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273535 WHITE - CITV CLERK 2'�3535 PINK - FINANCE G I TY OF SA I NT 1 A lJ L COIl/ICll CANARV - DEPARTMENT BL.UE - MAVOR File NO. il Resolution . Presented By Referred To Committee: Date Out of Committee By Date WHEREAS, a municipality may, pursuant to Minnesota Statute 462.353, carry on comprehensive municipal planning activities for guiding the future development and improvement of the municipality; and WHEREAS, the Council of the City of St. Paul may, pursuant to Minnesota Statute 462.355, Subd. 3, adopt or amend a comprehensive plan or portion thereof after a recorrrrnnendation by the Planning Commission; and WHEREAS, the Planning Commission has recommended adoption of the Central Business � District Parking Policy Plan; and WHEREAS, the Parking Corr�nission has also recommended adoption of the Central Business District Parking Policy Plan; and WHEREAS, the following action by the Council of the City of St. Paul is not an implicit adoption of the Comprehensive Plan of 1963 or other portions therefore recommended by the Planning Commission; NOW, THEREFORE, BE IT RESOLVED, that the Council of the City of St. Paul adopts the Central Business District Parking Policy Plan (a copy of which is attached as Exhibit A), subject to such review by the Metropolitan Council as may be required by law. COUNCILMEN Requested by Department of: Yeas Nays � Hoz� Z� [n Favor Hunt �/ � __ Against BY Maddox Showalter - Teae�o" � AUG 1 6 1979 Form Approve City t ney Adopted,}ayY`Council: Date — Ce�kified Passe y Council Secre ` By G-ZO-�cJ B� '/,�CJ�� t�ppr ved b r: e _ AUG 7 1979 Approved Mayor for Submission to Council t a BY - — BY P�e�.�sx�ti AU G 2 51979 , �� , ) c�ty caf �ai�� '�� f�!�r�6�� t��i�s�� r��«�ic�� f� ��r 78-4a_ -— �a�� November 17, 1978 WHEREAS, the Planning Board of the City of St. Paul (immediate predecessar of the Planning Commi'ssion of the City of St. Pau1) adopted, pursuant to law, a Comprehensive Plan for the City of St. Paul and filed such plan with the City Clerk of the C�`ty of St. Pau1 in October, 1953; WHEREAS, the Planning Division, P7anning Commission, and Parking Cammission of the City of St. Paul fiave developed a Central Business District Parking Policy Plan; WHEREAS, the St. Paul Parking Commisston has reviewed and approved the Central Business District Parfci'ng Poli�cy Plan on August 10, 1978; WHEREAS, the Central Business District Parking Policy Plan was developed for the purpose of amending the Comprehensive Plan which has been previously adopted by the Planning Board of the City of St. Paul ; WHEREAS, a public hearing was held on November 3, 1978 whereat the Planning Commission considered the recommendation to amend the Comprehens�ve Plan by adding to it the Central Business District Parking Policy Plan; WHEREAS, prior to said hearing, a notice of time and place and purpose of the hearing was published in the bfficial newspaper of the municipality at least ten days prior to November 3, 1978 ; and � WHEREAS, at said public hearing, the public, the Planning Division staff, and. the Planning Commission were given the opportunity to completely discuss and review the proposed Central Business District Parking Policy P1an; NOW, THEREFORE, BE IT RESOLVED, that the Planning Commission for the City of St. Paul hereby. adopts, as an amendment to the Comprehensive Plan of the City of St. Paul , the Central Business District Parking Policy Plan, a copy of which is attached hereto and incorporated herein by reference; and BE IT FURTHER RESOLVED, that copies of the Central Business District Parking Policy Plan be transmitted to the Mayor and the City Council of the City of St. Paul ; and BE IT FURTHER RESOLVED, that the Planning Commission reco�anends to the City Council adoption of the Central Business District Parking Policy Plan as a portion of the Comprehensive Plan for the City of St. Paul . �� Bryan `�� -�� Grai s �_ . 1� C�i(a� 16 __ a.�i� � ? �� c��y af sai�� p�� f�!��i�� c��i�si�� re�c��i� �i�� r�ber _ �g-4a_ d�� November 17, 1978 �r• � � �� .�.��' WHEREAS, the Planning Board of the City of St. Paul (immediate predecessar of the Planning Commi'ssion of the City of St, Pau1) adopted, pursuant to law, . a Comprehensive Plan for the City of St. Paul and filed such plan with the City Clerk of the C��ty of St. Paul in October, 1963; WHEREAS, the Planning Division, Planning Commission, and Parking Commission of the City of St. Paul i�ave developed a Central .6usiness District Parking Policy Plan; WHEREAS, the St. Paul Parking Commiss�on has reviewed and approved the Central Business District Parking Poli�cy P1an on August 10, 1978; WHEREAS, the Central Business District Parking Policy Plan was developed for the purpose of amending the Comprehensive Plan which has been previously adopted by the Planning Board of the City of St. Paul ; WHEREAS, a public heari'ng was held on November 3, 1978 whereat the Planning Commission considered the recommendation to amend the Comprehensive Plan by adding to it the Central Business District Parking Policy Plan; WNEREAS, prior to said hearing, a notice of time and place and purpose of the hearing was published in the official newspaper of the municipaiity at least ten days prior to November 3, 1978 ; and � WHEREAS, at said public hearing, the public, the Planning Division staff, and . the Planning Commission were given the opportunity to completely discuss and review the proposed Central Business District Parking Policy P1an; NOW, TNEREFORE, BE IT RESOLVED, that the Planning Commission for the City of St. Paul hereby. adopts, as an amendment to the Comprehensive Plan of the City of St. Paul , the Central Business District Parking Policy Plan, a copy of which is attached hereto and incorporated herein by reference; and BE IT FURTHER RESOLVED, that copies of the Central Business District Parking Policy Plan be transmitted to the Mayor and the City Council of the City of St. Paul ; and BE IT FURTHER RESOLVED, that the Planning Commission recorranends to the City Council adoption of the Central Busjness District Parking Policy Plan as a portion of the Comprehensive Plan for the City of St. Pau1 . �� °j� Bryan-- -- ._ ��(�� Grai s _ .�..o._...,._. �n fa��° 16 _ , ; �g�i_r� �a � __,.� _—. _r__�_._._ _..._._.__ ..,..... .. _...t__,.__..�_ ._... ..... ...___ _ __._.___. .___ .. ___.-_ _ �___..__...,..., ._.. ..._.___ _.. ..__. ...__ � ___.__.:u._.,,. r. 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'.:. :. - .. . . . . •r. : . -'� �:. .�.: :;:�:.:: �� "!r' .. . �' :.; ;... � : '� ....:�:r"•:•>. . "'- .. ..; .. . . : .;:.: �'.: . . ..:': . '::...:.;� . °M . --�.. � .:.. . :: ...; -. .... ... . a ..;. . :.. 'o7ai .. . :.:: .. ..•::x.:: a.:.:.... --::.:' . . . .,. ... .� . DIVISION OF PLANNING DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT CITY OF SAINT P_AUL 421 WABASHA ST�EET SAINT PAUL, MINNESOTA, 55102 TELEPHONE: 612-298-4151 . • , D D D C� D D ST. PAUL CENTRAL BUSINESS DISTRICT POLICY PLAN - DRAFT IV PREMISE Parking is a necessary support service to downtown activities. Without an effective parking system, down- town activities will fail to have the opportunity to grow and prosper. PLANNING PRINCIPLES T'o be considered in the formulation of a "St. Paul Central Business District Parking Policy Plan". PREAMBLE The Parking Folicy Plan shall support and re7ate to development, transportation and capital resource alloca- tion plans and policies for St. Paul . 1 .The Central Business District Parking Policy Plan must be comprehensive. _ _------- 2':fl'owntown is more than a "shopping center". It is a multi- functional center. 3.There are zones within the CBD that suggest different parking rate structures. POLICY RECOMMEfJDATIONS The Proposed Parking Policy Plan for the downtown consists of: OBJECTIVE COMPLETE AN EFFECTIVE FRINGE PARKING SYSTEM BY 1983. POLICIES 1 .Long term parkers should be attracted to the fringe facilities by pricing. 2.New fringe parking facilities should be provided as needed. � OBJECTIVE COMPLETE AN EFFECTIVE SHORT TERM PARKING SYSTEM BY 1983. POLICIES 1 .Short term parkers are those who require convenient parking for the purchase or use of goods or services. 2.Additional city owned parking within the CBD should not be built unless there is a need for "special purpose" or short term parking. Special purpose parking is defined as those parkers who will not use the fringe facilities regardless of price. SAINT PAUL CITY PLANNING, 421 WABASHA STREE�, SAINT PAUL, MINNESOTA 55102 1 , D D D � D D 3.Short term parkers should be attracted to the CBD by convenience and pricing. Convenience: Short term off street parking should be distributed throughout the CBD. Price: The rate structure should be free or very cheap for the initial part of the time period parked. As the amount of time increases, so should the fee. 4.Parking meter pricing should discourage long term parking. When traffic congestion builds to the point of being detrimental to the CBD, meters should be removed. OBJECTIVE DEVELOP A FINANCIAL SYSTEM TO SUPPORT THE DOWNTOWN PARKING PROGRAM BY 1980. _ ___- ,... POLICIES 1,:?he city should pledge all net income generated by city owned or operated parking facilities to a dedicated fund which shou7d be used to meet various city-wide parking needs. All city owned and/or operated parking should be placed under a central management control . 2.The city shauld implement programs that give the private operators an opportunity to participate. Also, the city should assist private enterprise to provide private parking when needed and in conformance with city trans- portation deve7opment and Capital Resource Allocation Plans whenever possible through assistance in land assemb7y and bond financing or other programs available to the city. 3.St. Paul general taxes should not be used to subsidize the parking needs of private enterprise unless subsidi- zation is the only feasible means of implementing the Central Business District Parking Policy Plan. SAINT PAUL CiTY PLANNING, 421 WABASHA STREE�, SAINT PAUL, MINNESOTA 55102 17 TABLE OF CONTENTS 1 .0 INTRODUCTION 1 2.0 PROBLEMS AND ISSUES 3 3.0 PLANNING PRINCIPLES 5 4.0 POLICY FRAMEWORK 7 , _3 � iii ' � • 1 .0 INTRODUCTION Automobile parking is a major issue within the St. Paul Central Business District. The provision of parking is no longer a simple isolated development proposal , but has become a complex planning problem. The issue deals with the parking basics of supply, cost, location, and utilization patterns. It also is related to public transportation, highest and best use of downtown land and downtown streets, internal automobile and pedestrian circulation, and availability of public and private funds. Another aspect of this issue are environmental concerns, such as air pollution, and the impact which large amounts of parking have on a downtown area's air quality standards. A. fina7 , and very important aspect of this issue is how the provision of parking, with all of its environmental , transportation and land use implica- tions, re7ates to the economic prosperity and development objectives for the downtown area. It is time for private and public parties, acting in unison, to a�dress the many facets of St. Paul 's downtown parking problem. How the parking issue is resolved will have a direct bearing on the growth and development opportunities for the St. Paul Central Business District. The purpose of this report is to outline a parking policy ` plan for St. Paul 's CBD. It is intended that this policy plan will serve as a framework for shaping, guiding and e valuating parking operations and developments within the CBD area. It is also intended to become part of the citywide comprehensive plan. The policy plan is based on data and findings generated in the 1974 "St. Paul Parking Policy Study" and addi- tional research conducted by the St. Paul Department of Planning and Economic Development. The policy plan will attempt to answer the major questions and concerns identified in these study efforts. This policy plan is based on a number of assumptions. First, it is assumed that the automobile will remain the predominant transportation means within the metropolitan area. Automobile characteristics, fuels and power systems will likely change, but the private automobile will continue to be the primary means for serving the work, shopping and recreational travel needs of the American public. Second, it is assumed that parking is an essential support system to downtown activities. Parking system performance should be judged in terms of how parking will contribute to the prosperity and effec- tiveness of downtown activities. Third, it is assumed that the development of a downtown parking plan and system must take guidance from adopted planning and development objectives for the downtown area. The operation and development of a parking system must be consistent with i the-objectives that the city is attempting to achieve in its doWnto�n. The Capitol area is not directly addressed in the plan because it has its own planning responsibility and unique demand structure. However, the Capitol and CBD are not separate entities. Land use and parking demand inter- ' relationships exist and it is intended that the plan's concepts, strategies and policies will be a positive influence on the Capitol area's parking system. St. Paul should work with the Capitol Area Architectural Planning Board to alleviate any problems that may arise. , �._ } , 2 2.0 PROBLEMS AND ISSUES .1 PROBLEM IDENTIFICATION Current park�ng operations have had a negative impact upon downtown St. Paul . Downtown St. Paul 's parking problem, however, is complex and consists of several interrelated parts. First are those identified problem areas which reflect the parking system's inadequacies in � providing an effective service. Second are related negative impacts which partially stem from the service inadequacies. Lastly, are the factors which are at the root of "the parking problem". Identified problems of the CBD parking system are: a.Lack of convenient short term parking for shoppers, patrols and visitors at an acceptable price. b.Conflicting public and private parking operations. c.Predominance of a71 day employee parking within the downtown core. Related impacts of the problems are: a.Curtailed downtown development. b.Declining retail strength. - - - -- ��-_�.Air emission violations. d.Underutilization of downtown land resources. e.Visual blight. Primary factors for the problems include: a.Lack of public and private consensus as to what direc- tion and form CBD parking should take. b.Lack of an effective mechanism to contro] the develop- ment and operation of CBD parking facilities. c.Continued predominance of the single occupant automo- bile for CBD work trips. �_. -� � . 3 2,2 ISSUE IDENTIFICATION The identified parking problems were based on an analysis of the current CBD parking situation. Projections have also shown that demand for short term and long term parking spaces will increase in the years ahead. In resolving these current problems and the consequences of future demand projections, the City of St. Paul must address a series of critical policy issues. How these issues are resolved in terms of policy direction will � have a direct bearing -on the development of the CBD parking system. The issues are: a.What should be the overall downtown development policy. Consensus as to the downtown area's purpose, functions and physical development is necessary if a responsive parking system is to be shaped. b.What should be the level of control over downtown parking facilities. Should parking facilities, their size, location and rates be left solely to market demand forces or should some form of control be applied, and if so, how much? c'.What should be the level of resource commitment to the � future parking system? Should the demand for additional parking spaces be completely satisfied with new facili- ties by the public and private sector, or should some restraints be imposed? d.What are the most appropriate locations for parking facilities? Where should facilities for long tet^m employee parking be built? What are the best locational patterns for short term visitor, shopper, and patron parking? What should be done regarding on street parking? These locational issues on parking must be addressed if no CBD development is to occur in an effective manner. e.What is the role of public financing in the downtown parking system. Should the City of St. Paul invest public tax do7lars into parking and if so, what should be the city's priorities. It is only in the context of addressing these policy issues that an effective parking plan can be developed. The fo7lowing sections dealing with objectives and policies are directed toward the resolution of problems and issues which typify today's CBD parking system. � � 4 3.0 PLANNING PRINCIPLES Development of the Central Business District parking policy plan is based on a framework of planning princi- ples. These principles are intended to identify what the scope of the plan should be and how it should address the various parking issues. In effect, the principles are criteria �o be used for governing the development of the policy plan. They include: PREAMBLE THE PARKING POLICY PLAN SHALL SUPPORT AND RELATE TO DEVELOPPIENT, TRANSPORTATION AND CAPITAL RESOURCE ALLOCA- TION PLANS AND POLICIES FOR ST. PAUL. COMMENT In a downtown urban environment, as in St. Paul , economics, land use, transportation and parking are closely related factors which interact to produce the development charac- teristics and potential of the CBD. None of these ele- ments are autonomous, but rather each must be viewed as a subsystem interrelated to other downtown activities. It is clear that the resolution of the parking issue does not rest exclusively in a forecasted number of future , parking spaces required. Rather, it must be resolved in the context of what broader social , economic and physical goals St. Paul wants to achieve in its CBD. To that end, the parking plan must support and relate to St. Paul 's current development, transportation, and capital resource allocation planning efforts. PRINCIPLE 1 THE CENTRAL BUSINESS DISTRICT PARKING POLZCY PLAN MUST BE COMPREHENSTVE. COMMENT Downtown parking is a complex prob7em involving several issues which effect both public and private sectors. This principle recognizPs that if the policy plan is to be effective it will have to address the major issues effect- ing parking. These issues identified earlier include parking relationship to development, supply, location, and utilization practices, private and pub7ic resource commitment to parking and the manner of control over parking operations. 5 PRINCIPLE 2 DOWNTOWN IS MORE THAN A "SHOPPING CENTER". IT IS A MULTI- FUNCTIONAL CENTER. COMMENT Both the Metropolitan Council Development Framework Policy Plan and the St. Pau7 CBD Concept Plan state that down- town St. Paul should be multi-functional in nature. The intent is that the downtown should be more than just an employment center or a government center, but also a place to work, shop, live or play. It is maintained that the strength of downtown is dependent upon the successful � integration and support of all activities. This principle recognizes these development objectives for the downtown and the need for the parking policy plan to lead to the development of a ba7anced parking system that effectively serves the travel needs of employees, shoppers, patrons, visitors and residents. PRINCIPLE 3 THERE ARE ZONES WITHIN THE CBD THAT SUGGEST DIFFERENT _ _ -------- ....PARKING RATES. COMMENT This princip7e recognizes the existing and planned development character of downtown St. Paul . Currently, the most intensely developed area of downtown St. Paul is an area bounded by St. Peter, 9th Street, Jackson Street, and Kellogg Boulevard. Development plans, however, foresee the expansion of this intense development pattern to an area roughly bounded by Kellogg Boulevard, Smith Street, I-94, and Broadway Avenue. Outside of this area, development patterns are planned to be of lesser inten- sity. For the Parking Policy Plan, these development patterns imply different parking needs and suggest different parking rates which reflect downtown land values. _� 6 ' 4.0 POLICY FRAMEWORK The intent of this section is to provide a policy frame- . work of how downtown St. Paul 's parking system should develop and operate. The framework consists of objec- tives which identify specifically what should be done and when, and policies to guide the manner in which these � objectives are to be achieved. OBJECTIVE 1 COMPLETE AN EFFECTIVE FRINGE PARKING SYSTEM BY 1983. COMMENT The provision of parking for downtown St. Paul 's employees is a major issue. The downtown area is a concentrated employment center of approximately 65,000 employees. Currently, the downtown parking system is oriented to serving the employee parkir�g demand. All day parking is readily available and relatively inexpensive. However, with increased development the downtown's supply of surface parking lots will decrease plus additional emp7oyees will be added to the area. This coupled with the demand to provide additional short term parking wii.l further decrease the number of long term parking __ --- _ . "==spaces for employees. The recommended solution to this problem is the development of a fringe parking system. Fringe parking facilities are those located on the peri- phery of the intensified center. For a fringe parking system to be operationally successful , however, the following e7ements are required: First, attractive, safe, and visible parking facilities which are appropriately sited near major thoroughfares to intercept commuter traffic; second, fast, convenient, reiiable and low fare transit 7inks which connect the parking facilities to downtown destinations; third, a coordinated parking rate system that attracts commuter parkers to the fringe parking facilities; and fourth, integration of these elements into an operational service program. The proposed Downtown People Mover and the Fringe Parking System would be mutually supportive. The DPM makes travel between the fringe parking facilities fast and convenient, thus making the Fringe Parking Systerr attrac- tive to parkers. The Fringe Parking System, on the otber hand, adds ridership to the DPM system, improving the ability of the system to cover operation costs through user charges. The Fringe Parking System, therefore, should be coordinated with the proposed start of the DPM in 1983. -� � 7 POLICY 1 LONG TERM PARKERS SHOULD BE ATtRACTED TO THE FRINGE FACILITIES BY PRICING AND OTHER INCENTIVES. COMMENT , Since parking in a fringe facility means sacrificing a certain amount of time and convenience in traveling to a downtown core location, incentives are necessary to attract parkers to fringe parking facilities. Incentives, such as pricing, leave parkers the freedom to park in the downtown core if, for their ,particular situation, the incentives aren't great enough. POLICY 2 NEW FRINGE PARKING FACILITIES SHOULD BE PROVIDED AS _NEEDED. COMMENT Fringe parking increases downtown accessibility by reducing core area congestion and freeing up existing parking facilities in the intensified center for other uses. If new fringe parking facilities are to be _ _ __ ,.p rovided as needed, the capacity of those fringe parking ; �facilities must be sensitive to the total demand for fringe parking by long term parkers. At the same time, over building of fringe parking facilities can be extremely c4stly. Ongoing evaluation of employee travel needs, alternative transportation modes and programs, and a correspondingly staged building program is necessary to meet, but not exceed, demand. OBJECTIVE 2 COMPLETE AN EFFECTIVE SHORT TERM PARKING SYSTEM BY 1983. COMMENT A critical part of the downtown parking plan is the recommendation to satisfy the demand for short term shopper, visitor and patron parking. If the downtown area is to remain competitive it will have to provide the same level of accessibility that suburban commercial and retail centers now have. This accessibility takes the form of parking facilities which are inexpensive, convenient to use, easily identified and close to trip destination. Short term parking facilities which have the above characteristics are essential to the growth and prosperity of the downtown area. Coupled with fringe parking an effective short term parking system provides a balanced parking system for meeting the automobile travel needs generated by the downtown area. _t , > 8 POLICY 3 SHORT TERM PARKERS ARE THOSE WHO REQUIRE CONVENIENT PARKING FOR THE PURCHASE OR USE OF GOODS OR SERVICES. COMMENT Short term parking needs are generated by almost every function of downtown, all of which must be met. Short term parking must not only respond to the needs of shoppers, patrons and visitors, but also have the flexibility to support a wide range of short term travel needs generated by downtown employees, i .e. , saiespersons. POLICY 4 ADDITIONAL CITY OWNED PARKING WITHIN THE CBD SHOULD NOT BE BUILT UNLESS THERE IS A NEED FOR "SPECIAL PURPOSE" OR SHORT TERM PARKING. SPECIAL PURPOSE PARKING IS DEFINED AS THOSE PARKERS WHO WILL NOT USE THE FRINGE FACILITIES REGARDLESS OF INCENTIVES. ' COMMENT The deve7opment of fringe parking facilities on the peri- phery of.the downtown is intended to serve the all day employee parkers. Within the downtown, however, parking '-i�s intended to meet the needs of short term or "special purpose" parking. Special purpose parking is defined as those parkers who will not use the fringe facilities regardless of incentives. Currently, the downtown area is characterized by a large supply of parking and competing demands on that available supply by short term and all day employee parkers. Whether this existing supply is sufficient to meet these competing demands will depend on a detailed analysis of need. This analysis would include documentation of demand generated by down- town development, daytime, evening and weekend conversion possibilities of existing public and private facilities to short term use, impact of incentive fringe parking measures on a71 day parkers, and analysis of the unique travel behavior patterns generated by diverse downtown functions. Unless this need has been firmly established, additional city owned parking within the CBD should not be built. 9 3 > POLICY 5 SHORT TERM PARKERS SHOULD BE ATTRACTED TO THE CBD BY CONVENIENCE AND PRICING: CONVENIENCE: SHORT TERM OFF STREET PARKING SHOULD BE DISTRIBUTED THROUGHOUT THE CBD. PRICING: THE RATE STRUCTURE SHOULD BE FREE OR VERY CHEAP fOR THE INITIAL PART OF THE TIME PERIOD. AS THE AMOUNT � OF TIME INCREASES, SO SHOULD THE FEE. COMMENT If the downtown area is to remain competitive with suburban cor�nercial and retail centers then the downtown must have short term parking that is convenient, and free or very cheap. Convenience is an important factor and takes the form of parking that is close to trip destina- tion. Downtown does not consist of one single activity center but consists of a variety of activities spread throughout the downtown area. These activities whether they are retail , commercial , office, service or govern- ment, all generate some level of demand for short term parking. If short term parking is to be effective then short term parking facilities must be distributed throughout the downtown to match the distribution of -- ___ downtown activities. Free or very cheap parking rates is a second important attribute of effective short term parking. Approximately 85% of short term parking occurs, within two hours ar less. For this initial time period parking rates should be free or low cost. However, as one parks longer, parking rates should increase to discourage long term parking and guarantee a turnover af short term parking spaces. POLICY 6 PARKING METER PRICING SHOULD DISCOURAGE LONG TERM PARKING, WHEN TRAFFIC CONGESTION BUILDS TO THE POINT OF BEING DETRIMEP�TAL TO THE CBD, METERS SHOULD BE REMOVED. COMMENT On street metered parking represents a small but signifi- cant supply of parking in the downtown area. Intended for short term use, on street metered parking has the positive characteristics of being highly visible, generally close to one's destination and relatively inexpensive. Unfortunately, the cost of inetered parking for the entire day is generally less than all day off street parking. This has led to the practice by some downtown employees of "plugging the meters". As a result, these spaces are lost for short term use. This practice can be discouraged by sensitively_ raising parking meter rates to a point where off st�eet parking becomes more attractive to emplo,yees. � 10 . , Even though on street metered parking is short term parking, it has the disadvantage of decreasing street capacity, causing congestion which results in air pollu- tion, noise, safety and aesthetic problems. When conges- tion builds to the point of being more detrimental to the CBD, than beneficial , on street parking should be removed. OBJECTIVE 3 DEVELOP A �INANCIAL SYSTEM TO SUPPORT THE DOWNTOWN PARKING PROGRAM BY 1980. COMMENT Financing is one of the most important elements in a parking program; unless a parking program can be financed it stands little chance of becoming a reality. POLICY 7 THE CITY SHOULD PLEDGE ALL NET INCOME GENERATED BY CITY OWNED OR OPERATED PARKING FACILITIES TO A DEDICATED FUND WHICH SHOULD BE USED TO MEET VARIOUS CITYt�JIDE PARKING NEEDS. ALL CITY OWNED AND/OR OPERATED PARKING SHOULD BE PLACED UNDER A CENTRAL MANAGEMENT CONTROL. - - "�OMMENT A first step in the development of an effective financial pro�ram is for all city owned and operated parking facilities to be placed under a central management con- trol . Cut�rent city owned facilities are under different department authorities resulting in fragmented and sane- times competing operating procedures. Unless all city parking operations are brought under a central management control first, there is little chance of developing a coordinated public private parking program in the downtown area. A second step is that the city should pledge all net income generated by city owned or operated parking facilities to a dedicated parking fund. Currently, the City of St. Paul and its related agencies are deriving a substantial income from city owned parking operations. These incomes are used as a source of revenue to the city's general fund and agencies activities. Creation of a dedicated parking fund would allow these public system generated revenues to be used as a financial base for the city parking program. In that way, pricing and other incentives can be used to manipulate parking demand in a manner that is consistent with city development and transportation goals. 11 � � POLICY 8 THE CITY SHOULD IP1PLEMENT PROGRAMS THAT GIVE THE PRIVATE OPERATORS AN OPPORTUNITY TO PARTICIPATE. ALSO, THE CITY SHOULD ASSIST PRIVATE ENTERPRISE TO PROVIDE PRIVATE PARKING WHEN NEEDED AND IN CONFORMANCE WITH CITY TRANS- PORTATION, DEVELOPMENT AND CAPITAL RESO�RCE ALLOCATION � PLANS WNENEVER POSSIBLE THROUGH ASSISTANCE IN LAND ASSEMBLY AND BOND FINANCING OR OTHER PROGRAMS AVAILABLE TO THE CITY. COMMENT Private parking operators play an important ro7e in providing efficient parking operations in downtown St. Paul . Their businesses should not be hurt by compe�ition from city owned facilities; rather, they should play an integral role in the total coordinated parking system and its financial program. In certain instances the private sector may require public assistance in the development of private parking facilities. This assistance rnay take the form of land assembly, bond financing and other programs available only to the city. This public assistance, however, shou7d only be provided in cases of determined need and when such private parking projects are in conformance with city transportation, development, and capital resource allocation plans. POLICY 9 ST. PAUL GENERAL TAXES SHOULD NOT BE USED TO SUBSIDIZE THE PARKING NEEDS OF PRIVATE ENTERPRISE UNLESS SUBSIDIZA- TION IS THE ONLY FEASIBLE MEANS OF IMPLEMENTING THE CENTRAL BUSINESS DISTRICT PARKING POLICY PLAN. COMMENT In the proposed parking program for downtown St. Paul , certain parking facilities and operations necessary to support downtown activities may not be able to support themselves with user fees. A coordinated system is necessary such that these facilities and operations can be supported by other facilities in the system or by property owners and tenants who benefit from the parking system. However, it is possible that in some instances or stages in the development of the coordinated system, that some limited financial assistance may be required from St. Paul 's general tax revenues. This limited assis- tance, however, should only be used as a last resort when it is the only feasible means of implementing the parking program. As a general rule the parking program should be primarily supported by system generated revenue and then by property ownErs and tenants who benefit from its operation. -3 > 12 This policy plan offers a cormnitment to a coordinated private public approach to downtown parking. Adoption and continued application of t hese recorrmended policies will insure the development and operation of an effec- tive parking system that is responsive to the current a nd future needs of downtown St. Paul . _� � 13 CREDITS PLANNING COMMISSION Martha Norton, Chairman **David McDonell OF ST. PAUL Liz Anderson Jean McGinley James Bryan Deborah Montgomery Carolyn Cochrane *Jane Nelson *Haroid Feder *Martha Norton _ Sam Grais Joseph Pangal *Carolyn Grittner Catherine Piccolo Glen Hanggi Harvey Stegemoeller *Otto Hummer Gayle Summers Nelsene Karns Adolf Tobler *Mertyce Mayne *Robert Van Hoef *Member, Economic Development Committee **Chairperson, Economic Development Committee PARKING COMMI S ON Gary Tan eno f, C a�rman OF ST. PAUL A. C. Claseman Jack Geller James 0`Hara Barbara Penn Frank Schneider A. Kent Shamblin ' ADMINIST TION AND James Bellus, Planning Admim strator POLICY DIRECTION Maureen McAvey, Principal Planner RE EARCH AND PLANN NG James Zdon, Planner-in-Charge Gerald Plangle, Parking Administrator Allan Torstenson, Planning Intern GRAPHICS Eric Muller, Art Director Thomas Ashworth, Graphic Artist 3 � l4 � � 1 � �� —.A. • SAINT PAI�L CENTRAL �USINESS DISTRICT PARKING POLICY PLAN FEBRUARY 1978 , REVISED SEPTEMBER 1978 s - �[• •;:a•:� :.'ry�^•!'� 'F° ::SMr: �W -•• •• .{� :....., :;�.:..Y::[n;i.:.;....r:...:.••::+. ......:. ....... ..� •'ti5:.::�.. ::::::..... r.n...:'::v: ..?.�''' . :.Y..... iv/ '!^Y,.;::..:•:�;i. � s'"-'. :?'�'i'; �c ..�c �.r.... . .: ..;;.. .�•.:,•..::.,.� ...>:..:... :.:::,:;5:.::�: .... .. . :•: .`+�t�.� ...�'..�••: . .,{:.<;. .::: . ��......�......�:�� /..:;�::5+::•:.;. { v.v.�'v� ..?v•.}JV...y`K:}•r•:�w.:'•:i �:Yi'r'n.... •:..... � .;+,: •.�/. i2J.v . . fiVP.nn..}.:v.•... :.:i::.:.y;�. .. r ....0:7 .. 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DIVISION OF PLANNING DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT CITY OF SAINT PAUL 421 WABASHA STREET SAINT PAUL, MINNESOTA, 55102 TE L EP H O N E: 612-298-4151 � . D D D � D D ST. PAUL CENTRAL BUSINESS DISTRICT POLICY PLAN - DRAFT IV PREMISE Parking is a necessary support service to downtown activities. Without an effective parking system, down- town activities will fail to have the opportunity to grow and prosper. PLANNING PRINCIPLES To be considered in the formulation of a "St. Paul Centra7 Business District Parking Policy Plan". PREAMBLE The Parking Policy Plan sha71 support and r�elate to development, transportation and capital resource alloca- tion plans and policies for St. Paul . 1 .The Central Business District Parking Policy Plan must be comprehensive. ` 2.Downtown is more than a "shopping center". It is a multi- functional center. 3.There are zones within the CBD that suggest different parking rate structures. POLICY RECOMMENDATIONS The Proposed Parking Policy Plan for the downtown consists of: OBJECTIVE COMPLETE AN EFFECTIVE FRINGE PARKING SYSTEM BY 1983. POLICTES 1 .Long term parkers should be attracted to the fringe facilities by pricing. 2.New fringe parking facilities should be provided as needed. OBJECTIYE COMPLETE AN EFFECTIVE SHORT TERM PARKING SYSTEM BY 1983. POLICIES 1 .Short term parkers are those who require convenient parking for the purchase or use of goods or services. 2.Additional city owned parking within the CBD should not be built unless there is a need for "special purpose" or short term parking. Special purpose parking is defined as those parkers who will not use the fringe facilities regardless of price. SAINT PAUL CITY PLANNING, 421 WABASHA STREET, SAINT PAUL, MINNESOTA 55102 1 D D D � D D 3.Short term parkers should be attracted to the CBD by convenience and pricing. Convenience: Short term off street parking should be distributed throughout the CBD. Price: The rate structure should be free or very cheap for the initial part of the time period parked. As the amount of time increases, so should the fee. 4.Parking meter pricing should discourage long term parking. When traffic congestion builds to the point of being detrimental to the CBD, meters should be removed. OBJECTIVE DEVELOP A FINANCIAL SYSTEM TO SUPPORT THE DOWNTOWN PARKING PROGRAM BY 1980. POLICIES 1 .The city should pledge all net income generated by city owned or operated parking facilities to a dedicated fund which should be used to meet various city-wide parking needs. All city owned and/or operated parking should be placed under a central management control . 2.The city should implement programs that give the private operators an opportunity to participate. Also, the city should assist private enterprise to provide private parking when needed and in conformance with city trans- portation development and Capital Resource Allocation Plans whenever possible through assistance in land assembly and bond financing or other programs available to the city. 3.St. Paul general taxes should not be used to subsidize the parking needs of private enterprise unless subsidi- zation is the only feasible means of implementing the Central Business District Parking Policy Plan. SAINT PAUL CITY PLANNING, 421 WABASHA STREET, SAINT PAUL, MINNESOTA 55102 11 TABLE OF CONTENTS 1 .0 INTRODUCTION � 2.0 PROBLEMS AND ISSUES 3 3.0 PLANN NG PRINCIPLES 5 4.0 OLICY FRAMEWORK � iii , , 1 .0 INTRODUCTION Automobile parking is a major issue within the St. Paul Central Business District. The provision of parking is no longer a simple isolated development proposal , but has become a complex planning problem. The issue deals with the parking basics of supply, cost, location, and utilization patterns. It also is related to public transportation, highest and best use of downtown land and downtown streets, internal automobile and pedestrian circulation, and availability of public and private funds. Another aspect of this issue are environmental concerns, such as air pollution, and the impact which large amounts of parking have on a downtown area's air quality standards. A final , and very important aspect of this issue is how the provision of parking, with all of its environmental , transportation and land use implica- tions, re7ates to the economic prosperity and development objectives for the downtown area. It is time for private and public parties, acting �n unison, to address the many facets of St. Paul 's downtown parking problem. How the parking issue is resolved will have a direct bearing on the growth and development opportunities for the St. Paul Central Business District. - -- The purpose of this report is to outline a parking policy °=plan for St. Paul 's CBD. It is intended that this policy plan will serve as a framework for shaping, guiding and e valuating parking operations and developments within the CBD area. It is also intended to become part of the citywide comprehensive plan. The policy plan is based on data and findings generated in the 1974 "St. Paul Parking Po7icy Study" and addi- tional research conducted by the St. Paul Department of Planning and Economic Development. The policy plan will attempt to answer the major questions and concerns identified in these study efforts. This policy plan is based on a number of assumptions. First, it is assumed that the automobi7e will remain the predominant transportation means within the metropolitan area. Automobile characteristics, fuels and power systems will likely change, but the private automobile will continue to be the primary means for serving the work, shopping and recreational travel needs of the American public. Second, it is assumed that parking is an essential support system to downtown activities. Parking system performance should be judged in terms of how parking will contribute to the prosperity and effec- tiveness of downtown activities. Third, it is assumed that the development of a downtown parking plan and system must take guidance from adopted planning and development objectives for- the downtown area. The operation and development c}f a parking system must be consistent with � the-objectives that the city 1s attempting to achieve in i tS doWntoV�n: The Capitol area is not directly addressed in the plan because it has its own planning responsibility and unique demand structure. However, the Capitol and CBD are not separate entities. Land use and parking demand inter- relationships exist and it is intended that the plan's concepts, strategies and policies will be a positive influence on the Capitol area's pa�king system. St. Paul should work with the Capitol Area Architectural Planning Board to alleviate any problems that may arise. 2 2.0 PROBLEMS AND ISSUES 2.1 PROBLEM IDENTIFICATION Current parkins °pPaulionDowntownaSta PaultsVpa kPngt upon downtown t problem, however�sis FirstearenthosesidentifiedVproblem interrelated par 5 stem's inadequacies in areas which reflect the parking Y providing an effective service. Second are related negative �mpacts which partially stem from the service inadequacies. Lastly, are the factors which are at the root of "the parking problem". Identified problems of the CBD parking system are: a.tack of convenient short term parking for shoppers, patrols and visitors at an acceptable price. b.Conflicting public and private parking operations. c.Predominance of all day employee parking within the downtown core. Related impacts of the problems are: a.Curtai7ed downtown development. b.Declining retail strength. c.Air emission violations. d.Underutilization of downtown land resources. e.Visual blight. Primary factors for the problems include: a.Lack of public and private consensus as to what direc- tion and form CBD parking should take. b.Lack of an effective mechanism to contro7 the develop- ment and operation of CBD parking facilities. c.Continued predominance of the single occupant automo- bile for CBD work trips. 3 2.2 ISSUE IDENTIFICATION The identified par ing problems were based on an analysis of the current CBD parking situation. Projections have also shown that demand for short term and long term parking spaces will increase in the years ahead. In resolving these current problems and the consequences of future demand projections, the City of St. Paul must address a series of critical policy issues. How these issues are resolved in terms of policy direction will � have a direct bearing on the development of the CBD parking system. The issues are: a.What should be the overall downtown development policy. Consensus as to the downtown area's purpose, functions and physical development is necessary if a responsive parking system is to be shaped. b.What should be the 1eve1 of control over downtown parking facilities. Should parking facilities, their size, location and rates be left solely to market demand forces or should some form of control be applied, and if so, how much? ciWhat should be the level of resource commitment to the future parking system? Should the demand for additional parking spaces be completely satisfied with new facili- ties by the public and private sector, or should some restraints be imposed? d.What are the most appropriate locations for parking facilities? Where should facilities for long term employee parking be built? What are the best locational patterns for short term visitor, shopper, and patron parking? What should be done regarding on street parking? These locational issues on parking must be addressed if no CBD development is to occur in an effective manner. e.What is the role of public financing in the downtown parking system. Should the City of St. Paul invest public tax do7lars into parking and if so; what should be the city's priorities. It is only in the context of addressing these policy issues that an effective parking plan can be developed. The following sections dealing with objectives and policies are directed toward the resolution of problems and issues which typify today's CBD parking system. 4 3.0 PLANNING PRINCIPLES Development of the Central Business District parkinq policy plan is based on a framework of planning princi- ples. These principles are intended to identify what the scope of the plan should be and how it should address the various parking issues. In effect, the principles are criteria to be used for governing the development of the policy plan. They include: PREAMBLE THE PARKING POLICY PLAN SHALL SUPPORT AND RELATE TO DEVELOPMENT, TRANSPORTATION AND CAPITAL RESOURCE ALLOCA- TION PLANS AND POLICIES FOR ST. PAUL. COMMENT In a downtown urban environment, as in St. Paul , economics, land use, transportation and parking are closely related factors which interact to produce the development charac- teristics and potential of the CBD. None of these ele- ments are autonomous, but rather each must be viewed as a subsystem interrelated to other downtown activities. It is clear that the resolution of the parking issue does not rest' exclusively in a forecasted number of future - -- -- ,; parking spaces required. Rather, it must be resolved in the context of what broader social , economic and physical goals St. Paul wants to achieve in its CBD. To that end, the parking plan must support and relate to St. Paul 's current development, transportation, and capital resource allocation planning efforts. PRINCIPLE 1 THE CENTRAL BUSINESS DISTRICT PARKTNG POLZCY PLAN MUST BE COMPREHENSIVE. COMMENT Downtown parking is a complex problem involving severa7 issues which effect both public and private sectors. This principle recognizPs that if the policy plan is to be effective it will have to address the major issues effect- ing parking. These issues identified earlier include parking relationship to development, supply, location, and utilization practices, private and public resource comnitment to parking and the manner of control over parking operations. -} a 5 PRIPJCIPLE 2 DOWNTOWN IS MORE THAN A "SHOPPING CENTER". IT IS A MULTI- FUIVCTIONAL CENTER. COMMENT Both the Metropolitan Council Development Framework Policy Plan and the St. Paul CBD Concept Plan state that down- town St. Paul should be multi-functional in nature. The intent is that the downtown should be more than just an employment center or a government center, but also a place to work, shop, live or play. It is maintained that the strength of downtown is dependent upon the successful integration and support of a71 activities. This principle recognizes these development objectives for the downtown and the ne�d for the parking policy plan to lead to the development of a balanced parking system that effectively serves the travel needs of employees, shoppers, patrons, visitors and residents. PRINCIPLE 3 THERE ARE ZONES WITHIN THE CBD THAT SUGGEST DIFFERENT . PARKING RATES. COMMENT This principle recognizes the existing and planned development character of downtown St. Paul . Currently, the most intensely developed area of downtown St. Paul is an area bounded by St. Peter, 9th Street, Jackson Street, and Kellogg Boulevard. Development plans, however, foresee the expansion of this intense development pattern to an area roughly bounded by Kellogg Boulevard, Smith Street, I-94, and Broadway Avenue. Outside of this area, development patterns are planned to be of lesser inten- sity. For the Parking Policy Plan, these development patterns imply different parking needs and suggest different parking rates which reflect downtown land values. 6 4.0 POLICY FRAMEWORK The intent of this section is to provide a policy frame- . work of how downtown St. Paul 's parking system should develop and operate. The framework consists of objec- tives which identify specifically what should be done and when, and policies to guide the manner in which these objectives are to be achieved. OBJECTIVE 1 COMPLETE AN EFFECTIVE FRINGE PARKING SYSTEM BY 1983. COMMENT The provision of parking for downtown St. Paul 's employees is a major issue. The downtown area is a concentrated employment center of approximately 65,000 employees. Currently, the downtown parking system is oriented to serving the employee parkiny demand. All day parking is readily available and relatively inexpensive. However, with increased development the downtown's supply of surface parking lots will decrease plus additional employees will be added to the area. This coupled with the demand to provide additional short term parking wii.l further decrease the number of long term parking spaces for employees. The recor�nended solution to this problem is the development of a fringe parking system. Fringe parking facilities are those located on the peri- phery of the intensified center. For a fringe parking system to be operationally successful , however, the following elements are required: First, attractive, safe, and visible parking facilities which are appropriately sited near major thoroughfares to intercept commuter traffic; second, fast, convenient, reliable and low fare transit links which connect the parking facilities to downtown destinations; third, a coordinated parking rate system that attracts commuter parkers to the fringe parking facilities; and fourth, integration of these elements into an operational service program. The proposed Dawntown People Mover and the Fringe Parking System would be mutually supportive. The DPM makes travel between the fringe parking facilities fast and convenient, thus making the Fringe Parking System attrac- tive to parkers. The Fringe Parking System, on the other hand, adds ridership to the DPM system, improving the ability of the system to cover operation costs through user charges. The Fringe Parking System, therefore, should be coordinated with the proposed start of the DPM in 1983. 7 POLICY 1 LONG TERM PARKERS SHOULD BE ATTRACTED TO THE FRINGE FACILITIES BY PRICING AND OTHER INCENTIVES. COMMENT Since parking in a fringe facility means sacrificing a certain amount of time and convenience in traveling to a downtown core location, incentives are necessary to attract parkers to fringe parking facilities. Incentives, such as pricing, leave parkers the freedom to park in the downtown core if, for their particular situation, the incentives aren't great enough. POLICY 2 NEW FRINGE PARKING FACILITIES SHOULD BE PROVIDED AS _NEEDED. COMMENT Fringe parking increases downtown accessibility by reducing core area congestion and freeing up existing parking facilities in the intensified center for other uses. If new fringe parking facilities are to be , p rovided as needed, the capacity of those fringe parking facilities must be sensitive to the total demand for fringe parking by long term parkers. At the same time, over building of fringe parking facilities can be extremely costly. Ongoing evaluation of em�loyee travel needs, alternative transportation modes and programs, and a correspondingly staged building program is necessary to meet, but not exceed, demand. OBJECTIVE 2 COMPLETE AN EFFECTIVE SHORT TERM PARKING SYSTEM BY 1983. COMMENT A critical part of the downtown parking plan is the recommendation to satisfy the demand for short term shopper, visitor and patron parking. If the downtown area is to remain competitive it will have to provide the same level of accessibility that suburban cor�nercial and retail centers now have. This accessibility takes the form of parking facilities which are inexpensive, convenient to use, easily identified and close to trip destination. Short term parking facilities which have the above characteristics are essential to the growth and prosperity of the downtown area. Coupled with fringe parking an effective short term parking system provides a balanced parking system for meeting the automobile travel needs generated by the downtown area. 8 POLICY 3 SHORT TERM PARKERS ARE THOSE WHO REQUIRE CONVENIENT PARKING FOR THE PURCHASE OR USE OF GOODS OR SERVICES. COMMENT Short term parking needs are generated by almost every function of downtown, all of which must be met. Short term parking must not only respond to the needs of shoppers, patrons and visitors, but also have the flexibility to support a wide range of short term travel needs generated by downtown employees, i .e. , salespersons. POLICY 4 ADDITIONAL CITY 04JPJED PARKING WITHIN THE CBD SHOULD NOT BE BUILT UNLESS THERE IS A NEED FOR "SPECIAL PURPOSE" OR SHORT TERM PARKING. SPECIAL PURPOSE PARKING IS DEFINED AS THOSE PARKERS WHO 4JILL NOT USE THE FRINGE FACILITIES REGARDLESS OF INCENTIVES. COMMENT The deve7opment of fringe parking facilities on the peri- phery of the downto��rn is intended to serve the all day employee parkers. Within the downtown, however, parking � is intended to meet the needs of short term or "special purpose" parking. Special purpose parking is defined as those parkers who will not use the fringe facilities regardless of incentives. Currently, the downtown area is characterized by a large supply of parking and competing demands on that available supply by short term and all day employee parkers. Whether this existing supply is sufficient to meet these competing demands will depend on a detailed analysis of need. This analysis would include documentation of demand generated by down- town development, daytime, evening and weekend conversion possibilities of existing public and private facilities to short term use, impact of incentive fringe parking measures on all day parkers, and analysis of the unique travel behavior patterns generated by diverse downtown functions. Unless this need has been firmly established, additional city owned parking within the CBD should not be built. 9 POLICY 5 SHORT TERM PARKERS SHOULD BE ATTRACTED TO THE CBD BY CONVENIENCE AND PRICING: CONVENIENCE: SNORT TERM OFF STREET PARKIPJG SNOULD BE DISTRIBUTED THROUGHOUT THE CBD. PRICING: THE RATE STRUCTURE SHOULD BE FREE OR VERY CHEAP FOR THE INITIAL PART OF THE TIME PERIOD. AS THE AMOUNT OF TIME INCREASES, SO SHOULD THE FEE. COMMENT If the downtown area is to remain competitive with suburban commercial and retail centers then the downtown must have short term parking that is convenient, and free or very cheap. Convenience is an important factor and takes the form of parking that is close to trip destina- tion. Downtown does not consist of one single activity center but consists of a variety of activities spread throughout the downtown area. These activities whether they are retail , commercial , office, service or govern- ment, all generate some 7eve1 of demand for short term parking. If short term parking is to be effective then short term parking facilities must be distributed throughout the downtown to match the distribution of downtown activities. Free or very cheap parking rates is a second important attribute of effective short term parking. Approximately 85% of short term parking occurs, within two hours or less. For this initial time period parking rates should be free or low cost. However, as one parks longer, parking rates should increase to discourage long term parking and guarantee a turnover of short term parking spaces. POLICY 6 PARKING METER PRICING SHOULD DISCOURAGE LONG TERM PARKING. WHEPd TRAFFIC CONGESTION BUILDS TO THE POINT OF BEING DETRIMENTAL TO THE CBD, METERS SHOULD BE REMOVED. COMMENT On street metered parking represents a small but signifi- cant supply of parking in the downtown area. Intended for short term use, on street metered parking has the positive characteristics of being highly visible, generally close to one's destination and relatively inexpensive. Unfortunate7y, the cost of inetered parking for the entire day is generally less than all day off street parking. This has 7ed to the practice by some downtown employees of "plugging the meters". As a result, these spaces are lost for short term use. This practice can be discouraged by sensitively raising parking meter rates to a point where off street parking becomes more attractive to employees. 10 Even though on street metered parking is short term parking, it has the disadvantage of decreasing street capacity, causing congestion which results in air pollu- tion, noise, safety and aesthetic problems. When conges- tion builds to the point of being more detrimental to the CBD, than beneficial , on street parking should be removed. OBJECTIVE 3 DEVELOP A FINANCIAL SYSTEM TO SUPPORT THE DOWNTOWN PARKING PROGRAM BY 1980. COMMENT Financing is one of the most important elements in a parking program; unless a parking program can be financed it stands little chance of becoming a reality. POLICY 7 THE CITY SHOULD PLEDGE ALL NET INCOME GENERATED BY CITY OWNED OR OPERATED PARKING FACILITIES TO A DEDICATED FUND WHICH SHOULD BE USED TO MEET VARIOUS CITYt-JIDE PARKING NEEDS. ALL CITY OWNED AND/OR OPERATED PARKING SHOULD BE PLACED UNDER A CENTRAL MANAGEMENT CONTROL. � ��COMMENT ` A first step in the development of an effective financial pro�ram is for all city owned and operated parking facilities to be placed under a central management con- trol . Current city owned facilities are under different department authorities resulting in fragmented and some- times competing operating procedures. Unless all city parking operations are brought under a central management control first, there is little chance of developing a coordinated public private parking program in the downtown area. A second step is that the city should pledge all net income generated by city owned or operated parking facilities to a dedicated parking fund. Currently, the City of St. Paul and its related agencies are deriving a substantial income from city owned parking operations. These incomes are used as a source of revenue to the city's general fund and agencies activities. Creation of a dedicated parking fund would allow these public system generated revenues to be used as a financial base for the city parking program. In that way, pricing and other incentives can be used to manipulate parking demand in a manner that is consistent with city development and transportation goals. 11 POLICY 8 THE CITY SNOULD IP1PLEMENT PROGRAMS THAT GIVE THE PRIVATE OPERATORS AN OPPORTUNITY TO PARTICIPATE. ALSO, THE CITY SHOULD ASSIST PRIVATE ENTERPRISE TO PROVIDE PRIVATE PARKING WHEN NEEDED AND IN CONFORMANCE WITH CITY TRANS- PORTATION, DEVELOPMENT AND CAPITAL RESO�RCE ALLOCATION PLANS WHENEVER POSSIBLE THROUGH ASSISTANCE IN LAND ASSEMBLY AND BOND FINANCING OR OTHER PROGRAMS AVAILABLE TO THE CITY. COMMENT Private parking operators play an important ro7e in providing efficient parking operations in downtown St. Paul . Their businesses should not be hurt by com�e�ition from city owned facilities; rather, they should play an integral role in the total coordinated parking system and its financial program. In certain instances the private sector may require public assistance in the development of private parking facilities. This assistance may take the form of land assembly, bond financing and other programs available only to the city. This public assistance, � however, should only be provided in cases of determined need and when such private parking projects are in conformance with city transportation, development, and capital resource allocation plans. POLICY 9 ST. PAUL GENERAL TAXES SHOULD NOT BE USED TO SUQSIDIZE THE PARKING NEEDS OF PRIVATE ENTERPRISE UNLESS SUBSIDIZA- TION IS THE ONLY FEASIBLE MEANS OF IMPLEMENTING THE CENTRAL BUSINESS DISTRICT PARKING POLICY PLAN. COMMENT � In the proposed parking program for downtown St. Paul , certain parking facilities and operations necessary to support downtown activities may not be able to support themselves with user fees. A coordinated system is necessary such that these facilities and operations can be supported by other facilities in the system or by property owners and tenants who benefit from the parking system. However, it is possible that in some instances or stages in the development of the coordinated system, that some limited financial assistance may be required from St. Paul 's general tax revenues. This limited assis- tance, however, should only be used as a last resort when it is the only feasible means of implementing the parking program. As a general rule the parking program should be primarily supported by system generated revenue and then by property owners and tenants who benefit from its operation. 12 � � This policy plan offers a commitment to a coordinated private public approach to downtown parking. Adoption and continued application of t hese recommended policies will insure the development and operation of an effec- tive parking system that is responsive to the current a nd future needs of downtown St. Paul . l3 , � CREDITS PLANNING COMMISSION Martha P�orton, Chairman **David McDonell OF ST. PAUL Liz Anderson Jean McGinley James Bryan Deborah Montgomery Carolyn Cochrane *Jane Nelson *Haroid Feder *Martha Norton Sam Grais Joseph Pangal *Carolyn Grittner Catherine Piccolo Glen Hanggi Harvey Stegemoeller *Otto Hummer Gayle Summers Nelsene Karns Adolf Tobler *Mertyce Mayne *Robert Van Hoef *Member, Economic Development Committee **Chairperson, Economic Development Committee PARKING C MMI SION Gary Tan enoff, C a�rman OF ST. PAUL A. C. Claseman Jack Geller James 0'Hara Barbara Penn Frank Schneider A. Kent Shamblin ADMINISTRATION AND James Bellus, Planning Administrator POLICY DIRECTION Maureen McAvey, Principal Planner RE EARCH AND PLANNING James Zdon, Planner-in-C arge Gerald P1angle, Parking Administrator Allan Torstenson, Planning Intern GRAPHICS Eric Muller, Art Director Thomas Ashworth, Graphic Artist 14 . � , _. , ��itJ61�� ...�. • SAINT PAUL CEIo1TRAL BUSINESS DISTRICT PARKING POLICY PLAN FEBRUARY 1978 , REVISED SEPTEMBER 1978 t .,�. ,;;;.«: ::;.>:<�:�:.:;..:..:fi>.::,,;.;•::;.:.. ::<..... ::::t;n::: W,i ::.k.n3.;�,w.c?):y,+, �.��. _ . .. ......;.. :.;.•::' '•.': ' ::•:; •: 'r:�' .:. ,•..,'..:,•::�.> ��.. .... .. ...�,+. .::::.:.:.�. �::•.. ..:....::o::.:�:�•::��.. . �. : ..f. ..Y:s.� .A..r ..�'+'�.. ':.. . . ,� . . . ,.:. ..:•:.:.... :..o:::::::: ..:�:...::.:�...,. . -�' . . .$ .. ��.. . r,. .. ....... ::......::::::>�:ra::::::::;ir�:i<•�. •. •O ...�`.v� ::Y.. 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' . ........... ........... � r�... .< ;..:::....v::::n....r.... � .... : ...::}::.i:i:::'i:i:::.':i:.i.i:•::�:�::•::•.:...:....^ 'C . .�:n ... � .. •::'.:iiv+4'�:::.:::.i':.;. .................................. . ..................:...::........�::.:....... .:.� ...:::i:•:ii:i:.v:�:. . . . ....:::.:.. ' ::: . .::p::::r''' ....:::n:� .......:w:::i:�'[:: � ::•:i.��Z• \: ..ki: ....�...y.+i::::::.. . •• .., ;:;Myh:.i�' \.. v..:::::::::'.•i�.�i:ii:t:::ii::ii'�i'�:''r'"�'4��" .. ... ... � ..:v. � j�� '� n3 y � ^-0 f . .... ..�y: T ' ;�� ,',�a � , ?e�' . . , K9l1.� '. . ' _ . . . . .;k�v . �.' ....... v..... ' : �. DIVISION OF PLANNING DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT CITY OF SAINT PAUL 421 WABASHA S�EET SAINT PAUL, MINNESOTA, 55102 TELEPHONE: 612-29&4151 D D D � D D ST. PAUL CENTRAL BUSINESS DISTRICT POLICY PLAN - DRAFT IV PREMISE Parking is a necessary support service to downtown activities. Without an effective parking system, down- town activities will fail to have the opportunity to grow and prosper. PLANNING PRINCIPLES To be considered in the formulation of a ''St. Paul Central Business District Parking Policy Plan". PREAMBLE The Parking rolicy Plan sha71 support and relate to development, transportation and capital resource alloca- tion plans and policies for St. Paul . 1 .The Central Business District Parking Policy Plan must be comprehensive. _- _ -- 2':�owntown is more than a "shopping center". It is a muiti- functional center. 3.There are zones within the CBD that suggest different parking rate structures. POLICY RECOMMENDATIONS The Proposed Parking Policy Plan for the downtown consists of: OBJECTIVE COMPLETE AN EFFECTIVE FRINGE PARKING SYSTEM BY 1983. PDLICIES l .Long term parkers should be attracted to the fringe facilities by pricing. 2.New fringe parking facilities should be provided as needed. OBJECTIVE COMPLETE AN EFFECTIVE SHORT TERM PARKING SYSTEM BY 1983. POLICIES 1 .Short term parkers are those who require convenient parking for the purchase or use of goods or services. 2.Additional city owned parking within the CBD should not be built unless there is a need for "special purpose" or short term parking. Special purpose parking is defined as those parkers who will not use the fringe facilities regardless of price. SAINT PAUL CITY PLANNING, 421 WABASHA STREE�', SAINT PAUL, MINNESOTA 55102 1 D D D C� D D 3.Short term parkers should be attracted to the CBD by convenience and pricing. Convenience: Short term off street parking should be distributed throughout the CBD. Price: The rate structure should be free or very cheap for the initial part of the time period parked. As the amount of time increases, so should the fee. 4.Parking meter pricing should discourage long term parking. When traffic congestion builds to the point of being detrimental to the CBD, meters should be removed. OBJECTIVE DEVELOP A FINANCIAL SYSTEM TO SUPPORT THE DOWNTOWN PARKING PROGRAM BY 1980. _ __ .... POLICIES 1�.The city should pledge a11 net income generated by city owned or operated parking facilities to a dedicated fund which should be used to meet various city-wide parking needs. All city owned and/or operated parking should be placed under a central management control . 2.The city should implement programs that give the private operators an opportunity to participate. Also, the city should assist private enterprise to provide private parking when needed and in conformance with city trans- portation development and Capita7 Resource Allocation Plans whenever possible through assistance in land assembly and bond financing or other programs available to the cityo 3.St. Paul general taxes should not be used to subsidize the parking needs of private enterprise unless subsidi- zation is the only feasible means of imp7ementing the Central Business District Parking Policy Plan. SAINT PAUL CITY PLANNING, 421 WABASHA STREE�, SAINT PAUL, MINNESOTA 55102 'I 1 TABLE OF CONTENTS 1 .0 INTRODUCTION � 2.0 PROBLEMS AND ISSUES 3 3.0 PLANNING PRINCIPLES 5 4.0 OLICY FRAMEWORK � _} a iii ' � 1 .0 INTRODUCTION Automobile parking is a major issue within the St. Paul Central Business District. The provision of parking is no longer a simple isolated development proposal , but has become a complex planning problem. The issue deals with the parking basics of supply, cost, location, and utilization patterns. It also is related to public transportation, highest and best use of downtown land and downtown streets, internal automobile and pedestrian circulation, and availability of public and private funds. Another aspect of this issue are environmental concerns, such as air pollution, and the impact which large amounts of parking have on a downtown area's air quality standards. A final , and very important aspect of this issue is how the provision of parking, with all of its environmental , transportation and land use implica- tions, relates to the economic prosperity and development objectives for the downtown area. It is time for private and public parties, acting in unison, to address the man�� facets of St. Paul 's downtown parking problem. How the parking issue is resolved will have a direct bearing on the growth and development opportunities for the St. Paul Central Business District. The purpose of this report is to outline a parking policy ' plan for St. Paul 's CBD. It is intended that this policy plan will serve as a framework for shaping, guiding and e valuating parking operations and developments within the CBD area. It is also intended to become part of the citywide comprehensive plan. The policy plan is based on data and findings generated in the 1974 "St. Paul Parkiny Policy Study" and addi- tional research conducted by the St. Paul Department of Planning and Economic Development. The policy p7an will attempt to answer the major questions and concerns identified in these study efforts. This policy plan is based on a number of assumptions. First, it is assumed that the automobi7e will remain the predominant transportation means within the metropolitan area. Automobile characteristics, fuels and power systems will likely change, but the private automobile will continue to be the primary means for serving the work, shopping and recreational travel needs of the American public. Second, it is assumed that parking is an essential support �ystem to downtown activities. Parking system performance should be judged in terms of how parking will contribute to the prosperity and effec- tiveness of downtown activities. Third, it is assumed that the development of a downtown parking plan and system must take guidance from adopted planning and development objectives for the downtown area. The operation and development of a parking system must be consistent with � the-objectives that the city is attempting to achieve in its doWnto�n. The Capitol area is not directly addressed in the plan because it has its own planning responsibility and unique demand structure. However, the Capitol and CBD are not separate entities. Land use and parking demand inter- ' relationships exist and it is intended that the plan's concepts, strategies and policies will be a positive influence on the Capitol area's parktng system. St. Paul should work with the Capitol Area Architectural Planning Board to alleviate any problems that may arise. :� , 2 2.0 PROBLEMS AND ISSUES 2.1 PROBLEM IDENTIFICATION Current parking operations have had a negative impact upon downtown St. Paul . Downtown St. Paul 's parking problem, however, is complex and consists of several interrelated parts. First are those identified problem areas which reflect the parking system's inadequacies in � providing an effective service. Second are related negative impacts which partially stem from the service inadequacies. Lastly, are the factors which are at the root of "the parking problem". Identified problems of the CBD parking system are: a.Lack of convenient short term parking for shoppers, patrols and visitors at an acceptable price. b.Conflicting public and private parking operations. c.Predominance of all day employee parking within the downtown core. Related impacts of the problems are: a.Curtailed downtown development. b.Declining retail strength. - --- - ��::�.Air emission violations. d.Underutilization of downtown land resources. e.Visual blight. Primary factors for the problems include: a.Lack of public and private consensus as to what direc- tion and form CBD parking should take. b.Lack of an effective mechanism to control the develop- ment and operation of CBD parking facilities. c.Continued predominance of the single occupant automo- bile for CBD work trips. :i � . 3 2.2 ISSUE IDENTIFICATION The identified parking problems were based on an analysis of the current CBD parking situation. Projections have also shown that demand for short term and long term parking spaces will increase in the years ahead. In resolving these current problems and the consequences of � future demand projections, the City of St. Paul must address a series of critical policy issues. How these issues are resolved in terms of policy direction will � have a direct bearing on the development of the CBD parking system. The issues are: a.What should be the overall downtown development policy. Consensus as to the downtown area's purpose, functions and physical development is necessary if a responsive parking system is to be shaped. b.What should be the level of control over downtown parking facilities. Should parking faci7ities, their size, location and rates be left solely to market demand forces or should some form of control be applied, and if so, how much? ___ ___--__ "'c'.What should be the level of resource commitment to the future parking system? Should the demand for additional parking spaces be completely satisfied with new facili- ties by the public and private sector, or should some restraints be imposed? d.What are the most appropriate locations for parking facilities? Where should facilities for ]ong term employee parking be built? What are the best locational patterns for short term visitor, shopper, and patron parking? What should be done regarding on street parking? These locational issues on parking must be addressed if no CBD development is to occur in an effective manner. e.What is the role of public financing in the downtown parking system. Should the City of St. Paul invest public tax dollars into parking and if so, what should be the city's priorities. It is only in the context of addressing these policy issues that an effective parking plan can be developed. The following sections dealing with objectives and policies are directed toward the resolution of problems and issues which typify today's CBD parking system. -} � 4 3.0 PLANNING PRINCIPLES Development of the Central Business District parking policy plan is based on a framework of planning princi- ples. These principles are intended to identify what the scope of the plan should be and how it should address the various parking issues. In effect, the principles are criteria �o be used for governing the development of the policy plan. They include: PREAMBLE THE PARKING POLICY PLAN SHALL SUPPORT AND RELATE TO DEVELOPP1ENT, TRANSPORTATION AND CAPITAL RESOURCE ALLOCA- TION PLANS AND POLICIES FOR ST. PAUL. COMMENT In a downtown urban environment, as in St. Paul , economics, land use, transportation and parking are closely related factors which interact to produce the development charac- teristics and potential of the CBD. None of these ele- ments are autonomous, but rather each must be viewed as � a subsystem interrelated to other downtown activities. It is clear that the resolution of the parking issue does not rest exclusively in a forecasted number of future . , parking spaces required. Rather, it must be resolved in the context of what broader social , economic and physical goals St. Paul wants to achieve in its CBD. To that end, the parking plan must support and relate to St. Paul 's current development, transportation, and capita7 resource allocation planning efforts. PRINCIPLE 1 THE CENTRAL BUSINESS DISTRICT PARKING POLZCY PLAN MUST BE COMPREHENSIVE. COMMENT Downtown parking is a complex problem involving several issues which effect both public and private sectors. This principle recognizPs that if the policy plan is to be effective it will have to address the major issues effect- ing parking. These issues identified earlier include parking relationship to development, supply, location, and utilization practices, private and public resource corr�nitment to parking and the manner of control over parking operations. 5 PRINCIPLE 2 DOWNTOWN IS MORE THAN A "SHOPPING CENTER". IT IS A MULTI- FUIVCTIONAL CENTER. COMM�NT Both the Metropolitan Council Development Framework Policy Plan and the St. Paul CBD Concept Plan state that down- town St. Paul should be multi-functional in nature. The intent is that the downtown should be more than just an employment center or a government center, but also a place to work, shop, live or play. It is maintained that the strength of downtown is dependent upon the successful integration and support of all activities. This principle recognizes these development objectives for the downtown and the need for the parking policy plan to lead to the development of a balanced parking system that effectively serves the travel needs of employees, shoppers, patrons, visitors and residents. PRINCIPLE 3 THERE ARE ZONES WITHIN THE CBD THAT SUGGEST DIFFEREN7 • RARKING RATES. COPIMENT This principle recognizes the existing and p7anned development character of downtown St. Paul . Currently, the most intensely developed area of downtown St. Paul is an area bounded by St. Peter, 9th Street, Jackson Street, and Kellogg Boulevard. Development plans, however, foresee the expansion of this intense development pattern to an area roughly bounded by Kel7ogg Boulevard, Smith Street, I-94, and Broadway Avenue. Outside of this area, development patterns are planned to be of ]esser inten- sity. For the Parking Policy Plan, these development patterns imply different parking needs and suggest different parking rates which reflect downtown land values. 6 4.0 POLICY FRAMEWORK The intent of this section is to provide a policy frame- . work of how downtown St. Paul 's parking system should develop and operate. The framework consists of objec- tives which identify specifically what should be done and when, and policies to guide the manner in which these ' objectives are to be achieved. OBJECTIVE 1 COMPLETE AN EFFECTIVE FRINGE PARKING SYSTEM BY 1983. COMMENT The provision of parking for downtown St. Paul 's employees is a major issue. The downtown area is a concentrated employment center of approximately 65,000 employees. Currently, the downtown parking system is oriented to serving the ernp7oyee parking demand. All day parking is readily available and relatively inexpensive. However, with increased development the downtown's supply of surface parking lots will decrease plus additional employees will be added to the area. This coupled with the demand to provide additional short term parking wii.l further decrease the number of long term parking '`-�spaces for employees. The recommended solution to this problem is the deve]opment of a fringe parking system. Fringe parking facilities are those located on the peri- phery of the intensified center. For a fringe parking system to be operationally successful , however, the following elements are required: First, attractive, safe, and visible parking facilities which are appropriately sited near major thoroughfares to intercept corrnnuter traffic; second, fast, convenient, reliable and low fare transit 7inks which connect the parking facilities to downtown destinations; third, a coordinated parking rate system that attracts commuter parkers to the fringe parking facilities; and fourth, integration of these elements into an operational service program. The proposed Downtown People Mover and the Fringe Parking System would be mutually supportive. The DPM makes travel between the fringe parking facilities fast and convenient, thus making the Fringe Parking System attrac- tive to parkers. The Fringe Parking System, on the other hand, adds ridership to the DPM system, improving the ability of the system to cover operation costs through user charges. The Fringe Parking System, therefore, should be coordinated with the proposed start of the DPM in 1983. � , 7 POLICY 1 LONG TERM PARKERS SHOULD BE ATTRACTED TO THE FRINGE FACILITIES BY PRICING AND OTHER INCENTIVES. COMMENT Since parking in a fringe facility means sacrificing a � certain amount of time and convenience in traveling to a downtown core location, incentives are necessary to attract parkers to fringe parking facilities. Incentives, such as pricing, leave parkers the freedom to park in the downtown core if, for their particular situation, the incentives aren't great enough. POLICY 2 NEW FRINGE PARKING FACILITIES SHOULD BE PROVIDED AS _NEEDED. COMMENT Fringe parking increases downtown accessibility by reducing core area congestion and freeing up existing parking facilities in the intensified center for other uses. If new fringe parking facilities are to be _ ______ „p.rovided as needed, the capacity of those fringe parking �facilities must be sensitive to the total demand for fringe parking by long term parkers. At the same time, over building of fringe parking facilities can be extremely costly. Ongoing evaluation of employee travel needs, alternative transportation modes and programs, and a correspondingly staged building program is necessary to meet, but not exceed, demand. OBJECTIVE 2 � COMPLETE AN EFFECTIVE SHORT TERM PARKING SYSTEM BY 1983. COMMENT A critical part of the downtown parking plan is the recommendation to satisfy the demand for short term shopper, visitor and patron parking. If the downtown area is to remain competitive it will have to provide the same level of accessibility that suburban comnercial and retai7 centers now have. This accessibility takes the form of parking facilities which are inexpensive, convenient to use, easily identified and close to trip destination. Short term parking facilities which have the above characteristics are essential to the growth and prosperity of the downtown area. Coupled with fringe parking an effective short term parking system provides a balanced parking system for meeting the automobile travel needs generated by the downtown area. _} � 8 POLICY 3 SHORT TERM PARKERS ARE THOSE WHO REQUIRE CONVENIENT PARKING FOR THE PURCHASE OR USE OF GOODS OR SERUICES. COMMENT Short term parking needs are generated by almost every function of downtown, all of which must be met. Short term parking must not only respond to the needs of shoppers, patrons and visitors, but also have the flexibility to support a wide range of short term travel needs generated by downtown employees, i .e. , salespersons. POLICY 4 ADDITIONAL CITY OI�JNED PARKING WITHIN THE CBD SHOULD NOT BE BUILT UNLESS THERE IS A NEED FOR "SPECIAL PURPOSE" OR SHORT TERM PARKING. SPECIAL PURPOSE PARKING IS DEFINED AS THOSE PARKERS WHO 4JILL NQT USE THE FRINGE FACILITIES REGARDLESS OF INCENTIVES. COMMENT The development of fringe parking facilities on the peri- phery of,the downto�vn is intended to serve the all day ____ employee parkers. Within the doam town, however, parking °'-i�s intended to meet the needs of short term or "special purpose" parking. Special purpose parking is defined as those parkers who will not use the fringe facilities regardless of incentives. Currently, the downtown area is characterized by a large supply of parking and competing demands on that available supply by short term and all day employee parkers. Whether this existing supply is sufficient to meet these competing demands will depend on a detailed analysis of need. This analysis would include documentation of demand generated by down- town development, daytime, evening and weekend conversion possibilities of existing public and private facilities to short term use, impact of incentive fringe parking measures on all day parkers, and analysis of the unique travel behavior patterns generated by diverse downtown functions. Unless this need has been firmly established, additional city owned parking within the CBD should not be built. g 5 � POLICY 5 SHORT TERM PARKERS SHOULD BE ATTRACTED TO THE CBD BY CONVENIENCE AND PRICING: CONVENIENCE: SHORT TERM OFF STREET PARKING SHOULD BE DISTRIBUTED THROUGHOUT THE CBD. PRICING: THE RATE STRUCTURE SHOULD BE FREE OR VERY CHEAP FOR THE INITIAL PART OF THE TIME PERIOD. AS THE AMOUNT OF TIME INCREASES, SO SHOULD THE FEE. COMMENT If the downtown area is to remain competitive with suburban cor�nercial and retail centers then the downtown must have short term parking that is convenient, and free or very cheap. Convenience is an important factor and takes the form of parking that is close to trip destina- tion. Downtown does not consist of one single activity center but consists of a variety of activities spread throughout the downtown area. These activities whether they are retail , corr�nercial , office, service or govern- ment, all generate some level of demand for short term parking. If short term parking is to be effective then short term parking facilities must be distributed throughout the downtown to match the distribution of _________ downtown activities. Free or very cheap parking rates is a second important attribute of effective short term parking. Approximately 85% of short term parking occurs, within two hours ar less. For this initial time period parking rates should be free or low cost. However, as ane parks longer, parking rates should increase to discourage long term parking and guarantee a turnover of short term parking spaces. POLICY 6 PARKING METER PRICING SHOULD DISCOURAGE LONG TERM PARKING. WHEPd TRAFFIC CONGESTION BUILDS TO THE POINT OF BEING DETRIMEP�TAL TO THE CBD, METERS SHOULD BE REMOVED. COMMENT On street metered parking represents a small but signifi- cant supply of parking in the downtown area. Intended for short term use, on street metered parking has the positive characteristics of being highly visible, generally close to one's destination and relatively inexpensive. Unfortunatelys the cost of inetered parking for the entire day is generally less than all day off street parking. This has led to the practice by some downtown employees of "plugging the meters". As a result, these spaces are lost for short term use. This practice can be discouraged by sensitively_raising parking m�ter rates to a point where off street parking becomes more attractive to employees. > 10 Even though on street metered parking is short term parking, it has the disadvantage of decreasing street capacity, causing congestion which results in air pollu- tion, noise, safety and aesthetic problems. When conges- tion builds to the point of being more detrimental to the CBD, than beneficial , on street parking should be removed. OBJECTIVE 3 DEVELOP A FINANCIAL SYSTEM TO SUPPORT THE DOWNTOWN PARKING PROGRAM BY 1980. COMMENT Financing is one of the most important elements in a parking program; unless a parking program can be financed it stands little chance of becoming a reality. POLICY 7 THE CITY SHOULD PLEDGE ALL NET INCOME GENERATED BY CITY OWNED OR OPERATED PARKING FACILITIES TO A DEDICATED FUND WHICH SHOULD BE USED TO h1EET VARIOUS CITYI�JIDE PARKING NEEDS. ALL CITY OWNED AND/OR OPERATED PARKING SHOULD BE PLACED UNDER A CENTRAL MANAGEMENT CONTROL. _ __--- "'��OMMENT A first step in the development of an effective financial pro�ram is for all city owned and operated parking facilities to be placed under a central management con- trol . Current city owned faci7ities are under different department authorities resulting in fragmented and some- times competing operating procedures. Unless all city parking operations are brought under a central management control first, there is little chance of developing a coordinated public private parking program in the downtown area. A second step is that the city should pledge all net income generated by city owned or operated .parking facilities to a dedicated parking fund. Currently, the City of St. Paul and its related agencies are deriving a substantial income from city owned parking operations. These incomes are used as a source of revenue to the city's general fund and agencies activities. Creation of a dedicated parking fund would allow these public system generated revenues to be used as a financial base for the city parking program. In that way, pricing and other incentives can be used to manipulate parking demand in a manner that is consistent with city development and transportation goals. 71 ; � POLICY 8 THE CITY SHOULD IMPLEMENT PROGRAMS THAT GIVE THE PRIVATE OPERATORS AN OPPORTUNITY TO PARTICIPATE. ALSO, THE CITY SHOULD ASSIST PRIVATE ENTERPRISE TO PROVIDE PRIVATE PARKING WHEN NEEDED AND IN CONFORMANCE WITH CITY TRANS- PORTATION, DEVELOPMENT AND CAPITAL RESO�RCE ALLOCATION � PLANS WHENEVER POSSIBLE THROUGH ASSISTANCE IN LAND ASSEMBLY AND BOND FINANCING OR OTHER PROGRAMS AVAILABLE TO THE CITY. COMMENT Private parking operators play an important role in providing efficient parking operations in downtown St. Paul . Their businesses should not be hurt by com�e�ition from city owned facilities; rather, they should play an integral role in the total coordinated parking system and its financial program. In certain instances the private sector may require public assistance in the development of private parking facilities. This assistance may take the form of land assembly, bond financing and other programs available only to the city. This public assistance, � �-however, should only be provided in cases of determined . need and when such private parking projects are in conformance with city transportation, developmerrt, and capital resource allocation plans. POLICY 9 ST. PAUL GENERAL TAXES SHOULD NOT BE USED TO SUQSIDIZE THE PARKING NEEDS OF PRIVATE ENTERPRISE UNLESS SUBSIDIZA- TION IS THE ONLY FEASIBLE MEANS OF IMPLEMENTING THE CENTRAL BUSINESS DISTRICT PARKING POLICY PLAN. COMMENT In the proposed parking program for downtown St. Paul , certain parking facilities and operations necessary to support downtown activities may not be able to support themselves with user fees. A coordinated system is necessary such that these facilities and operations can be supported by other facilities in the system or by property owners and tenants who benefit from the parking system. However, it is possible that in some instances or stages in the development of �he coordinated system, that some limited financial assistance may be required from St. Paul 's general tax revenues. This limited assis- tance, however, should only be used as a last resort when it is the only feasible means of implementing the parking program. As a general rule the parking program should be primarily supported by system generated revenue and then by property owners and tenants who benefit from its operation. i 12 This policy plan offers a commitment to a coordinated private public approach to downtown parking. Adoption and continued application of t hese recommended policies will insure the development and operation of an effec- tive parking system that is responsive to the current a nd future needs of downtown St. Paul . � � 13 r • CREDITS PLANNING COMMISSION Martha P�orton, Chairman **David McDonell OF ST. PAUL Liz Anderson Jean McGinley James Bryan Deborah Montgomery Carolyn Cochrane *Jane Nelson *Haroid Feder *Martha Norton � . Sam Grais Joseph Pangal *Carolyn Grittner Catherine Piccolo Glen Hanggi Harvey Stegemoeller *Otto Hummer Gayle Summers Nelsene Karns Adolf Tobler *Mertyce Mayne *Robert Van Hoef *Member, Economic Development Committee **Chairperson, Economic Development Committee PARKING C MMI S ON Gary Tan enoff, C a�rman OF ST. PAUL A. C. Claseman Jack Geller James 0'Hara Barbara Penn Frank Schneider A. Kent Shamblin ADMINISTRATION AND James Bel]us, Planning Administrator POLICY DIRECTION Maureen McAvey, Principal Planner RE EARCH AND PLANN G James Zdon, Planner-in-Charge Gerald hlangle, Parking Administrator --- Allan Torstenson, Planning Intern GRAPHICS Eric Muller, Art Director Thomas Ashworth, Graphic Artist �__; _} � 14 _ , _ �`�.�� ? � aM Ql; ��/i9?S' , � � � ,� ` J ; �v� : 9j8�'76` . � , 8 ATIt} Q�' A�i�,� I � T�. @RI3EI� � �� . . . . �," RE �: C3►NS � �, • r 3 � . ; ��'�� ' � � �� ,�UH 2 ., . €�a��. : �►"�S +� , : , F, . � � �� b;. �, ,�: MAY4� �EARGT. LATIM�R J� . ' �, ': , � _ �, ,.1�`'R: � ��3,� �'�►ttinq Ad��r�istt�rtq�',� ';' ,.;. . : ,�.:, �� - �� . _ , :. :. � ' � ° �s ��IM1��.'��.��Q�str�c� P��rking ,k�;li�y �laa p � * , � � 4 . i � �� . , �� . �_ �� UN �19 t97� r „�, _ , � ��k �,�� ; �.�a, �, . t±�r ��.' , ,, . . _ Cl i�t tir `�uc�,�t�Y � , : ,�fM ��. ;I�ww��i��r�� c��► ��.�a�r �� ;��4 It� ` . lfJ 1 . . . � ,yi ��i � . .: '� �� .��Fl1.. �� - . �F ��,� � ��mr �. .s� �' d '�.� �� =�� .'� �l�� :��. � t� � v ; � � '. � , �,: �; '� � �� , �� :� , ; ;� F, � .>: , _ ' � ' , ��.;. �� . �J��t3SE: A�U .��'�£�NA�.B F4# ',�� ACTIt?N: �+- � # % _ "�� 6�t: �i�ss #3�f�#�t P�r�C��ng � �c�r P3�n is a�+ �c�"��-�� : � � � a@ , �.i t,�t �►'�°��. ��1's �r1�r�etS i r►e R��ln am� r�i�res C i ty Ga��i l �� . �"� iP ��Il��11#. i . 3 � �F p , �. . _ . . . . . � � � v ��n:{�� F�; . � . . . . � . � � . ... . .. . � . � .. . . . ; . - . ., . , � � . . . . .. , . , � .. . , . . .. . . . . . � � . . .. . _ - ,i �,� ;.,ATTAC,`F�M�'S�C" � � , . �� '#.. P�;��,��s'#� �1r�ti�c�n . , ; � . -� �. ��►��4�i1 :i#�t��#t�r� � � � � ' �. � � ��s ��_tF�e �et�a�l ��s� -t�i��C# �.��'f�#�� t. 3 �, '., , � _ + . � � �. Y - ��, � , , , , , �. ;: . . LJ.I_ _L. .L `= ..._�. _ . ' - , _ . __,� . ^ �� .;= ; . -,i`-f t;4�; 7:' 'J.'s:i!�: {�',.'i"r" G�:)CT1 C_:?7� %�- i :� •- O:t• '.;.� . � � : � � . j ,' .t�.- -�1 ; ;1 . ,��.'\�� ,��-�{ Da► e : August 8, 1979 ,.` �:�� G � �',-� .,,,� �`i T � s~ `� '� �� t� it � � d) �.�t �' � � 3:.. - •`i ' j O : �Glili r au1 Ci��,t Coun �il _ � F�; � �i� � C O ii1 i73 I�i�� O il CITY DEVELOPMENT AND TRANSPORTATION . �. Leonard W. Levine , c�difman, ma�ces the fottc�.{iinc� repori� on C. F. � � Ordinar�ce � � (� Resolu'�ion . � O�t�et� � � �� -� � Resol uti on adopti ng the Central Busi ness Di stri ct Parking Policy Plan as an amendment. to the St. Paul Comprehensive Pl.an. � The �Committee recommends approval of - � this resolution. . � � � n � . ,� G'� N^� Attachment . ��" ``°'' � -L�C� y,z, -t, . - �� n�, r= . ��' � ° _ �� . . . . . . . �T � . � � . . . . . �> ..� . � .. m i.n . ��, Srl!\�F F'.•LIi., '•E�\�:c��C�-C:. ;J?_�, ; 77�' i:.. .L ��;'di 'ti"I�I i'I.C%. ._Z � -