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7 7 08 Worksession Materials_Downtown Parking Needs AssessmentTHE CITY OF ~_.,~~~ D~~ Mccste~ece on t~Ce Mississlppz TO: The Honorable Mayor and City Council Members FROM: Michael C. Van Milligen, City Manager SUBJECT: Downtown Parking Needs Assessment Work Session, Monday, July 7, 2008 at 5:00 p.m. City Council Chambers DATE: June 11, 2008 Dubuque All-AmericaGily -, 9 ,~ 2007 Parking System Supervisor Tim Horsfield has provided information for the July 7, 2008 City Council Work Session the results of the Downtown Parking Needs Assessment. ~~ ~~ Michael C. Van IVlilligen MCVM/Iw Attachment cc: Barry Lindahl, City Attorney Cindy Steinhauser, Assistant City Manager Parking Division ~,~ --- THE~oF 830 Bluff Street _ _ W --~"~ Dubuque, IA 52001 ~" ~ ~' `~ `~' - - a Phone: 563-589-4267 Fax: 563-589-4308 ~ `` ~' ~ i G~.~ /~'~`~. ~~~ ~ -; . June 11, 2008 To: Michael C. Van Miiligen City Manager From: Tim Horsfield .,~ Parking System Superviso Subject: Downtown Parking Needs Assessment Introduction Provided with this memo, is a drafit of the Do~Nntown Parking Needs Assessment conducted by Walker Parking Associates. Background At the City Council meeting. on November 5, 2007, the City Council awarded Walker Parking Consultants a contract to conduct a Downtown Parking Needs Assessment Study in the amount of $91,000. Throughout the course of the past several months, Walker has worked extensively with the Parking Study Committee, developers, business owners, city staff and citizens to obtain input relative to their needs and concerns. In addition, Walker has conducted numerous inventory usage studies and inventory analysis as a part of the report. Prior to the final report being submitted, we wanted to provide the draft copy to the City Council and offer an opportunity for their input and comments in the form of a work session. With your approval and that of the Council, a work session has been scheduled for July 7, 2008 in the Council Chambers at 5:00 P.M. with dinner at 4:30 P.M. Phil Baron and Terry Hakkola from Walker Parking will attend and make a presentation at that time. Members of the parking study committee have also been invited to attend if possible. If you have any questions, please feel free to contact me at your convenience. Thank You. WALKER PARKING CONSULTANTS DOWNTOWN AREA PARKING NEEDS ASSESSMENT CITY OF DUBUQUE DUBUQUE, IOWA Prepared for: City of Dubuque Parking Division May 12, 2008 DRAFT DOCUMENT WALKER PARKING CONSULTANTS May 12, 2008 Mr. Tim Horsfield City of Dubuque Parking Division Parking System Supervisor 830 Bluff Street Dubuque, Iowa 52001-4662 Re: Draft Parking Study Walker Project # 21-3468.00 Dear Mr. Horsfield: We are pleased to submit the enclosed DRAFT report entitled: Downtown Area Parking Needs Assessment. This document was prepared in accordance with our Professional Services Agreement with the City of Dubuque, Iowa. The analysis presented in this report is based on estimates, assumptions and other information developed from industry research, market data provided by the City of Dubuque, interviews with local stakeholders with insight into the local parking conditions, and analysis of local market conditions by Walker staff. The sources of information, the methods and basis of significant estimates and assumptions are stated in this report. Some assumptions inevitably will not materialize and unanticipated events and circumstances may occur. Therefore, actual results achieved will vary from those described in this report. The enclosed draft parking study is submitted for review by the Parking Study Advisory Committee members. We look forward to discussing your comments and suggestions in the near future. Regards, WALKER PARKING CONSULTANTS Philip J. Baron Project Manager Enclosure cc: John W. Dorsett -Walker Parking Consultants CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSU!TANTS MAY 12, 2008 EXECUTIVE SUMMARY INTRODUCTION ....................................................................1 Public Involvement ....................................................................1 Report Organization .................................................................. l Study Area ...............................................................................2 PARKING INVENTORY AND UTILIZATION ....................................4 Current Parking Supply ..............................................................4 Effective Supply ........................................................................8 Current Parking Demand ..........................................................10 Downtown Dubuque Employment Data ....................................... 10 Parking Occupancy ................................................................. 1 1 Calibration for Seasonal Adjustments .........................................17 Future Parking Demand ............................................................24 Shared Parking Demand ..........................................................26 Future Parking Adequacy .........................................................28 ALTERNATIVES ANALYSIS .......................................................... 38 Use of Existing Public Resources ................................................ 38 Reserved and Non-Reserved Parking ......................................... 39 Reserved Parking and Municipal Tax-Exempt Financing ................ 42 Manage Demand and Increase Utilization .................................. 43 Implement Basic Marketing Strategy .......................................... 44 Expand Parking Division Web Site Capabilities ........................... 44 Integrate Public Transit and Remote Parking Options .................... 45 Ridesharing and Preferential Parking ........................................ 47 Use of Valet Parking to Increase Capacity .................................. 47 Simplify Parking Citation Payment Process .................................. 48 Courtesy Parking Citation Notice ............................................... 49 Payment of Parking Citation ...................................................... 49 Opportunities for Additional On-Street Parking ........................... 49 Acceptable Walking Distances ................................................. 52 Matrix Analysis of Alternatives .................................................. 67 Summary of Alternatives Analysis .............................................. 70 PRELIMINARY FINANCIAL ANALYSIS .........................................71 Historical Financial Performance ...............................................72 Projected Financial Performance ................................................77 Rates ..................................................... . ............................... 77 Pricing Approach ....................................................................77 On-Street Parking ....................................................................81 Operating Revenue Assumptions ...............................................81 Approved Capital Improvement Program ....................................86 Future Capital Improvements .....................................................87 Overview of Construction Costs .................................................87 TABLE OF CONTENTS CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT MAY 12, 2008 Operating Expenses ................................................................90 Structural Maintenance ............................................................90 Underlying Inflation Assumptions ...............................................93 Stabilized Year .......................................................................93 Financial Pro Forma Statement of Operations ..............................93 PRELIMINARY REVIEW OF PUBLIC TRANSIT ................................95 LIMITING CONDITIONS .............................................................99 WALKER PARKING CONSULTANTS ZONING ORDINANCE PROVISION FOR PARKING Provided Under Separate Cover CITY OP DUBUQUE WALKER DOWNTOWN AREA PARKING NEEDS ASSESSMENT ~aRKiNCCONSU~~~.rvrs MAY 12, 2008 EXECUTIVE SUMMARY The executive summary is provided to assist the reader in understanding some of the key points within this report. The body of the report contains specific details of the project assumptions, analysis, and conclusions. Please note that this document is a DRAFT report and subject to change. INTRODUCTION AND BACKGROUND The City of Dubuque ~"City") retained Walker Parking Consultants ("Walker") to conduct a parking needs assessment of the existing and future market conditions in downtown Dubuque, Iowa. The purpose of the study is to provide the City with a clear understanding of the current and future parking needs along with alternative strategies that will help prepare the City to address future downtown parking challenges. The City established a steering committee to work with Walker during the course of the study. The committee was composed of City of Dubuque staff and others with knowledge of the downtown parking issues and concerns. Interviews were held at the. beginning of the study with a sample of individuals and business leaders in the downtown community that are directly impacted by public parking policies and decisions. Two public meetings were also held in conjunction with the study. The public meetings were held on February 4, 2008 at 2:30 PM and 5:30 PM in the City of Dubuque City Council Chambers. The public meetings provided the community with the opportunity to share their present concerns and issues with parking in downtown Dubuque. Approximately 40 individuals attended the public meetings. Walker collected field data on Wednesday, ,January 9'h, Thursday, January 10'h, Friday, ,January 1 1'h, and Saturday, January 12'h. There were no significant events held in downtown Dubuque during the weekday observation period that would result in abnormal demand conditions. On Saturday, January 12'h, a Thunderbirds hockey game was held at 7:05 PM at the Five Flags Arena. The weather conditions during the period when field observations occurred were overcast skies with snow on the ground and daytime highs in the 30's and evening lows in the teens. SALIENT CONCLUSIONS ^ At present the total parking demand in the study area does not exceed the total available supply. If market conditions were anticipated to remain constant, additional parking would not be needed. While certain local blocks of downtown Dubuque experience a deficit of parking supply during peak conditions, the overall supply appears to be sufficient and available in adjacent areas to off-set any inconvenience that might exist. ^ A total of 9,875 parking spaces are located in the study area. Of the total inventory, 54 percent is publicly owned and 46 percent is privately owned. ^ The total parking supply in the study area is approximately 50 percent utilized during typical peak weekday conditions near the hour of 10:00 AM. CITY OF DUBUQUE WALKER DOWNTOWN AREA PARKING NEEDS ASSESSMENT PneKiNOCONSUrra~r MAY 12, 2008 ^ Private parking supply is approximately 24 percent utilized during typical peak weekday conditions near the hour of 10:00 AM. ^ City-owned public off-street and on-street parking was documented during peak conditions at approximately 60 percent 46 percent, respectively. Off-street peak parking demand occurs near the hour of 10:00 AM, while on-street occurs near the hour of 1 :30 PM. ^ City-owned off-street reserved and non-reserved parking is approximately 74 percent and 49 percent utilized during typical peak weekday (10:00 AM) conditions, respectively. ^ The City does offer downtown employees or long-term visitors the option to park during the daytime at 10 hour metered parking spaces located throughout the study area. At present, the City offers 501 long-term metered parking spaces to the downtown community. Walker documented peak utilization at 43 percent or 215 vehicles near the hour of 1:30 PM on a weekday. ^ The City staff and downtown stakeholders provided Walker with commercial development data and anticipated changes in the local market place which served as the most educated assessment of future market conditions. When evaluating the future parking needs in downtown Dubuque on an aggregate basis the future parking needs do not exceed the available supply. However, when study area zones are assessed independently, a future need for parking in Zone 5 ]Warehouse District] is projected due to the abundance of available commercial space slated for redevelopment and lack of existing parking supply. ^ Walker evaluated employee parking demand characteristics in relation to the available off-street surface lots and ramps to gain a localized understanding of the geographic areas and market segments that may experience a need for additional parking, despite there being an overall surplus of supply in the study area. Generally, the primary purpose for on-street meter parking in a downtown environment is to serve downtown visitors or short-term parkers and encourage turnover, thus the on-street supply is excluded when assessing the future parking adequacy for employees. Another important consideration when evaluating market segments is the prevailing assumption concerning acceptable walking distances. The prevailing assumption is that employees in downtown Dubuque are generally willing to walk approximately two city blocks ]600' to 700') to find available parking before it is deemed unacceptable. This translates into a walking time of approximately 3 to 4 minutes'. Based on these local conditions and assumptions, within 5 to 10 years a 227-space deficit is projected in Zone 2, 85-space surplus in Zone 3, and 1,732-space deficit in Zone 5. ^ In the mid- to long-term, the two highest ranking development alternatives include the Main Street Fischer Ramp, Alternative E 1, followed by the Warehouse District Lot, Alternative C. Both alternatives should be examined further from a financial and public policy prospective. It is recommended that the City consider whether development of public parking that not only satisfies current demand, but influences development by providing for future needs, is in agreement with the City's financial and planning policies. ' Assume the average walking speed of 1 second per 3.5 feet. CITY OF DUBUQUE ~~ WALKER DOWNTOWN AREA PARKING NEEDS ASSESSMENT PaRKwccotisu~raNrs MAY 12, 2008 ^ It is recommended that the City work in collaboration with the private sector to achieve the target parking capacity if it decides to go forth with plans to build additional parking supply in Zone 5. The actual quantify of public parking supply built should be predicated on further analysis of the planned tenant mix within the Warehouse District, the number of spaces to be built by the private sector and the financial capabilities of the Parking Enterprise Fund. ^ In conjunction with planning for future parking development, it is recommended that the Parking Division focus on effective ways to increase the utilization of the existing parking system. There are opportunities to increase utilization of the current parking system through the application of demand management strategies. The concept of parking demand management incorporates the use of smart growth principles that focus on equitable operating policies, pricing strategies, and public transit initiatives. Proactive parking management strategies can be an effective tool in mitigating the amount of additional future supply that is required by maximizing the utilization of existing resources. ^ To help mitigate the need to build more parking, it is recommended that the City consider setting a limit on reserved single space parking stalls in the public parking supply to no more than 10 percent of the total public off-street supply or approximately 300± spaces. In comparison, there are approximately 1,385 reserved parking spaces allocated to downtown employees at this time. The reserved parking spaces should be priced in accordance to the level of demand for reserved spaces at each location. It is reasonable to price reserved parking, at a minimum, 50 percent greater than the prevailing market rates. The remaining reserved parking can be reassigned to non-reserved parking which can be oversold by approximately 10 to 20 percent, or approximately 100 to 200 additional permits. ^ Ridesharing programs should be developed, implemented and marketed by the Parking Division and incentives for participation in the program should included economic and priority parking privileges. The Parking Division may also consider offering parking incentives to individuals who own hybrid vehicles. ^ The utilization of the public parking system is relatively low for a parking system operating within a city the size of Dubuque. It is recommended that the City consider implementing an aggressive marketing program to inform and educate the downtown community about the availability of parking supply in the various lots and ramps operated by the City. ^ It is recommended that the Parking Division consider preparing and issuing via e-mail a monthly parking availability report to various organizations and businesses in downtown Dubuque. The parking availability report would enable downtown employers to aid their employees in locating available parking. ^ It is recommended that the Parking Division consider improving upon the existing Parking Division website to include the following: parking availability report, interactive map of all public parking resources in downtown Dubuque, and on-line payment capabilities for cash cards, permits, and citations. ~~ CITY OF DUBUQUE ~® WALKER DOWNTOWN AREA PARKING NEEDS ASSESSMENT PARK~NOCONSU~TatiTs MAY 12, 2008 ^ It is recommended that the Parking Division, Police Department and Finance Department work together to simplify the parking citation process for the patron. The objective is to establish a centralized department and process for handling all parking citations issued by the Parking Enforcement personnel or Police Department. This effort can be coordinated with the implementation of on-line payment options. ^ It is recommended that the Parking Division begin working with the Transit Department to establish a remote parking and transit program for the Port of Dubuque Surface Lot. It is recommended that the Transit System utilize the trolleys or similar vehicles year round and extend its service hours during the weekday to accommodate employees. ^ After the Parking Division has implemented strategies to increase utilization of existing parking resources, it is recommended that the City consider building additional parking supply in Zone 2 and Zone 5 to accommodate future parking demand. ^ Specifically, structured parking located on the Fischer Main Street Lot would enable future growth of surrounding downtown tenants and provide relief for pent-up employee parking demand in the immediate area. It is recommended that the City consider setting a development goal to construct a minimum net gain of 300 parking spaces in Zone 2 in the next 3 to 10 years. This goal can be achieved through public and private development initiatives. ^ It is recommended that the City and Parking Division consider working together with the building owners in the Warehouse District to establish a parking transition plan that is in agreement with the impending Warehouse District Master Plan. Based on our present understanding of the vision for the Warehouse District, it is recommended that the City consider amulti-phased development plan. It is recommended that the City consider the development of a surface parking lot with a minimum net gain of 250 parking spaces on the southwest corner of 10'h Street and Elm Street (Site C, page 53) for Phase One. Based on the progress of the redevelopment efforts and occupancy rates in the Warehouse District, it is recommended that the City consider implementing Phase Two which would include the development of a parking lot within the next 1 to 2 years and, if development warrants, a parking ramp within the next 5 to 10 years with a minimum net gain of 500 parking spaces. Any parking requirements in excess of the cify's contributions are assumed to be provided by the private sector. Additional opportunities exist to add on-street parking along the roadways within the Warehouse District. This goal can be achieved through public and private development initiatives. CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER ?ARKING CONSULTANTS MAY 12, 2008 ^ The following table highlights the historical gross revenues, operating expenses, net revenue, debt service, and debt coverage ratio for the Parking Division during each of the last ten fiscal years. Fiscal Year Gross Revenues il) Operating Ex enses (2) Net Revenue Available for Debt Service Debt Service Re uirements Princi a Interest Tota Debt Service Covers a Ratio 1998 1,268 570 698 150 195 345 2.02 1999 1,303 584 719 155 98 253 2.84 2000 1,278 582 696 165 93 258 2.70 2001 1,552 717 835 170 86 256 3.26 2002 1,452 737 715 180 79 259 2.76 2003 1,484 847 637 190 71 261 2.44 2004 1,659 971 688 200 63 263 2.62 2005 1,934 960 974 210 54 264 3.69 2006 1,933 977 956 220 44 264 3.62 2007 2,1 13 1,014 1,099 230 34 264 4.16 Source: City of Dubuque, Comprehensive Annual Financial Report for Fiscal Year 2007. ~l) Total revenues including interest. (2) Total operating expenses exclusive of depreciation. (31 Coverage is computed by dividing net revenue available for debt service by debt services requirements. Bond ordinance requires a 1.30 minimum coverage. ^ It is projected that the Parking Division could realize a gain in net revenue while reducing the number of reserved parking spaces, overselling the non-reserved parking and continuing to operate the off- and on- street meters and enforcement programs at current levels. ^ The conceptual estimate of probable project cost for each of the capital improvement projects evaluated for this analysis along with the estimated annual debt service payments are shown in the following table: Capital Improvement Warehouse District Lot Main Street Fischer Ramp Estimated Completion FY 2010 FY 201 1 Estimated Capacity 260 368 Estimated Cost per Space $3,500 $15,500 Estimated Land Cost - $173,000 Estimated Demolition Cost $200,000 - Estimated Construction Cost $1,110,000 $5,877,000 Source of Funding Parking Revenue Bonds Parking Revenue Bonds Term 20 Years 20 Years Interest Rate 5.50% 5.50% Percent Financed 100% 100% Estimated Annual Debt Service 92,884 $491,783 Rounded $93,000 $492,000 vi CITY OF DUBUQUE ~~ WALKER PARKING CONSULTANTS DOWNTOWN AREA PARKING NEEDS ASSESSMENT MAY 12, 2008 ^ The projected consolidated debt service coverage ratio of the Parking Division with both capital improvement projects operating at stabilization in projection year three is 1 .20 with an operating surplus of approximately $1 17,000. The bond provisions for the Parking Division require minimum debt coverage of 1.30. Therefore, the projected solvency requirements of the Parking Division may be challenged during the initial years of the projection period. The debt service coverage ratio is projected to increase to approximately 2.0 in Fiscal Year 2014, following the last year with approved capital improvement program items. This analysis does no include CIP items beyond Fiscal Year 201 3, but it is expected that the Parking Division will likely require additional funds to be approved and allocated for capital improvement programs in Fiscal Year 2014 and beyond, which may impact the projected debt coverage ratio. vii PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE WALKER PARKING CONSUiTANTS MAY 12, 2008 With such community measures as the Dubuque Comprehensive Plan, implementation of Enterprise Zones and Envision 10; Dubuque is presently in the early stages of a renaissance that is expected to continue to transform the community. The changes underway in Dubuque have encouraged new investment that has created challenges only experienced by communities exhibiting positive growth. One such challenge, and positive measurement of the city's attraction, is .the increasing demand for convenient and accessible parking. The City of Dubuque ("City"~ retained Walker Parking Consultants ("Walker"~ to conduct a parking needs assessment of the existing and future market conditions in downtown Dubuque, Iowa. The purpose of the study is to provide the City with a clear understanding of the current and future parking needs along with alternative strategies that will help prepare the City to address future downtown parking challenges. This report outlines the key methods, research and analysis findings associated with the study. PUBLIC INVOLVEMENT The city established a steering committee to work with Walker during the course of the study. The committee was composed of City of Dubuque staff and others with knowledge of the downtown parking issues and concerns. Interviews were held at the beginning of the study with a sample of individuals and business leaders in the downtown community that are directly impacted by public parking policies and decisions. Two public meetings were also held in conjunction with the study. The public meetings were held on February 4, 2008 at 2:30 PM and 5:30 PM in the City of Dubuque City Council Chambers. The public meetings provided the community with the opportunity to share their present concerns and issues with parking in downtown Dubuque. Approximately 40 individuals attended the public meetings. REPORT ORGANIZATION This report provides an orderly presentation of the project information available at the time the study was conducted. This organizational method was implemented to aid the reader in comprehending the analysis supporting all recommendations within this report. Key analysis components of this study include: (l ~ a detailed evaluation of existing and future parking inventory, occupancy and adequacy; (2) an assessment of potential alternatives to address existing and future INTRODUCTION PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE WALKER PARKING CONSUL'ANTS MAY 12, 2008 parking needs; and (3) an analysis of financial and economic issues related to potential development scenarios. STUDY AREA For the purposes of this study, three distinct districts of downtown Dubuque, encompassing 109 city blocks, were analyzed. These districts consist of the Primary Study Area, the Warehouse District and the Port of Dubuque District. These defined districts were specified by the City of Dubuque and consist of the geographic area in which the primary land uses (demand generators) served by the public parking system in downtown Dubuque are located. The Primary Study Area is generally bound by Bluff Street on the west, 15' Street on the south, White Street on the east and 17`h and 18'h Streets on the north. The Warehouse District is bound by White Street to the west, 5'h Street to the south, US-61 /US-151 to the east and 14'h Street to the north. The Port of Dubuque District is bound by US-b 1 /US-151 to the west, the Mississippi River to the east and south, and railroad tracks to the north. These three districts have been further divided into six (6) zones, so that localized parking surpluses and shortages can be evaluated more effectively. The configuration of each zone considers the mix of land uses located in specific areas of downtown as well as the primary type of parkers (monthly, transient, special event, etc.) that frequent each zone. The zones are referred to as Zones 1 through 6. The boundaries of the Primary Study Area, the Historic Warehouse District, the Port of Dubuque and the six zones are shown in Figure 1. Maps of the individual zone blocks are located in the Appendix. 2 CITY OF DUBUQUE ~~ WALKER DOWNTOWN AREA PARKING NEEDS ASSESSMENT PaRK~NCCOhsu~TAti~s MAY 12, 2008 ure 1 : Studv Area PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE MAY 12, 2008 The information contained herein serves as the basis for analysis of the existing and future parking needs. Included is a discussion of current parking supply, effective supply, parking demand, and parking adequacy. CURRENT PARKING SUPPLY The foundation of a parking demand analysis is an inventory of the parking supply. By examining an inventory Of the parking supply and comparing it to the parking demand, we quantify the parking surplus or deficit that exists or may exist due to future development. When the parking supply exceeds the demand, a surplus of parking exists. Conversely, a deficit exists when parking demand exceeds the supply. Field research performed on Wednesday, January 9, 2008 identified a total physical inventory of 9,875± parking spaces within the entire 109-block study area. A summary of current parking inventory is shown in Table 1 . Table 1 : Summary of Parking Inventory Public Private OnStreet Total % of Total Study Area Zone Supply + Supply + Supply = Supply Supply Primary Study Area 1 0 + 360 + 479 = 839 8% 2 92 + 558 + 536 = 1,186 12% 3 2,033 + 769 + 456 = 3,258 33% 4 463 + 842 + 321 = 1,626 16% sib-coral 2,588 + 2,529 + 1,792 = 6,909 70% Warehouse District 5 0 + 628 + 478 = 1,106 11 Port District 6 437 + 1,423 + 0 = 1,860 19% Total 3,025 + 4,580 + 2,270 - 9,875 100% of Total Supply 31 % 46% 23% 100% Figure 2: Parking Inventory by Location ~ o,ooo 9,000 8,000 7,000 ~ 6,000 ~ 5,000 ~ 4,000 3,000 2,000 1,000 0 WALKER PARKING CONSU.TAN75 PARKING INVENTORY AND UTILIZATION Parking Inventory by Type ~~~~,.;-~s;:- - -,z ., ~.~~. ~•.~,. Source: Walker Parking Consultants, 2008 4 Total Primary Sludy Warehouse Port District Area District PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE `, WALKER ~- ?ARKiNG CONSULTANTS MAY 12, 2008 Of the total spaces available in the study area, 4,580 spaces, or forty- six (46%) percent, are privately owned and accessible only to certain user groups such as employees or patrons of designated businesses. Many of the surface lots, as well as some of the ramps, were open solely to building occupants or patrons. These spaces are categorized as private to reflect their non-availability to general public parkers. The physical condition of the private supply widely varies depending on owner, location, and frequency of use. The public off-street parking supply represents 3,025 spaces, or thirty- one (31 %) percent of the total supply. Due to the unique operating conditions and market expectation in downtown Dubuque, approximately 1,385 spaces or forty-six X46%) percent of the public supply is designated for reserved parking only. For the purposes of this analysis, reserved parking is defined as a parking stall that is leased to an individual or group with exclusive rights to use a designated parking stall for the duration of the lease agreement. The remaining public off-street parking supply consists of non-reserved spaces and represents 1,640 spaces or fifty-four (54%) percent of the total public off-street supply. Fiaure 3: Allocation of Non-Reserved vs Reserved Public Parking Public on-street parking consists of approximately 2,270 spaces or twenty-three (23%) percent of the total downtown parking supply. Approximately sixty-seven (67%~ percent or 1,522 of the on-street spaces are metered and enforced by the City and the remaining thirty- three (33%) percent or 748 on-street spaces are free of metered regulation. Figure 4 provides a summary of the number of on-street parking meters by time limits. 5 PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE WALKER PARKING CONSULTANTS MAY 12, 2008 Figure 4: Summary of On-Street Meters by Time Limits 1,600 1,400 1,200 ~ 1,000 V N 800 600 jj 3 I 400 ~ 200 i I 0 __ Total 10 4 Hours 2 Hours 1 Hour 40 Min. 20 Min. _ Hours I_ __ %of Total 33% 6% ~40% 19% 0% 1% 100% ^ Metered Spaces 1,522 501 97 608 289 I 6 21 The configuration of on-street meter time limits is typically aligned with the needs of the downtown community. As building tenants enter the downtown market or existing tenants alter their operating program, the time limits) at proximate on-street meters may or may not be appropriate to ideally serve a business' customer base. If a time limit is perceived to be inappropriate, the business owner will often approach the City with a request to modify the meter time limit to accommodate their needs. The result can be a configuration of varying time limits by meter along the same block front since most city blocks have a mixture of businesses with different needs. Generally, the City provides ten hour metered parking on the outlying areas of downtown to help accommodate employee parking needs. The core area of downtown has a higher concentration of one and two hour meters, with a small number of 20 minute and 40 minute meters located in select areas that experience high turnover. b PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE MAY 12, 2008 Figure 5 provides a graphical depiction of the current location and distribution of on-street metered spaces according to the length of time permitted at each metered space. Figure 5: On-Street Parking Meters by Time Limits ~~„ WALKER PARKING CONSULTANTS Summary of On-Street Metered Parking Supply 10 Hours 501 33% 4 Hours 97 6% 2 Hours 608 40% 1 Hour 289 19% 40 Min. 6 0% 20 Min. 21 1 Total 1,522 100 7 PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE WALKER 'ARKING CONSULTANTS MAY 12, 2008 EFFECTIVE SUPPLY An important concept in the analysis of parking adequacy is that of the effective supply. To further analyze the inventory, Walker adjusted actual supply to reflect the effective parking supply. The effective parking supply represents the adjusted inventory of parking within the study area to allow for a cushion necessary for vehicles moving in and out of spaces and to reduce the time necessary to find the last few remaining spaces when the parking supply is nearly full. We derive the effective supply by deducting this cushion from the total parking capacity. The cushion allows for vacancies created by snow removal, misparked vehicles, minor construction, and storage of service vehicles and equipment. A parking supply operates at peak efficiency when parking occupancy is eighty-five (85%j to ninety-five (95%j percent of the supply. When occupancy exceeds this level, patrons are likely to experience delays and frustration while searching for a space. Therefore, the parking supply may be perceived as inadequate even though some spaces are available in the parking system. As a result, the effective parking supply is used in analyzing the adequacy of the parking system, rather than the total supply or inventory of spaces. Following are some factors that affect the efficiency of the parking system: Capacity- large, scattered surface lots operate less efficiently than a more compact facility, such as adouble-threaded helix structure, which offers one-way traffic that passes each available parking space one time. Moreover, finding the available spaces is more difficult in a widespread parking area than in a centralized parking area. Type of user -Monthly or regular parking patrons can find the available spaces more efficiently than infrequent visitors because they are familiar with the layout of the parking facility and typically know where the spaces will be available when they are parking. On-street vs. Off-street - On-street parking spaces are less efficient than off-street spaces, due to the time it takes patrons to find vacant spaces and unclear signage that typically accompanies on-street parking systems. In addition, patrons are generally limited to one side of the street at a time and often must parallel park in traffic to use the space. A parking supply operates at peak efficiency when parking occupancy is 85 to 95 percent of the supply. Effective Supply Factors applied in this analysis: Public On-Street = 85% Public Off-Street: Non-Reserved = 90% Reserved = 95% Private Off-Street = 95% PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE ;~\, WALKER ~- PARKING CONSULTANTS MAY 12, 2008 The calculated total effective supply cushion is approximately 8941 spaces or nine (9%) percent. The effective parking supply for each zone and the study area as a whole is presented in the following table. Table 2: Summary of Effective Supply Effective Weighted Parking Supply Effective Effective Supply Zone Capacity Cushion Supply Factor (%~ 1 839 - 87 = 752 10.4% 2 1,186 - 116 = 1,070 9.8% 3 3,258 - 338 = 2,920 10.4% 4 1,626 - 135 = 1,491 8.3% 5 1,106 102 1,004 9.2% 6 1,860 - 116 = 1,744 6.2% Totals: 9,875 - 894 = 8,981 9.1 The effective parking supply is graphically presented in the following figure. Figure 6: Effective Parking Supply 10,000 ~ ~ ~ 8, 000 6,000 ~ 9,875 a I 4, 000 I 2,000 ~' 0 ~--. ._,. ....,...........~......~.... Effective Supply Cushion 894 t~Effective Parking Supply 8,981 9 PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE WALKER PARKING CONSULTANTS MAY 12, 2008 CURRENT PARKING DEMAND Demand for parking in downtown Dubuque is a function of the relative attractiveness of the area for work, shopping, entertainment and living. Parking is not an end in of itself; rather it is a derivative of the demand for other activities and the travel characteristics of the market area. The quantity and type of activities within a market area most often determines the overall need for parking, as well as unique demand characteristics that relate to time-of-day, day-of-week and time-of-year variations. DOWNTOWN DUBUQUE EMPLOYMENT DATA The performance of the overall unemployment rate for the City of Dubuque is a good macro-economic indicator of general parking demand in the area. According to the Iowa Department of Employment Services, from 1998 to 2007, the unemployment rate increased marginally from 3.1 percent to 3.7 percent, respectively. In addition, local downtown employment statistics are used as an indicator when evaluating the downtown parking conditions. According to data provided by Dubuque Main Street, as of January of 2008 there are approximately 7,638 employees working in downtown Dubuque. The employment data presented in the following table provides an estimate of the gross employment level in downtown and a breakdown of employment by geographic area. The figures in Table 3 represent aggregate employment data and do not delineate according to part-time or full-time employees, whether the employees are paid hourly or annual salary, or the hours the employees are present in downtown. Table 3: Estimation of Downtown Employment Estimated Downtown Area Employment % of Total Cable Car Square 289 4% Couler Valley 152 2% Ice Harbor 1,396 18% Jackson Park 13 0% Old Main 824 1 1 Town Clock Plaza 3,436 45% Upper Main 1,514 20% Warehouse District 14 0% Total 7, 63 8 100% Source: Dubuque Main Street, 2008 10 PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE WALKER PARKING CONSULTANTS MAY 12, 2008 PARKING OCCUPANCY The methodology employed by Walker to evaluate the current parking demand is predicated on the analysis of current peak parking occupancy during a typical busy weekday. Walker evaluated the parking patterns in the study area by conducting occupancy counts on a Tuesday, Wednesday, and Thursday near the hours of 8:00 AM, 10:00 AM, 1 :30 PM, and 6:00 PM and on a Saturday near the hours of 10:00 AM and 7:00 PM. Field data was collected the week of,January 8'", 2008. The current parking occupancy rate in the study area, including all six zones, is approximately fifty (50%) percent during peak conditions on atypical weekday. Peak weekday conditions typically occur near the hour of 10:00 AM. The peak weekend parking occupancy rate in the study area, including all six zones, is approximately twenty-nine (29%) percent near the hour of 7:00 PM on a Saturday. Table 4: Summary of Current Parking Occupancy 12,000 10,000 8,000 ~ 6,000 a Y 4,000 m a 2,000 Weekday Weekend 0 8:00 10:00 1:30 6:00 i 10:00 7:00 AM AM PM PM ~ i AM PM ^ParkingOccupancy 4,444 4,952 4,887 2,091 i 2,562 2,902 ^ Parking5upply 9,875 9,875 9,875 9,875 i 9,875 9,875 Occupancy Rate 45% 50% 49% 21% ~ 26% 29% Walker Parking Consultants, 2008 In comparison to the overall parking occupancy rates, the peak occupancy rate at city-owned off-street parking facilities occurs near the hour of 10:00 AM at approximately seventy-four (74%) percent for reserved spaces and forty-nine (49%) percent for non-reserved spaces. A significant portion of the city-owned off-street parking supply is utilized by downtown employees during the weekday. However, it is important to recognize that a surplus of parking does exist in the City's parking system during typical peak weekday conditions. PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE MAY 12, 2008 The following table highlights the peak weekday occupancy levels documented in the city-owned parking facilities. Table 5: Weekday Parking Occupancy Rates at City-Owned Ramps & Lots Peak (%) Surplus/ _-i-:__ n 7,,..e T,.r.,l 5~~.,,,Iv Orr ncv Occuoancv IDeficifl City Lot 1 3 124 94 76% 30 City Lot 2 3 19 12 63 % 7 City Lot 3 3 116 51 44% 65 Citylot4 2 17 10 59% 7 City Lot 5 2 54 37 69% 17 Ciry Lot 6 2 21 9 43 % 12 City Lot 7 4 16 16 100% 0 City Lot 10 3 82 74 90% 8 City Lot 12 4 47 9 19% 38 Port of Dubuque Surface Lot 6 437 151 35 % 286 Locust Street Garage 3 444 322 73 % 122 Iowa Street Garage 3 632 406 64% 226 4th Street Garage 4 400 104 26 % 296 5th Street Gara e 3 616 532 86 % 84 Total 3,025 1,827 60% 1,198 Non-Reserved Peak ~%) Surplus/ __i.:__ n.,._ ~,,.,e s~~n~l~ Oraianncv Occuoancv IDeficitl City Lor 1 3 124 94 76% 30 City Lot 2 3 0 0 - 0 City Lot 3 3 53 26 49 % 27 City Lot 4 2 0 0 - 0 City Lot 5 2 11 7 64% 4 City Lot 6 2 21 9 43 % 12 City Lot 7 4 16 16 100 % 0 City Lot 10 3 21 19 88 % 3 City Lot 12 4 47 9 19% 38 Port of Dubuque Surface Lot 6 437 151 35 % 286 Locust Street Garage 3 355 274 77% 81 Iowa Street Garage 3 155 89 57% 66 4th Street Garage 4 400 104 26 % 296 5th Street Gara e 3 0 0 - 0 Totol 1,640 797 49% 843 Reserved Peak ~%) Surplus/ _-i-:__ n.,.,. 7....e C~~nnl~ Orr nnncv Occuoancv IDeficitl City Lot 1 3 0 0 - 0 City Lot 2 3 19 12 63 % 7 City Lot 3 3 63 25 40% 38 City Lot 4 2 17 10 59% 7 City Lot 5 2 43 30 70 % 13 City Lot b 2 0 0 - 0 City Lot 7 4 0 0 - 0 City Lot 10 3 bl 56 91 % b City lot 12 4 0 0 - 0 Port of Dubuque Surface Lot 6 0 0 - 0 Locust Street Garage 3 89 48 54% 41 Iowa Street Garage 3 477 317 66 % 160 4th Street Garage 4 0 0 - 0 SthStreetGara e 3 blb 532 86% 84 Total 1,385 7,030 74% 355 ~~ WALKER ?ARKiNG CONSULTANTS 12 PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE `I, WALKER PARKING CONSULTAi\'TS MAY 12, 2008 Table b: Total Parking Occupancy Analysis by Zone Weekday Occupancy -Zone 1 Supply Type 8:00 AM 10:00 AM 1:30 PM 6:00 PM 479 On•Street 188 227 205 99 0 Public Off Street Unreserved 0 0 0 0 0 Public Off Street Reserved 0 0 0 0 360 Private Off Street 135 153 155 51 Occupancy )#) 323 380 360 150 839 Occupancy ~%) 38 % 45% 43 % 18 Weekend Occupancy -Zone 1 Supply Type 10:00 AM 7:00 PM 479 On-Street 152 126 0 Public Off Street Unreserved 0 0 0 Public Off Street Reserved 0 0 360 Private Off Street 76 40 Occupancy ~#) 228 166 839 Occupancy ~%) 27 % 20 Weekday Occupancy -Zone 2 Supply Type 8:00 AM 10:00 AM 1:30 PM 6:00 PM 536 On•Street 111 110 206 189 32 Public Off Street Unreserved 17 16 22 14 60 Public Off Street Reserved 38 40 54 2 558 Private Off Street 374 386 396 69 Occupancy ~#) 540 552 678 274 1,186 Occupancy ~%) 46% 47% 57% 23% Weekday Occupancy -Zone 3 Supply Type 8:00 AM 10:00 AM 1:30 PM 6:00 PM 456 On-Street 191 234 234 196 708 Public Off Street Unreserved 415 501 451 52 1,325 Public Off Street Reserved 954 990 966 88 769 Private Off Street 454 508 440 263 Occupancy ~#) 2,014 2,233 2,091 599 3,258 Occupancy ~%) 62 % 69% 64 % 18 Weekday Occupancy -Zone 4 Supply Type 8:00 AM 10:00 AM 1:30 PM 6:00 PM 321 On-Street 92 1 19 1 14 1 10 463 Public Off Street Unreserved 117 129 132 82 0 Public Off Street Reserved 0 0 0 0 842 Private Off Street 434 462 392 278 Occupancy ~#) 643 710 638 470 1,626 Occupancy ~%) 40% 44% 39% 29% Weekday Occupancy -Zone 5 Supply Type 8:00 AM 10:00 AM 1:30 PM 6:00 PM 478 On-Street 250 280 283 114 0 Public Off Street Unreserved 0 0 0 0 0 Public Off Street Reserved 0 0 0 0 628 Private Off Street 243 287 260 93 Occupancy ~#) 493 567 543 207 1,106 Occupancy)%) 45% 51% 49% 19% Weekday Occupancy -Zone 6 Supply Type 8:00 AM 10:00 AM 1:30 PM 6:00 PM 0 OnStreet 0 0 0 0 437 Public Off Street Unreserved 142 151 150 3 0 Public Off Street Reserved 0 0 0 0 1,423 Private Off Street 289 359 427 388 Occupancy ~#) 431 510 577 391 l , 860 Occupancy ~%) 23% 27% 31 % 21 Weekend Occupancy -Zone 2 Supply Type 10:00 AM 7:00 PM 536 On•Street 108 169 32 Public Off Street Unreserved 8 0 60 Public Off Street Reserved 16 7 558 Private Off Street 168 50 Occupancy ~#) 300 226 1,186 Occupancy)%) 25% 19% Weekend Occupancy -Zone 3 Supply Type 10:00 AM 7:00 PM 456 On-Street 103 217 708 Public Off Street Unreserved 115 87 1,325 Public Off Street Reserved 83 113 769 Private Off Street 239 280 Occupancy ~#) 540 697 3,258 Occupancy ~%) 17% 21 Weekend Occupancy -Zone 4 Supply Type 10:00 AM 7:00 PM 321 On-Street 110 248 463 Public Off Street Unreserved 47 47 0 Public Off Street Reserved 0 0 842 Private Off Street 297 502 Occupancy ~#) 454 797 1,626 Occupancy)%) 28% 49% Weekend Occupancy -Zone 5 Supply Type 10:00 AM 7:00 PM 478 On-Street 113 108 0 Public Off Street Unreserved 0 0 0 Public Off Street Reserved 0 0 628 Private Off Street 131 59 Occupancy ~#) 244 167 1,106 Occupancy)%) 22% 15% Weekend Occupancy -Zone 6 Supply Type 10:00 AM 7:00 PM 0 OnStreet 0 0 437 Public Off Street Unreserved 0 0 0 Public Off Street Reserved 0 0 1,423 Private Off Street 796 849 Occupancy ~#) 796 849 1,860 Occupancy ~%) 43 % 46 14 PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE WALKER °ARKING CONSULTA~S MAY 12, 2008 Table 7: Off-Street Parking Occupancy Analysis by Zone Weekday Occupancy -Zone 1 Supply Type 8:00 AM 10:00 AM 1:30 PM 6:00 PM 0 Public Off Street Unreserved 0 0 0 0 0 Public Off Street Reserved 0 0 0 0 360 Private Off Street 135 153 155 51 Occupancy (#~ 135 153 155 51 360 Occupancy ~%) 38% 43% 43% 14% Weekend Occupancy -Zone 7 Supply Type 10:00 AM 7:00 PM 0 Public Off Street Unreserved 0 0 0 Public Off Street Reserved 0 0 360 Private Off Street 76 40 Occupancy (#~ 76 40 360 Occupancy ~%~ 21 % 11 Weekday Occupancy -Zone 2 Supply Type 8:00 AM 10:00 AM 1:30 PM 6:00 PM 32 Public Off Street Unreserved 17 16 22 14 60 Public Off Slreet Reserved 38 40 54 2 558 Private Off Street 374 386 396 69 Occupancy ~#) 429 442 472 85 650 Occupancy%) 66% 68% 73% 13% Weekday Occupancy -Zone 3 Supply Type 8:00 AM 10:00 AM 1:30 PM 6:00 PM 708 Public Off Street Unreserved 415 501 451 52 1,325 Public Off Street Reserved 954 990 966 88 769 Private Off Street 454 508 440 263 Occupancy (#) 1,823 1,999 1,857 403 2, 802 Occupancy ~%~ 65% 71 % 66% 14% Weekday Occupancy -Zone 4 Supply Type 8:00 AM 10:00 AM 1:30 PM 6:00 PM 463 Public Off Street Unreserved 1 17 129 132 82 0 Public Off Street Reserved 0 0 0 0 842 Private Off Street 434 462 392 278 Occupancy ~#) 551 591 524 360 1, 305 Occupancy%~ 42% 45% 40% 28% Weekday Occupancy -Zone 5 Supply Type 8:00 AM 10:00 AM 1:30 PM 6:00 PM 0 Public Off Street Unreserved 0 0 0 0 0 Public Off Street Reserved 0 0 0 0 628 Private Off Street 243 287 260 93 Occupancy f#) 243 287 260 93 628 Occupancy (%~ 39% 46% 41 % 15% Weekday Occupancy -Zone 6 Supply Type 8:00 AM 10:00 AM 1:30 PM 6:00 PM 437 Public Off Street Unreserved 142 151 150 3 0 Public Off Street Reserved 0 0 0 0 1,423 Private Off Street 289 359 427 388 Occupancy ~#) 431 510 577 391 1, 860 Occupancy ~%~ 23% 27% 31 % 21 Weekend Occupancy -Zone 2 Supply Type 10:00 AM 7:00 PM 32 Public Off Street Unreserved 8 0 60 Public Off Street Reserved 16 7 558 Private Off Street 168 50 Occupancy (#~ 192 57 650 Occupancy ~%~ 30% 9% Weekend Occupancy -Zone 3 Supply Type 10:00 AM 7:00 PM 708 Public Off Street Unreserved 115 87 1,325 Public Off Street Reserved 83 113 769 Private Off Street 239 280 Occupancy (#) 437 480 2,802 Occupancy (%~ 16% 17% Weekend Occupancy -Zone 4 Supply Type 10:00 AM 7:00 PM 463 Public Off Street Unreserved 47 47 0 Public Off Street Reserved 0 0 842 Private Off Street 297 502 Occupancy ~#) 344 549 1, 305 Occupancy (%) 26% 42% Weekend Occupancy -Zone 5 Supply Type 10:00 AM 7:00 PM 0 Public Off Street Unreserved 0 0 0 Public Off Street Reserved 0 0 628 Private Off Street 131 59 Occupancy (#) 131 59 628 Occupancy ~%~ 21 % 9% Weekend Occupancy -Zone b Supply Type 10:00 AM 7:00 PM 437 Public Off Street Unreserved 0 0 0 Public Off Street Reserved 0 0 1,423 Private Off Street 796 849 Occupancy (#J 796 849 1, 860 Occupancy ~%~ 43% 46% IS PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE WALKER PARKING CGNSULTANTS MAY 12, 2008' Key areas that experience temporary congestion and lack of available parking include City Lot #10, and several blocks located in Zone 3. Zone 3 encompasses the core of the Dubuque downtown central business district. As a result, many demand generators with a high weekday presence are located in this zone. It should be noted that while some blocks were observed at over 100% occupancy during the peak demand period, adjacent blocks were at 50% occupancy or lower. ZONE 1 Parking in Zone 1 consists primarily of on-street and small, private, off- street surface lots, reflecting the presence of residential and supportive service and retail uses which dominate this zone. Weekday parking occupancy peaked at approximately 10:00 AM with 45% or 380 spaces occupied. Weekend jSaturday) parking occupancy peaked at approximately 10:00 AM with 27% percent or 228 spaces occupied. ZONE 2 Parking in Zone 2 consists primarily of on-street and private, off-street surface lots, with a noticeable presence of public off-street reserved spaces, reflecting an increased presence of office commercial uses when compared to Zone 1 . Weekday parking occupancy peaked at approximately 1:30 PM with 57% or 678 spaces occupied. Weekend (Saturday) parking occupancy peaked at approximately 10:00 AM with 25% or 300 spaces occupied. ZONE 3 Parking in Zone 3 consists of on-street, public and private off-street surface lots and structures with a dominant presence of public off-street reserved spaces, reflecting a significant amount of professional office and commercial uses. Weekday parking occupancy peaked at approximately 10:00 AM with 71 % or 2,233 spaces occupied. Weekend (Saturday) parking occupancy peaked at approximately 7:00 PM with 22% or 697 spaces occupied. The challenge in Zone 3 is that a high percentage of parking supply is reserved or restricted which limits the opportunity to share or maximize the use of the supply when spaces are vacant. Thus, a perception of inadequate supply exists when the actual issue may be the lack of availability due to spaces set aside for individual users. Ib PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE ~„ WALKER PARKItiG CONSULTANTS MAY 12, 2008' ZONE 4 Parking in Zone 4 consists of on-street, public and private off-street surface lots and structures, reflecting a large presence of commercial uses. Weekday parking occupancy peaked at approximately 10:00 AM with 44% or 710 spaces occupied. Weekend (Saturdays parking occupancy peaked at approximately 7:00 PM with 49% or 797 spaces occupied. ZONE 5 Parking in Zone 5 consists primarily of on-street, small, private off-street surface lots, reflecting the mix of residential, commercial and industrial uses located in this zone. Weekday parking occupancy peaked at approximately 10:00 AM with 51 % or 567 spaces occupied. Weekend (Saturday) parking occupancy peaked at approximately 10:00 AM with 22% or 244 spaces occupied. ZONE 6 Parking in Zone 6 consists of one large off-street public surface lot and many large, off-street, private, surface lots, reflecting the current availability of land in this zone. The uses in this zone cater predominantly to visitors/tourists though a single mid-rise office building is present. Weekday parking occupancy peaked at approximately 1:30 PM with about 31 % or 577 spaces occupied. Weekend (Saturday) parking occupancy peaked at approximately 7:00 PM with 46% or 849 spaces occupied. CALIBRATION FOR SEASONAL ADJUSTMENTS Individual land use types generate peak parking demands during different months throughout the year. Table 8, on the following page, displays a listing of the most commonly found land uses within all six zones of the Dubuque study area, along with corresponding peak demand percentages by month of the year. Cells reading "100%" indicate this is the month when the corresponding land use is expected to reach its peak demand period. For example, for the Retail Customer land use, the first cell under "Jan" reads "56%". This indicates parking demand for Retail Customers in January will only reach "56%" of the peak demand for this use for the year. The cell under "Dec" for Retail Customers reads "100%", indicating December is the month when the demand generated by Retail Customers peaks for the year. 17 PARKING NEEDS ASSESSMENT STUDY ~e WALKER DOWNTOWN DUBUQUE PaeKwccoNSU~Tav~s MAY 12, 2008 Table 8: Seasonal Demand Fluctuations Seasonal Demand Fluctuations by User Type and Land Use for Dubuque Study Area Land Use/User Grou Jan Feb Mar A r M Jun Jul Au Se Oct Nov Dec Late Dec Retail Customer 56% 57% 64% 63% 66% 67% 64% 69% 64% 66% 72% 100% 80% Em to ee 80% 80% 80% 80% 80% 80% 80% 80% 80% 80% 90% 100% 90% Restaurant Customer 85% 86% 95% 92% 96% 95% 98% 99% 91 % 96% 93% 100% 95% Em to ee 95% 95% 100% 100% 100% 100% 100% 100% 100% 100% 100% 100% 100% Ni htclu6Customer 84% 86% 98% 90% 90% 91% 94% 96% 92% 98% 96% 100% 95% Em to ee 90% 90% 100% 100% 100% 100% 100% 100% 100% 100% 100% 100% 100% Active Entertainment Customer 71 % 59% 67% 58% 71 % 62% 92% 75% 51 % 62% 78% 67% 100% Em to ee 80% 80% 80% 80% BO% 100% 100% 90% 80% 80% 80% 80% 100% Performin Arts Theater Patron 90% 90% 90% 90% 90% 90% 90% 90% 90% 90% 90% 100% 100% Em to ee 100% 100% 100% 100% 100% 100% 100% 100% 100% 100% 100% 100% 100% Arena Patron 90% 100% 100% 100% 100% 75% 0% 0% 60% 65% 90% 95% 95% Em to ee 100% 100% 100% 100% 100% 75% 10% 10% 75% 75% 100% 100% 100% Health Club Member 100% 95% 85% 70% 65% 65% 65% 70% 80% 85% 85% 90% 95% Em to ee 100% 100% 95% 80% 75% 75% 75% 80% 90% 95% 95% 100% 100% Convention Center Visitor 75% 100% 90% 55% 60% 50% 45% 75% 80% 85% 100% 60% 0% Em to ee 85% 100% 100% 65% 70% 60% 55% 85% 90% 95% 100% 70% 10% Leisure Hotel Guest 90% 100% 100% 100% 90% 90% 100% 100% 75% 75% 75% 50% 100% Restaurant/Loun eCustomer 85% 86% 95% 92% 96% 95% 98% 99% 91% 96% 93% 100% 95% ConventionPatronl>SOs ft/ uestrooml 75% 100% 90% 55% 60% 50% 45% 75% 80% 85% 100% 60% 0% Em to ee 100% 100% 100% 100% 100% 100% 100% 100% 100% 100% 100% 100% 100% Residential Units 100% 100% 100% 100% 100% 100% 100% 100% 100% 100% 100% 100% 100% Office S ace 100% 100% 100% 100% 100% 100% 95% 95% 100% 100% 100% 100% 80% Casino 70% 62% 86% 81% 80% 86% 100% 95% 89% 89% 73% 74% N/A *Source: Walker Parking Consultants Shared Parking Model Seasonal demand data for the casino category is based on monthly admission data provided for the Diamond Joe Casino in the Iowa Racing and Gaming Commission's Fiscal Year 2007 Gaming Revenue Report 18 PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE ~, WALKER P,4RKING CONSULTANTS MAY 12, 2008 Occupancy counts were conducted the week of January 8, 2008. As shown in Table 8, January is not the month when most land uses generate their peak parking demand. In order to more accurately assess current and future parking needs, seasonal adjustments must be applied to specific locations/land uses where seasonal fluctuations are anticipated to be significant and material to this analysis. According to the Urban Land Institute's Shared Parking, Second Edition, "A design day or design hour is one that recurs frequently enough to justify providing spaces for that level of parking activity. One does not build for an average day and have insufficient supply for the peak jif not multiple) hours on fifty j50%) percent of the days in a year. Conversely, it is not appropriate to design for the peak accumulation of vehicles ever observed at any site with that land use. That peak accumulation might last only for an hour or so, while there are 8,760 hours in a year. A traffic engineer does not design a street system to handle the peak volume that would ever occur; instead, the level of activity that represents the 85th or 90th percentile of observed traffic volumes in peak hours on average days is used for design. Use of the 85th percentile of peak-hour observations is recommended for parking ratios." The parking demand projections in this report are based on ratios, factors and adjustments found in Walker's Shared Parking model. Note that the Walker model reflects the most recent research on parking demand, as coordinated by the Urban land Institute (ULIj and published in Shared Parking, 2"d Edition. Following the accepted rule of using the 85'h percentile of peak-hour observations, it is necessary to adjust the January occupancy data, collected by Walker, for land uses shown in Table 7 to be at less than the 85'h percentile of their demand for the year. It should be noted that seasonal adjustments are only necessary for land uses that are concentrated in large quantity by location and/or are located in areas where demand fluctuations experienced by surrounding uses are not anticipated to minimize or cancel out fluctuations experienced by the primary use in question. A brief discussion on seasonal adjustments by zone is provided. 19 PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE `, WALKER ~- ?ARKiNG COiJSU_TANTS MAY 12, 2008 ZONE 1 Zone 1 consists primarily of residential uses with a few small office and retail uses spread throughout the zone. As shown in Table 8, peak demand for residential uses occurs during every month of the year. The peak demand for office space occurs during every month of the year with the exception of ,July, August and Late December when employees are most likely to take vacations. Although retail customers are shown to generate only 56% of their peak demand during the month of January, the small quantity of retail uses located in zone 1 is not significant enough to justify the application of seasonal adjustments. Since the parking demand for residential and office uses are anticipated to be at their respective peaks during the month of ,January when occupancy data was collected, no seasonal adjustments are required for these uses. No seasonal adjustments are required for Zone 1 . ZONE 2 Zone 2 consists of a mix of predominantly residential and commercial office space. This zone also contains a grade school, restaurant space and a larger quantity of retail space than Zone 1 . For the same reasons discussed in the Zone 1 analysis, no seasonal adjustments are necessary for the office and residential uses located in Zone 2. Grade school buildings, although not included in Table 8, are anticipated to be at or near peak demand during the month of ,January when occupancy data was collected. Thus, no seasonal adjustments are necessary for this use. As shown in Table 8, restaurant uses are anticipated to generate the 85'h percentile of peak demand during the month of January when occupancy data was collected. Therefore, no seasonal adjustments are necessary for this use. Although the quantity of retail space is greater in Zone 2 when compared to Zone 1, the retail space in Zone 2 is not large enough to justify seasonal adjustments. No seasonal adjustments are required for Zone 2. ZONES 3 AND 4 For the purposes of analyzing seasonal adjustments, Zones 3 and 4 have been combined due to the similarity of land uses in these zones. Zones 3 and 4 contain a large supply of commercial office space, and active entertainment venues such as a bowling alley, restaurant space, retail space, nightclub/bar space and the Five Flags Theater/Arena. For the same reasons as discussed in the Zone 1 analysis, no seasonal adjustments are necessary for the office uses located in Zones 3 and 4. Although the demand for active 20 PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE WALKER PARKING CO.:SULTANTS MAY 12, 2008 entertainment is shown in Table 8 to be at 71 % of peak demand in January when the occupancy data was collected, active entertainment uses generate their peak demand during times when office uses generate their lowest demand, usually during the weekend or in the evening. Considering the large quantity of office space in Zones 3 and 4, a large supply of parking is anticipated to be available during the peak demand periods for active entertainment uses. Thus, no seasonal adjustments are required for active entertainment uses in Zones 3 and 4. As shown in Table 8, restaurant uses are anticipated to generate the 85'h percentile of peak demand during the month of January when occupancy data was collected. Therefore, no seasonal adjustments are necessary for this use in Zones 3 and 4. Although the demand for retail space is shown in Table 15 to be at 56% of peak demand in January when the occupancy data was collected, the small quantify of retail space in Zones 3 and 4 does not justify seasonal adjustments. Although the demand for nightclub uses is shown to be at 84% of peak demand in January when the occupancy data was collected, nightclubs generate their peak demand during the evening when office uses generate their least demand. Considering the large quantity of office space in Zones 3 and 4, a large supply of parking is anticipated to be available during the peak demand periods for nightclubs. Therefore, no seasonal adjustments are required for nightclub uses in Zones 3 and 4. As shown in Table 8, Arenas and Performing Arts Theaters are anticipated to generate 90% of their peak demand in January when the occupancy data was collected. Since demand for both of these uses is anticipated to be above the 85'h percentile of peak demand, no seasonal adjustments are justified. ZONE 5 Zone 5 consists primarily of residential and industrial uses with a few small existing office and retail uses spread throughout the zone. As shown in Table 8, peak demand for residential uses occurs during every month of the year. Industrial uses, although not shown in Table 15, operate much like office uses in terms of seasonal fluctuations. Demand is generated consistently throughout the year with little to no fluctuation. The peak demand for office space occurs during every month of the year with the exception of July, August and Late December when employees are most likely to take vacations. Although retail customers are shown to generate only 56% of their peak demand during the month of January, the small quantity of retail uses located in zone 5 is not significant enough to justify the 21 PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE ~~. WALKER ~~ PARKING CONSULTAi\TS MAY 12, 2008 application of seasonal adjustments. Since the parking demand for residential, industrial and office uses are anticipated to be at their respective peaks during the month of ,January when occupancy data was collected, no seasonal adjustments are required for these uses. No seasonal adjustments are required for Zone 5. ZONE 6 Zone 6 is unique in terms of seasonal fluctuation. Zone 6 contains several large uses which cater to a tourist population. Tourist populations, unlike employees and residents, can fluctuate significantly throughout the year. Zone 6 contains office space, restaurants, a hotel, a casino, a convention center and a museum. We have already established, through discussion of previous zones, that seasonal adjustments are not justified for restaurant and offices uses. As shown in Table 8, hotels are anticipated to generate 90% of their peak demand for guests during the month of January when occupancy data was collected. Since this percentage of peak demand exceeds the 85'h percentile of peak, seasonal adjustments are not justified for this use. Demand for the casino during the month of January is shown in Table 8 to be 70% of peak, demand for the convention center is shown to be 75% of peak and the demand for the museum, considered active entertainment, is shown to be at 71 % of peak. In order to more accurately assess the current and future parking needs of Zone 6, seasonal adjustments must be applied to the occupancy data collected for the blocks on which these uses are located in Zone 6. The convention center is located on Block 4, the casino is located on Block 6 and the Museum is located on Block 7. Tables 9 and 10 detail the adjustments applied to these blocks as well as the adjusted peak weekend and weekday demand for these blocks to account for seasonal fluctuations. 22 PARKING NEEDS ASSESSMENT STUDY ~~ WALKER DOWNTOWN DUBUQUE ?ARK~NG cor~su~T~.Nrs MAY 12, 2008 Table 9: Zone 6 Weekend Seasonal Adjustments Weekend at 7 PM Block # Zone land Use Total Effective Supply Observed Demand January % of Peak Seasonal Adjustment to 85 % Adjusted Peak Demand Ade uac Percent Occupied 1 6 Vacant 0 0 - - 0 0 0% 2 6 Office 499 2 100% - 2 497 0% 3 6 Restaurant 1 13 1 14 85 % - 1 14 -1 101 4 6 Convention Center 299 196 75% 10% 222 77 74% 5 6 Leisure Hotel 305 235 90% - 235 70 77% 6 6 Casino 264 163 70% 15% 198 66 75% 7 6 Active Entertainment 265 139 71% 14% 166 99 63% 8 6 Vacant 0 0 - - 0 0 0% 9 6 Vacant 0 0 - - 0 0 0% 10 6 Vacant 0 0 - - 0 0 0% Total - 1,745 849 - - 937 808 54% Table 10: Zone 6 Weekday Seasonal Adjustments Weekda at 10:00 AM Block # Zone Land Use Total Effective Suppl Observed Demand January % of Peak Seasonal Adjustment to 85 % Adjusted Peak Demand Ade uac Percent Occupied 1 6 Vacant 0 0 - 0 0 0% 2 6 Office 499 164 100% - 164 335 33% 3 6 Restaurant 113 37 85% - 37 76 33% 4 6 Convention Center 299 26 75% 10% 29 270 10% 5 6 Leisure Hote 305 97 90% - 97 208 32% 6 6 Casino 264 109 70% 15% 132 132 50% 7 6 Active Entertainment 265 77 71 % 14% 92 173 35% 8 6 Vacant 0 0 - - 0 0 0% 9 6 Vacant 0 0 - - 0 0 0% 10 6 Vacant 0 0 - - 0 0 0% Total - 1,745 510 - - 552 1,193 32% The seasonally adjusted demand, shown in Tables 8 and 9 above, has been incorporated into the projected parking demand as shown in the Future Parking Demand Section of this report. 23 PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE WALKER PARKING CONSULTANTS MAY 12, 2008 FUTURE PARKING DEMAND Parking demand refers to the amount of parking that is estimated to be used at a particular time, place, and price. It is a critical factor in evaluating parking problems and solutions. Parking demand is affected by vehicle ownership, trip rates, mode split, length of stay, geographic location, type of trip (work, shopping, special event, the quality of public transportation and factors such as fuel and parking costs. The methodology employed by Walker to project future demand combines the baseline demand which is equal to the observed peak weekday occupancy level, and any incremental change or growth in demand resulting from new land uses entering the study area. The baseline and incremental increase in demand are added together and then compared to the existing effective parking supply to determine the overall parking adequacy. The new land uses to be located in the defined study area that sell products or services which are sensitive to business cycles impacted by macro variables and whose performance is strongly tied to the overall economy can impact the general need for parking. It is important to understand that parking is a derived demand and is susceptible to fluctuations based on changes in underlying economic conditions that drive the demand for primary activities in the study area. Historically, downtown Dubuque has experienced comparable economic cycles of growth and decline as experienced by comparable downtown communities. The City of Dubuque has exhibited a positive growth trend during the past decade with a sustained level of community development and revitalization. There are several proposed urban renewal and new downtown development projects that may directly impact public parking in downtown Dubuque. City representatives provided Walker with a list of developments that may come to fruition within the next ten years. The list of proposed developments may not represent all real estate projects or business expansions being considered in the study area, but does represent a collection of the most significant projects being considered at this time. The analysis of future parking conditions is predicated on the removal of existing parking supply, as well as the addition of new or renovated land uses to the study area. For the pur{~ose of this study, the following projects are reflected in the calculation of future parking demand. 24 CITY OF DUBUQUE `, WALKER DOWNTOWN AREA PARKING NEEDS ASSESSMENT ®~- PARi:u;,coNSUmc~rs MAY 12, 2008 Table 1 1 : New Development Assumptions Zone Block Location Pro ecf Land Use SF Units Seats Rooms Notes Parkin Associated Com lefion 2 17 131 w. 10th St. Interstate buildin Office 23,240 Densi 4:1000 Unchan ed 2008 2 1 1398 Central Ave. Heanland Financial Office/Bank 25 Additional Em to ees/Yr. 240 Private, Lease from Ci 2009 3 8 800 Main SL Conin ham and Buller Office 90 new'obs Lease from Ci 2008 3 18 8th and L«ust St. Dubu ue Buildin -McKesson Cor . Office Total Reduction = 4191obs De anin Lease Pk . 18 month hose 3 18 81h and L«ust St Dubu ue Buildin Office Densi 4:1000 Added lease Pk 2010 or Be and 3 17 700 Main St. NICC Enrollment Growth Colle a 100 Additional Dai Visits, 25 -50 Additonal Slude 2009 3 7 Main St. 900 Block Fischer Buildin Office 75,000 20 % Leased, tar et 80% 2070 4 10 205 Bluff The Lofts @ Cathedral S uare Residential 22,500 25 Condos 25 existin 2010 4 12 200 Main Julien Hotel Hotel 80,000 133 Tar e170% occ. Unchan ed 2009 5 22 7th and White Fade and Loetscher Mixed 125,000 1/3 Ralail, 1/30ffice, 1/3 Res. 250 existin 2009 S 21 81h and White Kirb Buildin Mixed 125,000 I /3 Retail, 1 /3 Office, 1/3 Res. 125 existin 2012 or Be and 5 17 801 Jackson 801 Jackson Mixed 100,000 I /3 Ralail, I /3 Office, 1/3 Res. 30 axisfin 2011 or Ba and 5 16 91h and lockson Be Jane Buildin Mixed 25,000 1 /3 Retail, 1 /3 Office, 1/3 Res. 25 surface 2012 or Be and 5 16 91h and lockson Caradaco Buildin Mixed 150,000 1/3 Ralail, 1 /3 Office, 1/3 Res. Unchan ed 2010 5 14 1000 Jackson 1000 Jackson Mixed 120,000 1/3 Ralail, 1/3 Office, 1/3 Ras. Unchan ed 2009-2011 5 14 11th and Washin ton Restoration Warehouse Buildin Mixed 180,000 1/3 Retail, 1/3 Office, 1/3 Ras. 35 existin 2009-2011 6 B 3rd and Bell Diamond Jo Casino Entanainment 140,000 1,130 ram , 200 surface Au ust 2008 6 9 ke Harbor and Adams Durranl Office 28,875 Densi 4:1000 75 surface Februa 2008 6 1 5th and Ice Harbor Baseball Stadium r sod o Entedainment 9 acres 5,500 250 suraco March 2010 6 8 ke Harbor and 5th Mixed Use Phase I Mixed 150,000 Recoil, Rest., Entonoinment, Office and Residential 2009 6 8 5th Sheet Mixed Usa Phase II Mixed 100,000 Retail, Resl., Entedoinment, Office and Residential 2011 6 8 Slh and Bell Mixed Use Phase III Mixed 60,000 Retail, Resl., Entertainment, Office and Residential 2013 6 2 Commercial St. Intermodal Parkin Facili Parkin 750 s a 2012 or Be and Sources: Ciry of Dubuque Department of Economic Development, Stakeholder meetings conducted by Walker Narking C:onsullanis, LUU+7 25 PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE ~~~ WALKER PARKING CONSULTAN?S MAY 12, 2008 There are two primary variables applied to the calculation of peak accumulation for new developments: 1 ~ the total gross floor area (GFA) for each type of proposed land use (i.e. office, retail, restaurant, etc., and 2) the appropriate parking demand ratio. The following section provides a discussion on the use of shared parking methodology when calculating the appropriate demand ratio to use for each type of land use in this analysis. SHARED PARKING DEMAND Shared parking is defined as parking spaces that can be used to serve two or more individual land uses without conflict or encroachment. One of the fundamental principles of downtown planning from the earliest days of the automobile has always been to share parking resources rather than to have each use or building have its own parking. The resurgence of many central cities resulting from the addition of vibrant residential, retail, restaurant and entertainment developments continues to rely heavily on shared parking for economic viability. In addition, mixed-use projects in many different settings have benefited from shared parking. There are numerous benefits of shared parking to a community at large, not the least of which is the environmental benefit of significantly reducing the square feet of parking provided to serve commercial development. The interplay of land uses in a mixed-use environment produces a reduction in overall parking demand. For example, a substantial percentage of patrons at one business (restaurant) may be employees of another downtown business (office. This is referred to as the "effects of the captive market". These patrons are already parking and contribute only once to the number of peak hour parkers. In other words, the parking demand ratio for individual land uses should be factored downward in proportion to the captive market support received from neighboring land uses. The base parking demand ratio for each land use is adjusted to represent the project ratio. Project ratios are calculated by multiplying the base ratio by the non-captive ratio (one minus the percent captive, by a monthly adjustment factor, hourly adjustment, and the drive ratio. Summarized in the following table is the projected peak parking demand during typical weekday conditions for all the new development projects identified in Table 1 1. Calculation of Project Ratio Base Ratio X Non-Captive Ratio X Monthly Adjustment Factor X Peak Hourly Adjustment Factor X Drive Ratio Project Ratio 26 PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE \, WALKER ~- PARKING CONSUiTA~"STS MAY 12, 2008 Table 12: Summary of Projected New Parking Demand New Development Peak Weekday Parking Demand Zone Block Location Project 0.2 Year Projected Demand 3-b Year Projected Demand 6-10 Year Projected Demand 2 17 131 w. 10th Sf. Interstate buildin 25 50 67 2 1 1398 Central Ave. Heartland Financial 38 75 225 3 8 800 Main St. COffln ham and Buder 27 54 81 3 18 8th and Locust Sf. Dubu ue Buildin /McKesson Cor . 1419) 1119) (419j 3 1 8 8th and Locust St. Dubu ue Buildin 0 0 360 3 17 700 Main St. NICC Enrollment Growth 10 20 30 3 7 Main St. 900 Block Fischer Buildin 102 204 229 4 10 205 Bluff The Lohs @ Cathedral S ware 8 15 22 4 12 200 Main Julien Hotel 22 43 93 5 22 7th and White Farle and Loetscher 58 149 270 5 21 8th and White Kirb Buildin 58 149 270 5 17 801 Jackson SOlJackson 48 119 217 5 16 9th and Jackson Be Jane Buildin 12 30 54 5 16 9th and Jackson Caradaco Buildin 70 176 322 5 14 1000 Jackson/l lth and Washin ton 1000 Jackson/Restoration Warehouse Buildin 117 584 1,067 6 8 3rd and Bell Diamond Jo Casino 211 316 379 6 9 Ice Harbor and Adams Durrant 3 7 104 6 1 5th and Ice Harbor Baseball Stadium ro osed 33 50 59 6 8 Ice Harbor and 5th Mixed Use Phase I 68 138 303 6 8 Sfh Street Mixed Use Phase II 0 48 139 6 8 Sfh and Bell Mixed Use Phase III 0 32 107 Projected New Parking Demand 491 1,840 3,979 Source: Walker Parking Consultants, 2008 Captive ratios, presence factors and absorption estimates have been incorporated into the calculations used to derive Table 12. Project ratios represent an average number of spaces required per land use type under shared parking peak weekday conditions. That is, if the demand ratio is applied to the square footage of a specific business or building, the calculated demand may or may not accurately represent one particular business. Rather, individual estimates may be low, whereas others may be high. It should be noted that due to location and scale, the two projects planned for Block 14 in Zone 5 (Warehouse District) have been modeled as a single project. Note that demand projections included in Table 12 are for peak weekday conditions near the hour of 10:00 AM. land uses that exhibit peak conditions during weekend or evening periods will have a relatively low demand during the peak weekday projection period. 27 PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE WALKER PARKING CONSUL~ANTJ MAY 12, 2008 The analysis of future peak parking demand includes the assumption that a S,000t -seat minor league baseball stadium may be located in the Port District. It is estimated that the stadium could potentially host 1 15 to 140 events annually. The Type of events may include minor league baseball games, concerts, high school baseball games, collegiate baseball games, and other public events. The attendance for such events could range from 500 to 4,000 people, depending on the type of event. The estimated number of attendees per vehicle is three (3.0~, resulting in a projected demand for 167 to 1,333 parking spaces. These figures conservatively exclude the assumption that a percentage of the event attendees may already be parked in the Port of Dubuque or in the downtown area for another purpose (employment, dining, entertainment, etc.) and walk or utilize public transportation to arrive at an event, which would further reduce the on- site demand for parking. Peak parking demand for the baseball stadium is projected to occur on a weekend during an evening event. The period of peak activity for the baseball stadium is likely to occur during the off-peak period presently experienced in the overall study area. Therefore, due to the availability of parking at the Port of Dubuque facilities, including the new parking structure currently under construction, it is assumed that the parking demand generated by the ballpark will be adequately accommodated during peak conditions. The Northern Iowa Community College (NICC~ is also included in the analysis of future parking conditions, although the future impact is projected to be rather low during peak weekday conditions (10:00 AMj. This assumption is predicated on the information provided by NICC that class schedules are gradually being adjusted so that the peak student demand occurs in the late afternoon and early evening hours. 28 PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE `, WALKER ~~- PARKING CONSU:TANTS MAY 12, 2008 FUTURE PARKING ADEQUACY A fundamental aspect of any central business district or downtown area is the interplay of activities from block to block. Commonly, patrons of a downtown area park on one block and go to work and/or patronize a business on another block. Additionally, not all of the parking patrons bound for a particular block will choose to park if there is a sufficient amount of available space. Market factors, especially price, walking distance and convenient access will result in significant interplay between blocks. For these reasons, it is not critical to focus on the balance for any individual block. Rather, the focus is on the defined zones within each of the three districts. Parking adequacy is defined as the difference between the effective parking supply provided and the parking demand generated by various land uses within a given area. 29 PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE WALKER ?ARKING CONSULTANTS MAY 12, 2008 As with the analysis of existing parking conditions, Walker evaluated future parking adequacy within six (6) zones. Each zone encompasses a unique representation of land uses with different parking demand characteristics. Table 13 shows the projected future weekday and weekend parking adequacy for each zone. Table 13: Future Weekday and Weekend Parking Adequacy by Zone WEEKDAY 0-2 Year Projection Total Peak Projected Zone Effective Demand Demand Future Adequacy Supply 10:00 am Increase 1 752 380 0 372 2 1,072 552 63 457 3 2,987 2,233 (280) 1,034 4 1,491 710 30 751 5 1,035 567 363 105 6 3,430 552 315 2,563 Total 10,766 4,994 491 5,281 3-5 Year Projection Total Peak Projected Zone Effective Demand Demand Future Adequacy Supply 10:00 am Increase 1 752 380 0 372 2 1,072 552 125 395 3 2,987 2,233 (141) 895 4 1,491 710 58 723 5 1,035 567 1,207 (739) 6 4,142 552 591 2,999 Total 11,479 4,994 1,840 4,645 6-10 Year Projection Total Peak Projected Zone Effective Demand Demand Future Adequacy Supply 10:00 am Increase 1 752 380 0 372 2 1,072 552 292 228 3 , 2,987 2,233 281 473 4 1,491 710 1 15 666 5 1,035 567 2,200 (1,732) 6 4,142 552 1,091 2,499 Total 11,479 4,994 3,867 2,618 WEEKEND 0-2 Year Projection Total Peak Projected Effective Demand Demand Future Zone Supply 7:00 pm Increase Adequacy 1 752 166 0 586 2 1,072 226 0 846 3 2,987 697 2 2,288 4 1,491 797 32 662 5 1,035 167 226 642 6 3,430 937 822 1,671 Total 10,766 2,990 1,082 6,696 3-5 Year Projection Total Peak Projected Effective Demand Demand Future Zone Supply 7:00 m Increase Ade uacy 1 752 166 0 586 2 1,072 226 0 846 3 2,987 697 4 2,286 4 1,491 797 63 631 5 1,035 167 788 80 6 4,142 937 1,514 1,691 T~ft~i 11,~7~ ~,~~r® ~,~~~~~' ~,9~1 6-10 Year Projection Total Peak Projected Effective Demand Demand Future Zone Supply 7:00 m Increase Adequac 1 752 166 0 586 2 1,072 226 0 846 3 2,987 697 24 2,266 4 1,491 797 83 b l l 5 1,035 167 1,416 (548) 6 4,142 937 2,074 1,131 ~~t~l 11,4~~ ~,9~~ ~,~~~ Q,893 Note: All figures are rounded to the nearest whole number. Zone 5 effective supply increases by 31 spaces in 0-2 years. Zone 6 effective supply increases by 1,685 spaces in 0-2 years. Zone b effective supply increases by 2,397 spaces in 3-5 years. 30 PARKING NEEDS ASSESSMENT STUDY DOWNTOWN DUBUQUE j~\, WALKER PARKING CONSULTAIVrS MAY 12, 2008 Although the total future weekday adequacy for all six zones is lower than the weekend adequacy, it is important to note that specific zones are projected to experience lower weekend adequacies. Zone 4, for example, contains the Five Flags Center, several hotels, and a variety of fine/casual dining restaurants among other entertainment venues. These uses generate high levels of weekend demand and thus produce lower weekend adequacies when compared to the weekday. Zone 6 contains uses that generate high levels of weekend demand and therefore experiences lower weekend adequacies. Future parking adequacy is anticipated to be lower during the weekday than the weekend period. With the exception of Zone 5, all zones are anticipated to have adequate supply to satisfy the needs of existing, as well as the future demand generators listed in Table 1 1 . It is important to note that Zone 5 is projected to experience a deficit of 7391 spaces within 3 to 5 years, and a deficit of 1,7321 spaces within 6 to 10 years if all future developments listed in Table 1 1 come to fruition. It is important to note that although an overall adequacy is projected in zones 2 and 3, there is potential for a shortfall or inadequate amount of employee parking supply in projected years 6 -10. If on-street parking supply is removed from the calculation of future parking adequacy in these zone, then the projected adequacy in Zone 2 equates to negative 227 spaces, and in Zone 3 positive 85 spaces. Figures 6 through 1 1 graphically show the projected weekday and weekend parking adequacy for all six study zones. The figures reflect the anticipated parking conditions during the next zero to two years, three to four years and five to ten years. 31 PARKING NEEDS ASSESSMENT STUDY ~~ WALKER DOWNTOWN DUBUQUE PaRKiNCCONSUrra~rs MAY 12, 2008 32 PARKING NEEDS ASSESSMENT STUDY WALKER DOWNTOWN DUBUQUE ~aRKiNO coNSU~r~,Krs MAY 12, 2008 33 PARKING NEEDS ASSESSMENT STUDY +~ WALKER DOWNTOWN DUBUQUE PaeKi~c cohsu.Tavrs MAY 12, 2008 34 PARKING NEEDS ASSESSMENT STUDY ~ WALKER DOWNTOWN DUBUQUE PARK~uc consu~TntiTs MAY 12, 2008 35 PARKING NEEDS ASSESSMENT STUDY `~ WALKER DOWNTOWN DUBUQUE ~nRKwccovsv.Tn~~s MAY 12, 2008 36 PARKING NEEDS ASSESSMENT STUDY `~ WALKER DOWNTOWN DUBUQUE FaRKwcccn~su~ur:ls MAY 12, 2008 37 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT `;, WALKER ?ARKING CONSUL7ANT5 MAY 12, 2008 The two objectives for the alternatives analysis are: (l ~ to identify opportunities that would help improve current utilization of the public parking system; and (2j to identify and evaluate potential sites for a new public parking ramp and or lot that would provide further support and convenience for patrons and employees of downtown businesses. Both of these objectives for the public parking system are in agreement with the goal set forth by the City of Dubuque for the Parking Division which is to provide, maintain and improve an accessible, functional and self-supporting parking system. USE OF EXISTING PUBLIC RESOURCES At present, the peak occupancy level of the city-owned off-street parking supply is approximately sixty X60%) percent with 1,827 vehicles present on a weekday near the hour of 10:00 AM. This translates into 1,198 unoccupied spaces or a forty (40%~ percent vacancy during peak conditions. When the peak occupancy is measured against the effective supply there are fewer available spaces, albeit 965 unoccupied spaces still remain available. Parking adequacy by location is shown in the following table. Table 14: City Parking Supply -Documented Peak Occupancy Peak (%) Surplus/ Effective ~:. _.i.:__ w.__ ~_.... r,. ,.l c, ..1., n, n,. InoL;~ul S.. .,I~ G.lon~~ City Lot 1 3 124 94 76% 30 112 18 Ciy Lot 2 3 19 12 63 % 7 18 6 Ciy Lot 3 3 1 16 51 44% 65 108 57 City Lot 4 2 17 10 59% 7 16 6 Ciy lot 5 2 54 37 69% 17 51 14 City Lot 6 2 21 9 43 % 12 19 10 Ciy Lot 7 4 16 16 100% 0 14 (2) City Lot 10 3 82 74 90% 8 77 3 City Lot 12 4 47 9 19% 38 42 33 McGraw-Hill Municipal Lot 6 437 151 35% 286 393 242 Locust Street Garage 3 444 322 73% 122 404 82 Iowa Street Garage 3 632 406 64% 226 593 187 4th Street Garage 4 400 104 26% 296 360 256 SthStreetGara e 3 616 532 86% 84 585 53 Total 3,025 1,827 60% 1,198 2,792 965 Data collected week of January 8, 2008. Note: Adequacy equals Effective Supply less Peak Occupancy. ALTERNATIVES ANALYSIS 38 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSULTANTS MAY 12, 2008 As shown in the previous table, there exists an opportunity to increase utilization of the current parking system through the application of demand management strategies. The concept of parking demand management incorporates the use of smart growth principles that focus on equitable operating policies, pricing strategies, and public transit initiatives. Proactive parking management strategies can be an effective tool in mitigating the amount of additional future supply that is required by maximizing the utilization of existing resources. Smart Growth (also called New Urbanism) is a general term for development policies that result in more efficient transportation and land use patters by creating more compact development with multi- modal transportation systems.2 Smart growth supports and is supported by parking demand management. Parking demand management reduces the amount of land required for parking facilities, reduces automobile use and increases infill affordability. These land use patters, in turn, tend to reduce vehicle use, and so reduce parking requirements. They allow more sharing of parking facilities, shifts to alternative modes, and various types of parking pricing. Smart growth usually incorporates specific parking management strategies, as indicated in the following table. Table 15: Conventional and Smart Growth Parking Policies Conventional Parking Policies I Smart Growth Parking Policies Managed for parkers convenience Reserved (Dedicated) parking facilities Maximum parking supply Prefers free or lowest priced parking Prefers low density development Managed for parking efficiency Shared parking facilities Optimal parking supply (balance) Prefers fair market priced parking Prefers compact development RESERVED AND NON-RESERVED PARKING A common challenge when a public parking system offers monthly parking is that tenants may request if not demand reserved parking. The question for the city is how much supply can be dedicated for "reserved" parking without jeopardizing the operational efficiency and financial integrity of the parking system? The answer to this question is unique to each city. Many communities with a surplus of parking are more likely to offer a greater number of patrons the luxury of purchasing a reserved monthly parking permit since the space would s "Smart Growth," Victoria Transport Policy Institute, 2005 39 4'" Street Ramp - 26% Occupancy During Peak Weekday Conditions CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT ~~. WALKER ~- PARKWG CONSULTANTS MAY 12, 2008 go unused otherwise. However, as demand increases and the surplus of parking spaces diminish there comes a time when the city must reevaluate its policy on reserving parking spaces and look for better ways to maximize use of its public resources. The city-owned parking system presently operates approximately forty- six (46%) percent of the public off-street supply as reserved parking. Reserved spaces are designated for exclusive use by individuals during a particular period. For example, employees of convenience- and serviceroriented businesses such as insurance firms, banks, law firms, and medical offices tend to utilize reserved parking, so that they do not have to search all the spaces in the facility for a parking spot. Other convenience-oriented downtown businesses have requested that the spaces immediately in front of their buildings be signed with time limits to assure convenient parking for their customers and in special circumstances their employees. The downtown Dubuque business community has grown accustom to having the option of paying a nominal premium for a reserved parking space. Historically, the public parking system has been able to accommodate the strong demand for reserved parking due to the availability of supply. As downtown weekday demand for parking continues to increase, specifically in Zone 3, it is apparent that reserved parking spaces are an inefficient use of public parking resources. The maximum parking space turnover rate per day for a reserved space equals one turn. When the permit holder is not parked in their space for any reason it sits vacant and cannot be used by another patron. Thus, the strategy of sharing parking resources cannot be fully implemented by the City. An alternative to reserving such a high percentage of the public parking supply would be to offer a reserved area parking which can result in a more efficient use of public space. In a reserved parking area, parking spaces on a specific level of a parking ramp or row of a surface lot are designated for monthly permit parking only. "Nested" parking controls may be employed to assure that the user parks in the appropriate area. Nested controls require the individual to use an access ID at the main entry/exit and again at the entry/exit to the reserved area; thus, the system can flag users who do not park in the designated area. The gates to the reserved area can be raised on evenings and weekends. Generally, the area can be oversold, with 20 - 30 percent more permits sold than the capacity of the area. For example, 100 monthly permit holders can usually share 75-85 parking spaces, since at any particular time some are on leave, commuting by an alternative mode, in the field, or working non- traditional hours. The potential capital savings associated with gaining 40 CITY OF DUBUQUE + WALKER DOWNTOWN AREA PARKING NEEDS ASSESSMENT PaR~wccoNSU~rF~.~rs MAY 12, 2008 15 to 25 spaces through parking management strategies rather than constructing new supply equals approximately $240,000 to $400,000 for structured parking and $53,000 to $88,000 for surface parking. It is recommended that the City consider reducing the total number of single space reserved parking permits issued to individuals and groups. It is our professional opinion that the stabilized number of single space reserved parking permits should not exceed ten (10%) percent of the city's total off-street parking supply. While there would still remain the opportunity for individuals to purchase a single space reserved parking permit, it is likely that the demand would exceed the supply, allowing for the premium parking spaces to be priced at a minimum of fifty j50%) percent above the non-reserved monthly parking market rate. For example, if the monthly parking permit at the Locust Street Ramp is $60, then the monthly rate for one of the 45 reserved spaces3 would be at minimum $90. The excess demand for single space reserved parking could be accommodated with the alternative option of reserved "area" parking. Highlighted in the following table is the projected number of additional monthly permits that may be issued by the City in an effort to employ shared parking strategies and maximize the existing municipal parking resources. Table 1 b: Projection of Potential Increase Due to Shared Parking Strategy Zone 1 2 3 4 5 6 Existin % of Total Adjusted % of Total Reserved Parking Existing 0 60 1,325 0 0 0 1,385 46% Adjusted 0 35 265 0 0 0 300 10% Non-Reserved Existing 0 32 708 463 0 437 1,640 54% Adjusted 0 57 1,768 463 0 437 2,725 90% Toral 3,025 100% 3,025 100% Non-Reserved Oversell Factor 0% 10% 10% 10% 0% 10% Total Potential Shared Parking Gain 0 6 177 46 0 44 273 Permits Key Assumptions: 1 . Ten (10J percent of public off-street parking supply is set-aside for reserved parking. 2. Non-Reserved Oversell Factor of ten (10) percent on non-reserved supply. ' Ten percent of the Locust Street Ramp equals 44 spaces 1444 spaces x 10%I. 41 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT ?~\, WALKER PARKING CONSULTANTS MAY 12, 2008 RESERVED PARKING AND MUNICIPAL TAX-EXEMPT FINANCING The following is meant to be a general overview of some of the tax rules that apply to public parking facilities and how types of reserved or guaranteed parking may impact compliance with these rules. Different from the private sector, municipal parking facilities financed through the issuance of tax-exempt revenue bonds are subject to federal tax regulations that directly impact how the parking facility is operated. In order for public parking facility bonds to be tax-exempt, they must qualify as "governmental bonds" and thus not meet the Private Business Tests and the Private Loan Financing Tests. A bond meets the private business use test if more than ten (10%) percent of the bond proceeds are used for any "private business use". In addition, this ten (10%) percent use threshold is reduced to five (5%) percent when the private business use is either unrelated or disproportionate to the related business use of the proceeds of the issue. Private business use means any use (directly or indirectly in a trade or business carried on by any person other than a governmental unit. Use of a bond financed parking facility as a member of the general public is not treated as a private business use. This "public use exception" is especially relevant to public parking facilities. A common type of private business use of a parking facility is the reservation of spaces in a parking ramp or lot for specified persons or entities. Assume that abond-financed parking ramp has 500 spaces and that 40 spaces are reserved for employees of an accounting firm adjacent to the ramp. In this example, 40 reserved spaces are used in the trade or business of the accounting firm and constitute "bad use" of the parking ramp. However, since 40 out of 500 spaces only constitutes eight (8%) percent bad use of the ramp the Private Business use Test is not met. Generally, reserved parking is treated as related to the governmental parking purpose of a public parking ramp and; therefore, the ten (10%) percent threshold applies. A public parking facility can offer monthly permit parking as long as it does not create "special legal entitlements" for the monthly parkers. The Treasury Regulations provide an example of an authority's bond- financed parking ramp in which at least 90 percent of the spaces are available to the general public on a monthly first-come, fist-served basis. The authority expected to rent most of the monthly spaces to the general public. The monthly parkers had a right to renew their monthly parking pass on a month-to-month basis but the renewal rights did not prevent the authority from changing the monthly parking rates each 42 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT ~ WALKER ?ARKING CONSULTANTS MAY 12, 2008 month. The example concludes that the monthly parking program did not result in the Private Business Use Test being met with respect to the parking ramp. From this example, the following requirements regarding monthly parking are clarified: • The monthly parking program must be available to the general public and cannot be limited to employees of specific organizations. • The circumstances with respect to the parking facility must be such that the municipal owner of the facility reasonably expects that most of the use of the facility will be by the general public; although use by business users is allowed so long as such use is on the same basis as members of the general public. • Large blocks of permits cannot be purchased and held by business users. For example, a hotel next door cannot purchase a large number of monthly parking permits and exercise its priority right to renew the permits each month thereby assuring reserved parking for its guests. • Monthly permit holders may have priority monthly renewal rights but, upon failure to renew their permit, the permit must return to the first-come first-served pool of permits available to the general public. • The municipal owner of the garage must retain complete control over the amount charged for monthly permits and must have the ability to charge the cost for all permit holders each month. The City of Dubuque and the Division of Parking have operated in compliance with federal tax regulations set forth for tax-exempt bond- financed parking facilities. The purpose for providing the previous discussion is to reinforce the importance of keeping the public parking facilities available to the general public on a first come first served basis, and to highlight the congruency between smart growth parking management strategies and public finance regulations. MANAGE DEMAND AND INCREASE UTILIZATION To increase utilization of a parking system there must be a concerted effort to employ multiple demand management strategies. The following discussion highlights viable strategies for increasing the parking system utilization. 43 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSULTA~S MAY 12, 2008 IMPLEMENT BASIC MARKETING STRATEGY Walker recommends that the Parking Division consider marketing its parking facilities to the downtown business community. Marketing does not have to be expensive to be effective. An effective and low cost way to convey to the downtown business community that current parking availability exists is through publishing parking information in an automated monthly report. The memorandum issued by the Parking Division could be titled the "Monthly Public Parking Report" and simply include the number of available monthly parking spaces in each public parking facility along with the current parking rates. The Monthly Public Parking Report would enable employers to provide their employees with up-to-date parking information and choices. Highlights from the monthly parking report could also be included in the monthly news letter published by Downtown Main Street. Other organizations that may benefit from receiving an electronic copy of the parking report include but are not limited to the Greater Dubuque Development Corporation and the Dubuque Chamber of Commerce. In addition to communicating with the general public about parking availability, regulations, price, and travel options, such as walking, ridesharing and transit can be shared. Many parking problems result in part from inadequate user information. User information can be provided by signs, maps, brochures, websites, and electronic guidance systems. It is particularly useful if there is a perceived parking shortage, although spaces are actually available in an area. For those who view convenience as their highest priority, steps to communicate availability of parking can be taken to improve their opinion of downtown parking. One aspect of parking that can frustrate some motorists is the very process of searching for a space. By marketing the underutilized ramps and lot, the City can help satisfy those who may not care about finding the closest spot to their destination, simply the most convenient in the shortest amount of time. These parking locations with available supply are likely to provide a space to those who just want to avoid circuitous trips made in the effort to find somewhere to park within a short walking distance of their destination. EXPAND PARKING WEBSITE CAPABILITIES Although the Parking Division has a very clear website that conveys operating information for the public parking system, Walker recommends that the Parking Division consider updating and 44 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSULTANTS MAY 12, 2008 expanding the website information and site capabilities. Walker recommends that the Parking Division consider developing a parking information tool consisting of an interactive map of current public parking locations in downtown Dubuque that are available to employees, residents, visitors, and special event attendees. The site should clearly convey the day, night, and weekend parking options for the previously mentioned groups. The interactive map would identify significant downtown attractions and provide appropriate parking options for each attraction along with information on public transit options once people arrive and park in downtown. Once the Parking Division website is updated and modified, it is recommended that the site be linked to websites of all major downtown attractions and organizations including but not limited to: all major businesses located in downtown Dubuque, Greater Dubuque Development Corporation, Downtown Main Street, Dubuque Chamber of Commerce, Five Flags Civic Center and Theater, the Grand River Center, and any website associated with planned downtown festivals. Walker recommends that the Parking Division implement on-line payment options for monthly permits and meter cash cards. Patrons would be able to view a map of downtown Dubuque along with all the current public parking options, then select and pay for a parking permit at an available location that meets their needs. A common complaint by patrons who frequently use the meter cash card program is the cards cannot be paid for on-line; rather the patron must go to the Parking Division office to replenish the credit on their card. This operating adjustment could further increase the utilization of on-street meters, in particular 10-hour meters, by improving the convenience of using the cash card program instead of coins. These on-line services would further support the Parking Division in providing a high level convenience and wide range of choices to the general public. INTEGRATE PUBLIC TRANSIT AND REMOTE PARKING OPTIONS The City's Transit Department is a valuable public service that could partner with the Parking Division to alleviate excessive demand in localized areas of downtown Dubuque. This could be achieved through expanding the use of the two trolley routes that presently operate from Memorial Day to Labor Day to a twelve month operation. The current trolley route loops from the Grand Harbor Resort & Water Park through the Port District over to Main Street, then north on Main Street to 10`h Street, west on 10'h Street to Bluff Street, south on Bluff Street to 1 ~' Street, then back to the Port District and Grand Harbor 45 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSULTANTS MAY 12, 2008 Resort & Water Park. This trolley circulation route could provide downtown employees with a viable alternative to park in the Port District and use public transportation to transition into the core downtown area. When in seasonal operation the two existing trolleys are in service from 10:00 AM to 7:00 PM, Monday through Thursday, and 10:00 AM to 10:00 PM on Friday and Saturday. During the peak tourist season the trolleys are reportedly 95% utilized by visitors traveling to and from the Port District, the Historic Old Main Street area, and the Historic Cable Car Square area. The demand levels for the trolley fluctuate by time of day, day of week and whether an event is taking place downtown. The peak ridership period typically coincide with traditionally busy three day weekends that draw large numbers of visitors to the casino. It is recognized that there could be potential transit capacity conflicts with the combined trip volume of downtown employees and visitors during peak summer months. To proactively mitigate any conflict the trolley operating hours would need to be expanded to serve the employees starting at 7:00 AM during the weekday and an additional shuttle vehicle may be required on special occasions during the 4:00 PM to 7:00 PM time period. At present, there are approximately 286 unused parking spaces in the Port of Dubuque Surface Lot during peak weekday conditions. It is recommended that the City consider expanding the public transit system to accommodate remote employee parking in the Port of Dubuque Surface Lot. Remote parking requires providing adequate use information and incentives to encourage motorists to use more distant facilities. For example, signs and maps should indicate the location of peripheral parking facilities, and they should be significantly less expensive to use than in the core. Without such incentives, peripheral parking facilities are often underused while core parking is congested. To promote remote parking, it is recommended that the City consider hosting a Downtown Alternative Parking & Transportation Brownbag for downtown employees. The presentation would provide employees with an opportunity to learn about the available parking alternatives, the transit operation, and the associated personal cost savings. As the concept of remote parking and the use of the transit program increases in acceptance, the City may decide to expand the number of remote parking alternatives around the periphery of downtown Dubuque. It is important to note that parking reduction strategies, such as using remote parking, are typically not well received by employees due to perceived friction and loss of freedom associated with public 46 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER °ARKING CONSULTANTS MAY 12, 2008 transportation. The quality and accessibility of the public transportation system is a key component in dismissing the negative perception: Examples of transit services that have proven to be very convenient and widely accepted by motorists are off airport parking and transit services. Prior to September 11 off airport parking facilities were marginally accepted by the general public. Following September 1 1 when airport security restricted use of on airport parking facilities motorists were forced to use off site lots and ride a shuttle to their terminal. As security concerns subsided at airport parking ramps the off airport lots did not see a significant reduction in patronage. This is due to the realization by travelers that the remote parking and transit services were relatively inexpensive, actually reduced walking distances, and were reliable. RIDESHARING AND PREFERENTIAL PARKING The concept of ridesharing or carpooling is not widely accepted in many Midwest communities that offer minimal commute times, ample parking supply, inexpensive parking rates, and sprawling low density development. That is the reason why economic incentives unaccompanied are unlikely to motivate an individual to relinquish the personal freedom that comes with driving alone. An additional incentive that motivates carpooling groups to form is the assurance of convenient, reserved parking for those who ride share. As such, it is recommended that the City consider offering qualified rideshare participants the opportunity to park in the premium reserved parking areas. The fee should be lower than the market price for a reserved parking space. The City may also consider offering owners with hybrid, low emissions vehicle a preferred monthly permit that either is sold at a below market rate or enables the patron to park in a preferred location. USE OF VALET PARKING TO INCREASE CAPACITY Valet parking has historically been associated with dense, urban metropolitan areas and expensive attractions. Today, the practical value of offering valet parking along with the added level of service has made valet operations common in suburban markets. Owners have implemented valet services in downtown activity centers, at regional shopping malls, performing and visual arts theaters, airports, restaurants, casinos, hotels, sporting events, health clubs, spas and 47 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSULTP.NTS MAY 12, 2008 beauty salons. The use of valet parking, particularly during busy periods, can increase parking capacity by 20% - 40% compared with users parking their vehicles. Commercial lots often have attendants park vehicles during busy periods, but not off-peak. The City of Dubuque may not require valet parking at this time, but should recognize this option as a viable approach to maximizing limited parking supply. SIMPLIFY PARKING CITATION PAYMENT PROCESS A general rule associated with parking enforcement is to keep the process simple. A clear critical path from the citation being issue to payment is essential for high collection rates. In Dubuque, a parker may be issued a parking citation by either a police officer or parking enforcement officer. This reportedly can cause confusion on the part of the recipient of a citation when they call to inquire about the infraction. If a police officer issued the citation and the recipient calls the Parking Division for information, they are typically provided as much assistance as possible by the Parking Division, then redirected to the Police Department. Likewise, the Police Department may end up redirecting recipients of parking citations issued by a parking enforcement officer back to the Parking Division. This clearly increases the chance that frustration may ensue on the part of the public. It is recommended that the City consider establishing a standardized process of issuing a parking citation and simplify the procedure for fielding and responding to inquiries. One common approach is to designate a single department responsible .for managing the citation process following the issuance of the citation. The annual interdepartmental transfer of funds may still occur when one department incurs costs associated with enforcing parking regulations. It is recommended that a working committee be established with representatives from the Police Department, Parking Division and Finance Department with the objective of simplifying the parking citation process. 48 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT `, WALKER ~- PARKING CONSULTP.NTS MAY 12, 2008 COURTESY PARKING CITATION NOTICE At present, an individual who violates the parking regulations in downtown Dubuque for the first time is issued a courtesy notice rather than a ticket. This ambassador program has an annual opportunity cost to the Parking Division of approximately $80,000. Nonetheless, the program is considered highly successful in that it aims to educate visitors who may otherwise be unfamiliar with the local parking enforcement policies and minimize negative public perception of parking in downtown. It is recommended that the City continue the policy of issuing fist time offenders a courtesy notice. PAYMENT OF PARKING CITATION When a second parking citation is issued to an individual the fine amount must be paid to the City. At present, parking citations may be paid at either the Finance Department or Parking Division. This flexibility in payment by location is an added convenience to the public and should be continued. Although, it is recommended that the City considered offering the public the additional option of paying for parking citations on-line. With ease of use and 24-hour availability, one benefit of offering this method of payment is a higher ticket collection rate. This operating initiative is in agreement with the City's objective to provide, maintain and improve an accessible, functional and self-supporting parking system. OPPORTUNITIES FOR ADDITIONAL ON-STREET PARKING Walker was asked to evaluate the possibility of adding on-street parking along the interior roadways of the Port District. In general, on- street parking buffers pedestrians from vehicle travel, slows traffic to a safer, more livable speed, provides convenient parking locations for nearby businesses and events, allows businesses and residences to reduce the amount of off-street parking, and enhances urban vibrancy by improving the public realm. It is recommended that the City consider adding on-street parking in the Port District in phased approach that is inline with planned development. A conceptual estimate of 1301 on-street parking spaces could be added in the Port District. 49 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT ~\, WALKER '~~, ?ARKiNG CONSULTANTS MAY 12, 2008 Figure 12: Bell Street Located in the Port District Photograph taken Tuesday, April 8, 2008 at 1 1:00 AM In addition, on-street parking should be considered in the Warehouse District for the previously mentioned urban planning reasons. The plans for the Warehouse District call for a pedestrian active area with indoor and outdoor dining, entertainment and shopping. On-street parking would help to serve the short-term patrons visiting the district and reduce the total required number of structured or off-street parking spaces. Opportunities also exist in the core area of downtown Dubuque to increase the number of on-street parking spaces near major demand generators. The addition of on-street parking spaces would provide additional short-term, convenient parking supply for downtown visitors. Walker recommends that the Parking Division and City consider converting all or a portion of the "drop off/pick up" areas to on-street parking spaces. The existing curb cuts could remain as is and approximately 12 parallel on-street meter spaces could be installed in a phased approach. Walker observed downtown employees parking in the designated drop off/pick up areas during peak weekday periods. It is our opinion that the public space could better serve the downtown community as on-street spaces. 50 ~_ j - - -- / j -- CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT `, WALKER ~- PARK,INv CCINSU:TAN15 MAY 12, 2008 8, 2008 at 1 l :l 5 AM 8, 2008 at 1 1:15 AM 51 Figure 1 3: Main Street CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSUL7AN?S MAY 12, 2008 ACCEPTABLE WALKING DISTANCE Despite the overall surplus of parking, it is possible for an individual in downtown Dubuque to form the perception that an inadequate amount of parking supply exits under current market conditions. This perception may be formed around the expectation that parking should be located adjacent to or within one block of the destination. Therefore, it is important to recognize when planning for future parking provisions that people have different definitions of what is an acceptable walking distance. "Acceptable" walking distance varies depending on the specific user group, such as visitor or employee. Normally, employees are more willing to walk further distances on a daily basis in exchange for a guaranteed supply of parking spaces to choose from, and visitors expect proximate parking to their destination. Thus, just looking at the total number of spaces vs. the total parking demand may not provide enough information to determine if the parking supply and location is satisfactory. To evaluate parking and the impact of the walking distance, Walker developed a Level of Service j"LOS") rating system for evaluating appropriate walking distances based on specific criteria. The LOS is ranked from "A" to "D" as follows: • LOS "A" is considered the best or ideal • LOS "B" is good • LOS "C" is average • LOS "D" is below average but minimally acceptable. A break down of the LOS conditions is provided in the following table. Table 17: Level of Service Conditions Level of Service Conditions A B C D Climate Controlled 1 ,000 ft 2,400 ft 3,800 ft 5,200 ft Outdoor/Covered 500 1,000 1,500 2,000 Outdoor/Uncovered 400 800 1,200 1,600 Through Surface Lot 350 700 1,050 1,400 Inside Parking Facility 300 600 900 1,200 Source: Walker Parking Consultants 2008 52 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT ~, WALKER ~,y PARKING CONSULTA~I~S MAY 12, 2008 Applying the LOS ratings to a downtown area is done by considering each user group and what parking/walking experience is acceptable. Typical user groups in a downtown area include: Employees; Residents; and Visitors. We recommend the City consider providing LOS B to employees when planning for future parking developments. Naturally, some employee groups will be required to walk further than others to find parking, but the generally accepted objective should be to provide public parking within close proximity to core areas of employee demand. Because visitors are most likely unfamiliar with the area and/or are short-term parkers, we recommend the City continue to provide a walking distance LOS A to visitors. At present, the City does provide approximately 2.270 on-street parking spaces strategically placed throughout the downtown area with the intention of serving short-term parkers. Residential parking in most downtown markets is included with the purchase or lease of a housing unit. Various expectations exist in each market, but for this analysis we assume that residents in downtown Dubuque will be provided or offered the right to park within a 300 to 400 foot radius or a LOS A. The City also operates a successful residential on-street parking permit program that also provides a LOS A for most residents. The final decision is a policy decision for the City. While it may be desired to provide all parking at LOS A and B for all user groups, this would require structured parking on nearly every block which is financially impractical and nearly impossible to accomplish without the removal or displacement of existing businesses. In most mixed-use communities the strategy is to provide public parking in an area that serves the greatest number of people from all user groups. The City currently has well placed parking facilities for the existing land uses. A common observation made by community members is the paradox of an individuals' willingness to walk through a large shopping mall parking lot, then through the actual shopping mall without complaining that distances are too far. In contrast, the expectations change once in the downtown area with one to two blocks being the maximum walking threshold expressed by many. The following figure offers perspective when comparing between a LOS B downtown walking distance and typical distances walked by patrons of suburban malls and grocery stores simply to reach the front door of these expansive 53 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSULTANTS MAY 12, 2008 buildings. This figure can further combat the misconception that parking downtown requires more walking. Figure 14: Typical Walking Distances Illustration y ~ \ v A~c~ ~ \M , F / ~j~ \ / ~~~ ~ ~~~~ \~ ,,, .: ~, ~ +~ :. ,• ~a., 'a~~ i r~ ~~F ~ ~ ~ w ~ ~ \ ~ . Ie- t.. ~ , ~ .~~ ' ~~. ~; r~` / t %J /,~i €r ,1 ~~ /Y~~k ti`~• i. -,, y M E ~r- ~~ Walker Parking Consultants, 2008 The following figure illustrates a LOS walking distance of 800 feet from the center of several core areas of demand. Walker considers the areas of each circle that overlap potential development zones. This approach enables us to focus in on areas of downtown that may be suitable for new parking development~s~. This approach is employed with the intent of identifying a site or multiple sites that would likely serve the greatest number of people living, visiting and working in downtown Dubuque. 54 CITY OF DUBUQUE ~~ WALKER DOWNTOWN AREA PARKING NEEDS ASSESSMENT °ARKINGCONSUl7AN7S MAY 12, 2008 The following pages provide a brief summary of each potential development alternative. 55 Figure 14: Alternative Development Sites with Walking Distances CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT MAY 12, 2008 Alternative A: Fire Station Site -Ramp ~ r. ail _/ --~ ~ ~- ' v ~ ~ ~ , ! \ E, ~~: ~~~~~ °~ ~~ l'~ .~ .^ \ ~ i ` ~ 1 ~~ ~~ ~~ ~- _: ~' ~ ~ ~ ~,/ / _ , - 4 CoPPight (j200H Du6uq counH. ~A/ ~ .a t 1~:~ _. a O©1SSfl ~~~ 1' , k Pros Cons Proximity to demand in Zone 3 Construction cost and integration (weekday) with existing Fire Station No land acquisition necessary Access to garage (one way streets) Minimal safety issues Potential for shared use is minimal Sufficient supply to accommodate Distance from demand in zones 2 & projected demand 5 ?~ WALKER PARKING CONSU'~_iANTS Alternative A • Conceptual Cost per Space: $15,500 • Approximate Dimensions: 230'-0" by 201'-0". • One level at grade, two supported levels. • Estimated parking capacity of 400 spaces • Estimated Cost $6.2 M Proximate Land Uses: ^ Interstate Building ^ Fischer Building ^ Community Theatre ^ Plastic Center, Inc. Building ^ Fire Station 56 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSUL7AN7S MAY 12, 2008 Alternative B / B 1 / B2: Iowa Street Ramp -Demolition and Redevelopment t `, \ ~ : ~ ~:4~"~ ~. j' ~ ~ ~ . a F I ~ ~ ~ ~ i; •- a ~fi " ` i `O Yf-~ ~~,., ~ ~ \\\\ ;\ ~ ., s ~~ ~ $~ ` F~~v~ ,,~: CoPY~gM (c)2~08 Duhuq ua Gbunh. IA ~ ' , ~L oosse ~ `\\\\ J Pros Cons Proximity to demand in Zone 3 Construction cost (weekday, weekend and evening) No land acquisition necessary Demolition cost and environmental impact Minimal safety issues Proximity to demand in zones 2 & 5 Sufficient supply to accommodate Insufficient supply if additional existing demand demand is generated adjacent to or ato the ram Supports infill development in the Lost revenue during construction core business district Central location within downtown traffic grid, vehicular and edestrian conflict Alternative B - North Parcel Consolidation • Approximate Dimensions: 120'-0" by 255'-0". • One level at grade, five supported levels • Estimated parking capacity of 600± spaces • Conceptual cost estimate: $21,000/space, including demolition and removal • Conceptual cost $12.6 M. Alternative B 1 -Demolition & Replacement "As Is" • Estimated parking capacity of 6001 spaces • Conceptual cost estimate: $20,000/space, including demolition and removal • Conceptual cost $12 M Alternative B2 -Demolition & Replacement "As Is" with vertical development option • Estimated parking capacity of 6001 spaces • Development premium of 15 percent. • Conceptual cost estimate: $23,000/space, including demolition and removal • Conceptual cost $1 3.8 M Proximate Land Uses: ^ Northern Iowa Community College ^ Prudential Building ^ Cottingham & Butler 57 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT MAY 12, 2008 Alternative C /C 1: Warehouse District Site -Lot or Ramp _- ~ `"_ ,. ~ : - ~. . ~ . ~ =mot _ ~ _ ~ ~ ~ ~ - ~ •, ~~ f r ~ ~ r,_ ~\ "s ue, - - - ~ ~ \ f '~~, .•~. _ ~R ~ ~' ~ ~ ~ ., ~~ a ~ ~~ ~ ~ ~ ~ \ `1 ~ ~ I ~CopY~gAt (cJ200B Oubuqua County. IA ~~ 001i5fl l -- ~1 ~ ~~. _ Pros Cons Proximity to demand in zone 5 Distance from demand in zones (weekday, weekend and evening) 1,2, 3 & 4 Potential for public private Perceived safety issues partnership associated with land acquisition Ability to share parking with New demand may materialize at a multiple land uses slow pace dictated by market conditions Would serve as economic Utilization dependent upon success development stimulus of the Warehouse District Sufficient supply to accommodate near-term and mid-term projected demand ~, WALKER ~% ?ARKING CONSULTANTS Alternative C -Lot • Surface Lot Conceptual Cost per Space: $3,500 • Estimated Total Capacity of 260 Spaces. • Assume No Land Cost • Estimate Cost of Site Preparation/Demo $200,000 • Conceptual Estimated of Construction Cost $910,000. • Conceptual Estimate of Project Cost $1,1 10,000 Alternative C 1 -Ramp • Ramp Conceptual Cost per Space: $15,500 • Approximate Dimensions: 250'-0" by 250'-0". • 625 Space Ramp with Vertical Expansion Capability • Conceptual Estimate of Construction Cost $9.7 M Proximate Land Uses: ^ The Warehouse District ^ Kirby Building ^ Farley & Loetscher Building ^ 801 Jackson Building ^ Betty Jane Building ^ Caradaco Building ^ 1000 Jackson Building ^ Restoration Warehouse 58 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT MAY 12, 2008 Alternative D: St. Mary's Church Lot (Lease Agreement ' ri ' ~ ti ` s ~~ _ - ~~ Ol~ ~~ 6~ ',~ ~ ~3' ~~ ,,,y i _ - 1~ti `_ ,~ - ~ ~ - .~' 4 ti -- ~- ~ -f~ ,~ ~ ~+IS - - t ' _ , _ a ~ f ~ •,' ~ - S II~G:tl .~onl [a. ~ ~~ - Pros Cons Proximity to demand zone 2 Distance from demand in zones 3 & 5 (weekday) No land acquisition necessary Insufficient supply to accommodate projected future demand Ability to share parking No revenue potential Minimal safety issues Use of the supply would be restricted and subordinate to the needs of the Church (church staff, weekday services, funerals, weddin s, etc.) East of implementation Low cost for immediate supply `, WALKER ~' PARKING CONSULTANTS Alternative D • Establish a parking lease agreement with St. Mary's Church, Monday-Friday, 7:30 PM to 5:00 PM • Church capacity of approximately 36 spaces • Assume cost to lease parking is at minimum $20/space/month or $8,640 annually. Proximate Land Uses: ^ Saint Mary's Church ^ Heartland Financial 59 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT MAY 12, 2008 Alternative E: Main Street Fischer Lot -Ramp ~~ ~' ~ _ Y _~ ,~~1~, ; i 5 ` r t: ~ a p ~ ct /~S ~ - F`p' , 'l t }~py~ c'' ;i. __ ' ~ '~ 1- ~ r . ~, ~, ~ , ~ a ~- ~, ~ ' ,~ ~ - ~'~ . ~ ~ .~ _ ~~ ~ . .yam .=~- f +a ~~ ~: ~ i J Pros Cons Proximate to weekday demand Construction and Land Costs generators Sufficient supply to meet Net spaces gained impacted by high projected demand displacement of surface parking More efficient use of the Land acquisition is required existing surface lot by buildin g vertically Revenue generating May not be the highest and best use of opportunity such a large parcel of land in downtown Minimal safety issues May require utility relocation `, WALKER ~- PARKING CONSUL?ANTS Alternative E • Ramp Dimensions: 180'-0" by 250'-0" (slab on grade and one supported level) • Garage will displace approximately 120 spaces. • Garage capacity of 368 spaces, or a net gain of 247 spaces. • Estimated construction cost of $15,500/space or $5.7 M • Conceptual estimate of project cost, including land acquisition $5.87 M. Proximate Land Uses: ^ Heartland Financial ^ Ciry Hall ^ 1292 Main Street Building ^ Citizens Finance Company 60 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT MAY 12, 2008 Alternative E1 : Main Street Fischer Lot- Reconfiguration ~ ..z._ ~ ~l~~~r ~`~ ' _ . _ r y~ ~ ~ _f l" ~~ ~ _ ~ ~ ~ 1,, ~ ~ ~ ~ ~ ¢ - ~ ~ ~~ _ s ~1 i Pros Cons Proximate to weekday demand Construction cost per net space gained generators is high Sufficient supply to meet Net spaces gained impacted by high projected demand displacement of surface parking Minimal safety issues May not be the highest and best use of the land Operating revenue potential Land acquisition is required Lot currently operates as single space reserved lot and could be oversold `, WALKER ~- PARKING CONSUTP,NTS Alternative E 1 • Total Square Feet: 55,290 • Approximately 166 existing spaces. • Reconfiguration of surface parking with alleyway and entire available surface area equals 230 spaces, or a net gain of 64 spaces. • Conceptual estimate of construction cost equals $3,500/space or $805,000 • Conceptual estimated of total project cost with land acquisition $973,000 Proximate Land Uses: ^ Heartland Financial ^ City Hall ^ 1292 Main Street Building ^ Citizens Finance Company 61 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT `, WALKER ~- PARKING CONSULTANTS MAY 12, 2008 Alternative F / F 1 /F2: Ciiy Hall Lot -Ramp ~ ,, - ~~ - s. •`t ~ "~ ~- - _n .~: ~•- , ~ t °~. ~ti, [' 't `" Alternative F ~'~ _ , '~ f r ~ ~ ~ ~` ~ ~, ~ x /~~ ', i T~ ~ ~t ~ ~ - 1 fi~ - - ~ s - 5 ~t rria ~~ '~ F 1 /F2 +tj:~• fir' ~ `~~ '~ `, "~+ ~ . ~ } ; t r- ~ . , ~5.~- __ ir; a, CSP NI/~. ~ ~ ~ r ` ~ '~ wp. Frei r u~.'c f.,.i-.~ a ;sv~~, iti r _ e~ ~ ' - 7 ~ '~- ~'. .s iz~ s~_ -!_=-' yr` . __~ ~ ' ~ _ - ~, ~~_~ -- Pros Cons Proximate to demand generators Inefficiency of garage layout resulting in fewer parking stalls and more ramp surface area, thus increasing the cost er arkin s ace No land acquisition necessary Close proximity to adjacent buildings for Alternative F may obstruct views Minimal safety issues Lot was recently constructed by the City Operating revenue potential Alternative F • Parking ramp on new surface parking lot • Dimensions: 120'-0" by 180'-0" (slab on grade and four supported levels) • Ramp would displace approximately 58 spaces. • Ramp capacity of 308 spaces, or a net gain of 250 spaces. • Conceptual estimate of construction cost equals approx. $17,500/space or $5.2 M Alternative F 1 • Alternative F with structural extension of the ramp • Displacement of approximately 76 spaces • Acquisition and demo of existing building approximately $100,000 • Ramp capacity of 4001 spaces, or a net gain of 322 spaces • Conceptual estimate of construction cost equals approx. $17,500/space or $7.1 M Alternative F2 • Alternative F ramp with adjacent surface lot • Land acquisition and demo required • Net gain of 260 spaces • Conceptual estimate of construction cost equals approx. $17,500/structured space & $3,500/surface space or $5.4 M Proximate Land Uses: ^ Ciry Hall ^ Heartland Financial ^ 1 199 Central Ave. Building ^ 1248 Iowa St. Building 62 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT MAY 12, 2008 Alternative G / Gl : Brannon Monument Ramp or Lot ~' ~~ ~ ~ + ~ .~ 4 ~- Tex `y 1 ~ t:~ ~' ~ ' 1'. 5 ; f ` '~ - ~ r - P '~~ ~' .eft ~ ~ i ~ ~ ` t' ~ r t ~ r ~f ~ 4: ~ ~~~ ~5 ,. ,~,~ ~ ~ _ ~' ~ . 1 - ~ .- F ~, moo,. c~~. ~~.c-.;..a vex, i _ ~ Pros Cons Within two blocks of Construction and demolition cost expanding demand generators Could provide parking for area May not blend well with surrounding residents land uses Land acquisition necessary Low operating income potential Small footprint resulting in a high design efficiency in ramp ~`~',,, WALKER ~% ?ARKING CONSUL'AhfiS Alternative G -Ramp • Site Dimensions: 120'-0" by 1 80'-0" (slab on grade and three supported levels) • Ramp capacity of 288 spaces • Conceptual estimate of construction cost equals $15,500/space or $4.5 M. • Estimated cost with land acquisition and site preparation $5 M. Alternative Gl -Lot • Site Dimensions: 120'-0" by 180'-0" Lot capacity of 80± spaces Conceptual estimate of construction cost equals $3,500/space or $280,000 Estimated cost with land acquisition and site preparation $480,000 Proximate Land Uses: ^ Residential Owners ^ Heartland Financial ^ Warehouse District 63 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT MAY 12, 2008 Alternative H: 1 3'h & White Site -Ramp ti W ~ ..`.~! ,IM t 5 ~i ~ ti. k - ~ ~~4= .s f 1. .. t ~ ~''k ', ~~~ `, .~° Vii, '+~ ~ -= t .,.~°~ ~~a ~ :. ~ ~~.,~1y .,k f ~ ~ 1 T' ~ ~ ~k~, f~ `5 ~ f~ '{ ~~,:~~~~.ffti "~~ ~ ,it-~ :. .r f Pros Cons Proximate to demand Construction cost generators Potentially public private Land acquisition required partnership Minimal safety issues Limited opportunity for shared parking Operating revenue potential Proximity to school Sufficient supply to supported Increased traffic congestion projected area demand WALKER BARKING CONSULTANTS Alternative H • Site Dimensions: Approx. 120'-0" by 260'-0" (slab on grade and 3 supported levels) • Displacement of approximately 51 spaces. • Garage capacity of 415 spaces. • Net spaces gained equals approximately 364 spaces. • Estimated construction cost of $15,500/space or $6.4 M. Proximate Land Uses: ^ Heartland Financial ^ City Hall 64 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSULTANTS MAY 12, 2008 Alternative H 1 : 13'h & White -Lot Expansion ~ Pros ~ Cons ~ Proximate to area with Small number of spaces gained, projected future need for insufficient net gain in supply to additional parking supply support future demand growth Required traffic realignment Impact school entry/exit from 1 Street Project cost Alternative H 1 • Southern Parcel expansion measures approximately 60'-0" by 210'-0" • Net supply gained equals approximately 42 spaces • The cost for this option is estimated to be $147,000. Proximate Land Uses: ^ Heartland Financial ^ City Hall 65 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSULTANTS MAY 12, 2008 MATRIX ANALYSIS OF THE ALTERNATIVES Each site included as a possible development site is evaluated according to how well it ranks with site selection criteria considerations. Criteria value rankings were somewhat subjectively established by Walker. The matrix shown in the following table, evaluates the parking alternatives for the City on the basis of nine criteria. The points awarded for each alternative are determined first by assigning a score to each criterion. Some of the criteria, such as project cost, can be scored objectively. For subjective criteria, such as land availability, a value of 5 =excellent, down to 1 =poor, could have been awarded. Next, each criterion is weighed by assigning it points, the sum of which totals 100 points. The specific criteria used to evaluate the alternatives are as follows: Proximity to Demand (Primary Use 7 AM to 6 PM, M-F~ -The location of each potential development site in relation to commercial buildings that are or will be occupied and generate demand for parking during traditional business hours. Project Cost -The project cost associated with each potential development site includes, but is not limited to property acquisition, tenant relocation, demolition, and construction. Also, the cost per space added is considered when awarding a value to each site. The cost per space added considers the number of existing spaces displaced due to the construction of new parking supply. Site Availability & Dimensions -The land availability and parcel size associated with each potential development site considers the existing use of the land, whether or not property acquisition is required, the need for tenant relocation, zoning compliance, and whether or not pre-established redevelopment plans exist. Revenue Potential -The potential of each site to generate operating revenue from the sale of monthly and daily parking services. All proposed parking facilities would be accessible 24 hours, 7 days a week. 67 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSULTANTS MAY 12, 2008 Proximity to Demand Primary Use Nights & Weekends -The location of each potential development site in relation to commercial buildings that are or will be occupied and generate demand for parking during weekday evenings and weekend periods. The type of land uses that typically generate weekend evening and weekend demand include restaurant, residential, retail, hotel, library, performing arts theater, and convention center. Traffic Impact -The traffic impact on the existing traffic patterns and what impact peak period loading and unloading may have on the surrounding street system. Mixed-Use Potential -The potential of each site to integrate at grade level retail, restaurant and/or office space. Whether or not potential for amixed-use parking facility exists is dependant on the type of land uses that surround the site and the existing market conditions for each type. Adequacy of Alternative to Support Future Demand -The ability of the added supply can adequately meet the projected future need for long-term parking. Economic Development -The assessment of future development includes whether parking is the best use of the land and if future development is planned on or adjacent to the site that may benefit or hinder the parking operation. The City will ultimately decide on a final alternative development scheme that is appropriate for the City of Dubuque. However, this matrix analysis provides a reasonable comparison of potential development sites and should be used as a tool to aid in rendering a final judgment. The following table weighs and ranks each of the potential development alternatives. 68 CITY OF DUBUQUE `, WALKER DOWNTOWN AREA PARKING NEEDS ASSESSMENT ®~- ~~~~~~casulratirs MAY 12, 2008 Table 1 8: Alternative Site Matrix Item 1 2 3 a S 6 7 a 9 s Criteria Weight A B C C1 D E El F G Gl H HI H2 Warohoure Wareho.w St. Mary. Main Stroal Main Shast Cary Hall bl ]rennen Brennen 13tht Whih 1]th4whiro ]tht Whits Lecalion Firs Srotion bt Iowa St. Ramp D'uhi<t DlsMct Chunh bt Fischer bt fisher lot Monomsnl ]iro Monument Sib SIM Siro Siro Development Ramp pcnY WI Ramp 4o.e bt Ramp Ramp lot Ramp Ramp bt[aponeion bt [zpeneion on Fx Proximiry ro D.mena p 5 AMb 6PM, M~P) 45% 3 5 3 3 4 5 5 5 4 4 5 5 Probable Prolert con 17% 3 1 5 2 4 3 3 4 4 1 3 4 3 Demennalnbl~lry a 13 % 4 4 5 5 1 3 4 3 4 4 3 3 4 R...nn. Pnbmcnl 13% 3 5 3 3 1 5 5 5 4 4 5 5 3 Proximity to Demand Dea NiyhNi 2 2 2 Wkandel B% 1 4 5 5 1 4 4 4 4 2 Troffic lmpoct 4% 5 4 4 3 2 3 4 3 3 3 3 3 1 Mined uee Porontkl 4% 2 5 3 5 4 3 3 4 2 2 4 2 2 Adaquery of Option ro Demp,,,d prolert.a 13% 4 3 5 5 1 3 5 3 5 5 3 3 5 [conomic Development 4 3 3 3 4 4 4 lmpnrt 3% 4 4 5 5 1 3 100% STRAIGHT Points 29 31 38 Rank 7 4 1 WEIGHTED Points 3.17 3.56 4.12 Rank IZ 6 4 Note: 5 = ftxcellenl 4. Very Geed 3 . [food 2 =Fair 1=Poor 36 19 30 35 48 49 28 30 49 47 2 13 5 3 10 7 10 5 7 12 3.65 4.42 3.68 4.14 3.47 3.48 3.31 3.67 3.50 3.46 5 13 3 1 9 8 I1 4 7 10 69 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER ?ARKINv CONSULTANTS MAY 12, 2008 SUMMARY OF ALTERNATIVES ANALYSIS The development of additional parking supply alone will unlikely solve the perceived and actual parking challenges faced by the City of Dubuque. Rather, the Division of Parking should engage in proactive management strategies that strive to maximize the existing resources in downtown Dubuque. The management approach involves multiple disciplines that include but are not limited to an increased marketing effort, increased public education on the available parking resources, reallocation of reserved and non-reserved parking supply, implementation of rideshare programs for employees, implementation of an employee commuter lot in partnership with the Transit Division, and an increase of on-line technology to better serve the parking patrons. The parking management strategies may be able to mitigate the need for the City to finance and construct additional parking supply in the near-term. In the mid- to long-term, the two highest ranking development alternatives include the Main Street Fischer Ramp, Alternative E 1, followed by the Warehouse District Lot, Alternative C. Both alternatives should be examined further from a financial and public policy prospective. It is recommended that the City consider whether development of public parking that not only satisfies current demand, but influences development by providing for future needs, is in agreement with the City's financial and planning policies. Further analyses of these two alternatives are presented in the Preliminary Financial Analysis section of this study. 70 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT MAY 12, 2008 The objectives of this preliminary financial analysis are to assess the financial viability of constructing new public parking in downtown Dubuque and to opine on the financial impact a new parking lot or ramp may have on the Parking Division. The objectives are not mutually exclusive; rather the financial viability of any new city-owned parking asset will depend on the financial position of the Parking Division's enterprise fund ("Parking Enterprise Fund"). The financial performance of the Parking Enterprise Fund is likely to improve during the next five to ten years as new parking demand generators enter the market and create an increase in weekday and weekend activity. The incremental gain in net operating income will contribute to the repayment of existing and future debt issued by the Parking Division. The Parking Division includes the following supply: Table 19: City-Owned Parking System Non-Reserved Reserved City Parking Area Zone Supply Supply Total Supply % of Total City Lot 1 3 124 0 124 2% City Lot 2 3 0 19 19 0% City Lot 3 3 53 63 1 16 2% City Lot 4 2 0 17 17 0% CityLotS 2 11 43 54 1% City Lot 6 2 21 0 21 0% City Lot 7 4 16 0 16 0% City Lot 10 3 21 bl 82 2% City Lot 12 4 47 0 47 1 McGraw-Hill Municipal Lot 6 437 0 437 8% Locust Street Garage 3 355 89 444 8% Iowa Street Garage 3 155 477 632 12% 4th Street Garage 4 400 0 400 8% 5th Street Garage 3 0 616 616 12% Total Off-Street Supply 1,640 1,385 3,025 57% Non-Metered Metered Total Supply Total On-Street Supply 748 1,522 2,270 43% Total Supply 5,295 100% WALKER PARKING CONSULTANTS PRELIMINARY FINANCIAL ANALYSIS 71 CITY OF DUBUQUE ~~ WALKER DOWNTOWN AREA PARKING NEEDS ASSESSMENT PnRKiN~ consu~rnNrs MAY 12, 2008 HISTORICAL FINANCIAL PERFORMANCE The historical financial performance of the Parking Division is analyzed to present the trends that may exist and underscore the variables that may impact future performance. The review looks closely at the annual net revenue available for debt service and the debt coverage ratio for the Parking Division. The debt service coverage ratio is a solvency ratio that is used to measure the ability of the parking system to service debt and is calculated by dividing the net revenue by the annual debt service requirement. The result demonstrates the amount that is available to absorb any operating losses. A coverage ratio of one (1.0~ represents a breakeven operation and anything less than one signifies an operating deficit. Higher solvency ratios indicate that an operation has a greater ability to weather changes in the market or any other unforeseen financial obstacles. The bond ordinance for parking revenue bonds issued by the Parking Division requires a 1 .30 minimum operating coverage. The Parking Division completed FY 2007 with a positive debt coverage ratio of 4.16. The following table highlights the historical gross revenues, operating expenses, net revenue, debt service, and debt coverage ratio for each of the last ten fiscal years. Table 20: Historical Coverage on Parking Division Revenue Bonds (Last 10 Fiscal Years) Fiscal Year Gross Revenues (1) Operating Ex enses (21 Net Revenue Available for Debt Service Debt Service Re uirements Princi al Interest Tota Debt Service Coverage Ratio (31 1998 $ 1,268 570 698 $ 150 195 345 2.02 1999 1,303 584 719 155 98 253 2.84 2000 1,278 582 696 165 93 258 2.70 2001 1,552 717 835 170 86 256 3.26 2002 1,452 737 715 180 79 259 2.76 2003 1,484 847 637 190 71 261 2.44 2004 1,659 971 688 200 63 263 2.62 2005 1,934 960 974 210 54 264 3.69 2006 1,933 977 956 220 44 264 3.62 2007 2,1 13 1,014 1,099 230 34 264 4.16 Source: City of Dubuque, Comprehensive Annual Financial Report for Fiscal Year 2007. (4) Total revenues including interest. (5) Total operating expenses exclusive of depreciation. (6) Coverage is computed by dividing net revenue available for debt service by debt services requirements. Bond ordinance requires a 1.30 minimum coverage. 72 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSULTANTS MAY 12, 2008 Figure 15: Summary of Historical Gross Revenue, Operating Expenses, and Net Revenue ~~ .PL,J V V $2,000 ~ $1,500 a N 7 0 ~' $1,000 $500 _ - ~ ~ - - $- 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 ^ Gross Revenue $1,268 1,303 1,278 1,552 1,452 1,484 1,659 1,934 1,933 2,1 13 ®Operating Expenses $570 584 582 717 737 847 971 960 977 1,014 ^ NetRevenue $698 719 696 835 715 637 688 974 956 1,099 Source: City of Dubuque, Comprehensive Annual Financial Report for Fiscal Year 2007 Note: All figures are shown in thousands. As detailed in the previous figure, the gross operating revenue has steadily increased over the last ten fiscal years. This can be attributed to several factors that include but are not limited to an overall increase in parking demand, managed parking rates, controlled operating costs, and limited capital expenditures. 73 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT ~ WALKER PARKING CONSU!TANTS MAY 12, 2008 The following table shows the division of operating revenue by activity center for fiscal year 2007. Table 21 : Source of Operating Revenue (FY 2007). FY 2007 Source of Revenue Amount ($) % of Total On-Street Meters $ 527,930 25% 5th Street Ramp 359,749 17% Iowa Street Ramp 347,861 16% Locust Street Ramp 249,597 12% 4th Street Ramp 144,167 7% Parking Lots (l) 130,159 6% Enforcement & Other Income (2) 351,228 17% Total $ 2,1 10,691 100% Source: City of Dubuque, Parking Division, Operating Activity Revenue Status Report for Fiscal Year 2007. (1 ~ "Parking Lots" include all meter/leased parking lots operated by the Parking Division. (2) "Enforcement & Other Income" includes fees collected from parking citations and all undistributed income. ' street Ramp 12% 5th Street Ran 17% On-Stn L J /O 4th Street Ramp 7% Parking Lots 6% ament & ome 17% 74 Iowa Street Ramp 16% , CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER RARKING CONSULTANTS MAY 12, 2008 The operating revenue for the Parking Division is generated through the rental of parking spaces on an hourly and monthly basis in lots, ramps and on-street. In addition, the Parking Division collects a portion of the parking citation fees. The following table shows the breakdown of operating revenue by type for the Parking Division. Table 22: Category of Operating Revenue (FY 2007) Source of Revenue FY 2007 Amount ($) % of Total Monthly (Reserved) (1) $ 649,773 31 On-Street Meters (2) 494,086 23% Enforcement (3) 276,184 13% Monthly (Rooftop) (4) 169,450 8% Monthly (Non-Reserved) (5) 155,524 7% Daily Fees (6) 1 14,024 5% Undistributed Income (7) 75,044 4% Lot Rental (8) 67,959 3% Off-Street Meters (9) 62,200 3% On-Street Permits (10) 33,844 2% Misc. Revenue 12,605 1 Total $ 2,1 10,691 100% Source: City of Dubuque Parking Division Operating Activity Revenue Status Report for Fiscal Year 2007. Data analyzed and categorized by Walker Parking Consultants. (1) Monthly Reserved income includes all revenue collected from spaces that are dedicated to a single user for the lease period. (2) On-Street Meter income includes revenue collected from all on-street meters, including cash card activity. (3) Enforcement income includes the fees collected from parking citations issued to violators. (4) Monthly Rooftop income includes revenue collected from "nested" spaces on the top levels of the Locust Street Ramp and Iowa Street Ramp. (5) Monthly Non-Reserved income includes all revenue collected from permits that offer users the right to park in any non-reserved parking space. (6) Daily Fees included income from short-term parkers parking in off-street facilities. (7) Undistributed Income includes non-operating income such as Investment Income and Health Insurance Reserves. (8) Lot Rental income includes all revenue from Lot 1, 2, 3, 4, 10, 12, the Redstone Parking Contract, Federal Building Parking Lot, Pedestrian Way Lot, and 4'" & Central Lot. (9) Off-Street Meter income includes all revenue collected from metered parking lots. (10) On-Street Permit income includes Street Parking Permits, Street Meter Permits, and Street Meter Hood Rental. 75 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSUiTANTS MAY 12, 2008 The following table shows the overall allocation of operating expenses by category for the Parking Division. Table 23: Allocation of Parking Division Operating Expenses (FY 2007) FY 2007 Operating Expenses Amount ($) % of Total Employee Expense $ 653,340 64% Utilities 84,747 8% Repairs & Maintenance 59,143 6% Supplies & Services 182,460 18% Insurance 34,722 3% Total $ 1,014,412 100% Source: City of Dubuque, Comprehensive Annual Financial Report for Fiscal Year 2007. Note: Employee expense includes salary and benefits for approximately 8 FTE's. The following table shows the outstanding debt obligations of the Parking Division that are associated with the issuance of parking revenue bonds. According to the amortization schedule, the final payment for the outstanding parking revenue bonds will occur in fiscal year 2010. Table 24: Parking Division Revenue Bond Obligation FY Ending June 30 Principal Interest Total 2007 $ 220,000 $ 43,970 $ 263,970 2008 $ 230,000 $ 33,850 $ 263,850 2009 $ 240,000 $ 23,155 $ 263,155 2010 $ 250,000 $ 11,875 $ 261,875 Total $ 940,000 $ 112,850 $ 1,052,850 Source: City of Dubuque, Comprehensive Annual Financial Report for Fiscal Year 2007 Assuming that all market factors remain constant, in fiscal year 201 1 the Parking Division should realize an increase in Net Revenue of approximately $260,000 after the revenue bonds are retired in fiscal year 2010. 76 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSULTANTS MAY 12, 2008 PROJECTED FINANCIAL PERFORMANCE The following section of this analysis includes an evaluation of the projected financial performance of the Parking Division based on assumed operating changes and capital improvement projects. PARKING RATES One of the most important considerations in evaluating and projecting future parking revenue for a parking system is the average market parking rates. These rates are formally defined as the average lease and transient rate per vehicle. In most markets, the parking rates are a reflection of the demand for the spaces. Downtown Dubuque presently has an overall surplus of parking supply during peak conditions, but when evaluated on a block-by-block and zone basis, areas with a parking deficit do exist. The use of pricing strategies as a parking management tool can help redistribute demand and increase utilization of parking facilities with lower occupancy levels. PRICING APPROACH For instructive purposes, the definition of Parking Pricing4 means that motorist pay directly for using parking facilities. Parking pricing may be implemented as a Transportation Demand Management (TDM) strategy (to reduce vehicle traffic in an area, as a parking management strategy (to reduce parking problems in a particular location, to recover parking facility costs, to generate revenue for other purposes such as a local transportation program or downtown improvement district, or for a combination of these objectives. It is important to note that the cost to operate a public parking garage is either paid for directly by users or indirectly in the form of taxes. It is often perceived by municipalities that paying directly for parking is more equitable since the individuals who are using the public resources are charged and a fee is collected at the time of use. Regardless of the method selected to recoup the costs of providing parking, there is no such thing as free parking. ' Source: Victoria Transport Policy Institute, Transportation Demand Management Encyclopedia; Parking Pricing, Updated May 11, 2006 77 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSUL?ANTS MAY 12, 2008 Parking pricing at public ramps is impacted by the City's classification of public parking as a public utility or an enterprise. The Parking Division operates under the financial guidelines of an enterprise fund. This organizational structure has a direct impact on how the Parking Division operates its public parking system and views pricing strategies. To highlight the differences in approach to pricing when operating public parking as a public utility or enterprise fund, let us consider two scenarios: • Public utility. It is common for municipalities that operate parking as a public utility to implement a cost approach when setting prices. The cost approach to pricing begins by asking what it costs to own, operate, and maintain parking facilities and what rate needs to be charged in order to cover costs. With this approach, the pricing does not consider the location or demand elasticity for parking in the surrounding area. Rather, the primary objective is to keep the parking rates as low as possible for the intended user groups without jeopardizing the solvency of the municipality's asset. • Enterprise. Conversely, when a municipality operates its public parking as an enterprise, the prices are set according to the market conditions. Pricing for a parking enterprise tends to be at or near market levels and any net operating income after debt service is reinvested into new infrastructure or program improvements that benefit the community. This approach has benefited municipalities with a collective vision for community improvement projects and a common understanding that parking revenue may help bring the proposed community improvements to fruition. Public parking is an economic good with fixed and variable costs that are often paid for with parking operating revenue. It is important that the policy makers who view parking as a public utility understand what is included in the parking operating costs along with any potential market forces that may influence costs. Walker's research shows that operating costs for parking vary dramatically due to geographical location, size of facility, staffing patterns, method of operation, and local legal requirements. Common expenses include the cost of utilities, supplies, daily maintenance, cashiering, management and accounting services, on-site security, structural maintenance, property taxes, and insurance. Types of insurance coverage include comprehensive liability, garage-keeper's legal liability, fire and extended coverage, workers' compensation, equipment coverage, money and security coverage (theft occurring on the premises, blanket honesty coverage employee theftj, and rent and business interruption coverage (structural damage resulting from natural phenomena. Annual operating expenses for structured parking facilities typically 78 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSULTANTS MAY 12, 2008 range from $200 to more than $800 per space. These figures exclude debt service and repair and replacement costs that may be associated with the public parking operation. A market approach to pricing is implemented when a municipality views parking as an enterprise and reinvests the net operating income back into the parking operation or other public improvements. There are significant market factors that need to be evaluated prior to setting the rates. These factors include, but are not limited to property location, surrounding land uses, proximate competition, level of demand, policies on public transportation, and traffic mitigation goals. As with the Parking Division, market specific pricing is typically implemented when there are multiple public facilities, which results in a wide representation of prices being offered to the community. For example, a parking area located furthest from the core area of demand may warrant a parking price commensurate with its position in the downtown area, whereas a parking area positioned nearer to the core area may warrant a significantly higher price. Demand for parking at each location must be evaluated to determine if the appropriate prices are being charged. One industry method of determining whether parking prices are appropriately set is to evaluate the peak daily utilization of a parking ramp or lot. If the parking spaces are more than 85% occupied, then parking rates may be set too low. The target equilibrium between supply and demand for most parking operations should be around 85%. The parking conditions in Dubuque are unique in that an above average number of reserved parking spaces exist and the utilization of a reserved parking area is typically lower than a shared parking area. For example, the reserved parking can be sold 100%, but the actual utilization is only at 75%. Since the spaces are reserved, the unoccupied supply cannot be utilized or shared. This skews the utilization numbers. Allowing the economic forces of supply and demand to influence the policy towards parking pricing is reflective of a parking operation that seeks to maximize its return on investment. In the case of public parking, some municipalities believe that it is a matter of responsible stewardship to generate a positive net operating income, which is then reinvested back into the community. This method of operation requires the municipality to actively monitor the parking prices at each of its locations in relation to the demand. 79 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT ~ WALKER PARKING CONSULTANTS MAY 12, 2008 The following table presents a matrix that may be used to quickly determine the monthly income required for a parking facility to reach its breakeven point. The breakeven point represents the point in which gross parking revenues are sufficient to cover annual operating expenses and amortized development costs. This analysis assumes that the development costs are amortized over a 20-year period at a six percent interest rate. Table 25: Monthly Income Required to Breakeven Annual Operating Expense Per Space a Vi a N 0 V m E 0 a~ 0 'o a $150 $200 $250 $350 $450 $550 $650 $750 $850 $1,000 $1,000 22 26 30 38 47 55 63 72 80 92 $3,000 40 44 48 56 65 73 81 90 98 111 $5,000 58 62 66 75 83 91 100 108 116 129 $8,000 85 89 93 102 110 118 127 135 143 156 $9,000 94 98 103 111 119 128 136 144 153 165 $10,000 103 107 112 120 128 137 145 153 162 174 $11,000 112 117 121 129 137 146 154 162 171 183 $12,000 121 126 130 138 146 155 163 171 180 192 $13,000 131 135 139 147 156 164 172 181 189 201 $14,000 140 144 148 156 165 173 181 190 198 210 $15,000 149 153 157 165 174 182 190 199 207 220 $16,000 158 162 166 174 183 191 199 208 216 229 $17,000 167 171 175 184 192 200 209 217 225 238 $16,000 176 180 184 193 201 209 218 226 234 247 $19,000 185 189 193 202 210 218 227 235 243 256 $20,000 194 198 202 211 219 227 236 244 252 265 $30,000 285 289 293 302 310 318 327 335 343 356 $40,000 376 380 384 392 401 409 417 426 434 447 Source: Walker Parking Consultants, 2008 For example, if a the project development cost per space is $15,000 and the annual operating expense per space is $250, then $157 per month per space in operating revenue must be collected in order for the operation to breakeven. The table above demonstrates the difficulty of operating a solvent, standalone parking facility in a market that charges on average $401 per month with low levels of transient patronage. As such, the Parking Division leverages the strength of the on-street parking system, enforcement, surface lots, and the ramps to collectively operate a solvent parking system. GENERAL DESCRIPTION OF PARKING OPERATION Lower Annual Operating Expense per Space ($150 - $350J: Newer Facility, Self-Park, Primarily Serves Monthly Patrons, Limited or No Direct Labor, Open 5 Days per Week, Limited Hours of Operation, Above- Grade Average Annual Operating Expense per Space ($450 - $650J: Well Maintained, Self-Park, Serves Monthly & Transit Patrons, Direct Labor, Open 5 to 7 Days per Week, Above- Grade Higher Annual Operating Expense per Space ($750 - $1,000: Well Maintained, Self-Park and or Valet Parking, Serves Monthly & Transit Patrons, High Level of Direct Labor, Above or Below Grade 80 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER aARK~NG CONSULTAMS MAY 12, 2008 ON-STREET PARKING On-street parking directly competes with off-street parking garages on the basis of location and price. It is not uncommon for municipalities to price on-street parking according to perceived economic thresholds in the community, rather than on the basis of value. When parking is priced base on value, the most convenient parking located in closest proximity to demand is priced higher than the other parking alternatives. Based on the current market conditions in downtown Dubuque, it is Walker's professional opinion that the on-street parking rates are priced accordingly. OPERATING REVENUE ASSUMPTIONS Assumptions have been made concerning the future operating policies and rates administered by the Parking Division. These assumptions are in agreement with the operating strategies discussed in the Alternatives Analysis section of this report. Each assumption is included in the financial model used to project future financial solvency of the Parking Division. Assumption No. 1: Monthly Reserved parking is limited to no more than ten (10%~ percent of the total off street public parking supply. Therefore, the existing allocation of 1,385 reserved spaces would be readjusted to approximately 300 spaces. The remaining 1,085 spaces could be converted to monthly non-reserved spaces and oversold by approximately ten to twenty percent, resulting in a net gain of approximately 108 to 217 monthly permits sold. Specific oversell factors for each ramp and lot are presented in Tables 18 and 19. Assumption No. 2: Reserved parking rates in all public ramps are increased to reflect a premium paid for the exclusive right to park a personal vehicle in a dedicated space. The premium rate is set less than the true cost to operate and maintain a parking space, but above the cost of a non- reserved monthly permit. For the purposes of this analysis, the reserved monthly rate is set at $85.00 per month. Assumption No. 3: Reserved parking rates in public surface lots are increased by $10.00 in FY 2009. The non-reserved monthly parking rates are held constant with current rates in FY 2009. Specific non-reserved monthly parking rates for each public lot are presented in Tables 18 and 19. 81 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT MAY 12, 2008 Assumption No. 4: On-Street meter income is held constant with current conditions and no rate increase is assumed for any of the 1,522 meters in FY 2009. Assumption No. 5: Parking enforcement revenue is held constant with current conditions and no fine adjustments are assumed for any of the citation categories. ~~„ WALKER ~- PARKING CONSULTANTS 82 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER P.4RKiNG CONSULTANTS MAY 12, 2008 Table 26: Rate Assumptions On-Street Meters Term Rate Ten Hour Meters Hourly $ 0.25 Four Hour Meters Hourly $ 0.50 Two Hour Meters Hourly $ 0.50 One Hour Meters Hourly $ 0.50 Forty Minute Meters Hourly $ 0.75 Twenty Minute Meters Hourly $ 0.75 Parking Meter Enforcement Fine Meter Violation First Ticket) Warning Meter Violation $ 7.00 Prohibited Parking $ 15.00 Snow Route $ 30.00 Fire Lane $ 50.00 Disabled Space $ 100.00 Parking Lots Term Rate Lot # 1 Reserved Monthly Monthly $ 37.00 Non-Reserved Monthly Monthly $ 27.00 Meters Hourly $ 0.25 Lot # 2 Reserved Monthly Monthly $ 37.00 Non-Reserved Monthly Monthly $ 27.00 Meters Hourly $ 0.50 Lot # 3 Reserved Monthly Monthly $ 42.00 Non-Reserved Monthly Monthly $ 32.00 Meters Hourly $ 0.50 Locust Street Ramp Term Rate Daily Hourly 0.50 Reserved Monthly Monthly $ 85.00 Non-Reserved Monthly Monthly $ 50.00 Rooftop Parking Monthly $ 38.00 Iowa Street Ramp Term Rate Daily Hourly $ 0.50 Reserved Monthly Monthly $ 85.00 Non-Reserved Monthly Monthly $ 50.00 Rooftop Parking Monthly $ 38.00 5th Street Ramp Term Rate Non-Reserved Monthly Monthly 47.00 4th Street Ramp Term Rate Daily Daily 0.50 Reserved Monthly Monthly $ - Non-Reserved Monthly Monthly $ 40.00 Rooftop Parking Monthly $ - Source: Walker Parking Consultants, 2008 Lot # 4 Reserved Monthly Monthly $ 37.00 Non•Reserved Monthly Monthly $ 27.00 Lot # 5 Reserved Monthly Monthly $ 37.00 Non-Reserved Monthly Monthly $ 27.00 Meters Hourly $ 0.50 Lot # 6 Reserved Monthly Monthly $ 37.00 Meters Hourly $ 0.50 Lot # 7 Meters Hourly $ 0.50 Lot # 10 Reserved Monthly Monthly $ 47.00 Non-Reserved Monthly Monthly $ 37.00 Meters Hourly $ 0.50 Lot # 12 Reserved Monthly Monthly $ 35.00 Non-Reserved Monthly Monthly $ 25.00 Federal Building Lot Reserved Monthly Monthly $ 37.00 83 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT ?~, WALKER ~~ ?ARKING CGNSULTANTS MAY 12, 2008 Walker modeled plausible changes to the parking system based on the results of the Parking Needs Assessment and Alternatives Analysis to determine the estimated financial impact to the Parking Division. The following two tables show the projected gross operating revenue for the public ramps and lots, respectively. Table 27: Projected Parking Ramp Gross Revenue for FY 2009 Space Projected Gross Loeust Street Ramp Allocation Turns Days/Months Avg . Rate Revenue Daily 85 1.2 350 $ 2.00 $ 71,400 Reserved Monthly 44 1.0 12 $ 85.00 $ 44,880 Non-Reserved Monthly 177 1.2 12 $ 50.00 $ 127,440 Rookop Parking 134 1.2 12 $ 35.00 $ 67,536 Sub-Total $ 311,256 Space Projected Gross Iowa Street Ramp Allocation Turns Days/Months Avg . Rate Revenue Daily 146 1.5 350 $ 2.00 $ 153,300 Reserved Monthly 63 1.0 12 $ 85.00 $ 64,464 Non-Reserved Monthly 213 1.2 12 $ 50.00 $ 153,216 RooNo Parkin 210 1.2 12 $ 38.00 $ 114,912 Sub-Tota 485,892 Space Projected Gross 5th Sheet Ramp Allocation Turns Days/Months Avg. Rate Revenue Space Projected Gross 4th Street Ramp Allocation Turns Days/Months Avg. Rate Revenue Daily 100 0.5 350 $ 2.00 $ 35,000 Reserved Monthly 0 0.0 12 $ - $ - Non-Reserved Monthly 320 0.6 12 $ 40.00 $ 92,160 Roofto Parkin 0 0.0 12 $ - $ - Sub-Tots 127,160 Sub-Total Parking Ramps $ 1,312,058 Source: Walker Parking Consultants, 2008 Note: "Turns" represent the number of times each 10 space turns over or are occupied during an average period (day or monthly). The projected operating adjustments to the city-owned parking ramps result in a net gain in gross operating revenue of approximately $216,000. The results are based on the assumption that the majority of individuals presently on the wait list for monthly parking at city- owned ramps are new to the system. The projected impact on the gross operating revenue will differ if changes to this assumption are made. The following table shows the projected gross operating revenue for the city-owned parking lots in FY 2009. 84 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT `. WALKER ~- PARKING CONSULTANT:i MAY 12, 2008 Table 28: Projected Parking Lot Gross Revenue for FY 2009 Space Projected Gross Parking Lots Allocation Turns Days/Months Avg. Rate Revenue Lot # 1 Reserved Monthly 12 1.0 12 $ 37.00 $ 5,461 Non-Reserved Monthly 58 1.1 12 $ 27.00 $ 20,564 Meters 53 0.5 250 $ 0.50 $ 3,313 Sub-Total 29,338 Lot # 2 Reserved Monthly 3 1.0 12 $ 37.00 $ 1,332 Non-Reserved Monthly 27 1.1 12 $ 27.00 $ 9,623 Meters 4 2.0 250 $ 0.50 $ 1,000 Sub-Total 1 1,955 Lot # 3 Reserved Monthly 6 1.0 12 $ 42.00 $ 3,024 Non-Reserved Monthly 49 1.1 12 $ 32.00 $ 20,698 Meters 63 0.5 250 $ 0.50 $ 3,938 Sub-Total $ 27,659 Lot # 4 Reserved Monthly 2 1.0 12 $ 37.00 $ 888 Non-Reserved Monthl 13 1.1 12 $ 27.00 $ 4,633 Sub-Tots 5,521 Lot # 5 Reserved Monthly 5 1.0 12 $ 37.00 $ 2,220 Non-Reserved Monthly 38 1.1 12 $ 27.00 $ 13,543 Meters 10 1.0 250 $ 0.50 $ 1,250 Sub-Total 17,013 Lot # 6 Reserved Monthly 1 1.0 12 $ 37.00 $ 444 Meters 22 1.0 250 $ 0.50 $ 2,750 Sub-Tots 3,194 Lot # 7 Meters 17 1.0 250 $ 0.50 $ 2,125 Sub-Total $ 2,125 Lot # 10 Reserved Monthly 7 1.0 12 $ 47.00 $ 3,948 Non-Reserved Monthly 66 1.1 12 $ 37.00 $ 32,234 Meters 9 0.5 250 $ 0.50 $ 563 Sub-Total 36,745 Lot # 12 Reserved Monthly 5 1.0 12 $ 35.00 $ 2,100 Non-Reserved Monthl 42 1.1 12 $ 25.00 $ 13,860 Sub-Tots 15,960 Federal Building Lot 1 1.0 12 $ 42.00 $ 504 Reserved Monthl 7 1.1 12 $ 32.00 $ 2,957 Sub-iota 3,461 Sub-Total Surface Lots $ 152,971 Source: Walker Parking Consultants, 2008. The projected operating adjustments to the city-owned parking lots result in a net gain in gross operating revenue of approximately $23,000. ss CITY OP DUBUQUE WALKER DOWNTOWN AREA PARKING NEEDS ASSESSMENT eaeKiN~ corsu~-rc„Ts MAY 12, 2008 APPROVED CAPITAL IMPROVEMENT PROGRAM The following table highlights the approved capital improvements for fiscal years 2009 through 2013. Table 29: Approved Capital Improvement Program (FY 2009-2013) CIP Item FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 Total Maintenance of Municipal Lots $ 75,000 $ 75,000 $ 75,000 $ 90,000 $ 90,000 $ 405,000 Major Maintenance on Ramps $ 100,000 $ 100,000 $ 200,000 Parking Meter Replacement $ 100,000 $ 100,000 Locust/Iowa Street Ramp Repairs $ 492,624 $ 492,624 Surface Sealing of Fourth/Fifth Streets $ 50,000 $ 80,000 $ 130,000 Locust Street Ramp Sidewalk $ 100,000 $ 100,000 Parking Ramp Occupancy Engineering Certification $ 15,000 $ 15,750 $ 16,500 $ 17,500 $ 18,400 $ 83,150 Fifth Street Ramp Stair Tower Door Replacement $ 49 000 $ 49,000 Total $ 239,000 $ 240,750 $ 584,124 $ 387,500 $ 108,400 $ 1,559,774 Source: City of Dubuque, Parking Division 86 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT ~`;, WALKER ~'~ ?ARKING CONSUlTA~S MAY 12, 2008 FUTURE CAPITAL IMPROVEMENTS For the purposes of this analysis, Walker assumes that two capital improvement projects are considered by the Parking Division and occur within the next three fiscal years. The timing for each of the capital improvement initiatives is ultimately dependent on the local market conditions and the City. For the purposes of this preliminary financial analysis, Walker evaluates the impact that each capital improvement may have on the Parking Division assuming the developments occur in fiscal years 2010 and 201 1 . FY 2010 Warehouse District Lot 260 Surface Spaces FY 201 1 Main Street Fischer Lot 368 Structured Parking Spaces OVERVIEW OF CONSTRUCTION COSTS Development costs of parking facilities vary widely. The total project cost most often includes, but is not limited to, land acquisition costs, construction costs, and soft costs. Structured parking costs typically range anywhere from $8,000 to $30,000 or more per space depending on the project particulars. The construction cost to build above grade structured parking in Dubuque is estimated at $15,500 per space for the Main Street Fischer Ramp. This estimate includes soft costs of 20 percent, but excludes land cost. The low end of the construction cost range of $8,000 will likely buy a simple concrete parking structure with limited aesthetical appeal. Characteristics of a facility at the high end of this range would likely include extensive architectural treatments, the construction of an inefficient facility on a difficult site, and/or the construction of a facility that has below grade parking spaces. Costs closer to the low end of the range are more common. An owner who desires to develop an architecturally significant structure and/or a structure that functions at a high level of services will spend more on a parking structure than an owner unconcerned with architecture and/or function. According to Walker's research and data compiled by R.S. Means, one of North America's leading supplier of construction cost information; the construction cost per square foot for a parking ramp 87 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSUiTANTS MAY 12, 2008 has steadily increased over the past five years. located in Table 30 and Table 31 are historical construction costs for above and below grade parking in the United States. Table 30: Construction Costs for Above Grade Parking Structure Parking Ramp (Above Grade) Overall Trend Rafe Hard Cosfs/SF 2007 2006 2005 2004 2003 Annual, Compound Atlanta $ 35.85 $ 33.48 $ 31.16 $ 30.00 $ 29.79 4.7% Baltimore 37.21 34.79 32.17 30.57 30.32 5.3 Boston 46.28 43.29 40.04 36.47 38.24 4.9% Chicago 45.43 41.83 38.73 37.78 37.77 4.7% Cleveland 40.34 37.60 35.08 34.19 34.15 4.3 Dallas 33.68 31.61 29.25 28.20 28.13 4.6% Denver 38.14 35.88 33.24 32.05 31.89 4.6% Detroit 42.11 40.18 37.13 35.86 35.78 4.2% Houston 35.49 32.84 30.26 29.10 29.09 5.1 Kansas City 41.34 38.76 35.88 34.12 33.82 5.1 Los Angeles 42.91 40.00 37.06 36.23 35.74 4.7% Miami 34.81 32.43 30.19 29.13 28.10 5.5% Minneapolis 45.03 42.02 39.07 37.93 37.64 4.6% New Orleans 34.73 32.36 29.98 28.85 28.83 4.8% New York City 52.49 49.40 45.94 44.82 44.09 4.5 Philadelphia 45.83 42.84 39.42 37.50 37.04 5.5% Phoenix 35.81 32.81 30.43 29.40 29.36 5.1 Pittsburg 39.66 37.52 34.67 33.62 33.32 4.5 Portland, Or. 40.98 38.69 35.98 34.87 34.85 4.1 St. Louis 41.66 38.31 35.43 34.19 34.01 5.2% San Diego 41.82 38.95 36.23 35.10 35.08 4.5% San Francisco 48.84 45.58 42.40 41.34 41.10 4.4% Seattle 41.74 39.02 36.44 34.82 34.38 5.0% Washington, D.C. 39.34 36.51 33.62 31.84 31.82 5.4% Winston5alem, NC 31.72 28.69 26.67 25.02 24.94 6.2% Average $ 40.53 $ 37.82 $ 35.06 $ 33.80 $ 33.57 4.8% Source: Walker research, R.S. Means 2003 - 2007 Hard CosUSF -Above Grade $42 - $40 $38 $36 $32 $30 2007 2006 2005 2004 2003 88 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER ?ARKING CONSULTANTS MAY 12, 2008 Table 31 : Construction. Costs for Below Grade Parklr~.g Garage Underground Parking (Below Grade) Overall Trend Rafe Hard Cosfs/SF 2007 2006 2005 2004 2003 Annual, Compound Atlanta $ 56.63 $ 53.28 $ 51.14 $ 46.69 $ 45.07 5.9% Baltimore 58.79 55.37 52.79 47.57 45.87 6.4% Boston 73.11 68.90 65.72 59.86 57.85 6.0% Chicago 71.78 66.57 63.56 58.56 57.14 5.9% Cleveland 63.73 59.84 57.58 53.20 51.66 5.4% Dallas 53.21 50.30 48.01 43.88 42.55 5.7% Denver 60.25 57.10 54.56 49.86 48.24 5.7% Detroit 66.52 63.95 60.94 55.80 54.12 5.3 Houston 56.06 52.27 49.66 45.28 44.01 6.2% KansasCiy 65.31 61.69 58.89 53.09 51.16 6.3% Los Angeles 67.78 63.65 60.82 56.37 54.07 5.8 Miami 54.99 51.61 49.55 45.34 42.50 6.7% Minneapolis 71.14 66.87 64.13 59.02 56.94 5.7% New Orleans 54.86 51.49 49.20 44.76 43.61 5.9% New York Ciry 82.93 78.61 75.40 69.75 66.70 5.6 Philadelphia 72.41 68.18 64.70 58.35 56.03 6.6% Phoenix 56.57 52.21 49.95 45.75 44.41 6.2% Pittsburg 62.65 59.72 56.89 52.31 50.40 5.6% Portland, Or. 64.74 61.57 59.06 54.13 52.71 5.3 St. Louis 65.82 60.97 58.15 53.20 51.46 6.3% San Diego 66.07 61.98 59.46 54.50 53.07 5.6% San Francisco 77.16 72.53 69.59 64.33 62.17 5.5 Searle 65.95 62.10 59.80 54.18 52.01 6.1 Washington, D.C. 62.15 58.11 55.18 49.55 48.14 6.6% WinstonSalem, NC 50.11 45.65 43.11 38.93 37.73 7.4% Average $ 64.03 $ 60.18 $ 57.51 $ 52.57 $ 50.78 6.0% Source: Walker research, R.S. Means 2003 - 2007 Hard CosUSF -Below Grade $65 $60 l ~ , ~~ $55 \ ~;` _ $50 - -- $45 2007 2006 2005 2004 2003 Concrete prices are expected to continue to increase spurred by the ongoing increases in cement, aggregate and the fuel necessary to mine or extract these components. The recent slowdown in the residential construction industry may moderate concrete price increases, but the impact of ongoing construction overseas may more than offset these influences. 89 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT `,WALKER MAY 12, 2008 Table 32: Conceptual Estimate of Probable Project Cost & Debt Service Capital Improvement Warehouse District Lot Main Street Fischer Ramp Estimated Completion FY 2010 FY 201 1 Estimated Capacity 260 368 Estimated Cost per Space $3,500 $15,500 Estimated Land Cost - $173,000 Estimated Demolition Cost $200,000 - Estimated Construction Cost $1,110,000 $5,877,000 Source of Funding Parking Revenue Bonds Parking Revenue Bonds Term 20 Years 20 Years Interest Rate 5.50% 5.50% Percent Financed 100% 100% Estimated Annual Debt Service $92,884 491,783 Rounded $93,000 $492,000 Source: Walker Parking Consultants OPERATING EXPENSES The operating expenses include items such as labor costs, snow and ice removal, floor sweeping and washing, routine maintenance, elevator maintenance, insurance, administrative expenses, security, supplies and tickets, and utilities. In projecting future operating expenses for the proposed parking facilities, Walker reviewed the Parking Division's historical operating statements for the parking garages from FY 1998 through FY 2007 to determine historical trends in operating expenses. In addition, operating expenses applied in this analysis are based on experience with other parking operations and our review of operating statements from over 250 parking facilities located throughout the United States. STRUCTURAL MAINTENANCE Walker recommends that the Parking Division continue to set-aside funds on a regular basis to cover structural maintenance costs. We suggest that a minimum of $75 per structured space and $30 per surface space be set-aside in a sinking fund. Contributions to this fund accumulate over time and are available to cover structural maintenance and structure repairs. Parking structures commonly have different maintenance requirements compared to other commercial buildings: utility costs are less, HVAC and fire protection systems are minimal, tenant complaints are fewer, and repairs are usually structural in nature. Open parking structures are exposed to wide temperature swings, rain, snow, freezing and 90 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKWG CON9J'JANTS MAY 12, 2008 thawing, application of deicing chemicals and ultraviolet exposure. Building codes typically consider parking structures open based on the percentage of opening in the facade. This eliminates the need for HVAC and fire sprinkler systems. Most deterioration can be attributed to poor quality concrete, chloride ion (salty contamination, inadequate drainage, lack of provisions for thermal expansion and waterproofing system failure. Poor qualiy concrete lacks the density to resist chloride ion contamination or the microscopic air entrainment to resist the freezing and thawing cycle. Chloride ion contamination wreaks havoc when the ions contact embedded steel causing it to rust. The rusting steel expands in size causing spalling (potholes) and loses its ability to support the structure. Inadequate drainage causes water-ponding creating slipping hazards and accelerating water induced damage. Inadequate thermal expansion creates tearing, ripping and crushing at joints unable to accept the thermal expansion caused by with temperature movements. Failed waterproofing systems permit water to leak into joints, cracks and concrete itself rather then running off the structure. The leakage accelerates rusting and other water damage. In many cases, the damage is hidden in the early stages and does not become readily apparent until the damage is widespread. Like all buildings, open parking structures require routine cleaning and maintenance. Routine cleaning typically includes washing down the floors, sweeping, inspecting the waterproofing system, replacing lights, regular upkeep on stairs, elevators, security equipment and access and revenue equipment. Sweeping the floors is of particular importance during and after the winter. This washing removes salts from the floor surface before they penetrate into the concrete. Structural maintenance includes expansion and control joint maintenance, monitoring chloride ion intrusion, repairing waterproofing and repairing concrete deterioration. The responsibility for both cleaning and maintenance varies between owner and property management based on the negotiated agreements. To reduce repair costs, the strategy is simple: keep water out of the structured system. Maintenance of the waterproofing system can help prevent leaks from affecting embedded steel and lighting systems, as well as deter water ponding. A moderate waterproofing maintenance program should occur every 7 to 10 years, since this is the life span of most waterproofing materials. Amore sophisticated maintenance plan also includes monitoring chloride ion concentrations and upgrading waterproofing, if necessary, before deterioration begins. 91 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT MAY 12, 2008 A reasonable maintenance budget depends on a number of factors, including the type of repair, the level of deterioration, the square footage areas and the desired lifespan for these repairs. Shown in the following table is a general range of typical maintenance and repair unit costs. Range of Typical Repair and Maintenance Unit Costs TYPE OF REPAIR RANGE OF COST LIFESPAN Routing and Sealing Cracks $1 to $1 /LF 5 to 12 yrs. Replacing Joint Sealant $1 to $3/LF 5 to 12 yrs. Replacing Expansion Joints $10 to $100/LF 9 to 12 yrs. Repairing Floor Spalls $10 to $40/LF 3 to 5 yrs. Repairing Ceiling Spalls $40 to 100/LF 3 to 12 yrs. Installing Supplementary Drains & Piping $500 to $4,000/Each 20+ yrs. Penetrating Sealer $0.20 to $0.60 /SF 4 to 6 yrs. Traffic Bearing Membrane $2 to $5/SF 4 to b yrs. Source: Walker Parking Consultants, 2007 The maintenance budget for a well maintained parking structure should be in the range of $30 to $90 per space per year ($0.10 to $0.30 per square foot per year) based on the location, age and structural system. Walker's recommended budget of $75 per space is generous during the initial 5 to 10 years of operation, but enables the owner to cover a significant portion of the routine maintenance costs that escalate in the latter years of a facilities useful life. Typical maintenance activities can be done during periods of low parking demand reducing the potential impact on revenue. If maintenance is neglected, repairs become necessary and will most likely impact revenues. j`, WALKER ~~-- PARKING CONSUI7ANTS 92 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT ~~;, WALKER ~~ 'r'ARKING CONSUiTANTS MAY 12, 2008 UNDERLYING INFLATION ASSUMPTION An integral part of this analysis is the assumption as to the future expectancy of general inflation, and the resulting impact on parking revenues and expenses. Expenses are generally projected to increase at an average rate of 4.0 percent per year based upon historic trends and general prognostications made by Walker. Operating revenue is increased at beginning in FY 2010 and beyond. STABILIZED YEAR rate of 4.0 percent per year The stabilized year is intended to reflect the average anticipated operating results of the public parking system over its economic life, given any or all of the applicable stages of build-up, plateau, and decline in the life cycle of the property. Thus, income and expense estimates from the stabilized year forward exclude from consideration any abnormal relationship between supply and demand, as well as any nonrecurring conditions that may result in unusual revenues or expenses. Projections assume the stabilized year to be the third year of the ten-year projection period. FINANCIAL PRO FORMA STATEMENTS OF OPERATION The financial pro forma included in this report provides preliminary level financial analysis of the Parking Division and two capital improvement projects that may come to fruition. The projections presented herein are based on analysis of present and near-term conditions in downtown Dubuque. Any significant unforeseen future changes in the characteristics of the local community and its economy, such as grown in employment, downtown corporate inventory, and visitor amenities/attractions, could materially impact the key financial conclusions developed as part of this study. 93 CITY OF DUBUQUE WALKER DOWNTOWN AREA PARKING NEEDS ASSESSMENT =neKN~~oNSU:•an's MAY 12. 2008 Table 33: 10-Year Financial Pro Forma Sta!ement oh Operations Fiscal Year OPERATING REVENUE 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 Daily Parking $ 260,000 $ 270,000 $ 281,000 $ 292,000 $ 304,000 $ 316,000 $ 329,000 $ 342,000 $ 356,000 $ 370,000 Monthly NonReserved 1,064,000 1,107,000 1,151,000 1,197,000 1,245,000 1,295,000 1,347,000 1,401,000 1,457,000 1,515,000 Monthly Reserved 132,000 137,000 142,000 148,000 154,000 160,000 166,000 173,000 180,000 187,000 OffStreet Meter 15,000 16,000 17,000 18,000 19,000 20,000 21,000 22,000 23,000 24,000 OnStreet Meter 528,000 549,000 571,000 594,000 618,000 643,000 669,000 696,000 724,000 753,000 Enforcement 276,000 287,000 298,000 310,000 322,000 335,000 348,000 362,000 376,000 391,000 Investment Income & Reserve 75,000 78,000 81,000 84,000 87,000 90,000 94,000 98,000 102,000 106,000 Potential Gross Revenue (PGR) 2,350,000 2,444,000 2,541,000 2,643,000 2,749,000 2,859,000 2,974,000 3,094,000 3,218,000 3,346,000 Less Collection & Vacancy Loss (2% of PGR)j 47,000 49,000 51,000 53,000 55,000 57,000 59,000 62,000 64,000 67,000 Effective Gross Revenue jEGR) $ 2,303,000 $ 2,395,000 $ 2,490,000 $ 2,590,000 $ 2,694,000 $ 2,802,000 $ 2,915,000 $ 3,032,000 $ 3,154,000 $ 3,279,000 OPERATING EXPENSE Employee Salary & Benefits $ 653,000 $ 679,000 $ 706,000 $ 734,000 $ 763,000 $ 794,000 $ 826,000 $ 859,000 $ 893,000 $ 929,000 Insurance 35,000 40,000 48,000 50,000 52,000 54,000 56,000 58,000 60,000 62,000 Supplies 8 Services 182,000 212,000 253,000 263,000 274,000 285,000 296,000 308,000 320,000 333,000 Repairs & Maintenance 59,000 69,000 83,000 86,000 89,000 93,000 97,000 101,000 105,000 109,000 Utilities 85,000 98,000 117,000 122,000 127,000 132,000 137,000 142,000 148,000 154,000 Total Operating Expense $ 1,014,000 $ 1,098,000 $ 1,207,000 $ 1,255,000 $ 1,305,000 $ 1,358,000 $ 1,412,000 $ 1,468,000 $ 1,526,000 $ 1,587,000 Projected Net Operating Income before Reserve Fund $ 1,289,000 $ 1,297,000 $ 1,283,000 $ 1,335,000 $ 1,389,000 $ 1,444,000 $ 1,503,000 $ 1,564,000 $ 1,628,000 $ 1,692,000 SfrucNral Repairs 8. Replacement (Reserve Fundj $ 185,000 $ 200,000 $ 236,000 $ 245,000 $ 255,000 $ 265,000 $ 276,000 $ 287,000 $ 298,000 $ 310,000 Less: Adopted Capital Improvement Program 239,000 240,750 584,124 387,500 108,400 - - - - - Projected Nat Operoting Income $ 865,000 $ 856,250 $ 462,876 $ 702,500 $ 1,025,600 $ 1,179,000 $ 1,227,000 $ 1,277,000 $ 1,330,000 $ 1,382,000 Less: Existing Debt Service Payment 264,000 262,000 - - - - - - - Projeded Dabt Service Coverage Ratio 3.28 3.27 - - - - - - - - Projected Operating Surplus / (Deficit) $ 601,000 $ 594,250 $ 462,876 $ 702,500 $ 1,025,600 $ 1,179,000 $ 1,227,000 $ 1,277,000 $ 1,330,000 $ 1,382,000 Less: Warehouse District Lot Debt Service Payment $ - 93,000 93,000 93,000 93,000 93,000 93,000 93,000 93,000 93,000 Projected Debt Service Coverage Ratio - 6.39 4.98 7.55 11.03 12.68 13.19 13.73 14.30 14.86 Less: Main & Fischer Lot Debt Service Payment $ - - $492,000 492,000 492,000 492,000 492,000 492,000 492,000 492,000 Projected Debt Service Coverage Ratio - - 0.79 1.20 1.75 2.02 2.10 2.18 2.27 2.36 Projected Operating Surplus / (Deficit) $ 601,000 $ 501,250 $ (122,124) $ 117,500 $ 440,600 $ 594,000 $ 642,000 $ 692,000 $ 745,000 $ 797,000 94 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSULTANTS MAY 12, 2008 As part of our analysis of downtown parking, Walker reviewed how the City of Dubuque Parking and Transit Division's could effectively complement each other's objective of furthering downtown growth while minimizing additional parking development. In addition; potential sources of financial assistant that may be available to the Transit Division for economically counteracting additional parking are identified and presented herein. Key analysis components of this evaluation include: ~ 1 ~ a cursory review of the transit system; j2) identify options that minimize building additional parking spaces; (3) evaluate methods of promoting parking/transit cooperation; and (4) identify funding sources for transit operational improvements. Summary of key findings and recommendations: 1 . Dubuque Keyline Main Key Statistics for Fiscal Year 2007, duly 1 , 2006 thru,June 30, 2007 o Total Operations Cost = $1,536,633.00 o Total Vehicle Hours of Service = 23,190 o Total Cost Per Vehicle Hour = $ 66.26 Per Hour o Cost per hour for Dubuque Keyline is below the median cost of a transit system the size of Dubuque. Transit Operations in the United States of America o No transit system in the United States runs without some sort of subsidy. o The only way to increase ridership is to operate the service when people need it. o The more frequent the service, the more likely that choice riders will ride public transit. o Transit must look for creative ways to provide public transit. Many transit systems run transit the way it was run 30 years ago. Transportation needs have changed. o Transit, like other forms of transportation must build its infrastructure to meet the highest capacity of its ridership at any given time. o Transit systems must with high frequency survey its riders and potential riders to find out needs. This is the only way to find out the pulse of its constituency. PRELIMINARY REVIEW OF PUBLIC TRANSIT 95 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT ~~\. WALKER PARKING CONSULTA'~TS MAY 12, 2008 o Transit must be part of the solution of transportation users needs 24 hours a day, seven days a week and 365 days a year. o Transit should look at its operations every three years. o Transit should visit other transit systems that are implementing progressive and effective programs to see if the practices can be replicated in Dubuque. 2. Implement a Employee Commuter Lot Program o The Transit Division currently operates a trolley service that circulates through the Port District, through the central business district on Main Street, and back to the Port District. o The trolley circuit time is approximately 20 minutes. This time is inadequate to operate a successful employee commuter lot shuttle program and should be reduced to 4 to 5 minute intervals. This may require adding an express shuttle during peak times to carry passengers directly to the core central business area, and back. o Equipment Needs for the New Commuter Lot Service. There may be a problem with having a trolley replica bus available to perform the service at all times. A solution could be to purchase a used trolley replica bus to be used for this new service. Another solution would be to wrap a regular bus in vinyl so that it looks like a trolley replica bus. There may be those who do not run the trolley replica buses at all times. To do this will mean that the buses will not meet the minimum usage for replacement. The Public Transit Division could pull the bus out of Dubuque and place it at a transit system that can put the required amount of mileage on these buses. o The Port of Dubuque Surface Lot could serve as the employee commuter lot. 3. Dubuque Keyline /Dubuque Parking Interagency Cooperation o Begin monthly meetings between the two directors to look for ways to cooperate. o Immediately begin cross training of the transit and parking staffs. o Look for ways to do joint purchasing. o Look to have joint open houses with the public to access public feed back. o Figure out how to have a monthly universal pass that is good for parking in Dubuque parking facilities and Dubuque Keyline transit buses. 96 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT `, WALKER ~- °ARKING CvNSUTA\~TS MAY 12. 2008 o Look for ways to advertise the parking system on Dubuque buses and in the parking facilities advertise Dubuque Keyline buses. o After cross training, have transit personnel work in the parking system and parking personnel work in the transit system. o Always look at ways to coordinate, cooperate and collaborate and consolidate services with each other. 4. Potential Funding Sources For New Transit Service In and Around the Port of Dubuque o State Transit Assistance Funding. The Public Transit Division of the Iowa Department of Transportation allocates funds to the 35 transit systems in Iowa using a formula. Part of these funds could be earmarked to start the new service. o State Transit Assistance Special Projects Funding. The Public Transit Division of the Iowa Department of Transportation earmarks a portion of State Transit Assistance for new service. Dubuque Keyline would be eligible for these funds. o Section 5307 Operating Funding from the Federal Transit Act. Dubuque could earmark some of these funds to start the new service. o Special Needs Transportation Program Funding from Section 5310 of the Federal Transit Act. Dubuque receives a special allocation from-these funds. A portion of this allocation could be earmarked for the new service. o ,Job Access / Reverse Commute funding under Section 5316 the Federal Transit Act. Dubuque could apply for this funding because the service is for workers. o New Freedom Transportation under the Federal Transit Act. This new pot of money is for riders who have a disability. It is safe to say that many of the riders of this new service will likely have disabilities and will be looking for employment so the funds can be used for the new service. o Congestion Mitigation Air Qualify Funding From the USDOT Known as the Iowa Clean Air Program. These funds are administrated by the Iowa Department of Transportation. This service may or may not qualify for funding depending on how it scores using the formula that scores the project against other projects. Surface Transportation Program Funds. These funds are highway funds that can be flexed to be used as transit funding. 97 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER PARKING CONSULTANTS MAY 12, 2008 o Tax Incremental Finance Funding. Since TIF has been used in the area of the service, this funding could be used to fund the new service. o Transit Levy. Since Dubuque is not at the maximum amount for its Transit Levy, the Transit Levy could be used to fund the new service. o General Fund. The General Fund could be used to fund the new service. o Trust and Agency Levy. Instead of funding benefits under the Transit Levy, these benefits could be transferred to the Trust and Agency Levy and use the extra funds from the Transit Levy to fund the new service. o Since the new service is partially benefiting the Parking System, perhaps part of the Parking System net gross revenues could be used to pay for the new transit route service. o Section 126 USC 132 f ~. This part of the Internal Revenue Service Code allows business owners to give employees a tax free benefit of up to $100.00 per month for its employees to ride to and from work on the local transit system. The employer can purchase vouchers from the local transit system and give them to their employees. Then at the end of the business' tax year, it can deduct the amount of its business tax. This tax benefit to employees could help to partially fund the service. o Gambling Proceeds. Part of the gambling proceeds that the City of Dubuque receives could be used to pay for the service. If the gambling establishments give grants out, Dubuque Keyline could apply for grant money to fund this service. 98 CITY OF DUBUQUE DOWNTOWN AREA PARKING NEEDS ASSESSMENT WALKER ?ARKING CGNSUCfANTS MAY 12, 2008 This report is subject to the following limiting conditions: 1. This report is based on assumptions outside the control of Walker Parking Consultants/Engineers, Inc. ~"Walker"~ and/or our client. Therefore, Walker cannot guarantee the results. 2. The results and conclusions presented in this report may be dependent on future assumptions regarding the local, national, or international economy. These assumptions and resultant conclusions may be invalid in the event of war, terrorism, economic recession, rationing, or other events that may cause a significant change in economic conditions. 3. Walker assumes no responsibility for any events or circumstances that take place or change subsequent to the date of our field inspections. 4. Walker is not qualified to detect hazardous substances, has not considered such, and therefore urges the client to retain an expert in this field, if relevant to this study. 5. Sketches, photographs, maps and other exhibits included herein may not be of engineering quality or to a consistent scale, and should not be relied upon as such. 6. All information, estimates, and opinions obtained from parties not employed 'by Walker, are assumed to be accurate. We assume no liability resulting from information presented by the client or client's representatives, or received from third-party sources. 7. All mortgages, liens, encumbrances, leases, and servitudes have been disregarded unless specified otherwise. Unless noted, we assume that there are no encroachments, zoning violations, or building violations encumbering the subject properly. 8. This report is to be used in whole and not in part. None of the contents of this report may be reproduced or disseminated in any form for external use by anyone other than our client without our written permission. 9. The projections presented in the analysis assume responsible ownership and competent management. Any departure from this assumption may have a negative impact on the conclusions. 10. Computer models that use and generate precise numbers generate some of the figures and conclusions presented in this report. The use of seemingly exact numbers is not intended to suggest a level of accuracy that may not exist. A reasonable margin of error may be assumed regarding most numerical conclusions. Conversely, some numbers are rounded and as a result some conclusions may be subject to small rounding errors. 1 1 .This financial analysis section of this report is set forth as a Preliminary Financial Analysis and is not suitable for use in obtaining financing. LIMITING CONDITIONS 99