2007-2008
Accomplishments
Parking Garage Needs Assessment Study:
The Parking Garage Needs Assessment Study
concluded in late 2007. The details of this important study may
be found below:
BACKGROUND
Over the last two years the City has been
involved in a parking garage study. In January 2006, we issued
an RFP for a Downtown Parking Garage Needs Assessment Study.
The intent was to hire an engineering consulting firm to conduct
a downtown two-stage parking garage analysis that would provide
a multi-story parking garage needs assessment, and based on the
findings of the needs assessment, either provide preliminary
multi-story garage site selection, conceptual design, cost
estimates and economic feasibility of a multi-story garage – or
– provide recommendations on improving the parking availability
and efficiency in downtown Newark that do not include a
multi-story garage construction.
Once
proposals were received, a Parking Garage Needs Assessment
Steering Committee was appointed to assist in the consultant
selection process. Specifically, the committee was tasked with
reviewing the proposals submitted for the RFP, meeting with
selected firms, and developing a recommendation on which firm to
hire to conduct the study. The committee was also appointed to
provide oversight and ensure an unbiased study, review the final
product and provide a recommendation on how to proceed from that
point forward. Steering Committee Members included John
Newcomer, DNP Parking Committee Chairman; James Grimes,
Assistant Director of UD Public Safety; Joseph Wald, Newark
resident and former Chairman of the Planning Commission; Richard
Handloff, downtown business and property owner; Carol Houck,
Assistant to the City Manager; Andrew Haines, Parking
Administrator; and Maureen Feeney Roser, Assistant Planning and
Development Director and DNP Administrator. The steering
committee met, reviewed and ranked the 9 RFPs submitted for the
project, interviewed the two top ranked firms, and unanimously
recommended that Desman Associates be hired to conduct the
Parking Garage Needs Assessment Study. City Council awarded the
contract to Desman Associates in March 2006.
PROCESS
The
Steering Committee met with Desman Associates on April 11,
2006 to review the scope of work and timeframes for the
study, provide data Desman Associates requested to
successfully complete the study, define the study
boundaries, and make suggestions for stakeholders to be
interviewed as part of the process.
The
study area approved by the Committee is the area bounded by
Tyre Avenue to the East, Delaware Avenue to the South,
Elkton Road to the West and the CSX Railroad tracks to the
North. The study was divided into Phases - the first being
an analysis of parking supply and demand and determination
of future parking demand; and the second a parking structure
conceptual design and financial feasibility analysis or
alternate recommendations to improve parking.
PHASE
ONE
Phase
One involved an inventory of spaces, an occupancy survey, a
determination of practical capacity and stakeholder
interviews. Therefore, an inventory of all parking (on
street and off street) in the study area was conducted. The
area contains a total of 1,849 parking spaces. 198 or 11%
of the total are on-street meters and 1,651 (89%) are
off-street parking spaces. Of the 1,651 off street spaces,
655 of them or 33% are located in municipal pay-to-park
hourly lots (Lots 1, 3, 4), 117 or 7% are in monthly permit
lots (Lots 2, 5), and 966 or 60% are in private customer
only parking lots. To determine the utilization of these
spaces, Desman conducted parking occupancy surveys on
Thursday April 27, 2006 from 8 AM to 6 PM and Friday, April
28, 2006 from 10 AM to 10 PM. The data collection periods
were selected and approved by the committee to provide data
from different demand times so that the study group could
establish a peak, weekday utilization period for the
downtown area.
The
process revealed two peak periods for on and off street
parking downtown – 12 PM and 8 PM. This peak occupancy
information was further refined in terms of “practical
capacity.” Desman notes that the term practical capacity
relates to “the overall efficiency of a parking facility and
is also used as another measure of stress on the system’s
supply. A parking facility is perceived by its users to be
full when occupancy levels reach 85-95%. Once this level is
exceeded, potential parkers find it difficult to find an
available space. The effective and efficient turnover of
convenient parking spaces is most successful when the supply
of spaces exceeds the parking demand for those spaces by
5-15%.” For the study, therefore, Desman used a 90%
practical capacity for all parking facilities in study
area. Using this measure, on-street parking totals revealed
an 80% occupancy rate during peak periods, while off-street
showed 72% occupancy total at peak. It is important to
note, however, that the average for total off-street space
occupancy rates showed marked differences between private
customer lots and public pay to park lots. In fact, Lots 1,
2 and 4 had occupancy rates of 98, 100, and 96% occupancy
levels respectively. This finding, along with a review of
private lot locations within the study area led to a further
refinement of the study area by geography. The study area
was, therefore, divided into two geographic areas to better
understand the current parking supply and demand conditions,
especially as they apply to the “core businesses” in
downtown. Chapel Street was used to separate downtown
Newark into east and west districts for study purposes.
The
East District which includes parking generators such as the
Newark Shopping Center and Market East Plaza was determined
to be clearly under-utilized, with peak occupancy for the
parking facilities at only 55% at 12 PM – and metered
parking averaged only a 30% occupancy rate at the same time
period. The result is a practical surplus of 288 spaces at
peak occupancy in the East District. On the other hand, the
West District had 83% occupancy during the peak period, and
a number of facilities in the district experienced practical
parking deficits. Lots 1, 2 and 4, as well as the Christina
School District lot, had combined peak occupancy at 12 PM of
96% - well beyond recommended levels.
In
addition to the analyses above, interviews with various
stakeholders and city staff were also conducted in Phase One
in an effort to determine if there is any consensus in
regards to the perspective of public parking in downtown
Newark. The interviews also helped determine if perceptions
about parking are in line with the empirical realities.
Through the interviews, the consultants found that, while
not all believe that there is an actual shortage of parking
spaces available, most believe that Newark is perceived as
having a lack of parking, and as a result, faces a deterrent
to economic development.
Finally,
regarding future conditions which may affect parking supply and
demand, the consultants reviewed potential development projects
as well as vacancies in the study area. Unfortunately, most of
these potential parking demand generators are located in the
western district of the study, placing more stress on the
limited supply in that area. Taking all this information into
account, the consultants concluded that, despite the current
public perception, there is currently adequate parking in
downtown Newark. The West District of the downtown area, where
many of the restaurants are located, has significantly less
available parking at peak occupancy than the East District, and
with the potential developments in the area, the consultants
believe that, while current levels do not constitute a
deficiency, in the short term, a deficit will exist in the west
district. Therefore, they recommend four options to address the
potential parking deficit:
1. Better
utilize the available parking in the east section of downtown
combined with a Main Street shuttle – the potential advantage of
this is, other than the shuttle, there would be no parking
investment required by the city. Having said that, the
consultant conceded that customers using establishments downtown
would not find this option acceptable either from a level or
service or convenience perspective.
1.
Expand current surface parking – this option was offered as the
most cost effective way to provide additional municipal
parking. The trouble with this recommendation is that the city
leases much of its current municipal parking and has not
accumulated a lot of land over the years to expand surface
parking. In addition, its appears that there is limited land
available around existing surface parking areas to expand
surface parking.
2.
Build Structured Parking – The advantage of this option is that
it is a more effective use of land. The disadvantage is, of
course, the cost to build it. Having said that, the consultants
found that building at least a net 250 space parking garage
would help the city overcome the perception of inadequate
parking; provide adequate parking for the new developments
anticipated over the next few years, provide enough parking to
stimulate economic development of “undeveloped parcels”
downtown; and send a message to the business community that the
city is a willing partner and wants businesses to succeed in
Newark.
3.
Issue a moratorium on any future parking space ordinance waiver
and require businesses to build to Code. This option
requires no direct financial investment in parking by the city,
but could prevent private developments from being built.
In the
Phase One report conclusion, Desman Associates indicates that
the City of Newark is at a crucial point in how we approach
parking downtown and makes a series of recommendations to
improve downtown parking, several of which we are already
working on, at least in part. For example, one recommendation
was to consolidate all the elements of parking to include on
street and off-street, including enforcement, within the Parking
Division which is proposed in part for the 2008 budget (the
Parking Division will take over meter maintenance and money
collections, but not enforcement); and continuing to invest in
technology and automation to parking to improve user
friendliness, enhance revenue and reduce operating costs, which
is already part of the 2009 budget process. Other
recommendations from Phase One, involve comprehensive long-range
parking planning, consolidation of finances to fund
improvements, and a reference to the City’s need to determine if
it “wants to control its own destiny and develop parking to
facilitate economic growth.” In this regard, the report
recommends land banking for at least a 250 space (net) future
parking structure.
PHASE
II
Following its receipt of Phase I of the parking study, the
Steering Committee decided to move ahead with Phase II in
order to ensure a comprehensive analysis that would provide
assessment of possible sites and preliminary designs for
potential new multi-story parking facilities downtown.
Desman Associate, as a result, moved ahead with the first
segment of Phase II which included preliminary parking
garage site elevations, estimated construction costs, and
schematic garage designs based on a lot footprint. The
Committee requested that this work be done using a 500 net
space facility because Desman’s analysis identified a
long-term deficit of more than the 250 spaces, and if, in
fact, the City was to pursue building a structure to meet
the parking challenge, it should be adequate to meet
downtown’s parking needs over the long, rather than short,
term.
For
Phase II Desman Associates developed parking garage
schematics for the parcels of land that currently make up
lots 1, 3 and 4 accompanied by a technical memorandum
detailing the particulars of each lot, to help the committee
determine which scenario would best serve the current and
future parking needs of the City. Based on this analysis of
existing lots, design requirements, cost effectiveness and
location, the Steering committee determined that a 500+ net
space garage at City Parking Lot #1 (Galleria site) was the
best location for a new facility, should construction of a
new facility be approved.
Next
the Committee approved moving forward with the final portion
of the Desman Phase II analysis, which included a detailed
financial review (cost estimates for construction, revenue
projections, etc.) and a more specific preliminary design
for a garage at parking Lot #1. Please note that, in the
interest of aesthetics, street appeal and the commercial
vitality, the Steering Committee also requested that the
garage facility include approximately 9,000 sq. ft. of
retail space on grade fronting Delaware Avenue. In
addition, the committee requested that the garage concept be
an automated one, utilizing the pay-on-foot technology
currently used successfully in Lot #1. These requests were
added to parking garage structure analysis.
Desman
estimated that the cost to build a parking garage on Lot #1
at $20,000 per space, and approximated that the retail space
would cost $80 per sq. ft. to build. When calculating the
estimated overall costs, including operational expenses and
income, Desman Associates anticipated that usage of the
parking garage would remain consistent with the documented
usage of current lot #1 – and further that the City would
not increase parking rates at this facility, at least, not
initially. Based on this conservative approach, Desman
estimates of project development costs and the financing of
same result in an annual deficit of $1,077,947 - $1,179,197,
depending on the occupancy of the retail space, for a stand
alone parking garage.
When
they reviewed this information, the Steering Committee
discussed how such an investment in the parking
infrastructure might be funded. They asked the City Finance
Director Dennis McFarland to assess the numbers provided by
Desman, and determine how much of an increase in hourly
parking fees, or other charges, would be necessary to make a
parking garage on Lot #1 break even. Finance Director
Dennis McFarland reported that in order to have a positive
net present value, the City would have to quadruple the
current parking fees -- and -- double garage usage to result
in a net present value of roughly $600,000 over a thirty
year period.
Faced with
these figures, the Steering committee concluded that, at this
present time, it is not financially feasible for the City to
build a parking structure on its own. They suggest expanding
surface parking lots in the West District to address the
immediate parking concerns, and beginning a long-range planning
process, which might include a joint venture for a
future-parking garage to address the imminent need.
The
conclusion of the “Parking Garage Needs Assessment Study” that
the downtown area would benefit greatly from the addition of a
parking garage and that the City should look for a partner for a
potential joint venture to build one received a positive
response from the business community. The City is currently
exploring opportunities and hopes to have more information as
plans develop.
Parking Meter Maintenance and Collections
Former
Planning Intern Jonathan Rifkin completed his Master’s Degree at
UD’s Institute of Public Administration this May, and as part of
his academic requirements, presented an analytical paper on
consolidating the on and off street parking administration in
the City of Newark. The analysis was originally requested of
Planning Department staff by the Downtown Newark Partnership’s
Parking Committee based on information they had collected about
how other communities operate, and on complaints that they had
received about non-functioning meters in downtown. The meter
issue was also discussed at a Council meeting in reference to
meter and fine revenues. In addition, Desman Associates (the
Parking Garage Needs Assessment Garage Study Consultants)
suggested early on in the process that consolidation of on and
off street parking administration and revenues as a widely used
tool to fund garage construction and maintenance.
Based on
the above, the Planning Department included research on the
possibility of consolidating on and off street parking functions
as part of this 2007’s Management Plan. The research
project was assigned to Jonathan as one of our more capable
interns, who also happened to be in pursuit of a worthy AP topic
to finish his UD course requirements. Jonathan began his
research in the summer 2006, and submitted his final report in
May, 2007. The report provided a thorough review of the matter,
with extensive research and analysis of the pros and cons of
consolidating on and off street parking administration in the
City. In a nutshell, the report indicated a very modest
increase in revenues, but a marked increase in efficiency,
through consolidating parking administration under one
department. The Parking Committee then reviewed the report and
recommended that the City consider implementing its
recommendations.
As a
result, on January 1, 2008 the responsibilities for on-street
meter collections, deposits and maintenance were transferred to
the Planning & Development Department’s Parking Division. At
the time, the maintenance of meters had been deferred and as
many as 90 meters were not in service. There were also
inadequate maintenance supplies, and almost no monies budgeted
for replacement parts. The Division designed an efficient
operational system for coin collection and deposits, and meter
repair, working closely with the Parking Enforcement Officer to
locate and immediately address broken or missing meters. The
Division assessed the revenue generated by meter location and
concentrated on repairing and replacing the highest revenue
generators first and has managed to repair countless meters so
that the system is operating as optimally as possible. Their
efforts have made a considerable impact the City’s ability to
generate fine revenues through meter enforcement. In addition,
on street parking revenues increased under the Parking
Division’s direction: Gross meter revenue increased by 27% in
the first 2 quarters of 2008.
The Committee is pleased to have
been a part of this system-wide improvement.
Parking Meter Change
One of the things that came to the
Committee’s attention through a UD Student focus group and from
discussions with downtown customers, one of the things that
people need while trying to patronize downtown businesses in
change for parking meters. The Committee considered locations
for change machines and then decided that a more practical
alternative was to ask downtown businesses if they would provide
change for parking meters if asked by downtown patrons. Several
businesses responded positively and therefore, the Committee
worked with ZZ House Design to come up with a window sticker
which would identify the merchant as a friendly, downtown
change-providing business, and also list the willing businesses
on the DNP web page and provide the list to the University of
Delaware for internal marketing. The committee plans to expand
this program by convincing more businesses to provide change in
the upcoming year.
Free
Parking Promotions
Everybody
loves free parking, and when there is a special event downtown,
the Parking Committee is happy to oblige! Working with other
committees of the DNP, especially the Merchants’ and Events
Committees, as well as the City Manager’s Office and the Newark
Police Department in order to coordinate free parking for city
events, as well as around the holidays - not to mention every
Sunday throughout the year! Free parking encourages out of town
visitors to come enjoy Newark and helps downtown businesses draw
in customers. Over the 2007 holiday season alone, the city
provided free parking over Thanksgiving weekend, Wednesdays in
December, for Winterfest, as well as every day from mid-
December to the end of the year so people could enjoy holiday
shopping and festivities. The free parking dates provide a
sales boost for downtown businesses, and encourage people to
shop in downtown Newark for the holiday season.
Free
parking promotions are planned for 2008 on Thanksgiving Weekend,
Wonderful Winter Wednesdays and Winterfest from 3 PM on, and all
day – every day from 6 PM on Friday, December 19 (the last day
of UD exams) until Monday, January 4, 2009.
Free
parking was also provided for all Community Special Events held
downtown throughout the year.
Additional
Parking Spaces
With
Parking Committee guidance, the Downtown Parking Office was able
to negotiate with the Christina School District for use of the
parking lot behind the former district administration building
located at 83 East Main Street. This lot provides downtown with
64 parking spaces at a reasonable cost. These spaces are leased
to local residents and businesses on a monthly basis, as a
source of revenue for parking improvements, as well as adding to
the stock of off-street parking in a location convenient for
residents and downtown employees. When the Christina property
recently sold to the University of Delaware, the Parking
Division was quick to make arrangements to continue the parking
lot lease until June 2009. The Parking Committee and Division,
again, deserve thanks and congratulations for a well-executed
inventory expanding idea.
Improvements to Existing Lots
The
Parking Committee is continually working on ways to improve the
capacity and efficiency of our existing lots. Additional
directional signage has been installed at their suggestion to
make it clear to customers how the lots operate and where to
park. The committee is also considering improvements to the
validation programs and lot locational signage which will be
considered next year.
