. Key stakeholders included local business owners, downtown
property owners and developers, City staff and residents. These
individuals provided significant assistance in the identification,
description, and prioritization of issues to be addressed. They were
further instrumental in the development of strategies and plans necessary for implementation of the
parking management plan that is a component of this document. The PAC met eight times since
initiation of the study in July 2009.
Overall, the high level of informed input and participation of stakeholders, City staff and City leadership
reflects adeep-seated dedication and commitment to a vital and livable Downtown Springfield.
Rick Williams Consulting
Parking & Transportation Demand Management
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Introduction
Page 3
D. SUMMARY
Springfield has taken a positive first step toward taking control of its parking supply in a manner that is
strategic and well aligned with its planning goals for redevelopment and growth of the downtown. What .
has been lacking is a clear, flexible and consensus based blueprint for using parking management to
support and facilitate the longer-term strategic vision. This plan provides that blueprint. It will serve as
a guide to maximizing the City's existing parking resources and as a means to assure cost effective
solutions for access, which includes new parking supply and transportation demand management
programs and strategies.
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Springfield Downtown Urban Design Plan -Parking Management
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Section I: Stakeholder Priorities - Opportunities and Challenges
Springfield Downtown Urban Design Plan -Parking Management
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Stakeholder Priorities: Opportunities and Challenges
The purpose of this section is to capture stakeholder discussion about the parking plan, community
priorities about downtown development and parking and to serve as a foundation document for
developing the policies, programs and strategies for parking management that are recommended in this
plan.
A.. OUTCOMES, OPPORTUNITIES AND CHALLENGES
To develop a parking and access plan for the downtown, it is first necessary to understand the dynamics
of land use, access and growth that are unique to Springfield. Community perceptions and realities
regarding constraints that limit existing businesses from expanding and those that limit downtown's
ability to attract new business and residential growth to the area need to be fully considered. Similarly,
opportunities and successful programs/strategies that currently contribute to area's health need to be
understood in order to ensure they are supported and enhanced by any new parking and. access
strategies developed.
To this end, eight work sessions with the PAC were held to establish a consensus view. of these
challenges and opportunities.
1. Desired Outcomes
Committee members were asked to take a moment and state what they would like to see as an
outcome of this process. For example, if a new parking management program were developed, what
beneficial outcomes would be derived? A bulleted list of those desired outcomes are provided below.
It is the intent of the Consultant Team to deliver a management plan and implementation strategy that
can best meet these outcomes.
• Create a realistic roadmap for improvement and change.
• Convenient parking that is easy to find, use and understand.
• Make parking more predictable.
• A parking plan that is well thought out and can be communicated effectively to multiple
stakeholders.
• A plan that provides the City with credible information about the realities of parking in Springfield
that separates the myths from reality, which helps the community understand changes that.will
result from the plan.
• A parking system that serves and attracts customers.
• Parking should contribute to a positive image of the downtown.
• Parking that is well located to support the downtown vision and managed to be "always available."
• A parking system that is safe and secure.
• A parking system that has well designed facilities. Garages should be required to have ground level
active use.
• Parking provided by the public should be able to cover its costs for operation, maintenance and
security.
• Rates and fees (if necessary) that are easy to understand, affordable, cost effective.and supportive
of businesses.
Section l: Stakeholder Priorities -Opportunities and Challenges
Page 6
• Revenues or fees from parking in the downtown should go back to the downtown (e.g., parking
enterprise fund).
• The parking management plan should provide strategies that are "timely," assuring implementation
that matches need, convenience and funding (a phased plan).
• Facilitate good decision making and cost effectiveness.
• Parking information that is well communicated (e.g., integrated roadway directional signage).
• The plan should produce the best mix of parking to strategically serve all.types of users (i.e.,
employees, visitors and residents.
• Minimize conflicts for parking space between different users.
• Assure that the on-street parking supply has the correct format of time stay designations for priority
users.
• The plan should result in an on-street turnover rate that is good for downtown and adjacent uses..
• The parking system supports and attracts more retail to-the downtown. '
• A system that is coordinated and timed to new development.
It was clear from the listing of desired outcomes that Committee members feel the current system of
parking management may, at this time, lack the integration and consistency necessary to achieve the
larger vision of a growing, vibrant and "friendly" business district. Similarly, the theme of the need to
better "understand" parking runs through many of the stated outcomes as does the need to
communicate a "system" of parking that results in a parking strategy that supports more retail and
visitor activity in the downtown. The strategy itself will need to be timed to new development growth.
In short, to get to the desired outcome of a usable and friendly parking system, requires more clarity
and coherency in how parking is, and will be, managed.
2. Opportunities -Consensus Themes
PAC members discussed programs, strategies or elements that are currently in place and "working for
Springfield" by contributing to its success and supporting its unique business and economic growth:
Opportunities expressed ranged from Springfield's unique business environment to its strong sense of
community and small town feel. As one stakeholder explained, "Springfield has the atmosphere of a real
downtown; we need to build on that." The parking management program being developed should
strive to leverage these positive opportunities.
Three opportunity themes were clearly distinguished. They are briefly detailed here, with clarifying
bullet points taken from the Committee discussion following each theme:1
/ _While parking is on issue, Springfield has o solid foundation to build upon. PAC members felt that
there are positive aspects of the current parking system and the downtown area that will strengthen
and be compatible with a more refined parking management program. .
• The downtown is pleasant and walkable..
• Small town feel -areal downtown; an authentic downtown.
• The river and downtown's historic legacy.
• Unique architecture (40 historic buildings).
• .Unique retail that is not "big box."
1 The themes are not listed in any rank order.. Each theme has an important impact on Springfield's ability to achieve its
strategic vision and should be considered equally in the context of multiple challenges.
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Parking. & Transportation Demand Management
Section !: Stakeholder Priorities -Opportunities and Challenges
• A small town with potential.
• Lane Transit (LTD) is right in the downtown.
• A good base of jobs, where businesses can co-locate next to government services.
/ A sense that the neor term parking supply maybe adequate, lust
inefficiently managed.
Though all Committee members agreed that parking (and new
parking supply) is a key issue for the future, in the near
term simple "fixes" can be made to reap immediate benefits to
the downtown.
Directional signage could quickly guide people where we
want them to go.
Enforcement could create immediate changes within the
parking supply.
There are lots of opportunities to "add back" parking in areas
that appear to unnecessary limit parking (e.g., many on-
street locations).
Page 7
/ A positive sense about downtown Springfield's potential. The PAC noted that the work being
undertaken by Crandall Arambula, the parking study and other "small steps in the right direction"
create a sense that success, growth and vitality are possible for the downtown. These efforts can
establish a foundation for growth, investment and revitalization. As one committee member noted,
for many in the downtown "there is a passion for the downtown and a true sense of community"
that is based on a core belief in Springfield's potential.
• A unique mix of "business" that can attract customer trips (i.e., museum, the Wildish, two high
schools, antique stores, a Farmers Market and the Library-to name a few).
• Abase of commercial and government jobs.
• Downtown has a wonderful human scale.
• With a few improvements, downtown could be very walkable.
• Downtown is quirky, friendly and historic.
• Downtown has unique qualities that include the river, murals, history and architecture.
Overall, programs and strategies that continue to support and enhance the opportunity themes
developed by the Committee can serve as a framework through which the consensus challenges are
best addressed.
3. Challenges to Access -Consensus Themes
Committee members discussed their insights into the major challenges (parking and development)
facing downtown Springfield today. They were asked to consider these challenges as they influence
Springfield's ability to remain vital and to attract and retain business.
Challenges ranged from general perceptions of parking to actual physical infrastructure that limits
access and creates negative perceptions. For purposes of this report, the stated challenges have been
Springfield Downtown Urban Design Plan -Parking Management
Section l: Stakeholder Priorities -Opportunities and Challenges
Page 8
condensed into four "consensus themes." These themes are presented below, with clarifying bullet
points taken from the SAC discussion following each theme.
/ Springfield needs to work on its front door "curb appeal" and perceptions of downtown. There is a
sense that the downtown area is a hidden gem, limited because of issues related to image and
access barriers exacerbated by high through traffic volumes. Though not specifically a parking
problem, the issue of helping visitors find the downtown easily and conveniently will be essential to
support the attractiveness of new business (and downtown residential) growth.
• Through traffic and high speeds are very negative.
• Deteriorating infrastructure (buildings, roadways).
• Downtown is too noisy from truck traffic and vehicle speeds.
• The 300 and 400 blocks have real safety and security problems (high arrests).
• North A has safety problems as well.
• There is a perception that there is a lack of business diversity.
• There is an overall negative perception of public safety in downtown.
• Poor street lighting.
/ The parking system is not yet formatted in a way that best serves the area. The issue of how parking
is provided in Springfield to meet economic goals and objectives is critical to the success of a parking
management plan. Issues of who the priority "customer " is and how to accommodate other,
secondary priorities will be a key to establishing a balanced and workable plan for the business
district.
• Employees/owners parking in front of their businesses all day on street.
• High mix of all day parking on-street.
• Conflicts in the parking supply between customer and employee demand.
• The format of off-street facilities needs work to assure that employees and customers are
parked where we want them and where it best serves
downtown.
• There is "unused parking" throughout the downtown. This is
not efficient.
/ The system is not easy to use, particularly for newcomers to the
district. Several Committee members noted the current parking
format is difficult to use and understand. This can have an
adverse impact on district business viability. Compounding this is
the sense that directional and information systems for patrons
are inadequate. The need for aggressive and sustained marketing
and communications will be important.
• Access is not intuitive to "outsiders."
• Poor informational signage.
• Parking in the district is hard to understand (i.e., signage,
directional systems, location of supply, etc.).
Rick Williams Consulting
Parking ~ Transportation Demand Management
Section l: Stakeholder Priorities -Opportunities and Challenges
Page 9
/ While starting with a good foundation, Springfield needs to attract a more diverse mix of "business"
that includes retail, office and residential. The parking plan needs to be structured to assure that (a)
existing businesses benefit and (b) new businesses are attracted to Springfield because access
systems are effective and business supportive.
• Need better eating establishments and bars/pubs.
• Need evening activities/businesses that keep and attract people downtown after regular
business hours.
• Need "fixed budget" stores and gerontology uses.
• Improve the mix of all businesses.
• Need for housing downtown.
• Need bicycle and walking options and infrastructure as well as good parking.
• Downtown needs a marketing strategy and implementation of that strategy.
B. BECOMING AN "IDEAL DOWNTOWN"
As a precursor to a future discussion for developing Guiding Principles for parking, the PAC was led
through a discussion on the elements or building blocks that make up "ideal" downtowns. Committee
members were asked to list elements that make up their perception of a memorable or ideal downtown,
in Oregon and generally. The PAC members were also asked to mention cities they had been to that
contained elements that uniquely distinguished a downtown area as interesting, user friendly, successful
or "ideal."
Cities mentioned are included in Table 1.
Table 1
Ideal Downtowns
• Austin, TX
• Ashland, OR
• Bend, OR
• Boston, MA
• Boulder, CO
• Copenhagen, Denmark
• Corvallis, OR
• Glendale, AZ
• Hillsboro, OR
• Hood River, OR
• Los Gatos, CA
• Salem, OR
• San Antonio, TX
• San Francisco, CA
• Santa Fe, NM
• Sisters, OR
• Vancouver, BC
After creating a list of cities, the Committee developed a list of those elements they believed need to be
in place in "ideal cities," assuming that such elements are key ingredients to a downtown's success. This
list could serve as a verbal picture of what it takes to become "ideal." The PAC summarized twenty-one
(21) elements of an ideal downtown. These elements are summarized in Table 2, below and categorized
as they relate to land uses, visual quality/usability and access/parking.
Elements in bold are those that the PAC felt were strongly in place in the downtown. Those not in bold
are elements the PAC believes need attention, action and or improvement.
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Page 10
Table 2
Elements of Ideal Downtowns
Elements Related to Land Use Elements Related to Visual
Quality and Usability Elements Related to Access
and/or Parking
• Small retail • Parks • A variety of access options
~
° • Unique, locally owned, • Walkability that are easy to use
-
a~
independent businesses
• Friendl eo le
y p p (transit, bike, walk)
c
~
• History, architecture, old
• Connections to water • Convenient visitor parking
.Q buildings facilities
"'
• • Available parking
~ • Low cost /economical
`~
a parking
c
• A diversity of retail, small to • Identity /marketing -you • "Legible" wayfinding to
-a large remember the City parking
d
• Street level variety, stores
• "Legible" wayfinding to
• Busy but "calm" traffic
•Q and visual diversity downtown destinations . Safe or sense of security -
~n (architecture) . High volume of people using well lit at night
•_
~ • Hotels the downtown and visible
• Well designed parking
~ • Interesting windows / on sidewalks
~
°'
q ty
uali retail and window
ty -
• Safe or sense of securi
c shopping opportunities well lit at night
Z • Events and activities (mix of
day, night and weekend)
C. ACCESS PRIORITIES
1. Key Elements of a Successful Parking Program
PAC members were asked to list elements they would use to describe a successful arkin program that,
if in place in Springfield, would facilitate solving the transportation challenges and support/enhance the
priority opportunities described above. Stakeholder input is outlined below.
A successful parking program for Springfield would be...
• The parking program meets the needs of the downtown vision.
• Easy to find parking and a good "parking experience."
• Simple and intuitive - easy to use.
• Parking is well located, well-signed and understood.
• Safe, secure and pedestrian friendly.
• Is well coordinated with other access modes (i.e., transit, bike and bike parking, walk, etc.).
• Appropriate time stays.
• Financially sound and self supporting.
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Section 1: Stakeholder Priorities -Opportunities and Challenges
Page 11
It is clear that the stakeholders on the Committee would envision a parking program that is innovative
and flexible to meet the changing demands of an evolving downtown. They would also stress the need
for an affordable, safe and secure parking system. The parking program should contribute to the overall
viability of Springfield and its goals and vision. At root, a successful parking system is convenient and
user friendly. The charge of the consultant team and the Parking Advisory Committee will be to develop
a parking strategy that achieves and supports these elements to the highest degree possible. It is also
important that the parking plan support those other elements of downtown's "quality" and appeal as
described in Table 2 above.
2. Definition of "Priority Customer"
The Downtown Springfield parking system currently services a broad mix of "customers" that include
employees of the district, users of the City and County offices, students, residents, tourists and retail
patrons/visitors. Most significantly, stakeholders indicated that current use and management of the
downtown parking system may favor those with longer-term stay needs (e.g., employees).
In the future, increasing growth in business and residential
development will add to the existing demand on the parking supply.
As such, it is important to recognize that a balanced system of access
needs to be developed and managed to assure the overall vision of a
vital, active and mixed use business district is achieved.
On-street
While all customer groups are important to the downtown,
stakeholders indicate that the on-street system, in particular, needs
to be made available to the more traditional customer, shopper and
business visitor. As such, those with longer term parking needs
should be transitioned into off-street facilities. This would assure that
the on-street system supports existing retail and serves to attract new
business growth to the downtown in a manner that supports the
downtown vision.
The off-street system should recognize that a mix of customer groups will be using this supply, to meet
both long and short-term stay needs. Adequate parking should be provided by for employees (but
coordinated with alternative mode options) and patrons needing longer term stay opportunities. How
publicly owned facilities are managed will be critical to balancing the mix of short and long term stay
needs off-street, particularly as the capacity of on-street space for priority patrons will be filled and,
possibly, exceeded over time.
Priority Customer
To this end, the majority agreement of the committee was that the first priority "customers" of
Springfield for parking and parking management in public parking assets is the short-term vatron trio;
those who come repeatedly to shop, dine, recreate and be entertained (i.e., those who spend money).
Springfield Downtown Urban Design Plan -Parking Manogement
Off-street
Section 1: Stakeholder Priorities -Opportunities and Challenges
Page 12
The general profile of the patron is short-term stays that result in a high turnover of parking in the
district. The general profile of this type of visitor is short-term stays of less than two hours. These trips
are destined for a variety of downtown businesses and result in a high turnover of parking in the district.
The fact that the committee has prioritized the patron as the focal point of parking management is
not to downplay the importance of other users of downtown parkins resources. The committee has
simply defined a standard that allows reasoned decision making to occur when constraints in the supply
of parking occur. The committee recognizes that constraints and conflict for demand within the supply
will occur and that decisions and strategies will have to be implemented that guarantee access to the
priority customer, with additional options developed for all users.
3. "Is" Versus "Should"
The stakeholder committee discussed its access priorities for the Downtown. Stakeholders were asked
to consider a number of questions regarding the realities of access and use within the current
transportation system (i.e., the is of today). They were then asked to consider how the transportation
system should be accessed and used in the future within the context of the challenges/opportunities
discussed above, and incorporate their goals and objectives for developing a vibrant business district.
a. Priority Land Uses
When asked, "What is the priority land use(sJ in downtown Springfield today?"the committee
responded:
• Municipal government offices
• Retail
In the future, the committee agreed the priority for land uses should be "a more highly developed
mixed-use core" that incorporates vital retail at the ground level with commercial and/or residential
above. The downtown should also strive to provide more hospitality uses (e.g., hotels) and
entertainment opportunities. Downtown should strive for a more balanced mix of uses.
b. Priority Modes of Access
When asked to define the priority mode of access to downtown by both patrons and employees, the
committee responded as follows:
Patron Trips
Today, a patron's priority mode of access to downtown is by the single-occupant vehicle.
In the future, these trips should be in a greater mix of access options that include transit, bike, and walk
as well as car. The PAC stressed the need for convenient options that would be available to customers,
providing a mix of choices that would underscore the ease, attractiveness and convenience of the
downtown. Because the auto will remain a primary patron mode, the parking system needs to be
managed to assure that patron parking demand is accommodated.
Rick Williams Consulting
Parking & Transportation Demand Management
Section l: Stakeholder Priorities -Opportunities and Challenges
Employee Trips
Page 13
Today, an employee's priority mode of access to downtown is by the single-occupant vehicle.
In the future, an employee's primary mode of access should be through a ereater mix of access options
(i.e., transit, bike, walk), recognizing thot eoch employee auto trip to Springfield uses a parking spoce
that could be used by patrons of the area. Recognizing this dynamic increases the importance of
creating "convenient" and "reasonable" alternatives for employee trips.
Transit in particular should bring an increased percentage of total employee trips to the downtown over
time.
c. Priority Use of Parking
On-Street
When asked, "who is the on-street parking system currently prioritized for?"the committee felt that
existing on-street parking is overly committed to tong-term parking uses. Several stated that the system
"is really afirst-come-first-served" supply, which means those here first are typically employees.
As stated earlier, the committee felt that downtown on-street parking should be better managed to
prioritize the ap tron (short term trip) in all areas where short-term demand is most prevalent. In the
future, strong efforts should be made to assure that on-street parking is consistently available to patron
demand. Creative, innovative options should be created off-street for users that need long-term stay
opportunities.
Off-Street
When asked, who is the o -street parking system currently prioritized for?"the majority opinion was for
employees, even in some lots designated as visitor supply.
In the future, the committee felt that the off-street
parking system (public and private) should be
managed to accommodate a high mix of employees,
patrons/visitors needing a longer term stay option.
Within any off-street supply managed or owned by
the City, the majority view indicated that employees
should be managed into satellite areas and lots or
alternative modes if constraints jeopardize patron
visits in the core of downtown.
Role of City
When asked, "should the City have a role in supplying parking in future developments?" the committee
indicated that the City should be looking at (a) means to partner with existing private owners of parking
to "share" supply and (b) plan now for means and resources to provide future parking supply necessary
to support the downtown vision (particularly patron growth).
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In the near term, stakeholders felt there were significant opportunities to find parking within surpluses
in existing private lots and on-street. As such, the City's "role" would be in more rigorous management
of its own supply (i.e., on-street) and serving as a facilitator with the private sector for shared use
opportunities. Longer-term, stakeholders see a clear role for the City in the provision of new parking
supply if demand for parking begins to exceed current capacity.
d. Priorities forAlternative Modes of Access
The committee considered the role of alternative modes for users of the downtown
(compelled/uncompelled visitors and employees). When asked what the on-going role of
transit/bike/rideshare and walking was for customers and employees, the committee stated the
following:
• Transit, bicycling, ridesharing should become an "option that atp cons can choose" as a means of
accessing downtown.
• Transit, bicycling and ridesharing should become a "realistic and cost-effective option that o greater
percentage of employees will choose" as a means of accessing downtown.
• Alternative modes for employees should be strongly encouraged, as success in alternative modes
will lead to better efficiencies for the supply of patron parking.
D. SUMMARY
It was clear from the work of the Parking Advisory Committee that there is a strong majority view on the
challenges and opportunities that exist for Springfield's downtown and parking system. There is also a
clear sense that Springfield has the building blocks upon which to attract economic activity and
amenities that support vibrant and attractive business districts. There is strong support for the
downtown and meaningful optimism about Springfield's future success.
Most importantly, the committee was strong in its understanding of access priorities and unified in
support of developing programs and strategies necessary to make certain those access priorities are met
and desired economic uses are supported. In the area of parking, it is clear the priority of stakeholders
is to assure continued and growing accessibility for patrons to downtown while providing multiple
options for all users and customer groups.
Rick Williams Consulting
Parking ~ Transportation Demand Management
Guiding Themes and Principles
A. INTRODUCTION
As the result of discussions with the Parking Advisory Committee, the consultant team summarized the
many comments, ideas and themes that emerged from these meetings into a draft set of Guiding
Principles. The Guiding Principles are designed to guide and inform future decision-making on issues
related to access and parking management. Strategically, the principles encourage the use of parking
resources to support economic development goals and effectively serve the diversity of "customers"
using the downtown.
The Guiding Principles outlined here are summarized under theme categories and will serve as a
foundation for continuing discussions with stakeholders and the community. Ideally, these Guiding
Principles will establish a basis for consensus; giving direction to near and long-term decisions for
parking management and access strategies in the downtown.
B. BACKGROUND
The development of Guiding Principles for parking in downtown Springfield supports creation of a
parking system that facilitates and contributes to a vital and growing downtown. Guiding Principles are
based on the premise that development of the downtown will require an integrated and comprehensive
package of strategies to stimulate economic development and redevelopment. The ensuing parking plan
becomes but one critical element of a larger coordinated package for economic growth.
^ The consultant team believes the results of stakeholder input can be summarized into seven Guiding
Themes (listed below). Within the themes are nineteen (19) principles. The themes and principles are
followed by some of the important consensus challenges and/or desired outcomes addressed as
synthesized from direct stakeholder inputs in the PAC work sessions.
C. RECOMMENDED GUIDING THEMES AND PRINCIPLES
Statement of Purpose
It is the primary objective of the City of Springfield to implement a Parking Management Plan for the
downtown that supports the development of a vibrant, growing and attractive destination for shopping,
working, living, recreation and entertainment. The components of this plan need to be simple and
intuitive for the user, providing an understandable system that is safe, secure, affordable and well
integrated into other access modes (e.g., transit, bike, walk, etc.).
I. GUIDING THEME -ACCESS
a. Correlate parking requirements more directly to mixed-use development vision for
downtown.
Parking should not be oversupplied or required in a manner that conflicts with dense,
compact and mixed-use urban design. Parking should be provided to support desired and
priority economic activities in downtown.
Section 11: Guiding Themes and Principles
Page 16
Challenees and desired outcomes:
• Create a realistic roadmap for improvement and change.
• A plan that provides the City with credible information about the realities of parking in
Springfield.that separates the myths from .reality, which helps the community
. understand changes that will result from the plan..
• Minimize parking development costs in new developments.
• .Transit, bike/walk and alternative modes should result in less parking need over time.
b. .Strategically locate and actively manage parking under public control and/or ownership to
accommodate customer and employee access to the area.
The City should lead-in the development of access options for customers and visitors
(patrons) of the downtown and actively partner with the business community to intent
additional access and growth. The City should play a key role in deve{oping parking to
facilitate new growth and support attainment of land use goals envisioned for a compact
urban downtown. Public facilities should be strategically located to allow for consolidated
use by multiple properties.
The City should use also use its resources to promote alternative modes for commuter
access as well as creating incentives, partnerships and programs to attract private
investment in parking and desired development.
Challenges and desired outcomes:
• Minimize parking development costs in new developments.
• The plan should produce the best mix of parking to strategically serve all types of users
(i.e., visitors, employees and residents).
• The format of off-street facilities needs work to assure that employees and customers
are parked where we want them and where it best serves downtown.
• Transit, bike/walk and alternative modes should result in less parking need over time.
c. Parking should be just one of a diverse mix of access options available to users of the
downtown.
Stakeholders recognized that the parking management plan being developed and
implemented provides just one means of access to the downtown.. Over time, downtown's
economic growth will be better served if parking management is also integrated with
transit, bike, walk and rideshare options.
Challenges and' desired outcomes addressed:
• The parking system is not yet formatted in a way that best serves the area.
• Need to better integrate the parking supply with other modes of access.
• Need. bicycle and walking options and infrastructure as well as good parking.
• A parking plan that is well thought out and can be communicated effectively to multiple
stakeholders. `
• Facilitate good decision making and cost effectiveness.
Rick Williams Consulting
. Parking & Transportation Demand Management
Section 11: Guiding Themes and Principles
Page 17
Il. GUIDING THEME -PRIORITY CUSTOMER
a. Make the downtown conveniently accessible for the priority user of the public parking
system -the patron of downtown.
The first priority "customers" of Springfield for parking and parking management in public
parking assets is the short-term patron trio; those who come repeatedly to shop, dine,
recreate and be entertained (i.e., those who spend money). The general profile of the
patron is short-term stays that result in a high turnover of parking in the district.
Challenges and desired outcomes addressed:
• The parking system is not yet formatted in a way that best serves the area.
• Convenient parking that is easy to find, use and understand.
• A parking system that serves and attracts customers.
• The plan should produce the best mix of parking to strategically serve all types of users
(e.g., visitors, employees and residents).
• The parking system supports and attracts more retail to the downtown.
• Employees/owners parking in front of their businesses all day on street.
• High mix of all day parking on-street.
• Conflicts in the parking supply between customer and employee demand.
• Not enough turnover and/or appropriate time stays for parking in the district.
b. Reserve the most convenient parking spaces to support customer, client, and vendor and
visitor access to downtown.
The parking within supply owned by the
City must be formatted in a manner that
assures turnover and minimized conflicts
between the priority visitor (stays of 2
hours or less) and other users. As
demand grows over time, the City will
need to assure that management of the
system assures customer access to the
highest degree while balancing the need
for adequate employee parking and
alternative modes.
Challenges and desired outcomes addressed:
• The parking system is not yet formatted in a way that best serves the area.
• Convenient parking that is easy to find, use and understand.
• A parking system that serves and attracts customers.
• The parking system supports and attracts more retail to the downtown.
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Section ll: Guiding Themes and Principles
Page 18
III. GUIDING THEME -PRIORITY PARKING ON-STREET
a. Recognize that on-street parking is o finite resource and should be managed to assure
maximum access for the priority customer.
All users of the downtown favor on-street parking. The parking management plan
recognizes this premium on-street parking resource needs to be managed to provide a rate
of customer/patron turnover that supports downtown vitality. With this principle comes
the recognition that growth in downtown parking demand will, over the longer term, need
to be accommodated in off-street locations. Longer-term patron and employee parking
must be managed so as not to conflict with customer parking, particularly on-street.
Challenges and desired outcomes addressed:
• A parking system that serves and attracts customers.
• Parking should contribute to a positive image of the downtown.
• Conflicts in the parking supply between customer and employee demand.
• Not enough turnover and/or appropriate time stays for parking in the district.
• Minimize conflicts for parking space between different users.
• Assure that the on-street parking supply has the correct format of time stay
designations for priority users.
• The plan should result in an on-street turnover rate that is good for downtown and
adjacent uses.
• The parking system supports and attracts more retail to the downtown.
IV. GUIDING THEME -EMPLOYEE PARKING &OFF-STREET CITY-OWNED SUPPLY
a. Provide suff cient and affordable parking to meet downtown employee demand, in
conjunction with an access system that provides balanced and reasonable travel mode
options.
Adequate parking to meet employee demand should be provided in conjunction with a
transportation system that offers multiple travel options. Access management strategies
should result in larger percentages of employees using off-street parking locations and/or
alternative modes to reduce overall demand for commuter parking. Also, employee-parking
strategies should be coordinated with transportation demand management goals and
objectives to ensure that commuters have reasonable and affordable access options.
Private sector businesses should partner with the City to provide meaningful incentives to
employees to use transit, bike, walk and ridesharing options.
Challenges and desired outcomes addressed:
The format of off-street facilities needs work to assure that employees and customers
are parked where we want them and where it best serves downtown.
There is "unused parking" throughout the downtown. This is not efficient.
In the future, an employee's primary mode of access should be through a greater mix of
access options (e.g., transit, bike, walk, etc.).
Rick Williams Consulting
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Section ll: Guiding Themes and Principles
Page 19
Make parking more predictable.
The plan should produce the best mix of parking to strategically serve all types of users
(e.g., visitors, employees and residents).
Rates and fees (if necessary) that are easy to understand, affordable, cost effective and
supportive of businesses.
b. If parking in City owned supply exceeds the 85 percent full standard, employee parking
should be transitioned and/or phased out to ossure priority customer parking is
accommodoted.
How publicly owned facilities are managed will be critical to balancing the mix of short and
long term stay needs off-street, particularly as the capacity of on-street space for priority
patrons will be filled and, possibly, exceeded over time. To this end, the City will manage its
parking to accommodate visitors and customers, with any remaining capacity to be
managed for employees and long-term stays. In early phases of parking development, the
mix of parkers in City owned supply may be heavily weighted to employees. As demand for
parking increases, the off-street mix will likely trend to a higher percentage of patron/visitor
use.
Challenges and desired outcomes addressed:
• Access management strategies should
move larger numbers of employees into
alternative modes over time.
• Transit in particular should bring an
increased percentage of total employee
trips to the downtown over time.
• The off-street parking system should be
managed to accommodate a high mix of
employees, patrons/visitors needing a
longer term stay option.
• In the future, an employee's primary mode of access should be through a greater mix of
access options (i.e., transit, bike, walk) recognizing that each employee auto trip to
Springfield uses a parking space that could be used by patrons of the area.
• Within any off-street supply managed or owned by the City, employees should be
managed into satellite areas and lots or alternative modes if parking constraints conflict
with patron visits in the core of downtown.
V. GUIDING THEME -UNDERSTANDABILITYBc QUALITY
a. Make downtown parking user friendly - easy to access, easy to understand.
Parking resources should be clearly identified and explained through branding, signage,
wayfinding and user information. On-street parking should be simplified and of uniform
time stay (to the highest degree possible) and off-street facilities should be branded and
formatted to provide a clear and recognizable sense of how they should be used and who
they serve.
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Section ll: Guiding Themes and Principles
Page 20
Challenges and desired outcomes addressed:
• Easy to find parking and a good "parking experience."
• Make parking more predictable.
• The system is not easy to use, particularly for newcomers to the district
• Poor informational signage.
b. Provide a "parking product" in the downtown that is of the highest quality to create a safe
and positive customer experience with parking and the downtown.
On-street parking should be uniformly managed and enforced to assure parking is user-
friendly - "easy to access and easy to understand." Off-street facilities (surface and
structured) should be of uniform quality and identity to create a clear sense of safety,
convenience, understandability and coordination with the pedestrian environment. High
quality communication and marketing materials should be integrated into a comprehensive
package of services to inform and guide the parking public (through signage, branding
and/or wayfinding) into the on and off-street parking system.
Challenges and desired outcomes addressed:
• Easy to find parking and a good "parking experience."
• Make parking more predictable.
• The system is not easy to use, particularly for newcomers to the district.
• A parking plan that is well thought out and can be communicated effectively to multiple
stakeholders.
• Access is not intuitive to "outsiders"
• Poor informational signage.
• Parking in the district is hard to understand (i.e., signage, directional systems, location of
supply, etc.).
• Legible wayfinding to parking.
c. The City's public information system should provide a clear and consistent message about
auto parking and access to and within downtown in order to optimize utility and
convenience for oll users.
There should be a resource for information on parking and how it is managed and accessed
that is attainable by any prospective user of the downtown. This could be coordinated
through apublic/private partnership.
Challenges and desired outcomes addressed:
• Easy to find parking and a good "parking experience."
• Poor informational signage.
• Make parking more predictable.
• The system is not easy to use, particularly for newcomers to the district.
Rick Williams Consulting
Parking ~ Transportation Demand Management
Section 11: Guiding Themes and Principles
Page 21
d. Provide safe, secure and well-lit parking to allow a sense of security at all times on street
and off-street.
Each public off-street lot/garage shall be adequately maintained so as to not deter potential
users based on poor design, lot pavement quality or perceived security issues. Safe and
well-lit links between parking areas and shopping and work sites should be planned for and
provided as well.
Challenges and desired outcomes addressed:
• A parking system that is safe and secure.
• A parking system that has well designed facilities.
• Springfield needs to work on its front door "curb appeal" and perceptions of downtown.
• Parking provided by the public should be able to cover its costs for operation,
maintenance and security.
VI. GUIDING THEME - MULTIMODAL ACCESS
a. Transition more downtown employees into alternative modes (i.e., transit, bike, walk,
rideshare) through business-based progroms and incentives.
This will ensure that parking constructed by the City in the future serves customer/visitor
access in the downtown at the highest level of efficiency and cost effectiveness.
Challen>;es and desired outcomes addressed:
• Transit, bicycling, ridesharing should
become an "option that patrons can
choose" as a means of accessing
downtown.
• Transit, bicycling and ridesharing
should become a "realistic and cost-
effective option that a greater
percentage of employees will
choose" as a means of accessing
downtown.
b. Colibrate parking standards to support the City's goals for transit, biking, walking and
ridesharing.
Parking development standards should be logically correlated to the City's goals and
objectives for access, which includes not only parking access but transit, biking, walking and
ridesharing as well. Parking standards should be established that meaningfully contribute to
the City's overall goals for access and commuter mode splits.
Springfield Downtown Urban Design Plan -Parking Management
Section ll: Guiding Themes and Principles
Page 22
Challenges and desired outcomes addressed:
• Create a realistic roadmap for improvement and change.
• Facilitate good decision making and cost effectiveness.
• The parking program meets the needs of the downtown vision.
• Parking should be coordinated with other access modes (e.g., transit, bike and bike
parking, walk, etc.).
VII. GUIDING THEME -COORDINATION
a. Centralize management of the public parking supply and assure a representative body of
affected private and public constituents from within the downtown informs decision-
making.
Publicly owned parking in the on-and off-street supply needs to be managed in a
coordinated manner. Decision-making should be coordinated through a central
management structure informed by a representative body of private and public constituents
from within the downtown.
The finite nature of on-street parking necessitates strategic integration of parking decisions
to facilitate a seamless, recognizable and convenient transition of future growth into off-
streetfacilities. Also, the overall parking management system needs to be coordinated with
a strategic and supportive relationship with transit and other access modes.
Challenges and desired outcomes addressed:
• A system that is coordinated and timed to new development.
• Create a realistic roadmap for improvement and change.
• A parking plan that is well thought out and can be communicated effectively to multiple
stakeholders.
• A plan that provides the City with credible information about the realities of parking in
Springfield that separates the myths from reality, which helps the community
understand changes that will result from the plan.
• The parking management plan should provide strategies that are "timely," assuring
implementation that matches need, convenience and funding (a phased plan).
• Facilitate good decision making and cost effectiveness.
b. Provide clear and strategic direction to new development in downtown to assure that new
growth improves the overall system of access.
Development standards and code should be established that gives clear direction to new
development within the downtown. New development should not only contribute to the
growing and diverse mix of businesses downtown, but also contribute to an improved
access environment for customers and employees. As such, parking should be provided at a
rate that is appropriate to new development, but not overly provided so as to conflict with
alternative mode goals. New development should be "regulated" in a manner that is
Rick Williams Consulting
Parking ~ Transportation Demand Management
Section 11: Guiding Themes and Principles
Page 23
particularly consistent with Guiding Principles for visitor and employee parking, quality and
multi-modal access.
Challenges and desired outcomes addressed:
• A system that is coordinated and timed to new development.
• Create a realistic roadmap for improvement and change.
• The parking program meets the needs of the downtown vision.
c. Implement measurements and reporting that assures Guiding Principles ore supported and
ochieved.
Committing to a routine and objective system of measurement and reporting assures that
decision-making will be informed. This also provides a basis for routine evaluation of
program effectiveness.
Challenges and desired outcomes addressed:
• A plan that provides the City with credible information about the realities of parking in
Springfield.
• Facilitate good decision making and cost effectiveness.
d. Manage the public porking supply using the "SSiS Rule" to inform and guide decision-
making.
The "SSib Rule" is an operating principle and industry based management tool for
coordinating a parking supply. When occupancies routinely reach 85% in the peak hour,
more intensive and aggressive parking management strategies are called for to assist
patrons in finding available parking. The "8S% Rule" standard will facilitate the City and the
community in making reasonable and effective decisions regarding time stays, enforcement
and other decisions related to capacity management.
~ Challenges and desired outcomes:
• Better control of parking in the area.
• Manage parking to maximize on-street parking for retail and street level businesses (i.e.,
reduce/eliminate employees parking on street over time).
• Parking management should encourage effective turnover on-street and support good
traffic circulation.
• A plan that supports and encourages growth of healthier businesses and supports
better/higher use of land.
e. Encourage and creote incentives for shored parking in oreas where parking is
underutilized.
Public and private parking facilities in some areas have underutilized capacity. Efforts should
be made to facilitate shared use agreements between different users (public and private) to
Springfield Downtown Urban Design Plan -Parking Management
Section ll: Guiding Themes and Principles
Page 24
direct parking demand into these facilities to both maximize existing parking resources and
minimize overall parking development costs.
Challenges and desired outcomes addressed:
• The parking system is not yet formatted in a way that best serves the area.
• There is "unused parking" throughout the downtown. This is not efficient.
• The format of off-street facilities needs work to assure that employees and customers
are parked where we want them and where it best serves downtown.
• The parking system supports and attracts more retail to the downtown.
• A system that is coordinated.
D. SUMMARY
The Guiding Themes & Principles derived from dialogues with stakeholders and businesses can serve as
a solid foundation for coordinating parking and transportation decision-making and policy. The Guiding
Principles are grounded in the long-term economic development vision of the City of Springfield and its
downtown stakeholders. Their intent and purpose is to generate parking and transportation
management strategies and programs that will complement the City and community's efforts in
attaining its long-term growth and development objectives.
Rick Williams Consulting
Parking & Transportation Demand Management
Section III: Parking Inventory and Utilization Analysis
Springfield Downtown Urban Design Plan -Parking Management
1
Parking Inventory and Utilization Analysis
In every downtown parking is a central issue to the City and its stakeholders as they plan for, and
anticipate, the downtown's on-going economic success. The need to understand both the perception and
reality of parking is essential if a comprehensive, effective and successful parking management strategy is
to be developed and implemented. This section focuses on establishment of a clear understanding of the
reality of current parking dynamics in downtown Springfield. The data findings, recommendations and
strategies outlined in this Section are intended to be used to maximize the parking supply and
strategically plan for the future.
A. PURPOSE OF THE PARKING INVENTORY ANALYSIS
The purpose of a parking utilization study is to derive a comprehensive and detailed understanding of
actual use dynamics and access characteristics associated with parking in the downtown. Important
elements of this section include:
(1) Development of a data template for all parking in the study area, denoting all parking stalls, by
time stay type, for both on and off-street facilities.
(2) A complete survey of on and off-street parking use on a typical day.
(3) Analysis of parking utilization and turnover that included:
a. Quantification of the entire study area parking inventory.
b. Hourly occupancy counts (9 a.m. - 6 p.m.) for on and off-street inventory.
c. Parking turnover analysis (on-street).
d. Parking duration of stay analysis (on-street).
e. Derivation of built parking supply to total built square footage (i.e., true parking demand
ratio).
(4) Identification of surpluses and constraints within the parking supply.
In short, the purpose of the parking utilization study was to produce a succinct analysis of existing parking
dynamics in Downtown Springfield that can be employed over time to support and inform decision-
making related to development and parking.
B. STUDY AREA
The parking inventory study area was determined in the initial project scoping process and in coordination
with the City of Springfield and the full Consultant Team, which included RWC and Crandall Arambula
(CA). The study area centers on the commercial heart of the downtown. The area is bounded by Mill
Street on the west, Tenth Street on the east, South A Street on the south and predominately B Street to
the north except for the area between Fifth Street and Pioneer Parkway East where the boundary jogs up
to C Street.
The study zone is nearly wholly contained in the City Downtown Refinement Plan Area and is reflective of
the City's understanding of current parking activity and land use densities in this area. Quantifying parking
activity within this zone provides a comprehensive look at parking patterns, trends and surpluses/deficits
within downtown area. Figures A provides a graphic representation of the study area.
Section lll: Parking Inventory and Utilization Analysis
Page 26
Figure A
Parking Study Area
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C. METHODOLOGY
RWC's methodological approach to gathering utilization/capacity/ turnover data began with a physical
compilation of all parking assets (both on and off-street) within the study area. The physical assessment
for the area was conducted in advance of the survey day and documented all parking by location and
type. The inventories included all the on-street stalls categorized by block number and identified by time
restriction. Also included was an inventory of off-street stalls, both public and private, also categorized by
block number and identified by tenant/operator. The inventories were broken into smaller sections, as
surveyor templates of contiguous city blocks which were ultimately sampled every hour, on the hour, over
the course of the survey day.
The capacity/utilization survey of parking assets was conducted on Wednesday, September 16, 2009. The
survey day was selected in consultation with city staff and was reflective of the initial scoping process.
Overall, the weather on the survey day was overcast (low 70s degrees) with moderate parking activity in
all sectors of the downtown. No major events were scheduled for the downtown; weather conditions
were good and activity was considered average. The parking survey was conducted between 9:00 a.m.
and 6:00 p.m.
The surveys involved hourly counts of each occupied on-street parking stall in the study area, recording
the first four digits of the parked vehicle's license plate. Surveyors collected license plate data at each on-
Rick Williams Consulting
Parking ~ Transportation Demand Management
Section lll: Parking Inventory and Utilization Analysis
Page 27
street parking stall located in the study area for every hour over a nine hour period (9:00 a.m. - 6:00
p.m.). A total of 647 on-street stalls within the zone were physically surveyed. This represents a 100%
sample of on-street parking in the study zone.
In the aforementioned off-street inventory process the consultant team collected a comprehensive
catalog of parking lots and their individual stall totals. Similar tothe on-street study, each lot was
surveyed on the hour, every hour. One-hundred percent of the off-supply was surveyed during the
utilization/occupancy inventory.
D. GENERAL CHARACTERISTICS OF THE INVENTORY
1. Supply
A total of 1,819 parking stalls were surveyed within the study area
boundaries. This supply includes 647 on-street and 1,172 off-street
stalls.2 Generally, the supply of available parking (on and off-
street) in the study area is unpaid parking. Off-street, the public
(City, ODOT, Courthouse, etc.) controls nearly a quarter (24.1%) of
the supply spread throughout the study area. The remaining
private supply is mostly "accessory" parking, which limits access to
patrons/employees of a specific commercial site. Table 3 below
presents a breakout of all the surveyed parking supply in the study
area.
As Table 3 indicates, the on-street supply of parking in the
downtown has awide-ranging mix of parking time stay options. A
majority of stalls are designated 2-hour parking (348 spaces or
S4%), another 264 (41%) have no designation or are considered No
Limit stalls. Thirty-minute stalls comprise 3.7% of the on-street
suppry, the remainder of the supply is made up of a combination of
stall types: 10-minute (<1%), 15-minute (<1%), 1-hour (<1%) and a special designation, Funeral Parking
Only stalls (<1%). With seven different stall designations, the relatively small supply of on-street parking
in the downtown could be perceived as confusing to first time visitors to the downtown.
A total of 1,172 off-street stalls were surveyed on 59 lots. Within this supply, the City controls 283 stalls
distributed across 12 sites3, the remaining 889 stalls are dispersed throughout the downtown on 47
surface lots that are privately owned. A complete summary of surveyed downtown off-street facilities is
provided the Appendix of this document.
z For purposes of this study handicap/disabled and loading zone stalls were removed from the study results, based on the
assumption that such stalls are not readily available to general parking demand. The project team believes that if these stalls
were included the study results would artificially overstate surplus supply.
3 Could indicate multiple "stall designations" for a particular user type within a single surface lot; does not reflect the actual
number of individual public lots.
Springfield Downtown Urban Design Plan -Parking Management
Section 111: Parking Inventory and Utilization Analysis
Page 28
Table 3
Parking Inventory -Downtown Study Zone
vuwnwwn ~Nn~~~i~~w ra~Ri~ig Sian orCanvua
On-Street Stalls by Type Number of Stalls % of Total Stalls
-10 minutes 3 <1%
-15 minutes 1 <1%
- 30 minutes 24 3.7%
-1 hour 1 <1%
- 2 hours 348 54.0%
- No Limit 264 40.5%
- Funeral Parking Only 6 <1%
On-Street Parking Stalls 647 100%
Public Off-Street Stalls (12 sites) 283 24.1%
Private Off-Street Stalls (47 sites) 889 75.9%
Total Off-Street Parking Stalls 1,172 100%
Total Supply Surveyed 1,819
2. Peak Hour and General Occupancies
Peak hour occupancy is the period during the business day when the downtown experiences the highest
.utilization of parking stalls. This analysis attempts to determine that point in the day at which the
greatest numbers of vehicles are parked in the downtown.4
a. On-Street Pocking Summary
During the survey day, the highest peak hour for the on-street inventory in the downtown was between
12 noon and 1:00 p.m. (i.e. all stalls, all use types). At this hour, nearly half (49.8%) of the surveyed stalls
in the study area were occupied. This left a total of 330 stalls empty and available for use.
Table 4, below summarizes occupancies by type of stall, peak hour by stall type and average length of
stay. Figure B provides an illustration of on-street occupancies for each hour of the nine-hour survey day.
Figure C visually displays peak hour occupancies by block faces
From Table 4 and the associated Figures, the following conclusions can be derived:
• During the 12 noon and 1:00 p.m. peak hour, 317 on-street stalls are occupied leaving 330 empty
stalls available within the downtown.
• The average time stay for all on-street packers is 3 hours and 29 minutes.
a Peaks may vary between the on and off-street parking systems and peaks may vary between off-street lots. As stated, this
analysis captures the highest peak hour for the downtown, when use of the on and off-street system, combined, is at its highest
point. Individual peak hour occupancies for off-street lots can be found in the summary table in Attachment A.
s Some of the high occupancy block faces between 4th and 5th near B Street can be attributed to temporary construction parking.
Rick Willia~~ns Consulting
Parking & Transportation Demand Management
Section 111: Parking Inventory and Utilization Analysis
Page 29
• The highest level of use (for a meaningful number of stalls) was within stalls designated as 2-
hours, which achieve peak hour occupancy of 59.1% between 1:00 and 2:00 p.m. and an average
time stay of 2 hours and 46 minutes.
• Parking is readily available on-street throughout the day, with some pockets of high occupancy on
specific block faces (though those block faces are generally adjacent to blocks with available
parking).
Table 4
On-Street Parking Summary by Time Stay
Downtown Springfield Parking Study Area - On-Street Stalls Only
Type of Stall # of Stalls Peak Hour Peak Stalls Available Average Length
Occupancy (empty) of Stay
All Stalls 647 noon -1:00 pm 49.8% 330 3 hr/29 min.
Usage by Time Stay
10 minutes 3 1:00 - 2:00 pm 100% 0 N/A
1:00 - 2:00 pm
15 minutes 1 100%
0
N/A
3:00 - 6:00 pm
10:00-11:OOam
30 minutes 24 54.2% 11 N/A
3:00-4:00 pm
1 hour 1 11:00 am -1:00 pm 100% 0 2 hr/ 0 min.
2 hours 348 1:00 - 2:00 pm 59.1% 149 2 hr/ 46 min.
No Limit 264 noon -1:00 pm 42.0% 153 4 hr/ 8 min.
Funeral Parking
Only 6 2:00 - 3:00 pm 83.3% 1 2 hr/ 30 min.
Figure B
Hourly On-Street Occupancies
Downtown Springfield Hourly Parking Utilization
On-Street Occupancies (647 stalls)
600
500
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0
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Sam- 10am- 11 am- 12pm- 1 pm- 2pm- 3pm- 4pm- 5pm-
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Springfield Downtown Urban Design Plan -Parking Management
Section 111: Parking Inventory and Utilization Analysis
Page 30
b. On-street: Usage Characteristics (Duration of Stay, Volume, Turnover and Exceeding Time Stays)
There are a number of ways to evaluate the efficiency of the on-street system. Table 5 provides a
summary of several measures.
1. Duration of Stay
Most notably our data concludes:
• The average stay in downtown for all on-street parking stalls is 3 hours and 29 minutes (or 3.48
hours).
• The No Limit stalls clearly bring up the overall average length of stay, yet the 2 Hour stalls still have an
average length of stay of 2 hours and 46 minutes. This may bean indication patrons do not respect
the posted time stays and are aware there are no consequences for doing so. This could also indicate
that employees are using both the No-Limit and 2-Hour on-street stalls for work related purposes.
2. Volume
The survey data indicates that 1,031 unique license plate numbers were recorded parking in the on-street
system between the hours of 9:00 a.m. and 6:00 p.m.6 Over the course of an average day, this would
translate to approximately 115 vehicles arriving each hour.
Table 5
On-Street Parking: Summary of Use Characteristics
Complete Study Area (647 stalls)
Use Characteristics September 2009
Average length of stay per vehicle per occupied stall 3 hrs./ 29 minutes
Actual number of unique vehicles 1,031
Actual number of vehicle hours parked 2,596
Actual turnover rate (number of cars to use a single
occupied stall over a 10 hour period
2.87
of unique vehicles violating the posted time stay 24.3%
of total vehicle hours spent in violation of posted
time stay
35.6%
6 "Unique license plate numbers" represent the total number of cars parking within the on-street system. Surveyors recorded
individual plate numbers (first four digits) which allows us to determine individual cars and, thereby, quantify the total number of
cars to use the on-street system on a given day. It is important to note that this does not represent all vehicles in the downtown,
as license plate numbers were not recorded in off-street facilities. The unique vehicle total is only representative of the on-street
system.
Rick Williams Consulting
Parking ~ Transportation Demand Management
Figure C
Downtown Springfield Parking Management Study Area
On-Street Peak Hour Occupancies
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Section 111: Parking Inventory and Utilization Analysis
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3. Turnover: Efficiency of the Parking System
In most cities, the primary time limit will allow for calculation of an intended turnover rate. For example,
if the intended use for a stall is two hours (which is a very "retail friendly" rate of turnover), then the stall
should be expected to turn 5.0 times over aten-hour period. As such, if turnover were demonstrated to
be at a rate of less than 5.0, the system would be deemed inefficient. A rate in excess of 5.00 would
indicate a system that is operating efficiently.
In Springfield, the downtown on-street parking system has an average turnover rate of 2.87 turns per stall
extrapolated to a 10 hour period. This is calculated by dividing the average time stay (3.48 hours) derived
from the study into a ten hour operating day.' As one can see, a rate of less than 5.00 indicates that the
Springfield system is operating sluggishly and is not turning over in a manner that would be considered
supportive of vital street level activity. Table 6 provides a comparison with other West Coast cities that
Rick Williams Consulting has evaluated.
Table 6
On-street Turnover -Comparison to Other Cities
City Number of On-Street Stalls Rate of Turnover
Beaverton, OR 990 4.20
Bend, OR 720 7.60
Everett, WA 1,955 5.12
Hillsboro, OR 924 4.90
Hood River, OR 582 6.06
Kirkland, WA 329 8.60
Milwaukie, OR 370 6.00
Oregon City, OR 392 4.70
Redmond, WA 731 3.23
Salem, OR 1,260 7.52
Spokane, WA 1,965 6.36
Springfield, OR 647 2.87
Vancouver, WA 654 (core) 5.68
As the downtown economy begins to develop and diversify with small business (e.g., retail, office,
services) it will be important to initiate measures that support higher turnover rates to accommodate the
growing demand for parking. Currently, all day parkers and a heavy mix of No Limit stalls have a dramatic
affect on Springfield's downtown turnover rate. It will be important to gradually reduce the number of
these stalls particularly in the central retail core.
~ The turnover rate of 2.87 is calculated as an extrapolated rate over 10 hours. If we use the actual 9 hour survey day, intended
turnover rate would be 4.50 (9 hours/2.0 hrs desired average time stay) and the actual rate of turnover would be 2.59 (9
hours/3.48 hours actual time stay). We have expressed the extrapolated standard as a 10 hour operating day is more common{y
used within the industry and allows for comparison with other cities. In either case, Springfield's rate of on-street turnover needs
to be improved as a strategy necessary to support and attract retail uses.
Rick Williams Consulting
Parking ~ Transportation Demand Management
Section 111: Parking Inventory and Utilization Analysis
Page 33
4. Exceeding Time Stays -Abuse of Stalls
a. On-Street Parking Summary (Entire Study Area)
Exceeding a posted time stay is considered a "violation." High rates of violation are considered an
indication that on-street stalls are (a) improperly formatted or (b) users are of the belief that enforcement
is not aggressive and/or (c) management is not aggressive enough to encourage use of off-street supplies
for longer term stay demand. Because Springfield has a number of No Limit on-street stalls that allow
people to park all day without penalty, our analysis omitted this stall type from the analysis of abuse. In
other words, all "violations" tracked were only in those stalls that are time stay designated.
Nearly one-quarter (24.3%), of unique vehicles parked in downtown's on-street stalls exceed the posted
time stay. By comparison, industry best practices would strive for a violation rate somewhere between
5% and 9% of total unique vehicles. Being within this range would be considered a very efficient system.
Springfield's high rate of violation contributes to an inefficient system.
Another statistic that can be helpful is the percentage of vehicle hours spent in violation; this compares
the total vehicles hours parked with the number of hours parked while in violation. In Springfield's case
over one-third (35.6%) are spent in violation. The greater the disparity between this number and
percentage of unique vehicle in violation indicates that users of the downtown are not simply mistakenly
overstaying their time, but more likely, consciously ignoring the posted time stay, confident there will be
no adverse consequences.
While peak hour parking occupancies are low, it is still recommended that Springfield begin to better
manage their parking supply. Given that significant stalls are available in No Limit areas (which are on-
street), time stay stalls should be more aggressively managed to assure access to businesses, particularly
within areas designated 1 and/or 2 Hours. This will be discussed in more detail in the recommendations
and strategies section of this report.
Off-Street Parking Summary
While the on-street system operates at approximately 50% peak occupancy, it is important to evaluate
how the off-street system operates in relation. This is particularly important to understand, as potential
future access constraints within the on-street system will need to be directed into off-street locations. As
such, understanding available capacity for absorption of on-street demand growth will be important.
Table 7 provides a summary of off-street usage for the study day (September 16, 2009). Figure D below
illustrates occupancies for each hour of the nine-hour survey day and contrasts publicly owned/controlled
supply with the private supply. Figure E provides an illustration of occupancies by lot.
There are a combined total of 1,172 off-street parking stalls in the study area. The highest peak
occupancy achieved during the survey day occurred between 11:00 a.m. and noon. At this time, the off-
streetsupply reaches 54.8% occupancy, leaving 530 stalls empty and available for use.8
$ When combined with the on-street system, about 860 total stalls are empty and available at the peak hours in downtown
Springfield.
Springfield Downtown Urban Design Plan -Parking Management
Section 111: Parking Inventory and Utilization Analysis
Page 34
Table 7
Off-Street Parking Summary
Stalls Available
Type of Stall # of Lots # of Stalls Peak Hour Peak Occupancy
(empty)
All Stalls 59 1,172 11 am -Noon 54.86 530
U b
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s age
y
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Private Lots 47 889 11 am -Noon 48.8% 455
Public Lots 12 283 10 am -11 am 76.0% 68
Despite the system showing abundant off-street capacity, it is important to note who controls/manages
the majority of the existing capacity. As demand for parking continues to grow, an on-going challenge for
the City is the number of "available" stalls in private control. Currently, the majority of the 530 empty
peak hour stalls are on private lots and "restricted" as accessory parking (with signage limiting use to
specific parkers). As such, the challenge may require conversations and partnerships with private owners
of supply to make more of their supply available to general public users, particularly employees using the
on-street system for work/commuting purposes. A longer-term, yet more costly alternative would be for
the City to identify parcels of land downtown that could be procured for off-street users needing long-
term parking and begin managing the on-street system to direct these types of users into a "public" lot as
a means to increase access for visitors/customers and turnover in the on-street supply.
Figure D
Off-Street Occupancy by Hour of Day
Downtown Springfield Hourly Parking Utilization
Off~treet Occupancies by Ownership (Public vs. Private Stalls)
^ Public ^ Private
100%
90% o
----------- a -------
~---- 85% occu anc
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Rick Williams Consulting
Parking & Transportation Demand Management
Figure E
Downtown Springfield Master Plan
Parking Management Study Area -- 0~-Street Lot Parking Occupancies
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Section 111: Parking Inventory and Utilization Analysis
Page 36
As Table 7 and Figure D & E demonstrate, significant stall availability exists in the off-street supply. The
abundance of availability during the peak hour presents an opportunity (and a challenge) to begin the
conversation with private property owners to potentially set up shared use agreements that would
benefit all parties involved (employees, customers and businesses).
From data derived for the off-street system, the following conclusions can be derived:
• The overall occupancy of the off-street system within the downtown study area is 55% at the peak
hour of 11:00 a.m. -12 noon.
• The combined (both public and private) peak hour occupancy of the off-street system is very
similar to the on-street system (at about 50%).
• The combined off-street system is underutilized, having an abundance of available parking during
the peak hour.
• The majority of available supply is in private ownership, which may involve conversations and
partnerships with private owners to manage underutilized parking into a system of more efficient
use (e.g., shared use agreements).
As stated earlier, a detailed breakout of peak hour occupancies for each individual off-street parking
facility surveyed can be found in the Appendix of this report.
c. On-Street System -High Occupancy Node
In many instances looking at the peak hour occupancy rate for an entire study area does not adequately
portray some of the constraints on the parking system in specific areas of the downtown. Currently, low
occupancies on-street along the periphery of the study area tends to bring down the overall peak
occupancy rate. Therefore, it is important to identify and evaluate the "area of highest occupancy"
through a nodal analysis. A nodal analysis provides information on that section (subset) of the study area
that consistently demonstrates the highest peak hour occupancy within the larger study area.
From this perspective, the "High Occupancy Node" for downtown Springfield is the area bounded by B
Street on the north, 7th Street on the east, South A on the south and Pioneer Parkway West on the west
Figure F (page 13) illustrates the boundaries for this node and peak occupancies by block face.
Table 8 summarizes the format of on-street parking within this node.
Table 8
Parking Inventory -High Occupancy Node
Downtown Springfield Parking Stall Breakout -High Occupancy Node
On-Street Stalls 6y Type Number of Stalls % of Total Stalls
- 30 minutes 8 2.7%
- 2 hours 246 83.1%
- No Limit 38 12.8%
- Funeral Parking Only 4 1.4%
On-Street Parking Stalls 296 100%
Rick Williams Consulting
Parking & Transportation Demand Management
Section 111: Parking Inventory and Utilization Analysis
Page 37
As Table 8 demonstrates, this Node contains nearly half of the on-street stalls from the larger study area
(296 versus 647). Not surprisingly the High Occupancy Node is centered on the heart of the downtown
retail core where most of the commercial activity takes place. Given its locational importance to retail,
the composition of stall types is consequently more calibrated for customers and visitors than for the
longer-term user; 2 Hour stalls makeup 83.1% of the total supply as compared to 50.4% for the entire
study zone. No Limit stalls comprise 12.8% of the supply in the High Occupancy Node as compared to
40.5% for the larger study area.
Figure F
High Occupancy Node -Boundaries
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610 SW Alder, Suite 1221 , ,P,~~ •°
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This area of the downtown experienced the highest level of parking activity during the course of the
survey day. The overall peak hour occupancy reached 69.8% from 11:00 AM to 12:00 PM (see Table 9 and
Figure G, below). This is a significant increase particularly when compared with the larger study area (at
49.8%); however, over 30% of the supply (97 stalls) still remains empty during the downtown peak.
Average length of stay for the Node (3 hours and 20 minutes) showed a slight decrease when compared
the larger study area, but remains well above average for a typical downtown core.9 Also, time stays in 2
Hour stalls (at 2 hours and 51 minutes) is higher than the average for the entire study area (2 hours and
46 minutes. Not surprisingly, the No Limit stalls are the most highly occupied stalls within the Node at
92.1% during the peak hour. Downtown employees likely seek out these stalls in the morning hours and
leave their vehicles there throughout the work day. This is further evidenced by the significant average
time stay for the No Limit stalls, approaching five hours (4 hours and 51 minutes).
s Industry standards would suggest average on-street time stay for downtown in range from 1 hour and 20 minutes to 1 hour and
50 minutes to assure turnover and convenient access to street level business.
Springfield Downtown Urban Design Plan -Parking Management
Section 111: Parking Inventory and Utilization Analysis
Page 38
Table 9
High Occupancy Node - On-Street Parking Summary by Time Stay
Downtown Springfield Parking Study Area - Hi>;h Occupancy Node
Type of Stall # of Stalls Peak Hour Peak
Occupancy Stalls Available
(empty) Average Length
of Stay
All Stalls 296 11:00 am -noon 69.8% 97 3 hr/20 min.
Usage by Time Stay
30 minutes 8 11:00 am -1:00 pm 62.5% 3 N/A
2 hours 246 11:00 am -noon 63.8% 89 2 hr/ 51 min.
No Limit 38 11:00 am -noon 92.1% 3 4 hr/ 51 min.
Funeral Parking
Only
4
2:00 - 3:00 pm
100%
0
3 hr/ 0 min.
Table 10 summarizes use characteristics for the High Occupancy Node and provides a comparison to the
larger study area
As provided in Table 10, there is a slight decrease in average time stay, with stays about 9 minutes less in
the Node as contrasted to the entire study area. This has a corollary affect on the turnover rate, which
improves by 4.5%, from 2.87 to 3.00, but still falls below the "desired" standard of 4.5 - 5.0. The node
also captures a higher share of unique vehicles and vehicle hours parked (63% and 60%, respectively)
when contrasted to the fact that the Node contains just 46% of all on-street parking in the study area.
Not surprisingly, this suggests that this area of the downtown is where people want to be. Finally, there is
a slight increase in violation rates in the High Occupancy Node, which are very high generally.
Table 10
On-Street Parking: Summary of Use Characteristics
High Occupancy Node
Entire Study Area High Occupancy Node
Use Characteristic
647 stalls 296 stalls
(46% of all stalls)
Average length of stay per vehicle per
3 hrs./ 29 minutes
3 hrs./ 20 minutes
occupied stall
Actual number of unique vehicles 1 031
' 645
(63% of unique vehicles)
Actual number of vehicle hours parked 2,596 1,545
(60% of all hours parked)
Actual turnover rate (number of cars to use 2.87 3.00
a single occupied stall over a 10 hour period
% of unique vehicles violating the posted 24.3% 25.6%
time stay
% of total vehicle hours spent in violation of 35.6% o
36.2/
posted time stay
Rick Williams Consulting
Parking & Transportation Demand Management
Section Ill: Parking Inventory and Utilization Analysis
Page 39
Figure G
High Occupancy Node - On-Street Hourly Parking Occupancies
Downtown Springfield Hourly Parking Utilization
High Occupancy Node -- 296 On-Street Stalls
250
N
~g 200
m
~ 150
0
0 100
50
0
-- 85% = 252 vehicles ---
0 69.8%
° 67.7 /0 63.9% 66.0% 64.9% 61.8%
61.1 /o
.' 51.2%
35.4%
~_ ~
~~
gam- 10am- 11am- 12pm- fpm- 2pm- 3pm- 4pm- 5pm-
10am 11 am 12pm 1 pm 2pm 3pm 4pm 5pm 6pm
Findings from the on-street analysis in the High Occupancy Node include:
• The highest rate of occupancy occurs between the hours of 11:00 AM and 12:00 PM, reaching
69.8% and 199 vehicles parked and 97 stalls empty.
• Occupancies dip at the lunch hour, which may be a result of employees leaving downtown to seek
out greater dining options.
• There is a slight recovery after the noon hour, followed by a precipitous decline in all activity
leaving only 100 vehicles parked on the street between the hours of 5:00 and 6:00 PM.
• Parking is available on-street throughout each hour of the operating day.
• Block faces that exceed 85% in the peak hour are generally adjacent to, or within reasonable
walking distance, of block faces with available parking (see Figure G, above).
d. Off-Street System -High Occupancy Node
Similar to the on-street system, it is also important examine the off-street supply in a High Occupancy
Node analysis, thereby reducing the potential influence of sparsely occupied surface lots on the periphery
of the study area. Using the same boundaries of the on-street High Occupancy Node, the off-street
system was 'trimmed' to show only surface lot occupancies that fall wholly within the downtown's
commercial core.
The Node contains 837 of the total 1,172 off-street parking stalls in the larger study area, approximately
71% of the total off-street supply. All 283 publicly controlled off-street stalls fall within the Node's
boundaries. Privately owned off-street stalls represent 62% of that supply (or 554 of 889 total stalls). The
combined public/private off-street peak hour occupancy in the Node of Highest Occupancy is 62.8%, an
eight percentage point increase when contrasted to the entire study area (54.8%).
Springfield Downtown Urban Design Plan -Parking Management
Section lll: Parking Inventory and Utilization Analysis
Page 40
Table 11 quantifies off-street occupancy characteristics of the High Occupancy Node and demonstrates
that a significant amount of parking is available in this Node as the peak hour, with 311 empty stalls. The
majority of availability (245 of 311 stalls) is in private hands.
Table 11
High Occupancy Node -Off-Street Parking Summary
Type of Stall # of lots # of Stalls Peak Hour Peak Occupancy Stalls Available
(empty)
All Stalls 36 837 11 am -Noon 62.8% 311
Usage by Type
Private Lots 24 554 11 am -Noon 55.8% 245
Public Lots 12 283 10 am -11 am 76.0% 68
Figure H shows the comparative occupancies of privately controlled off-street lots within the High
Occupancy Node versus the larger study area. As the Figure demonstrates, lot occupancies in the node
are generally higher than the area average, but still well below the 85% standard that would signal a
constraint or lack of availability.
100%
80%
N
~ 60%
•Q
V
V
0 40%
0
e
20%
0%
Figure H
High Occupancy Node -Comparative Off-Street Occupancies
Downtown Springfield Hourly Parking Utilization
Private Offstreet Occupancies -Study Area (889 stalls) vs. H.O. Node (545 stalls)
^ Study Area ^ High Occupancy Node
-------------------------------------------------------- 85% Occupancy -----
0
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3pm- 4pm- 5pm-
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Rick Williams Consulting
Parking ~ Transportation Demand Management
Section 111: Parking Inventory and Utilization Analysis
Page 41
From data derived for the off-street system in this Node, the following conclusions can be derived:
• The peak hour occurs between 11:00 AM =12:00 PM when occupancies reach 62.8%. At this time,
there are 311 empty stalls in the off-street supply.
• 71% of all off-street parking is located within the boundaries of the High Occupancy Node, presenting
an opportunity to move employees currently parking on-street in the Node to conveniently located
and proximate off-street options.
• Occupancies within the Node exceed those of the larger study area in each hour of the survey day.
Variations in occupancy range from 3.7 percentage points (1:00 - 2:00 PM) to 6.6 percentage points
(9:00 -10:00 AM).
• Though occupancies are somewhat higher within this node, there is an abundant amount of parking
available during the peak hour in off-street lots, though much of that supply (as with the larger study
area) is in private ownership/control.
E. SUMMARY
The data analysis of the Springfield parking inventory indicates that the system is operating at a low level
of capacity, with slow turnover and abundant available supply. Peak hour occupancies hover near 50% for
both the on and off-street supplies of parking. There are a few "deficits" of parking in the downtown at
localized block faces, though the proximity of available supply is consistently within a short walking
distance at all points throughout the downtown. In short, the availability of "surplus" parking is.well
located to the demand for parking throughout the downtown study area. The fact that a significant
portion of available parking off-street is in private control present both challenges and opportunities. The
challenge lies in initiating discussions, forming partnerships and managing coordination of diverse
properties. The opportunity lies in the fact that shared parking arrangements can quickly lead to better
management of a demonstrated surplus of parking and is a natural first step toward accommodating
demand and controlling long-term parking development costs.
On-street
The format of on-street parking (with a high number of "No Limit" on-street stalls) and the low rate of
turnover are not conducive to an area striving to attract customer traffic and retail growth. The data on
format and utilization clearly demonstrates that a high number of employees park on street. Whether
merchants/businesses can and are willing to direct their employees into off street locations is a topic for
additional discussion with the City and downtown stakeholders. This will be addressed as parking
management strategies are developed and recommended for implementation. This will be an important
discussion, but the need to increase turnover to standards more conducive to vibrant ground level retail
will be critical to Springfield's future success.
Off-street
There is an abundance of off-street parking within the downtown at this time. In the peak hour, 530 stalls
are empty and available in lots throughout the study area. Within the "core" approximately 330 stalls are
empty. As Springfield grows, maximizing use of these stalls will be integral to (a) improving/prioritizing
the availability of the on-street supply for customers and visitors, (b) promoting an attractive retail
environment and (c) cost. effectively managing how, and by how much, the future supply of parking
grows.
z
Springfield Downtown Urban Design Plan -Parking Management
1
1
1
1
1
~~
Section IV: Parking Demand Analysis
Springfield Downtown Urban Design Plan -- Parking Management
1
1
Parking Demand Analysis
Parking ratios express the actual number of parking spaces available to serve demand for land uses in an
area (i.e., office, retail, residential and/or mixed-use development). The number of stalls represented by
a parking ratio may exceed actual demand for parking or fall short of that demand. Demand ratios, on the
other hand, are generally expressed in the context of peak hour use of a specific built supply of parking.
In other words, demand ratios represent an estimate of the actual number of stalls occupied at the peak
hour relative to occupied land uses. Effectively managing the relationship between land uses, built and
occupied parking supply is a fundamental challenge of parking management.
Understanding the difference between the ratios of built supply and the ratio of actual demand is an
important element for parking management. Parking ratios based on actual demand allow cities the
ability to plan for parking at a rate consistent with actual use, thereby reducing overall parking
development costs over time. An understanding of actual demand also allows a city to estimate the
impact of new development on an existing supply of parking.
The exercise represented in this section is an attempt to develop a better understanding of parking supply
and demand for Springfield. To that end, the consultant team derived two "ratios" from the data analysis.
The actual Built Ratio of parking, which is the relationship between total stall built total built land uses
in the Downtown Springfield study zone.
The actual Parking Demand Ratio, which is expressed as a relationship of actual use of a parking
supply and occupied building area. This is based on actual usage data from the "typical day" survey.
A. METHODOLOGY
The consultant team developed a comprehensive list of all land uses within the downtown study area
using the most current land use data for the downtown.10 Square footages were derived for commercial,
retail and institutional properties only (i.e., no residential).11 The resultant built ratio of parking to land
use then is reflective of the total availability of parking serving amixed-use environment and the sum
total of building area in the study area. The demand ratio reflects actual parking use associated only with
occupied land use. The consultant team was then able to express actual parking demand ratios per 1,000
square feet of mixed-use development for Springfield's Downtown.12
B. FINDINGS
Parking demand ratio calculations revealed two different, but equally useful correlations:
• Built Parking Stalls to Built Land Use. This represents the total number of existing parking stalls
correlated to total existing land use square footage (occupied or vacant) within the study area.
According to data provided by the City, there is approximately 966,215 square feet of commercial
io Total building area and occupancy rate derived from December 2009 data provided to the study by the City of Springfield.
11 Residential building square footages and parking associated with residential were factored out of the study to assure that
"parking demand" was directly related to commercial uses and parking for commercial uses.
iz This analysis quantified the relationship between land uses, parking occupancy and built parking supply. Though not a
definitive measure of demand by specific land use types, this exercise is useful in deriving estimates for overall mixed use demand
in Springfield based on actual parking activity in the downtown.
Section IV: Parking Demand Analysis
Page 44
mixed uses in the study zone. Given that there are 1,819 total on and off-street parking stalls in the
study zone, the built ratio of parking is 1.88 parking stalls per 1,000 square feet of built land use.
• Actual Parking Demand to Occupied Land Use. According to a recent City update, 869,594 square
feet of downtown's total built building area is actually occupied, an occupancy rate of 90%.13 Data
from the parking study indicates that 959 vehicles are parked at the peak hour (combined on and off-
street). As such, when actual parked vehicles are correlated with actual occupied building area, an
actual parking demand ratio of 1.11 parking stalls per 1,000 square feet of built land use.
Table 12, below, summarizes the analysis used to determine the combined built ratio of parking and
actual demand ratio for that parking based on the peak hour occupancy/occupied building area for the
study area.
Table 12
Study Area Demand -Mixed Land Use to Built Supply
Total number of parking stalls "built" in the study 1,819 stalls
zone, combining on and off-street parking
Built land use in study zone (office, retail,
966,215 SF
restaurant, govt., entertainment)
Built parking ratio: All parking (on and off-street) to 1.88 stalls per 1,000 SF
all built land use
Total vehicles parked at peak hour (on and off- 959
street)
Occupied land use in study zone 869,594 SF
Actual Parking Demand at peak hour 1.11 stalls per 1,000 SF
Actual Parking Demand with 15% "buffer" added 1.28 stalls per 1,000 SF
To date, parking has been built at an average rate of 1.88 stalls per 1,000 square feet of development
within the downtown Springfield study zone. To date, this rate has proven effective in creating sufficient
parking availability for downtown users and a fairly significant over supply of parking. In the future,
continuing to provide parking at 1.88 stalls per 1,000 SF may become prohibitive as the desire to conserve
land area for buildings and the cost of transitioning from surface parking to garages occurs. As such,
moving to a more efficient standard may be prudent.
This study would suggest that forecasting and planning for parking in the future begin at a rate of 1.28
stalls per 1,000 SF of new land use. This rate uses the 1.11 stalls per 1,000 SF actual parking demand ratio
and includes a 15% "buffer" above actual demand to address any unexpected growth or spikes in parking
activity that might occur. Parking at this rate would be more efficient in accommodating actual demand
and controlling long-term parking development costs.
For purposes of comparison, Table 13, below, provides a summary of built supply to actual demand for
other cities that the consultant team has worked with.
13 Total building area and occupancy rate derived from December 2009 data provided to the study by the City of Springfield.
Rick Williams Consulting
Parking & Transportation Demand Management
Section IV: Parking Demand Analysis
Page 45
Table 13
Cither Cities - Summary of Built Supply to Actual Demand
ity
Minimum
Requirement/
1,000 SF
Or Actual Built Supply
ctual Demand/1,000 SF Gap (oversupply)
between parking
required/built and
actual parking
demand
(for every 1,000 gsf)
Beaverton, OR 4.15 1.85 2.3
Bend, OR 3.0 1.7 -1.9 1.1-1.3
Corvallis, OR 2.0 1.50 0.50
Hillsboro, OR 3.0 1.64 1.36
Hood River, OR 1.54 1.23 0.31
Kirkland, WA 2.5 1.98 0.52
Redmond, WA 3.5 max/4.10 built 2.91 0.59 -1.19
Sacramento CA 2.0 1.60 0.40
Salem, OR 3.15 2.04 1.11
Seattle, WA (SLU) 2.5+ 1.75 0.75
Springfield, OR 1.88 1.11-1.28 0.60 - 0.77
Ventura, CA 2.59 1.50 1.09
As this study transitions to implementation of the recommended parking strategies (see Section VI),
programs will need to be examined that assure parking is provided at a rate appropriate to growth and
marketability as well as in a format that is efficient, cost effective and supportive of the downtown vision
of higher density and more compact urban development.
C. SUMMARY
Actual parking demand in the downtown is in the range of 1.11 stall per 1,000 square feet of mixed use
building area. To date, parking has been supplied (built) at a ratio of 1.88 stalls per 1,000 square feet. As
such parking has generally been provided at a rate that exceeds actual demand. Given both the cost of
providing parking in the future and the desire to maximize land use for new development, it is unlikely
that Springfield will be able to continue to provide parking at historic rates. To this end, the analysis
provided with this study has identified a ratio of 1.28 stalls per 1,000 square feet as a new standard for
planning and forecasting in the future. This rate will assure that the demand for parking can be met, with
some "buffer" of availability available for growth and flexibility within the system. Though building above
this rate is not to be discouraged (if funds are available to do so), this rate does provide a base standard
that can accommodate demand and control costs.
Springfield Downtown Urban Design Plan -Parking Management
Section V: On-Street Parking `Add-Backs'
Springfield Downtown Urban Design Plan -Parking Management
err r ~~~~r~~~r~~~~~^
On-Street Parking "Add Backs"
A. ASSESSMENT
The assessment of on-street parking add-backs is a critical exercise that identifies areas of the downtown
where additional stalls can be incorporated back into the parking system14. On-street parking stalls represent
the "front door" to downtown for a majority of customers and visitors. Similarly, on-street parking is a very
cost effective way to provide access as opposed to the costs of lots and garages. As such, all efforts should be
made to maximize its availability in emerging downtowns. One of the tenets of the parking industry is the
notion that "on-street parking is a finite supply;" rarely can it be expanded, so when an opportunity exists to
grow the on-street supply it should be seriously considered. The consultant team developed a listing of
potential add backs. Table 14 identifies an additional 71 potential add-backs toSpringfield's on-street
system. In some instances, pictures are provided and correlated to Block Face ID numbers located in the first
column of the table.
Table 14
Additional On-Street Parking `Add-Backs'
Block Face # of
ID Location Description Potential Notes
Stalls
8C north side B Street btwn 7th and 8th 2 A stall could be added at either end of the
block at each corner.
14D east side of 8th btwn B Street and North A 2 At the north end of the block,
immediately in front of the stop sign
156 west side of 8th btwn B Street and North 1 Adjacent to Post Office immediately in
A front of stop sign.
Loading zones -signed as "No Parking 30 confusing signage should be replaced with
15D Minute Loading Zone" Other locations: 5 combination loading zones -loading 6AM
27B, 27C,30A, 39B -10AM, 2-Hour parking 10AM - 6PM
16B west side of 7th btwn B Street and North 1 Additional stall on south end of block
A immediately in front of stop sign
16C North side of North A btwn 6th and 7th An additional stall could be added under
Streets 1 the City Hall overhang
~' Add-back recommendations should be verified and evaluated by city transportation engineers.
Section V, On-Street Parking 'Add-Backs'
Page 48
At south end of block under City Hall
16D east side of 6cn btwn B Street and North A 4 overhang; replace yellow curb with
additional parking
A minimum of 2 stalls (up to 3) could be
17B west side of 6cn btwn B Street and North 2 added in place of yellow curb under
A overhang of City Hall
cn
tn At least 4 stalls could be added under the
17C and 6
North side of North A btwn S 4 City Hall overhang toward the east end of
Streets the block
west side of Stn btwn B Street and North Stall could be added at south end of block
186 q 1 in front of stop sign
Up to 3 stalls could be added at either end
20C north side of North A btwn Pioneer 2 of the block before/after the entry/exit of
Parkway East and West circular driveway
east side of Pioneer Parkway West btwn Replace yellow curb at south end of block
20D B Street and North A 4 with at least 4 additional stalls
west side of Pioneer Parkway West 5 Replace yellow curb with on-street
21B between btwn North A and B Streets parking at the south end of the block
2 stalls could be added at the south end of
east side of Pioneer Parkway East btwn the block closest to Main; a third could be
26D Main and North A 3 added at the north end of the block just
south of the curb cut at the corner
cn cn Stalls could be added along most of the
28A South side of North A btwn 5 and 6 6 block face favoring the east end
Stalls could be added on the north end of
28B west side of 6cn btwn North A and Main 4 the block under the City Hall overhang,
cn cn Stalls could be added immediately to the
28C North side of Main btwn 5 and 6 2 west of the curb cut to the public parking
Streets lot
Stall could be added at the north end of
28D east side of Stn btwn Main and North A 1 the block in front of the stop sign
5 stalls could be added under the City Hall
29A south side of North A btwn 6cn and 7tn 6 overhang on the west end of the block;
the 6cn stall would be added on the east
Rick Williams Consulting
Parking & Transportation Demand Management
Section U: On-Street Parking 'Add-Backs'
Page 49
end of the block at the stop sign.
29D East side 6th btwn North A and Main 3 Stalls could be added on the north end of
the block under the City Hall overhang.
30A south side of North A btwn 7ch and 8th Stalls could be added at west end of block
Streets 2 in front of Key Bank
At least one (maybe 2) stall could be
30D east side of 7th btwn Main and North A 1 added at the north end of the black in
front of stop sign
At least 3 stalls could be added at the
North side of Main btwn 8th and 9th west end of the block immediately south
31C 3
Streets of the service station -replacing bus
turnoutiswith on-street parking
Up to 3 stalls could be added, one at
31D east side of Bch btwn North A and Main 3 either end of block, the third near curb
cut just north of service station
south side of Main btwn 7th and Bch Remove/relocate drive-up mail box drop
37A 2 at east end of block, restripe for 2
Streets
additional stalls
south side of Main btwn 6th and 7th Abandoned curb cut on east end of block
38A 1 should be closed (1-2) stalls could be
Streets
added
386 west side of 7th btwn Main and South A 2 Stalls could be added at both ends of the
block closest to Main and South A
south side of Main btwn 5th and 6th An additional stall could be netted with
39A 1
Streets restriping stalls at 20'
TOTALS 71 Net New Parking Stalls
ss This bus stop should be given a similar treatment as the ones located on B Street, where the bus pauses in the right-
of-way adjacent to parked vehicles at the curb extension to let passengers on and off. The purpose would be twofold,
it would increase the number of on-street stalls while helping to calm traffic speeds along Main Street.
Springfield Downtown Urban Design Plan -Parking Management
Section V: On-Street Parking 'Add-Backs'
Page 50
B. SUMMARY ~~
There is an opportunity to add back up to 71 stalls within the current on-street parking system. Efforts ,
to implement the recommendations for add backs contained in this analysis are encouraged. To do so,
while recognizing traffic safety and circulation issues, is the most efficient and cost effective means to
"new supply." The consultant team and the PAC recognize that not all the suggested add backs are
ultimately possible, and will require review by the City's Traffic Engineer and staff. Nonetheless, the
overall value of the 71 stalls recommended is in the range of $700,000 to $2.27 million - if viewed from
the solely from the perspective of adding such capacity in the future on surface parking lots or parking
garages, respectively, in the future.
Rick Williams Consulting
Parking & Transportation Demand Management
Section VI: Parking Management Plan -Operating Principles
Springfield Downtown Urban Design Plan -Parking Management
Parking Management Plan -Operating Principles
This section of the report presents a proposed parking management plan for downtown Springfield. The
proposed plan strives to remain consistent with the Guiding Principles and give direction to future
decision-making for the implementation of parking management strategies. These strategies are
designed to assure priority access is maintained in each parking management zone. Overall, the plan is
intended to provide a flexible system of parking management that is triggered by demand and
implemented within the context of consensus goals and vision for the downtown.
The purpose of the parking management plan is to:
• Clearly define the intended use and purpose of the parking system,
~ Manage the supply and enforce the parking policies and regulations,
• Monitor use and respond to changes in demand, and
• Maintain the intended function of the overall system.
A. PARKING MANAGEMENT ZONES
Different segments of the downtown have different economic uses and represent different points of
access into the downtown. The Guiding Principles developed by the Parking Advisory Committee (PAC)
emphasize the heart or central core of downtown represents the area in which the highest density of
economic activity and access is intended to occur. There are also distinct areas of the downtown with
differing levels/types of desired economic activity. The desired uses in a particular area of downtown
should drive the decision making for the type of parking required. Parking, then, becomes a
management tool that supports specific economic uses. Implementation of parking management
strategies in publicly controlled parking supply is supportive of the economic development plan for the
City of Springfield and its downtown.
Figure I, next page, shows three recommended parking management zones for downtown Springfield.
Zones A and B were primarily derived from the PAC process and
informed through work and analysis completed in Section III from
data zones. Zone C represents a "peripheral zone" comprised
primarily of residential uses, which needs some management to
assure that spillover impacts from Zones A and B are mitigated or
minimized. Zone boundaries were established based on the
existing economic and transportation characteristics, as well as
desired uses for the area, as identified by the PAC. Each zone is
summarized and its primary purpose and priority stated in this
section below.
In short, these five zones represent "economic activity zones" in
the downtown that are both reflective of existing land uses in
addition to areas where future growth of specific economic
development is anticipated and desired. From an access
perspective, each zone will need to be managed in a manner that
supports priority economic uses and users identified for that
zone.
Section Vl: Parking Management Plan -Operating Principles
Page 52
Figure I
Downtown Springfleld Parking Management Study Area
Parking Management Areas
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B. OPERATING PRINCIPLES
Operating principles define the purpose and priority for parking in each of the Parking Management
Zones. Operating Principles complement and reinforce the Guiding Principles established for the
downtown. Within the context of the operating principles for each zone is a specific implementation
framework through which decision making for that zone can occur. The implementation framework
provides an on-going foundation for strategic decision making grounded in the operating priorities
established for the zone and for the downtown as a whole.
With adoption of a parking management plan the City commits to implement parking management
strategies in publicly controlled parking areas to assure the purpose and priority for parking established
in the Operating Principles are consistently attained.
Operating principles and an implementation framework have been developed for each parking
management zone. It is important to recognize the operating principles and the implementation
framework for each zone are intended to serve as neutral reference points from which discussions of
parking decision making and strategy implementation are based over time. As 85 percent occupancy
triggers are activated, these principles and framework guidelines will help future decision-makers
through strategy development. Strategies will then be implemented to address specific demand and
capacity issues in a manner appropriate to that particular point in time. In this manner, the parking
management plan remains fluid and adaptable to changing conditions as the downtown develops and
grows.
Rick Williams Consulting
Parking & Transportation Demand Management
Section Vl: Parking Management Plan -Operating Principles
Page 53
ZONE A -Core Zone
The core zone of downtown includes the highest density of development and is intended to support a
high concentration of employment, retail, restaurant, and entertainment opportunities.
1. Operating Principles (Zone A)
The primory purpose of parking in Zone A is to serve customer and other short-term visitor needs and
support desired economic uses in the zone.
/ The purpose of, and priority for, public parking in Zone A is to support and enhance the vitality
of the retail core.
/ Parking for short-term users is the priority for on-street and off-street spaces in Zone A.
/ Employees should be discouraged from parking in Zone A, particularly on-street.
/ Parking will be provided to ensure convenient, economical, and user-friendly access for
customers, clients, and visitors to downtown at all hours of the operating day (i.e., weekdays,
evenings and weekends).
/ All on-street parking in Zone A will be regulated (i.e., time stay and enforced).
2. Implementation Fromework (Zone A)
a. All on-street parking will be 2 hour parking based on the principle that:
• The 2 hour time stay allows adequate customer, visitor and client access to the retail
core.
• Uniform time stays foster a parking environment that is easy for the customer, visitor
and client to understand.
b. The long-term priority for on-street parking in Zone A will be 2 hour parking. As strategies
within this plan are implemented, any on-street spaces of longer duration will be
transitioned to off-street locations within the core and immediately adjacent to it.
c. The priority for off-street parking in Zone A will be a combination of stays of employee
parking and visitor parking that accommodates customers, visitors and clients needing
longer term stay opportunities. Employee parking in the core is to be discouraged over time
as visitor demand increases. As visitor demand increases the mix of employee parking in
Zone A should favor visitors with more employees moved to Zone Band/or alternative
modes.
d. The City will conduct regular utilization and capacity studies to ascertain the actual peak
hour utilization and average turnover of parking resources in the core area. If utilization of
on and off-street parking in Zone A exceeds 85 percent for sustained periods of time and
turnover meets desired rates, the City will evaluate and implement one, or a combination
of, the following implementation steps "triggered" by the 85 percent threshold:
• Increase level and/or duration of enforcement to assure desired rate of turnover and
minimize/eliminate abuse (i.e., exceeding time stay, moving to evade).
Springfield Downtown Urban Design Plan -Parking Management
Section Vl: Parking Management Plan -Operating Principles
Page 54
• Reduce on-street time stays to increase turnover (e.g., 2-hours to 90 minutes) as
appropriate.
• Transition employee parking in Zone A into other parking zone(s) through attrition
and/or elimination of monthly permits issued for long-term parking in the zone.
• Pursue shared-use agreements with private lots to provide for additional short-term
parking in Zone A.
• Pursue implementation of valet programs (e.g., in partnership with restaurants) to
enhance customer/visitor access by shuttling cars to areas with available capacity.
• Convert some signed time limits to metered time limits to create greater efficiency
in actual rate of turnover and to create a potential revenue source for new supply.
• Expand the boundaries of the Core management zone to increase the number of on-
streetvisitor spaces.
• Increase non-SOV use (i.e., programs for shuttles, transit, ridesharing, etc.)
• Create new public supply in Zone A.
e. The City will establish policy guidelines for exceptions to the short-term parking
requirements in Zone A.
• Handicapped/disabled access
• 15 - 30 minute zones
(1) Specific criteria for approval (i.e., by
specific business type).
(2) Specific locations (i.e., end of block
versus mid block).
(3) Number per geographic area (i.e., shared
by users in a particular area).
• Loading zones
(1) Maximum number per block face(s).
(2) Limitation on number per geographic
area (e.g., no more than two for every
three continuous block faces).
(3) Evaluation of opportunities for shared
loading and customer parking.16
ZONE B -Emerging Core Zone
Zone B, the Emerging Core Zone, includes a mix of development types, but at lower densities than in the
core and with a relatively higher proportion of service, auto dealer ships, residential and professional
services. Expansions of the economic land use characteristics of Zone A are expected to occur in the
Emerging Core Zone.
i6 "Combination Loading Zones" have been used in other jurisdictions allowing loading during specific periods of the day (e.g.,
6:30 a.m. - 10:00 a.m.) ,then convert to short-term parking during all other time periods. Such zones, if successfully managed,
can increase overall short-term supply.
Rick Williams Consulting
Parking 8~ Transportation Demand Management
Section Vl: Parking Management Plan -Operating Principles
Page 55
1. Operoting Principles (Zone 8J
The City's goal is to continue to encourage the mixed-use development of this zone, particularly as it
supports the retail core. As such, on street parking in Zone B is intended to transition over time to serve
short-term parking needs and the desired land uses in this zone. In the interim, surplus parking in the
zone can be effectively utilized to meet unmet long-term demand.
/ Most (if not all) on-street parking in this zone will be transitioned to serve short-term, visitor
parking. Off-street parking will continue to provide a mix of short and long-term stay
opportunities.
/ Underutilized on-street parking in this zone will be made available to employee parking.
/ Over time, on-street parking will reflect a balanced mix of short and long-term stay
opportunities. Long-term parking may eventually require transition into off-street supply.
/ Off-street parking in this zone is intended to provide convenient and cost-effective employee
parking supply as a measure to preserve higher access opportunities for customer and patron
use in the core zones.
/ Parking in this zone will be managed in a manner that minimizes and mitigates spill over of
commercial parking demand into residential areas immediately adjacent to the central business
district.
2. Implementotion Framework (Zone 8)
a. The majority of on-street parking will be 3 hour parking "or by permit," with an appropriate
mix of short and long-term parking based on capacity considerations (i.e., 85% Rule).17 This
is based on the principle that:
(1) This mix of parking is conducive to both customers and employees and longer term
visitor parking for the downtown;
(2) There is adequate on-street capacity in the zone to meet both short and long-term
parking demand.
(3) The current economic uses in the zone do not as yet require the type of turnover
ratios necessary in Zone A.
b. The long-term priority for on street parking in Zone B will be 2 hour parking. As strategies
within this plan are implemented, long-term parking (permits) and 3 Hour stalls will be
transitioned to off-street locations within the Emerging Core Zone and immediately adjacent
to it.
c. The priority for off-street parking in Zone B will be mixed-use parking to accommodate the
full range of users, including employees, customers, visitors and clients. These facilities are
intended to provide for a range of time stay opportunities.
d. The City will conduct regular utilization and capacity studies to ascertain the actual peak
hour utilization and average turnover of parking resources in Zone B. If utilization of on and
off-street parking in the Emerging Core Zone exceeds 85 percent for sustained periods of
time and turnover meets desired rates, the City will evaluate and implement one, or a
17 3 hour stalls 'or by permit' parking in this zone will create a clear distinction between Zone A and Zone B and allow for longer
term short-term stays for customers wanting them.
Springfield Downtown Urban Design Plan -Parking Management
Section Vl: Parking Management Plan -Operating Principles
Page 56
combination of, the following implementation steps "triggered" by the 85 percent
threshold:
• Increase level and duration of enforcement to assure desired rate of turnover and
minimize/eliminate abuse (i.e., exceeding time stay, moving to evade).
• Increase mix of short-term time stays (2 Hour only) to increase turnover.
• Pursue shared-use agreements with private lots to provide for additional parking in
Zone B or adjacent areas.
• Transition on-street employee parking in Zone B into available off-street locations within
the parking zone or "satellite locations."
• Increase non-SOV use by employees (i.e., programs, transit, bike/walk, ridesharing). This
would be accomplished through reduction/elimination or pricing of monthly permits
issued for parking in off-street locations.
• Meter/charge for parking (on and/or off-street) to create greater efficiency in actual
rate of turnover and to create a potential revenue source for new supply.
• Create new mixed-use public parking supply within or adjacent to the zone.
e. The City will establish policy guidelines for exceptions to the parking requirements in the
Emerging Core Zone.
• Handicapped/disabled access
• 15 - 30 minute zones
(1) Specific criteria for approval (i.e., by specific business type)
(2) Specific locations (i.e., end of block vs. mid block)
(3) Number per geographic area (i.e., should be shared by users in a particular area)
• Loading zones
(1) Maximum number per block face(s).
(2) Limitation on number per geographic area (e.g., no more than two for every three
continuous block faces).
(3) Evaluation of opportunities for shared loading and customer parking.
ZONE C -Peripheral Parking Zone
The Peripheral Area serves a high proportion of
residential demand with some low-density
commercial uses. If spillover effects from the Core
and Emerging Core Zones (Zones A & B) are
problematic, a Residential Parking Zone (RPZ) may be
established to ensure that adequate parking is
available for demand generated from uses within the
Peripheral Area. Initially, parking in the Peripheral
Area is intended to be largely unregulated.
Rick Williams Consulting
Parking & Transportation Demand Management
Section Vl: Parking Management Plan -Operating Principles
Page 57
1. Operating Principles (Peripheral Parking Area)
Parking in the Peripheral Area is intended to serve residential demand and uses ~eneratin~ demand
from within the zone.. It is intended that "spill over" from oth_ er parking zones within the CBD be
mitigated.
/ Parking in the Peripheral Area is intended to meet demand generated within this parking area.
/ Parking in this area is unregulated. As such, no time stay restrictions are in effect. Future
management strategies assumed for this area would be contingent on the parking activity,
capacity, and utilization of all other parking zones.
/ If parking spillover from Zones A or B results in inadequate parking availability for properties
within the Peripheral Area, Residential/Area Permit Zone programs may be desired.
2. Implementation Framework (Peripheral Area)
a. Parking in this zone is unregulated. As such, no time stays are in effect. Future
management strategies assumed for this area will be contingent on the parking activity,
capacity, and utilization of all other parking zones.
b. Residential Permit Zone programs may be implemented if parking spillover from Zones A - E
results in inadequate parking availability for properties within the Peripheral Area.
C. SUMMARY
Formatting decision-making within the context of unique parking management zones with specific
operating objectives and criteria assures that the implementation of strategies is tied directly to desired
outcomes. This will facilitate what may at times seem to be difficult or controversial decisions (e.g.;
increased enforcement, displacement of employees out of visitor supply, rates, etc.). Operating
principles are established to provide a reasonable and strategic framework for discussions of parking
management actions and their appropriate implementation.
,.
Springfield Downtown Urban Design Plan -Parking Management
Section VII: Parking Management Plan -Strategy Recommendations
.Springfield Downtown Urban Design Plan -Parking Management
i
1
Parking Management Plan -Strategy Recommendations
As a result of the data collection and analysis, as well as continuing discussions with the City and
stakeholders, specific parking management strategies have been identified and are recommended for
consideration. Recommendations for changes in current policy/code and several near-term strategies
(Phase 1) will optimize the efficiency of the existing parking inventory in Downtown Springfield.
Additional mid- and longer-term strategies (Phases 2 & 3) are also recommended for consideration. The
strategies recommended in this report are designed to assist the City to more effectively manage its
downtown parking supply.
These recommendations are organized as follows:
Policy Level Actions
Recommended Parking Management Strategies: Phases 1- 3
A summory of all recommended Actions and Strategies is attached as an Implementation Schedule at the
end of this Section.
A. POLICY LEVEL ACTIONS (Immediate Implementation)
The following policy elements have been included to ensure the goals of the parking management plan
can be achieved by incorporating parking system management into the City's development policy.
Application of the 85 percent occupancy standard as the threshold for decision-making becomes the
unifying monitoring device connecting these various policy elements. Formalizing the policy
recommendations assures that the life of the parking management plan extends beyond the first round
of strategy implementation. As such, it is recommended that the Policy Recommendations be adopted
immediately by the City of Springfield.
1. Adopt policies and rules to guide parking management
a. Codify Guiding Principles for Parking Management as elements of City Code.
Guiding Principle(s) Supported:
/ Provide clear and strategic direction to new development in downtown to assure new
development maintains/improves access to the downtown.
/ Implement measurements and reporting that assures Guiding Principles are supported
and achieved.
/ Correlate parking requirements more directly to mixed-use development vision for
downtown.
The Guiding Principles provide a framework for managing parking and decision making in the
downtown over time. "Codifying" the Guiding Principles by incorporating them into the
Comprehensive Plan will serve to inform future management decision-making as well as
development of future public facilities. Incorporating these principles into City Code and policy
assures the intent and purpose for parking management, established through this study, is
carried out over time.
Section Vll: Parking Management Plan -Strategy Recommendations
Page 60
b. Establish three "Parking Management Zones" based on usage and desired economic
development.
Guiding Principle(s) Supported:
/ Provide a "parking product" in the downtown that is of the highest quality to create a
safe and positive customer experience with parking and the downtown.
/ Manage the public parking supply using the "85% Rule" to inform and guide decision-
making.
/ Make the downtown conveniently accessible for the priority user of the public parking
system -the patron of downtown.
Different segments of the downtown have different (a) different usage/occupancy dynamics, (b)
varied and emerging economic uses and (c)
represent different points of access into the
downtown. The heart of downtown should
represent the area in which the highest
density of economic activity and access is
intended to occur. Parking should be seen as
a management tool that supports specific
economic uses at different points in time as
downtown develops, grows and evolves. The
desired economic activity and use of parking
in a particular area of downtown should
guide the decision making for the parking
management required.
It is recommended that Springfield establish three separate parking management zones, each
having specific operational priorities. Figure A below provides a recommended breakout of
those zones. Operating Principles for each of the three management zones are detailed in
Section VI. Policy level action is described in A. 1. c., below.
c. Adopt the "Operating Principles" recommended in this plan and use them as an
implementation framework within the City code that defines the priority purpose/use for
parking in each parking management zone.
Guiding Principle(s) Supported:
/ Provide a "parking product" in the downtown that is of the highest quality to create a
safe and positive customer experience with parking and the downtown.
/ Manage the public parking supply using the "8S% Rule" to inform and guide decision-
making.
/ Provide clear and strategic direction to new development in downtown to assure
development maintains/improves access to the downtown.
The recommended Parking Management Zones should be established and the Operating
Principles described in Section VI should be used to guide the evaluation and management of
day-to-day dynamics of parking activity. Operating principles are established to describe the
Rick Williams Consulting
Parking & Transportation Demand Management
Section Vll: Parking Management Plan -Strategy Recommendations
Page 61
primary purposes for parking within each parking management zone and to complement and
reinforce the Guiding Principles established for the downtown.
Downtown Springfeld Parking Management Study Area
Parking Management Areas
e
Rick Williams Consulting ".__ 8u1~n~ Manaaement Zone A
Parking and Transportation Demand Management ':.~`~ „ ' ~ parkin Stu Area
610 SW Alder, Suite 1221 W ~:, ~~.~ e ' 9 ~ Manaaement Zone B
Portland, OR 97205 '~ ~-`
S qty Afiliated Lds
Manaaement Zone C
d. Adopt the 85% Rule to facilitate/direct parking management strategies.
Guiding Principle(s) Supported:
/ Manage the public parking supply using the 85% Rule to inform and guide decision- making.
/ Recognize that on-street parking is a finite resource and should be managed to assure
maximum access for the priority customer.
/ Implement measurements and reporting that assures Guiding Principles are supported and
achieved.
The 85% Rule is a measure of parking utilization that acts as a benchmark against which parking
management decisions are based. Within the parking industry, it is assumed that when an
inventory of parking exceeds 85% occupancy in the peak hour, the supply becomes constrained
and may not provide full and convenient access to its intended user. Once a supply of parking
routinely exceeds 85% occupancy in the peak hour, the 85% Rule would require that parking
management strategies be evaluated and/or implemented to bring peak hour occupancies to a
level below 85% to assure intended uses are conveniently accommodated.
The parking inventory for Springfield revealed that existing peak hour occupancies within the
core of the downtown have "pockets" of activity where parking exceeds 85% in the peak hour
Springfield Downtown Urban Design Plan -Parking Management
Section Vll: Parking Management Plan -Strategy Recommendations
Page 62
(on-street). This would suggest moving forward with strategies identified in this report in the
core zone in a timely way (see, Phase 1 strategies, below). The 2009 - 2010 study also revealed
that areas adjacent to the core are generally operating at less than 85 percent at this time.
Having the 85% Rule formalized in policy will assure that a process for evaluating and
responding to future parking activity in these areas is in place.
2. Develop a job description and submit a service package to create a position of "Parking
Coordinator/Manager" for the City of Springfield.
Guidinq Principle(s) Supported:
/ Centralize management of the public parking supply
/ Provide clear and strategic direction to new development in downtown to assure new
development maintains/improves access to the downtown.
/ Implement measurements and reporting that assures Guiding Principles are supported and
achieved.
/ Correlate parking requirements more directly to mixed-use development vision for downtown.
The complexity of parking and access will increase as the City and the downtown grows through
redevelopment and increased demand for access. A single person should be assigned to oversee
and manage all aspects of the program associated with parking in the downtown parking
management zones. This person will also be responsible for transitioning strategies developed as a
part of the 2010 study for downtown as demand for parking increases over time.
Ideally, this person would staff a representative stakeholder group (see 3 below) to routinely review
overall parking activity in the downtown as well as by zone. Information developed through
periodic update of the parking inventory (i.e. 85% Rule) would be used to evaluate "action triggers"
and implement appropriate adopted strategies as necessary. The Parking Manager/Coordinator
would also be charged with refining and shepherding the policy recommendations outlined in A. 1
ia) - (d) above through the appropriate City processes.
This position can most likely occur as arefinement/reformatting of an existing position. At the
outset, the work outlined within this plan could consume as much as 0.25 to 0.50 FTE, growing over
time to 1.0 FTE as more downtown development occurs and action thresholds that are a part of this
plan are exceeded.
The City "process" for approving this type of service addition should be completed immediately to
facilitate near-term restructuring of an existing position.
3. Establish a Parking Advisory Committee consisting of downtown stakeholders to assist in parking
program implementation and review.
Guidinq Principle(s) Supported:
/ Assure a representative body of affected private and public constituents from within the
downtown informs decision-making.
/ Provide a "parking product" in the downtown that is of the highest quality to create a safe and
positive customer experience with parking and the downtown.
Rick Williams Consulting
Parking ~ Transportation Demand Management
Section Vll: Parking Management Plan -Strategy Recommendations
Page 63
The City should develop a process through which a representative cross-section of downtown
interests routinely assist the Parking Manager/Coordinator in the review and on-going
implementation of the Parking Management Plan.
The stakeholder advisory process and a Parking Advisory Committee will: (a) assist the Parking
Manager/Coordinator in the implementation of the parking management plan; (b) review parking
issues over time; and (c) advise City Council on strategy implementation based on the Guiding
Principles for parking management and use dynamics identified for specific parking areas.
4. Develop "exception" criteria for adoption by City Council that informs decision making for
establishment of loading zones and 15, 30, 60, 90 minute and No Limit stalls within the downtown
on-street supply.
Guiding Principle(s) Supported:
/ Recognize that on-street parking is a finite resource and should be managed to assure maximum
access for the priority customer.
/ Make downtown parking user-friendly - easy to access, easy to understand.
The 2009 - 2010 Parking Study recommends that all on-street
parking in the downtown be designated as 2 hour parking as a
base standard. This is predicated on study findings that indicate
the majority of "customers" in the downtown stay between 1.5
and 2 hours. As such, time designations of less than 2 hours do
not allow adequate time for a customer trip. Similarly, time stays
in excess of 2 hours are most likely being used by employees.
Given this, all other types of on-street parking that differ from the
2 hour base standard (e.g., loading zones, 15, 30, 60, 90 minute,
all day, etc.) would be considered "exceptions" and would have to
be requested by an affected business or property owner.
It is recommended that the Parking Manager/Coordinator and
Parking Advisory Committee establish criteria for exceptions as
well as a process for requesting exceptions. It is also
recommended that once specific criteria are established that the
City Manager would be empowered with administrative authority toapprove/deny requests based
on input from the Parking Manager/Coordinator and Parking Advisory Committee.
Criteria and process should consider the following:
a. Handicapped/disabled access
b. 15 - 90 minute zones
(1) Specific criteria for approval (i.e., by specific business type).
(2) Specific locations (i.e., end of block versus mid block).
(3) Number per geographic area (i.e., shared by users in a particular area).
Springfield Downtown Urban Design Plan -Parking Management
Section Vll: Parking Management Plan -Strategy Recommendations
Page 64
c. Loading zones
(1) Maximum number per block face(s).
(2) Limitation on number per geographic area (e.g., no more than one for every three
continuous block faces).
(3) Evaluation of opportunities for shared loading and customer parking.18
5. Establish a Downtown Parking and Transportation Fund as a mechanism to direct funds derived
from parking into a dedicated fund.
Guiding Principle(s) Supported:
/ Provide a "parking product" in the downtown that is of the highest quality to create a safe and
positive customer experience with parking and the downtown.
As the supply of parking becomes constrained over time, it will be important to direct funds into a
specific account intended to support on-going transportation and access in the downtown. This can
be done with existing and/or future parking-related revenue, or with net new revenues generated
as a result of implementation of this plan. The Downtown Parking Fund should be dedicated to (not
in priority order at this time):
a. Debt service
b. Parking operations (on-street/off-street/enforcement)
c. Lot/garage maintenance
d. Marketing and communications
e. Transportation Demand Management programs
f. New supply
It is recommended that such a fund be established as soon as feasible to ensure that net new
revenues are captured within the fund.
B. PARKING MANAGEMENT STRATEGIES - RECOMMENDED FOR IMPLEMENTATION
PHASE 1 IMPLEMENTATION (6 -12 months)
The following strategies are recommended for near-term implementation.
1. Appoint a Downtown Parking Manager.
Guiding Principle(s) Supported:
/ Continue coordinated management of the public parking supply.
Upon approval of a budget and service package by the City Council, the City should move forward
with the assignment of a downtown parking manager/coordinator or restructuring an existing City
18 "Combination Loading Zones" have been used in other jurisdictions allowing loading during specific periods of the day (e.g.,
6:30 a.m. - 10:00 a.m.), then convert to short-term parking during all other time periods. Such zones, if successfully managed,
can increase overall short-term supply.
Rick Williams Consu{ting
Parking ~ Transportation Demand Management
Section VII: Parking Management Plan -Strategy Recommendations
Page 65
position. In the early going, the position could likely be part-time (therefore, restructuring of an
existing FTE).
At the outset, it is recommended that the City dedicate at least 0.25 FTE to a position of parkin
manager/coordinator.
This position would be charged with the implementation of the overall parking management plan,
monitoring of parking in management districts over time, review and assistance to new
development and work with the Parking Advisory Committee to facilitate decision-making based on
the 85% Rule, Guiding Principles for downtown parking.
2. Initiate Parking Advisory Committee process.
Guidinq Principle(s) Supported:
/ Centralize management of the public parking supply and assure a representative body of
affected private and public constituents from within the downtown informs decision-making.
Once the Parking Manager/Coordinator is appointed and established, the process of review,
evaluation and decision-making with representative stakeholder input for parking management in
downtown should be initiated. A consistent and routine schedule of meetings should be established
as well as use of this plan as a template for discussion of parking management and strategy
implementation with the Parking Advisory
Committee. In the early going, the committee
could meet quarterly. As development in
downtown increases, meetings and deliberations
may require a monthly schedule.
It is recommended that the City Council formally
appoint members to the Parking Advisory
Committee using the citizens' group currently
assembled to oversee the 2009 - 2010 Parking
Study.
3. Develop and submit service package for new right of way signage per on-street changes in B. 4 - 7
below.
Guidinq Principle(s) Supported:
/ Make downtown parking user-friendly - easy to access, easy to understand.
/ Reserve the most convenient parking spaces to support customer, client, vendor and visitor
access to downtown.
Right-of-way informational signage will need to be developed to provide replacement signage as per
changes recommended here. A service package will need to be developed and presented to City
managers and/or City Council for approval.
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4. Add parking to the on-street system in the downtown in areas currently designated as no parking
areas. This parking will be provided as 2/3-hour parking or "2/3-hour or by permit" (based on
parking Zone). This would translate to as many as 71 total new stalls.
4a. Install new on-street signage in areas designated for new parking.
Guiding Principle(s) Supported:
/ Recognize that on-street parking is a finite resource and should be managed to assure maximum
access for the priority customer.
/ Manage the public parking supply using the 85% Rule to inform and guide decision-making.
The 2009 -2010 Parking Study identified anumber of on-street locations in the downtown where it
appears that parking could be added (see Parking Plan Data Summary). The best case scenario
would result in the addition of 71 net new stalls to the downtown parking inventory. It is
recommended that parking in Zone A be added as 2-hour parking and parking in Zone B be added as
"2-hour or by permit."
The City Traffic Engineer will need to review the "add backs" recommended by the Consultant team
for final approval. Once approved, it is recommended that the parking be (a) striped and (b)
properly signed as soon as is feasible.
5. Reduce andJor eliminate all 30 minute and No-limit parking stalls in Zone A and convert all stalls
to 2-hour parking. Requests for any other type of stalls in the future would be coordinated
through an exception process as described in Policy Level Action A. 4., above
Guiding Principle(s) Supported:
/ Recognize that on-street parking is a finite resource and needs to be managed to assure
maximum access for patrons.
/ Reserve the most convenient parking spaces to support customer, client, vendors and visitor
access to downtown.
The 2009 -2010 Parking Study demonstrated that the downtown currently maintains a number of
different stalls types. The variety of stalls types has led to (a) confusion on the part of the parking
customer, (b} high rates of violation and (c) low rates of turnover.
It is recommended that these stalls be converted to 2-hour signed stalls to create a parking zone
that is uniform and simple to understand. There are currently eight 30 minute stalls and 38 No-Limit
stalls in Zone A.
6. Develop an on-street employee parking permit program (i.e., paid permits) that would allow
limited use of 3-hour stalls for on-street all day parking in Zone B.
Guiding Principle(s) Supported:
/ Recognize that on-street parking is a finite resource and needs to be managed to assure
maximum access for patrons.
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/ Provide sufficient parking to meet employee demand, in conjunction with an access system that
provides balanced and reasonable travel mode options.
/ Manage the public parking supply using the "85% Rule" to inform and guide decision-making.
By providing a limited number of on-street monthly
parking permits, the City will (a)gain control of
how the on-street system in Zone B is utilized, (b)
be in a position to assure the 85% occupancy
standard is met,19 and (c) in the long term, derive a
source of revenue to support on-going parking
programs and strategy implementation.
Comparable Northwest cities charge monthly
employee on-street permit rates that range
between $10 (Milwaukie, OR), $45 (Kirkland, WA)
and $65 (Vancouver, WA).
Pending resources, the City could initiate the program as a free permit (e.g., issued quarterly to
registered employees) to transition employees into a "system" that directs use of the parking
supply. Similarly, a permit program for use of employee parking in the City's off-street system could
also be integrated into this strategy.
The City will need to evaluate the costs associated with establishing an administrative function for
distributing passes and collecting revenue associated with the passes.
7. Reduce and/or eliminate all 10 minute, 15 minute, 30 minute, 1-hour and No-limit parking stalls in
Zone B and convert all stalls to 3-hour parking "or by permit:' Requests for any other type of
stalls in this Zone would be coordinated through an exception process as described in Policy Level
Action A.4., above.
Guiding Principle(s) Supported:
/ Recognize that on-street parking is a finite resource and needs to be managed to assure
maximum access for patrons.
/ Provide sufficient parking to meet employee demand, in conjunction with an access system that
provides balanced and reasonable travel mode options.
/ Manage the public parking supply using the "85% Rule" to inform and guide decision-making.
On-street parking in Zone B is currently a varied mix of parking stall types. Zone B is also an area
that is significantly underutilized at this time, with peak hour occupancies of 50% or less. In an
effort to (a) simplify messaging for customers and (b) allow controlled levels of employee parking
on-street in Zone B, it is recommended that all parking be~initially designated 3-hour parking "or by
permit." Permits would be issued to any employee with a downtown business address, allowing
them to park at a 3-hour stall in this zone. This would provide a balance of on-street stalls for
customer/visitor and employee use as well as managing on-street turnover.
19 To this end the City can control the number of monthly permits issued, thereby assuring a specific supply of 3 hour parking
for customer visitor use. As the 85% occupancy standard is met, the number of permits available for sale can be reduced or the
rate for monthly parking can be increased to (a) induce parking in off-street lots and/or (b) encourage use of alternative modes.
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8. Restripe all on-street parking in Zones A & B to better identify parking availability and location.
Guidinq Principle(s) Supported:
/ Provide a "parking product" in the downtown that is of the highest quality to create a safe and
positive customer experience with parking and the downtown.
/ Make downtown parking user-friendly - easy to access, easy to understand.
Much of the on-street parking in the downtown study area is striped. Striping is effective because it
assists the customer in identifying a parking stall, thereby creating a sense of order and
convenience. Effective striping also reduces incidents of damage to vehicles and facilitates
compliance.
However, the recent inventory of parking revealed that in many areas the striping is faded and
difficult to discern. Many vehicles are parked improperly, most likely because the customer was
unable to clearly identify the parking stall. As such, it is recommended that the City re-stripe all on-
street stalls in Zone A & B as soon as it is financially feasible to do so. This effort could be correlated
with actions associated with parking add backs described in strategy B. 4 & 4(a) above.
9. Initiate an on-street employee parking permit program (i.e., paid permits) allowing limited use of
3-hour stalls for on-street all day parking in Zone B.
Guidinq Principle(s) Supported:
/ Recognize that on-street parking is a finite resource and needs to be managed to assure
maximum access for patrons.
/ Provide sufficient parking to meet employee demand, in conjunction with an access system that
provides balanced and reasonable travel mode options.
/ Manage the public parking supply using the "85% Rule" to inform and guide decision-making.
This strategy implements the program developed in B. 6, above.
10. Initiate parking enforcement activities in Zone A to assure existing time zones are honored and
system utilization/turnover is operating as intended.
Guidinq Principle(s) Supported:
/ Recognize that on-street parking is a finite resource and should be managed to assure maximum
access for the priority customer.
/ Make the downtown conveniently accessible for the priority user of the public parking system -
the patron of downtown.
/ Manage the public parking supply using the 85% Rule to inform and guide decision-making.
Based on the results of the turnover analysis, it is apparent that abuse of existing timed stalls is
extensive. This results in very inefficient turnover, which is not conducive to a successful street level
business environment. Similarly, the data suggests a significant number of employees using the on-
street system for parking. Adequate (and abundant) parking is (a) available off-street and (b) in
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Zone B. To this end, greater efforts at enforcement in Zone A are warranted. Enhancing parking
enforcement will (1) increase overall system efficiency and (2) sufficiently provide for cost recovery.
It is recommended that the Parking Manager/Coordinator work with the Parking Advisory
Committee to evaluate the cost and formatting of a parking enforcement officer for the downtown.
This position could be (a) contracted with the private sector and (b) provided in a part-time,
"random" format that controls cost but assures compliance.
It is further recommended that evaluation/costing of new enforcement be completed within 18
months for Phase 2 implementation. This would require completion of the evaluation, development
of a job description or RFP and service package for presentation to City Council.
PHASE 2 IMPLEMENTATION (12 - 24 months)
The following strategies are recommended for mid-term implementation.
11. Re-evaluate and reformat stalls in publicly owned off-street lots to balance employee use and
short-term access. Explore employee parking permit pricing based on 85% standard.
Guiding Principle(s) Supported:
/ Manage the public parking supply using the "85% Rule" to inform and guide decision-making.
/ Make the downtown conveniently accessible for the priority user of the public parking system -
the patron of downtown.
/ Provide sufficient parking to meet employee demand, in conjunction with an access system that
provides balanced and reasonable travel mode options.
/ If parking in City owned supply exceeds the 85 percent full standard, employee parking should
be transitioned and or phased out to assure priority customer parking is accommodated.
Greater enforcement of on-street parking in Zone A and allowing
longer term parking in Zone B (with permits), will likely create a
transition of more employees into off-street lots and freeing up
visitor parking in Zone A on-street spaces. This will create a "re-
sorting" of parking throughout the downtown. To assure that off-
street parking is balanced to both employee and visitor need, the
Parking Manager/Coordinator and Parking Advisory Committee
should explore designating a higher mix of stalls in off-street lots
(i.e., City Hall and the public surface lot) to employee stalls. This
can be accomplished through lot signage and/or permits.
Similarly, on employee lots that are exceeding the 85% occupancy
standard, the City should implement monthly pricing (in
combination with on-street permits in Zone B) to (a) create
choice within the system, (b) complement transit, bike/walk and
rideshare efforts and (c) establish a future revenue stream.
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12. Initiate a new and comprehensive outreach program to all businesses within the study zone that
communicates the parameters of the new Parking Management Plan.
Guiding Principles Supported:
/ The City's public information system should provide a clear and consistent message about auto
parking and access to and within downtown in order to optimize utility and convenience for all
users.
/ Transition more downtown employees into alternative modes (i.e., transit, bike, walk, rideshare)
through business-based programs and incentives.
Changes in the parking system resulting from
implementation of new Policy Actions and
strategies recommended through the Parking
Study will need to be communicated to the
public, businesses and employees. It is
recommended that the Parking
Manager/Coordinator and the Parking Advisory
Committee initiate discussions with key affected
stakeholders to educate them on the reasons for
the parking changes and on means to access the
system in the future.
13. Develop a Residential Parking Permit Zone (RPPZ) policy and program for adoption by the City
Council for future implementation in residential areas affected by spillover from commercial
parking (i.e., Zone C).
Guiding Principle(s) Supported:
/ Parking in areas zoned residential will be prioritized for residents and their guests and visitors.
Changes to parking management in the commercial zones of the downtown could cause issues
related to spillover of employees seeking parking in residential areas. To this end, it is
recommended that the Parking Manager/Coordinator and Parking Advisory Committee initiate
development of a Residential Parking Permit Zone (RPPZ) policy and program for future
consideration and adoption by the City Council. Such a policy would outline the criteria necessary to
establish an RPPZ (which would prioritize on-street parking in residentially zoned areas for
residents) and provide a mechanism for initiation of an RPPZ at the request of an affected
neighborhood association.
14. Negotiate shared use and/or lease agreements with owners of strategically placed existing private
surface lots in Zones A & B to provide for an interim supply of parking where needed. Begin focus
on Blocks 15, 18, 26, 37, 32 & 41 as identified in the 2009 - 2010 Parking Study.
Guiding Principle(s) Supported:
/ Provide sufficient parking to meet employee demand, in conjunction with an access system that
provides balanced travel mode options.
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/ Encourage/incept shared parking in areas where parking is underutilized.
The 2009 - 2010 Parking Study sampled a significant portion of existing privately owned off-street
parking lots located throughout the study zone. The general finding was that most are significantly
underutilized, even during peak times (i.e., less than 60~ percent occupied). These lots comprise
approximately 1,172 stalls and are generally without signage or have signage that is inconsistent and
confusing to customers and visitors. The ability of the City to "capture" as many privately owned
stalls as are available for more active management will provide a relatively low cost near to mid-
term strategy for mitigating existing and future access constraints during peak parking demand
periods. The study sample estimated that 530 stalls are empty in these lots at the peak hour.
Shared use agreements in other cities are wide and varied. In some cases (e.g. Gresham, Oregon)
the owner of the property "donates" surplus stalls to the City on a month to month basis in return
for assistance with signage and landscape/maintenance costs. Other cities (e.g., Kirkland, WA)
program funds within their parking budgets to lease surplus stalls from the private sector. These
stalls are then signed and/or metered and operated through the City's overall parking program
(including marketing and communications).
It is recommended that the City, through the Parking Manager and Parking Advisory Committee:
a. Initiate an effort to work with owners of private lots to enter into shared use agreements to
allow underutilized parking to be made available to customer/visitor or employee uses (as
appropriate).
b. Explore the development of incentives to encourage such agreements (i.e., signage, landscaping,
lighting, sidewalk improvements, leasing, etc.).
15. Develop and install a signage package of uniform design, logo and color at public and private
(shared use) off-street parking facilities.
Guiding Principle(s) Supported:
/ The City's public information system should provide a clear and consistent message about auto
parking and access to and within downtown in order to optimize utility and convenience for all
users.
/ Provide a "parking product" in the downtown that is of the highest quality to create a safe and
positive customer experience with parking and the downtown.
/ Make downtown parking user-friendly - easy to access, easy to understand.
Creating a uniform signage package that incorporates a unique logo and color scheme for publicly
available parking facilities will establish a sense of recognition, identity and customer orientation for
users of the downtown parking system.
It is recommended that the City:
a. Develop a signage package that incorporates a uniform design, logo, and color scheme into all
informational signage related to parking.
b. Evaluate land use and code implications of the signage package program particularly size, design
and placement issues, and initiate changes as appropriate.
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Page 72
c. "Brand" each off-street public facility, open to public access, with the established "logo"
package.
The Parking Advisory Committee can serve as a forum for development of such a package. Cost,
budgets and an implementation strategy will need to be developed as well for review by the City
Manager and the City Council.
16. Strategically place new and coordinated way finding signage in the right-of-way at locations
chosen carefully to direct visitors to off-street locations.
Guiding Principle(s) Supported:
/ Make the downtown conveniently accessible
for the priority user of the public parking
system -the ap tron of downtown.
/ Make downtown parking user-friendly -easy
to access, easy to understand.
/ Provide a "parking product" in the downtown
that is of the highest quality and safe, to
create a positive customer experience with
parking and the downtown.
The City should develop directional signage on the roadways that direct customers to specific
facilities. This will be of greatest importance at primary portals into the downtown, at major traffic
intersections and at primary points of ingress at specific facilities. It is recommended that:
a. The signage package should be consistent with, and complementary of, the signage package
developed for the off-street facilities (see 15, above).
b. The address of the nearest visitor facility should be incorporated into the roadway signage to
assist and direct customers to the nearest parking location.
17. Partner with the business community to develop/refine a marketing and communication system
for access in Springfield. The marketing/communication system could include (but not be limited
to): branding; maps and Transportation Demand Management (TDM) alternatives.
Guiding Principle(s) Supported:
/ The City's public information system should provide a clear and consistent message about auto
parking and access to and within downtown in order to optimize utility and convenience for all
users.
/ Provide a "parking product" in the downtown that is of the highest quality to create a safe and
positive customer experience with parking and the downtown.
/ Make downtown parking user-friendly -easy to access, easy to understand.
A successful parking system will require on-going marketing and communication. The foundation for
a marketing and communication program is the signage and wayfinding package recommended in
this report (see strategies 15 and 16). Support of this system can be facilitated through
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informational maps and brochures about Springfield and its parking system distributed by the City
and through Business Associations, Visitor Services, Retail and Lodging networks.
It is recommended that the City:
a. Partner with the business community to develop a
marketing and communication system for access in
Springfield. The Parking Advisory Committee can serve as
the business forum for this discussion.
The marketing/communication system would include
' (but not be limited to):
(1) Maps. Develop maps that visually represent parking
zones (e.g., Zones A, B & C) and identify the location
of visitor versus employee facilities.
(2) Validation program. Evaluate the feasibility of retail
validation systems if, and when, paid customer
parking moves off-street.
(3) TDM alternatives. Incorporate alternative mode
options (i.e., shuttles, transit, and bicycle) into
parking communications materials.
18. Evaluate and develop a minimum parking ratios policy for new development in the downtown, to
assure that access impacts of new development are (a) meaningfully addressed, (b) correlated to
actual parking demand and (c) provide potential for generating a revenue source for future
parking through a parking fee-in-lieu option.
Guiding Principle(s) Supported:
/ Calibrate parking standards to support the City's goals for transit, biking, walking and
ridesharing.
/ Provide sufficient parking to meet employee demand, in conjunction with an access system that
provides balanced travel mode options.
/ Provide clear and strategic direction to new development in downtown to assure that new
growth improves the overall system of access.
Minimum parking development ratios are common to many downtowns. For the most part they are
imposed to assure that new development does not have an adverse impact on parking supplies and
access systems that serve existing uses in a development area. Conversely, in order to support a
viable parking system and to encourage multi-modal growth in Springfield, there should be a direct
relationship between the City's minimum parking requirements, actual parking demand and broader
goals for use of alternative transportation modes. In other words, minimum parking requirements
should always be less than the actual maximum demand for parking.
The 2009 - 2010 Parking Study established actual parking demand in the downtown at a rate of 1.28
stalls per 1,000 square feet of new development. Given this finding, the following is recommended.
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• Develop a minimum parking requirement for new commercial development within the
downtown of 0.70 stalls per 1,000 square feet.
• Prepare this recommendation for City Council review and adoption.
19. Evaluate and develop restrictions on new surface parking lot development within Zones A & B.
Guidinq Principle(s) Supported:
/ Correlate parking requirements more directly to mixed-use development vision for downtown.
The land use vision for downtown currently under development by Crandall Arambula and the
Citizen's Advisory Committee forecasts a denser more compact urban form for Springfield. To
support the type of "lot coverage" envisioned in the plan, the City will need to move toward
restrictions, if not prohibitions, on the development of surface parking.
It is recommended that the Parking Manager/Coordinator and the Parking Advisory Committee
evaluate:
a. Limiting the lot coverage area of future surface parking lots in the downtown.
b. Prohibiting new surface lots in new development.
c. Correlating surface lot restrictions to a fee-in-lieu option for developers as supported in Strategy
19 (below).
d. Preparation of a policy/program recommendation for City Council review and adoption.
20. Evaluate and develop afee-in-lieu option for new parking development in the downtown.
Guidinq Principle(s) Supported:
/ Correlate parking requirements more directly to mixed-use development vision for downtown.
/ Provide sufficient parking to meet employee demand, in conjunction with an access system that
provides balanced and reasonable travel mode options.
A key challenge for Springfield will be the ability to (a) attract new development to the downtown,
(b) maintain and encourage an urban form for new development that is consistent with the
downtown vision and (c) contain costs associated with new parking development.
Offering developers the option to pay afee-in-
lieu against a minimum parking requirement,
which then provides "access entitlements" into
public parking for their development, may bean
attractive and workable program for providing
parking in the future. A fee-in-lieu rate would be
set at a level below what it would cost a
developer to provide the parking themselves.
This would save on development costs and
provide a guaranteed entitlement to parking for
the new development. Fees-in-lieu could be
Necessarily, afee-in-lieu option commits the City to
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playing a key role in developing and managing parking in the future. As such, additional discussion
and review is necessary.
It is recommended that the Parking Manager/Coordinator and the Parking Advisory Committee
evaluate:
a. Design of a fee-in-lieu policy for consideration by the City Council.
b. Pros and cons of optional versus mandatory fee-in-lieu programs.
c. Rates
d. The option to pay fees-in-lieu on a parking minimum as well as the option to "buy more,"
up to a fee-in-lieu maximum.
e. Preparation of a policy/program recommendation for City Council review and adoption.
21. Develop a recommended package of incentives for the private development of publicly available
parking.
Guiding Principle(s) Supported:
/ Provide clear and strategic direction to new development in downtown to assure that new
growth improves the overall system of access.
/ Encourage/intent shared parking in areas where parking is underutilized.
Developers generally provide and manage parking to serve exclusive accessory uses to their
particular site. As such, sites are often developed without benefit of a process or policy that would
allow for discussions to maximize both the accessory and public supply of parking in a given private
project or to encourage employees to use alternative transportation modes.
Given the cost of parking development it will be important and useful for the City to encourage the
development of publicly available parking in future private development projects. The opportunity
to intent either more flexible management of private supplies (allowing general public access) or
additional supply for public use within a private project should be explored as well as TDM systems
that could reduce overall development costs.
Based on the overall priority of customer/patron parking in City owned/controlled facilities, the City
should also explore incentives that encourage and support development of residential parking in
private off-street locations to ensure that conflicts between future residential parking demand and
customer/visitor demand are minimized.
The first step to creating a "toolbox" of incentives (such as Floor Area Ratio and height bonuses)
requires development of a formal policy that would allow the City to offer incentives if specific
public parking and transportation goals were met in the context of a private downtown
development. It is recommended that the Parking Manager, Parking Advisory Committee and key
development stakeholders examine a set of incentives that could be adopted by the City as a means
to intent future parking development.
Examples of development incentives currently available in other jurisdictions include (but are not
limited to):
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• Floor Area Ratio (FAR) bonuses
• Height bonuses
• Permit fee waivers
• Impact fee waivers
• Supply/revenue agreements20
• Property tax abatements
22. Prepare a package of policy and program items that include Strategies 13 and 18 - 21 for City
Council review and adoption.
Guidinq Principle(s) Supported:
/ Correlate parking requirements more directly to mixed-use development vision for downtown.
A Residential Parking Permit Zone program, parking minimums, surface lot guidelines, development
incentives and afee-in-lieu program will provide effective tools for directing future parking
development.
PHASE 3 IMPLEMENTATION X24 months and beyond)
The following strategies are recommended for long-term implementation
23. Lease/acquire strategically located land parcel(s) for use as future public off-street parking in the
downtown.
Guidinq Principle(s) Supported:
/ Provide adequate and affordable employee parking and reasonable access options.
/ Strategically locate and actively manage parking under public control and/or ownership to
accommodate customer access to the area.
The City should move to acquire strategically located development parcels that could be used as
"consolidated" parking areas for visitors and employees of the downtown. It is important to gain
control of such sites to assure that parking can be used as an incentive to new development
(through fee-in-lieu options) and is proximate to desired development opportunities.
It is recommended that the Parking Manager/Coordinator and Parking Advisory Committee evaluate
opportunities related to parking site acquisition and forward recommendations on specific sites to
the City Council.
20 Revenue agreements are {ease agreements whereby the City agrees to a guaranteed lease for spaces at a negotiate rate per
stall.
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24. Sponsor employer-based initiatives to encourage employee use of alternate travel modes.
Guiding Principle(s) Supported:
/ Parking should be just one of a diverse mix of access options available to users of the
downtown. .
/ Transition more downtown employees into alternative modes (i.e., transit, bike, walk, rideshare)
through business-based programs and incentives.
As the downtown evolves, greater constraints to parking access will occur given (a) the scarcity of
land for surface parking development and (b) the cost of future parking supply that is transitioned
into parking structures. To this end, more focused programs and incentives will need to be provided
to commuters to increase use of transit, bike, walk and rideshare options.
The Parking Advisory Committee (PAC) should devote time and discussion to establishing commute
trip reduction programs within the downtown. The PAC can serve as a forum to bring Lane Transit,
business associations and the City together to discuss and create new incentives and directions for
transportation demand management.
25. Establish commuter mode split targets for employee access in the downtown.
Guiding Principle(s) Supported:
/ Correlate parking requirements more directly to mixed-use development vision for downtown.
/ Transition more downtown employees into alternative modes (i.e., transit, bike, walk, rideshare)
through business-based programs and incentives.
It is recommended that the City of Springfield, through discussions and review with the Parking
Advisory Committee, formally incorporate mode splits targets for all modes (i.e., SOV, transit, bike,
walk and rideshare) into its parking management policy. The purpose of this strategy would be to
zi This recommendation is directed at the area boundary covered by the 2009 -2010 Downtown Springfield Parking Study. The
discussion of commuter mode split targets for areas outside the study zone may be useful as parking management in
Springfield expands over time.
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clearly establish a logical link between mode split targets and actual parking maximums as discussed
in Strategy 27, below. Over time, Springfield may want to explore implementing maximum parking
ratios that are logically correlated to the mode split targets established for the downtown.
26. Monitor downtown parking utilization continuously and periodically. Conduct parking
inventory analyses.
Guidinq Principle(s) Supported:
/ Implement measurements and reporting that assures Guiding Principles are supported and
achieved.
/ Manage the public parking supply using the 85% Rule to inform and guide decision-making.
The recently completed analysis of Springfield's
parking inventory provides excellent information
on parking utilization, turnover, duration of stay,
peak hour capacity and demand.
The need for this data is very important as a
foundation piece for determining actions to
maximize parking supply. Periodic monitoring of
parking activity will allow Springfield to (a) better
coordinate enforcement, (b) assure maximum
utilization based on intended uses and (c) provide
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solid evidence for the need to move to higher
and/or more aggressive levels of parking management as called for in the Guiding Principles.
It is recommended that a parking inventory analysis be conducted at least every two years.
Information from these updates would be forwarded to the Parking Manager/Coordinator and the
Parking Advisory Committee for review, evaluation and strategy implementation.
27. Recommend to the City Council the commuter modes split targets developed in 25, above, for
adoption as a policy element of the Springfield Transportation and Parking Management Plan.
Guidinq Principle(s) Supported:
/ Transition more downtown employees into alternative modes (i.e., transit, bike, walk, rideshare)
through business-based programs and incentives.
/ Correlate parking requirements more directly to mixed-use development vision for downtown.
It is recommended that the City formally adopt commuter mode split goals as a key policy element
of the City's transportation and parking management plan. This would assure that all parking
standards, strategies and programs are logically correlated to the City's broader goals for access by
all modes.
28. Evaluate the impact of near and mid-term strategies based on an updated utilization and demand
study. If and when warranted, develop a pricing policy strategy and implement paid on street
parking in downtown districts based on the 85% Rule.
Rick Williams Consulting
Parking ~ Transportation Demand Management
1
Section Vll: Parking Management Plan -Strategy Recommendations
Page 79
Guiding Principle(s) Supported:
/ Manage the public parking supply using the 85% Rule to inform and guide decision-making.
The Phase 1 and 2 strategies outlined above will create changes in access dynamics downtown. If,
after nearly three years of growth, parking occupancies in downtown routinely exceed 85% in the
peak hour, move to meter the impacted zone(s). If metering is pursued, it is recommended that on-
street pay stations be considered rather than single head meters.
Options can range from pricing parking in specific areas (e.g.,
off-street only) to pricing specific users (e.g., employees) to a
comprehensive system of pricing that would include metering
on-and off-street.
The Parking Manager/Coordinator and the Parking Advisory
Committee should develop a coordinated strategy for how
parking pricing will be implemented as the demand for
parking and new parking supply evolve in the mid- to long-
term. Once developed, the parking pricing strategy should be
presented to the City Council for review and approval.
The outline of strategy issues presented below is intended to
inform the City, the Parking Manager/Coordinator and the
Parking Advisory Committee on major decision and
management guidelines should pricing become necessary as a
means to maximize and facilitate access capacity.
a. Meter on-street parking to increase efficiency and capacity.
As the 85% Rule triggers additional and more aggressive management of the supply, Springfield
may at some future point consider pricing parking in areas that are currently free. At that point
pricing would be intended to (a) facilitate more efficient turnover, (b) encourage use of specific
facilities in specific parking zones (i.e., short-term vs. employee parking), (c) encourage use of
alternative modes, and (d) provide a funding source for improvements to existing supplies,
development of new supply and alternative mode options.
In the context of pricing, Springfield should consider new technologies available and in place in
other cities that allow for flexibility in the management of parking pricing and contribute and
complement Springfield's existing and desired urban form. "Multi-space metering" and "pay-
and-display" systems are an example of these types of technology, which allow a City to charge
for parking without "cluttering" the pedestrian way with individual meters.
b. Charge for parking in publicly owned off-street facilities.
The City should establish a policy for pricing short-term parking in publicly owned or controlled
off-street facilities. The framework of such a policy is provided below:
Springfield Downtown Urban Design Plan -Parking Management
Section Vll: Parking Management Plan -Strategy Recommendations
Page 80
(1) "Short-term rate" is equal to hourly fee charged at on-street system
(2) Evening rates established to attract/serve appropriate uses
(3) Long-term, daily/monthly rates balanced by Rule of 8S%
(4) Rate manipulation triggered by Rule of 85%
(5) Rate manipulation generally at the long-term end to facilitate transition of long-term
parkers to appropriate parking locations within the downtown.
Revenue collection in off-street facilities can vary greatly by type of facility, design and mix of
uses (i.e., short-term, long-term, monthly).
29. Complete development and open new public supply in the downtown.
Guiding Principle(s) Supported:
/ Provide a "parking product" in the downtown that is of the highest quality and safe, to create a
positive customer experience with parking and the downtown.
Completion of site identification, planning, outreach and funding efforts described would be
finalized and the project completed and opened to the public.
C. SUMMARY
The parking management strategies recommended here are intended to provide a template for action
that would lead to a more efficient and organized parking system for the Downtown Springfield. The
strategies would be led by a Parking Manager/Coordinator with informed insight and direction from a
representative Parking Advisory Committee.
It is recommended that the strategies envisioned here be implemented over a minimum of 24 months,
triggered by the 85% Rule and documented parking demand. Overall, the strategies are designed to get
the "right parker to the right parking spot" in a manner that supports the Guiding Principles established
as a part of this plan.
Rick Williams Consulting
Parking ~ Transportation Demand Management
Section Vll: Parking Management Plan -Strategy Recommendations
Page 81
IMPLEMENTATION SCHEDULE
Immediate Phase 1 Phase 2 Phase 3
Strategy
(0 - 6 months)
(6 -12 mos.)
(12 - 24 mos.)
(2+ years) Comment
POLICY ACTIONS
A. 1(a) - (d) Aids in guiding future
Adopt policies and decision making and
rules (Guiding & / strategy
Operating Principles, implementation.
85% Rule and rate
ranges).
A. 2 To provide routine
Develop a job oversight and continued
description and submit input in the process.
a service package to
create a position of
"
Parking
Coordinator/Manager"
for the City of
Springfield.
A. 3 To provide routine
Establish a Parking oversight and continued
Advisory Committee input in the process.
consisting of
downtown
stakeholders to assist
in parking program
implementation and
review.
A. 4 In the future, on-street
Develop "exception" parking in zones will be
criteria for adoption formatted using a base
by City Council that standard (e.g., 2 hours).
informs decision Exceptions to the base
making for ~ standard should be
establishment of granted only for
loading zones and 15, businesses that
30, 60, 90-minute and demonstrate a legitimate
No-Limit stalls within need.
the downtown on-
street supply.
A. 5 Ensures parking funds
Establish a Downtown are "harbored" in a
Parking and manner that supports an
Transportation Fund on-going parking
as a mechanism to / management and facility
direct funds derived system.
from parking into a
dedicated fund.
Springfield Downtown Urban Design Plan -Parking Management
Section VII: Parking Management Plan -Strategy Recommendations
Page 82
Strategy Immediate
(0 - 6 months) Phase 1
(6 -12 mos.) Phase 2
(12 - 24 mos.) Phase 3
(2+ years)
Comment
NEAR TERM IMPLEMENTATION
B. 1 Initiates centralization of
Appoint Parking / parking program.
Manager/Coordinator
B. 2 Provides oversight and
Initiate Parking monitoring committee
Advisory Committee / / / for Parking Manager and
process assures guidance of plan
and information
feedback for City Council.
B. 3 Necessary to support
Develop and submit new time stay format on-
service package for street.
new right of way /
signage per on-street
changes in B. 4 - 7
below.
B. 4 & B. 43 (a) Provides new resource of
Add back parking in parking on-street
current no parking `~ without need to build
areas (up to 71 stalls). new facilities.
Provides signage and
Provide appropriate striping to assure
signage and striping / convenient access and
to support new stalls. intuitive use by
customer(s).
g, 5 Controls employee use of
Reduce and/or on-street system in
eliminate all 30 constrained parking
minute and No-limit / zones.
parking stalls in Zone Increases supply of
A and convert all parking for visitors in
stalls to 2-hour area of highest demand
parking. for access.
g, G Moves longer term
Develop an on-street parkers into
employee parking underutilized parking
permit program (i.e., while opening up stalls in
paid permits) that / / / the core for priority
would allow limited visitor parking.
use of 3 hour stalls
for on-street all day
parking in Zone B.
Rick Williams Consulting
Parking ~ Transportation Demand Management
Section Vll: Parking Management Plan -Strategy Recommendations
Page 83
Strategy Immediate
(0 - 6 months) Phase 1
(6 -12 mos.) Phase 2
(12 - 24 mos.) Phase 3
(2+ years)
Comment
B. 7 Standardizes parking to
Reduce and/or provide more
eliminate all 10 convenience and
minute, 15 minute, predictability.
30 minute, 1-hour ~
and No-limit parking
stalls in Zone 6 and
convert all stalls to 3-
hour parking "or by
permit."
B. 8 Upgrades existing
Restripe all on-street parking supply to provide
parking in Zones A & clear and convenient
B to better identify / identification of on-
parking availability street parking.
and location.
B. 9 Moves longer term
Initiate an on-street parkers into
employee parking underutilized parking
permit program (i.e., while opening up stalls in
paid permits) / / / the core for priority
allowing limited use visitor parking.
of 3 hour stalls for
on-street all day
parking in Zone B.
6.10 Reduces abuse of time
Initiate parking zones and increases
enforcement turnover.
activities in Zone A to
assure existing time
zones are honored /
and system
utilization/turnover is
operating as
intended.
MID-TERM IMPLEMENTATION
B. 11 Assures parking is
Re-evaluate and managed to (a) prioritize
reformat stalls in customer access (b)
publicly owned off- complement TDM efforts
street lots to balance and (c) price parking to
employee use and ~ "market demand."
short-term access.
Explore employee
parking permit
pricing based on 85%
standard.
Springfield Downtown Urban Design Plan -Parking Management
Section Vll: Parking Management Plan -Strategy Recommendations
Page 84
Immediate Phase 1 Phase 2 Phase 3
Strategy Comment
(0 - 6 months) (6 -12 mos.) (12 - 24 mos.) (2+ years)
B. 12 Implementation of a new
Initiate a new and parking plan will create
comprehensive changes that need to be
outreach program to effectively
all businesses within communicated to
the study zone that / / businesses and
communicates the employees.
parameters of the
new Parking
Management Plan.
B. 13 Provides criteria and
Develop a Residential process allowing
Parking Permit Zone neighborhood
(RPPZ) policy and associations to request
program for adoption RPPZ's as a response to
by the City Council / parking spillover issues
for future
implementation in
residential areas
affected by spillover
from commercial
parking (i.e., Zone C).
B. 14 Redirect underutilized
Negotiate shared use private parking supply
and/or lease for more general public
agreements with use
owners of / /
strategically placed
existing private
surface lots in Zones
A&B
B. 15 Improves customer
Develop and install a awareness of supply
signage package of options
uniform design, logo /
and color at public
and private (shared
use) off-street
parking facilities.
B. 16 Improves customer
Strategically place awareness of supply
new and coordinated options.
way finding signage
in the right-of-way at `~
locations chosen
carefully to direct
visitors to off-street
locations.
Rick Wiili~~~ Consulting
Parking ~ Transportation Demand Management
Section VII: Parking Management Plan -Strategy Recommendations
Page 85
Immediate Phase 1 Phase 2 Phase 3
Strategy
(0 - 6 months)
(6 -12 mos.)
(12 - 24 mos.)
(2+ years) Comment
B. 17 Provides a coordinated
Partner with the system of
business community communication for all
to develop/refine a ~ ~ those who want to
marketing and access downtown
communication Springfield
system for access in
Springfield.
B. 18 Better correlates
Evaluate and develop development standards
a minimum parking to actual parking
ratios policy for new demand.
development in the ~ Assures parking
downtown, standards are not an
impediment to
development.
Supports alternative
mode goals.
B. 19 Supports land use vision
Evaluate and develop for the downtown and
restrictions on new ~ assures more compact
surface parking lot urban form.
development within
Zones A & B
B. 20 Encourages private
Evaluate and develop sector investment in
a fee-in-lieu option ~ ~ parking that can mutually
for new parking benefit a project and the
development in the downtown
downtown.
B. 21 Upgrades existing
Develop a parking supply to provide
recommended clear and convenient
package of incentives ~ identification of on-
forthe private street parking.
development of
publicly available
parking.
B. 22 Supports more effective
Prepare a package of management of parking.
policy and program
items that include
Strategies 13 and 18
- 21 for City Council
review and adoption.
Springfield Downtown Urban Design Plan -Parking Management
Section Vll: Parking Management Plan -Strategy Recommendations
Page 86
Strategy Immediate Phase 1 Phase 2 Phase 3
Comment
(0 - 6 months) (6 -12 mos.) (12 - 24 mos.] (2+ years]
LONG-TERM IMPLEMENTATION
B. 23 Provides strategically
Lease/acquire located sites for future
strategically located public parking facilities.
land parcel(s) for use ~ Reduces need to build
as future public off- new parking by better
street parking in the utilizing existing
downtown. resources.
B. 24 Uses Parking Advisory
Sponsor employer- Committee as forum to
based initiatives to discuss and develop
encourage employee programs and services to
use of alternate encourage transit, biking
travel modes. ~ and walking for
downtown employees.
Supports more efficient
use of existing supplies
of parking by
transitioning employees
into alternative modes.
B. 25 Establishes basis for
Establish commuter correlating parking
mode split targets for `~ standards to overall
employee access in downtown access goals
the downtown. for all modes.
B. 26 Update 2009 - 2010
Monitor downtown Parking Study to provide
parking utilization information for informed
continuously and decision making and to
periodically. Conduct / measure impact of
parking inventory parking management
analyses. plan.
Supports 85% Rule
B. 24 Provides ideas and
Develop an incentive concepts to Council for
package for Council consideration.
consideration that
Encourages private
would support / sector investment in
private sector
parking that can mutually
development of benefit a project and the
parking that could be downtown.
generally available to
the public.
Rick Williarr~s Consulting
Parking ~ Transportation Demand Management
Section VII: Parking Management Plan -Strategy Recommendations
Page 87
Strategy Immediate
(0 - 6 months) Phase 1
(6 -12 mos.) Phase 2
(12 - 24 mos.) Phase 3
(2+ years)
Comment
B. 25 Uses Parking Advisory
Sponsor employer Committee as forum to
based initiatives that discuss and develop
encourage and intent programs and services to
employees to use encourage transit, biking
alternative commute ~ and walking for
modes downtown employees.
Supports more efficient
use of existing supplies
of parking by
transitioning employees
into alternative modes.
B. 26 Establishes basis for
Establish commuter adjusting parking
mode split targets for / standards based on
employee access in overall downtown access
the downtown. goals for all modes.
B' 2~ Formalizes commitment
Recommend to the to managing parking to
City Council the support, balance and
commuter modes meet broader access
split targets goals.
developed in 25, ~
above, for adoption
as a policy element of
the Springfield
Transportation and
Parking Management
Plan.
B' 28 Moves on-street system
If and when to paid parking when
warranted, develop a occupancies throughout
pricing policy strategy downtown exceed 85%
and implement paid '~ in the peak hour.
on street parking in
downtown districts
based on the 85%
Rule.
B• 29 Converts Phase 2 surface
Complete lot to structured parking.
development and ~ Cou(d be by City or part
open new public of public/private
supply in the partnership.
downtown.
Springfield Downtown Urban Design Plan -Parking Management