SR-417-005 (5)
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INFORMATION ITEM
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Santa Monica, californiwoV 1 7 1987
November 31 1987 ,
FROM:
The Mayor and City Council
city staff
TO:
SUBJECT: Administration and operation of Parking Meters in the
Downtown Parking structures
INTRODUCTION
This report provides City Council with information regarding the
administration and operation of meters in the downtown parking
structures and responds to concerns raised by the churches
located in the Mall area.
Mayor Conn and councilmember Reed
requested on July 14, 1987 that staff meet with downtown church
representatives regarding the hours of meter operation and inform
council of the administrative and operating plan for the downtown
parking structures.
BACKGROUND
On June 23, 1987 the city Council approved in concept the
purchase and installation of parking meters in the six downtown
parking structures and a concomitant reduction of the Mall
Maintenance Fee which is levied against all holders of business
licenses in the Third street Mall and Downtown Maintenance
District. This action occurred as a result of an earlier Council
concern that the Maintenance Feel enacted during August of 19861
was becoming a burden to the economic health of businesses on the
Mall.
council requested staff to evaluate the equity of the
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NOV 1 0 1981
IIW 1 7 1987
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formula which determined the Maintenance Fee.
To pursue the
eva1 uation City
staff
and the Third street
Development
Corporation (TSDC) organized a representative group of District
property owners, merchants, professional office tenants and the
Chamber of Commerce to form a Joint Committee. City staff met
with the Joint committee frequently to determine a fair and
equitable level for the Maintenance Fee.
Following an extensive review of the revenues and expenses
generated by the District, it was the recommendation of the Joint
Committee that the council should lower the Maintenance Fee from
the prevailing five times business license tax to three times.
To offset this reduction of revenue to the District, the Joint
Committee further recommended that the Council approve the
installation and use of parking meters within the six downtown
parking structures. This latter recommendation recognized that
the parking structures were the only viable district asset which
could generate sufficient funds on an equitable basis.
The recommendation of parking meters was submitted by the Joint
Committee following extensive research and discussion.
City
staff provided the Joint Committee information about successful
parking structure meter operations in other cities.
Also, the
City's Parking and Traffic Engineer provided consultation
regarding meter equipment, pricing and term strategies. In
addition to this information, the Joint Committee sought fe~dback
from
various
community
groups
and
organizations.
The
recommendation of meters was submitted by the Joint Committee
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with a suggested outline of operations and has been refined by
City staff as follows:
1. Allocation of Meters
Having different user groups in the various parking
structures made consideration of short and long-term parking
meters imperative. A significant, existing parking problem
identified by the majority of Mall groups and individuals was
long-term employee parkers' control of the parking spaces on
the lower levels of parking structures through early arrival
in the morning hours. The short-term retail, restaurant or
service business patron could seldom find parking available
on lower levels of a structure and were discouraged by the
need to proceed to a structure's upper levels during a brief
visit to the Mall.
To mitigate this problem, parking meters are allocated
in the structures according to the following maximum time
limits: 10% - one hour; 50% - four hour; and 40% - twelve
hour.
Generally, it was felt that the long-term parker
utilizes the structure on a recurring, if not daily, basis
and is more capable of parking in slightly less convenient
spaces and utilizing the elevator system. In contrast, the
short-term parker may be either a newcomer, unfamiliar with
the elevator service to upper floors, or a shopper/consumer
desiring to conduct a quick errand on the Mall and not
willing to spend the time to access the upper floors.
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Analogous to the turnover concept of green curb zones on
many streets, the lower levels of the various parking
structures were allocated one hour meters. The intent is to
create frequent turnover of spaces for those desiring a brief
visit to the Mall area.
The middle levels of the various
parking structures were allocated four hour meters for
shoppers, restaurant patrons, day-time movie goers and
persons conducting business in the Mall area. The majority
of meters in the parking structures are four hours. Twelve
hour meters are allocated to the upper levels of the parking
structures to service the recurring office user or retail
employee. These parkers are frequent, if not daily, users of
the structures and have more tolerance to overcome the minor
obstacles of accessing upper level parking spaces and riding
elevators than a short-term parker picking up a prescription
at a pharmacy.
This long-term parking area provides ~
positive solution to the former problem of "parker switching"
(To avoid the mandatory short-term time limit in the
structures, long-term office parkers would frequently move
and/or switch parking spaces in the structure causing
unnecessary circulation problems and depriving other parkers
the opportunity to utilize spaces). Finally, the twelve hour
time period allows those arriving as early as 6 a.m. to make
one payment for a complete day of parking.
2. Type of Meters
A meter assembly consists of the base, pole and head.
The pole and base are ancillary pieces of equipment to
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support the meter head. The base can be mounted on the
floor, or nearby wall. The pole can support either one or
two meter heads. Installation specifications mandated wall
mounted, dual meter head poles to create maximum space
efficiency in the parking structures.
The parking meter head contains the time, coin and
display mechanisms. Several styles of meters were available
for purchase including coin operated traditional display,
coin operated digital display, optional coin/credit card
digital
display
with
space
sensors.
It
was
the
recommendation of the city.s Parking and Traffic Engineer
that the coin operated traditional display be utilized due to
its dependable performance throughout the city. Furthermore,
it was noted that the alternative models were relatively new
and
still
subject
to
inconsistent
performance
and
workmanship.
The Joint Committee concurred that the coin
operated traditional display was the desired meter head.
They felt the large scale introduction of meters should not
be further complicated by difficult to use machines, subject
to frequent breakdowns.
3. Hourly Rate
The City r s Parking and Traffic Engineer reviewed the
range of meter rates established throughout the various City
parking meter zones with the Joint Committee. With an intent
to avoid the creation of hardships, the Joint Committee
strongly encouraged setting meter rates SUbstantially below
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rates of private downtown meter and operator lots. The
actual rate of $0.25 per hour is equal or below public
parking meter rates throughout the city and the lowest
parking meter rate in the downtown area.
The minimum coin
deposit of $0.10 entitles the parker to a proportionate
amount of meter time.
4. Change Machines
Change machines have been ordered to mitigate possible
inconvenience for parkers unfamilar with the meter operation.
The majority of the metered spaces should experience repeated
use by the same groups of patrons.
It is anticipated that
these parkers will quickly adapt to the meter operation and
arrive at the parking structures with correct change.
However, to assist the first time visitor or occasional
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parking patron who does not having proper change, the Joint
Committee requested that change machines be installed. These
machines will be located on the ground floor in a safe, well
lit area adjacent to the pedestrian entrance of each parking
structure.
The machines will accept one and five dollar
bills.
5. Signage
The principal signage objective is to adequately inform
the parker of the $0.25 hourly meter rate, location of
longer-term meters and location of change machines. The
street frontage sign for each parking structure has been
modified to advise that the facility has metered parking.
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Upon entrance within the structure each floor is signed to
indicate maximum meter period.
Additional signs are being fabricated to state that
longer-term meters are available on upper floors. In
addition, signs are also being fabricated to identify
location of change machines.
6. Hours of Operations
Given the Mall District's operating and maintenance
deficit and proposed low hourly parking meter rate, it was
essential to the Joint Committee that the operating hours be
maximized.
The revenue proj ections from meter operations
were the key factor determining the hours of the operations.
The city.s Parking and Traffic Engineer forecasted
annual average meter revenue at $400.00 for ten hour, daily
usage.
Based upon the first stabilized year of income for
1,734 meters, the average revenue is estimated at $693,600
for 3,640 hours of yearly operation.
The Joint Committee.s recommendation for a reduction of
the Mall Maintenance Fee from five times the City's Business
License Tax to three times was dependent upon meter revenue
generating nearly $700,000.00 per year. Accumulation of the
3,640 necessary hours of operation had to be balanced with
the hours of highest parking demand to obtain the anticipated
revenue. Unlike on-street meters that are not operational on
Sundays and available to church and recreation users, the
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meter operation wi thin the six downtown parking structures
was proposed as a Council policy to generate a specific
amount of revenue for the unique purpose of neutralizing the
operation and maintenance deficit in the Mall District.
Given the poor utilization of the parking structures at
night, it was the consensus of the Joint committee that meter
revenue would be insufficient to warrant enforcement of meter
operations during these hours.
Consequently, a consistent,
daily schedule oriented to principally daylight hours of 8
a.m. to 6 p.m. was recommended. Future development of movie
theatres and restaurants on the Mall are expected to increase
parking usage and may result in a recommendation to expand or
change meter hours.
In transmitting its recommendation regarding hours of
operation, the Joint Committee recommended that the hours be
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established and maintained consistently and that exceptions,
exemptions or changes should not be made which economically
benefits private groups at the expense of the Mall District's
operating and maintenance deficit. The Joint Committee felt
the low hourly fee was an affordable fee for virtually any
operator of a vehicle.
FOllowing receipt of the Joint Committee's recommendations, City
staff presented the meter concept to City council on June 23 I
1987 for approval.
Subsequently, parking meter zones were
amended, the ordinance established and meter purchase and
installation approved.
The meter program became operational on
october 12, 1987.
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DISCUSSION
On July 14, 1987 a staff report was presented transmitting an
ordinance modifying the Municipal code to add and amend parking
meter zones to accommodate the six downtown parking structures.
At that meeting Mr. Charles Douthat, representing First
Presbyterian Church, expressed concern that the parking meter
operation could impact patronage at the downtown churches. Mayor
Conn instructed city staff to meet and confer with
representatives of downtown churches and to report the findings
back to Council.
Meeting with Church Representatives
On August 27, 1987 City staff and Third street Development
corporation staff met with representatives of First Presbyterian
Church, Unity by the Sea, and st. Augustine by the Sea to fully
discuss all issues related to parking meter operations. City
staff presented the tentative meter program and solicited the
concerns of the three churches. Although the church
representatives initially requested that parking meter hours be
delayed until 1 p.m. on Sunday, the majority of the church
representatives acknowledged that provision of unmetered parking
for the early arriving, unpaid volunteers and low-paid church
staff was their dominant concern. In regards to the
church -goers, . the church representa ti ves expressed concern
regarding convenience and the adjustments that church-goers would
have to make to become acclimated to the parking meters. City
staff explained the need to administer the meter program in an
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equitable manner for all users of the parking structures
including Farmers Market patrons, clients of social service
agencies and Senior citizen groups.
City staff concluded the
meeting by agreeing to further study the matter.
Following this meeting, city staff informed the three churches
that unmetered permit parking spaces would be available on an
unrestricted basis for Sunday use, thereby providing an abundance
of unmetered spaces to all volunteers and low-paid church staff.
At the current time, 624 unmetered parking spaces are available
as follows:
structure 1 26 ground level
92 upper levels
structure 2 32 ground level
72 upper levels
Structure 3 25 ground level
88 upper levels
structure 4. 36 ground level
76 upper levels
structure 5 31 ground level
50 upper levels
structure 6 17 ground level
79 upper levels
Each church is accessible to over 200 unmetered spaces just a
block away, and an additional 200 within two blocks.
It is
anticipated that the total number of unmetered spaces will rise
to nearly 700 in the near future as a result of restriping and
parking structure improvements. None of the churches called or
conveyed any disagreement with City staff regarding this plan to
provide unmetered parking.
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subsequent to learning of the proposed solution offered by city
staff, representatives of First Presbyterian Church consulted
directly with elected officials and the Press regarding their
concerns. In doing so, these representatives inadvertently
confused some of the information regarding issues pertaining to
former and current assessment districts, payment of maintenance
and operation fees and equitable provision of public facilities
to private groups.
Assessment Districts
Representatives of First Presbyterian stated that a t1free parking
guarantee 11 was provided by their participation in the former
Downtown Parking and Business Improvement Assessment District
formed in 1966. In fact, First presbyterian and the City
executed Contract No. 3770 (CCS) on May 11, 1982 to specify the
terms and conditions of the church's limited participation in the
former assessment district. While this contract made no
reference to the cost of parking, it did significantly reduce the
church's financial obligation to the former assessment district
and relieved the church of its responsibility to provide its own
off-street parking facility. Through a series of refund payments
by the city, the church's annual financial responsibility to the
former assessment district was fixed at approximately $7,000.00.
Regardless of property appreciation,
the balance of the
assessment payment is rebated by the city.
In August of 1986, this assessment district was replaced by the
Third street Mall and Downtown Assessment District when
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Certificates of Participation were sold to defease old assessment
district bonds and raise capital for the Mall Improvement
Project.
However, the City I s obligation to fix the church I s
assessment at the negotiated 1982 level remained.
The new
assessment district established an annual credit against the
parking component of the levy equal to 85.71% of the church t s
total
annual
assessment.
Consequently,
the
churchts
responsibility to help retire assessment district debt related to
building and capital costs is approximately one-seventh the
amount typically paid by businesses in the Third street Mall and
Downtown Assessment District.
Maintenance and Operations
Representatives of First Presbyterian stated that they are paying
for maintenance of the parking structures and common areas of the
Mall. In fact, the church is exempt from the Third street Mal~
and Downtown Assessment District Maintenance Fee and does not pay
for maintenance and operation of either the parking structures or
Mall common areas.
Equitable provision of Public Facilities
Representatives of First presbyterian asserted that the downtown
churches are being singled out for unfair treatment and
potentially suffer an infringement upon their ability to worShip.
City staff believes that the City has made a significant
accommodation for churches and other non-prOfit agencies in the
assessment district by reducing the assessment levy and exempting
these organizations from the Mall Maintenance Fee.
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Hours of parking meter operation were established to coincide
wi th peak
parking
structure
demand
and
consistency
of
enforcement.
A seven day a week, 8 a.m. to 6 p.m. schedule
replicates the hours of greatest activity and usage of the
parking structures.
As the assessment district experiences
future development, such as new theatres and restaurants which
create an evening demand for parking structure usage, the hours
of parking meter operations may be expanded.
Regarding the operation of parking meters, equal treatment has
been given to Farmers Market patrons, clients of social service
agencies and Senior Citizen recreation activity participants.
MOdifying parking meter hours to specifically promote church
attendance would appear to create a significant inequity.
Revenue Projections
The operation of the parking meters seven days a week, ten hours
a day is vital to the elimination of the assessment district t s
maintenance and operation deficit. The revenue projections used
to reduce the Mall Maintenance Fee did not include any
concessions or special arrangements pertaining to parking meter
operation. To alter, or eliminate, meter operations on Sundays
would not only result in an estimated shortfall of $40,000 -
$60,000, but also create an inequity for the other organized
private groups ~hat previously requested parking meter exemptions
for their members, patrons or clients.
If all of these qroups
received some form of exemption, revenues could be nearly
$150,000 below projections.
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Prepared By:
cchurch1
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Peggy Currant Director
Community and Economic Development Department
Jeffrey P. Mathieu, Manager
Economic Development Division
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