ALBANY CITY COUNCIL SPECIAL SESSION AGENDA. Wednesday, September 19, 2018

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1 ALBANY CTY COUNCL SPECAL SESSON AGENDA Wednesday, Septeber 19, 218 ediately following the Albany Revitaliation Agency eeting Council Chabers, Albany City Hall 333 Broadalbin Street SW 1. CALL TO ORDER 2. ROLL CALL 3. BUSNESS FROM THE PUBLC 4. DOWNTOWN MULT-FAMLY RESDENTAL PARKNG STUDY Rick Willias Consulting. [Pages 2-17] Action Requested: nforation and discussion. 5. BUSNESS FROM THE COUNCL 6. ADJOURNMENT The location of this eeting is accessible to the disabled. f you have a disability that requires accoodation, please notify the City Manager s Office in advance of the eeting: cadin@cityofalbany.net or cityofalbany.net

2 MEMO TO: Albany City Council VA: Peter Troedsson, City Manager Jeff Blaine, P.E., Public Works Engineering and Counity Developent Dir.ecto FROM: Bob Richardson, Planning Manager '\2. DATE: Septeber 1, 218, for the Septeber 19, 218 City Council Work Session SUBJECT: Multi-Faily Residential Parking Study Relates to Strategic Plan thee: Great Neighborhoods Action Requested: Staff recoends Council review the parking study and coe prepared with questions for Rick Willias Consulting. Discussion: On June 12, 217, the Planning Coission and City Council held a work session to review the results of an audit of the Albany Developent Code. One priority issue identified by the City Council and Planning Coission was the need to evaluate the City's parking standards for ulti-faily developent. There was concern expressed that the existing standards ay not require adequate off-street parking, resulting in negative ipacts to adjacent neighborhoods fro ore cars parked on the street. Multi-Faily parking requireents are one of several sets of standards that will be evaluated by the Albany Developent Code Task Force (Task Force). To support this pending evaluation, staff retained Rick Willias Consulting to study a cross section of Albany's ulti-faily coplexes. The Task Force will rely on data collected through the study (Attachent 1) to shape their recoendations to the Planning Coission and City Council. Local data collection is iportant because there are any variables that influence parking related ipacts, and those variables can be different fro city to city and site to site. Done right, parking studies can be relied upon to calibrate a counity's code to local deand. n suary, the study found that, overall, ulti-faily developent in Albany is providing ore parking supply than arket deand. This oversupply is due in part to developers building ore parking than required by the Code, and in part due to iniu parking standards that require ore spaces than arket deand. Out of the 14 studied sites, only one showed a greater arket deand for parking spaces than the current code would require. The Task Force will receive the study results during their. October eeting. Budget pact: There is no budget ipact at this tie. RAR:ss Attachents 1 c: Ron rish, Transportation Analyst Planning Coission cityofalbany.net 2

3 218 Albany Parking Deand Evaluation Suary Albany Parking Deand Assessent August 218 (v.7) Purpose Counities up and down the nterstates corridor throughout Oregon, particularly those located near ajor public educational institutions (e.g., Oregon State University, and University of Oregon) are feeling the pressures of change-change in developent patterns, change in housing types, increased cost of housing, and the effects of a shared econoy on transportation and delivery of goods and services. n Albany's case, Linn Benton Counity College ay also ipact housing options. Cities anage this change/growth with the tools available to the, including parking developent requireents. More counities are revisiting their parking developent standards to ore closely reflect actual arket deands and to avoid iniu standards that result in a surplus of overbuilt (and costly) parking, while at the sae tie ensuring that adequate parking is available. To refine parking standards requires collecting local data saples to evaluate how parking supplies are being utilied during peak periods in a anner that reflects the unique dynaics of parking and access in specific areas. Periodic recalibration is an effective tool to ensure parking is being supplied in a anner that reflects actual deand, resulting in ore efficient land use patterns and 'right-sied' parking resources. As the counity welcoes ore eployent and residents, it is iportant that the cities are prepared for future growth by understanding developent opportunities and setting expectations for future parking needs. Rick Willias Consulting (RWC) was engaged by the City of Albany to assess actual parking deand for a select nuber of ulti-faily properties in Albany. This parking assessent is focused on ulti-faily residential uses citywide and looks at existing parking requireents for new or redeveloped uses (iniu parking ratios), the nuber of built parking stalls, and the nuber of occupied stalls during each land use's peak hour utiliation. The purpose of this analysis is to evaluate ifthe Albany's iniu parking standards for ulti-faily developent result in sufficient aounts of off-street parking. The findings fro this assessent can be used to adjust parking developent ratios in the Albany Developent Code, Article 9 (.1 -.8). f the analysis shows that the City's current parking requireents are higher than needed, then downward refineents to parking developent ratios ay be needed to ensure support for ore efficient use of land. f the parking requireents are lower than needed, then upward adjustents can be ade to reduce ipacts of spillover into adjacent land uses, on-street parking systes, or neighborhoods. Recalibrating parking standards is one ethod to facilitate the full developent potential of a site without increasing negative copatibility ipacts on surrounding uses. :::i: s:... Parking &Transportat i on Page 1 3

4 August 218 (v.7) Methodology The City provided the consultant tea with 15 ulti-faily sites and 2 retireent or assisted living facilities to observe and easure parking deand utiliation. Of this total, 16 were physically assessed. 1 Specific sites were chosen to provide a broad cross-section of ulti-faily housing types/sies, and geographic distribution, representing a valid cross-section of Albany's neighborhoods. A ap of the selected sites is provided on page 5. Parking developent requireents are typically expressed as ratios of stalls per 1, square feet of building area or, in this case, as stalls per residential unit. The analysis requires inforation specific to the total nuber of units for each survey site. Albany staff, with confiration fro individual property anagers, provided a suary of each property's real estate profile, inforation such as such as address, nuber of housing units (including nuber of bedroos), nuber of parking stalls if available, and unit occupancy inforation. This inforation cobined with onsite field verification and thorough overnight peak-parking counts were used to derive the ost accurate inforation possible. Surveyors counted occupied parking stalls fro 2:3-5: AM for each property to deterine the highest individual parking deand for each site. ndustry standards indicate that residential peak parking deand, in nearly all cases, occurs between the hours of 3: - 5: AM. Two separate data counts were taken, one during the week (Thursday, May 3:i., 218) and a second during the weekend (Saturday, June 2, 218). To derive an apartent coplex's true deand, only the highest occupied parking stall count is taken; in ost cases it was on a weeknight, but in soe cases higher counts were found on the weekend. n 11 of the 26 sites, vehicles parked on-street adjacent to the residential sites were also included as part of the deand counts (included in the true deand calculation in Table 2 1 page 1) if it was evident vehicles were associated with tenants of or visiting the subject property. During the data collection process, surveyors were careful to note any evident vacancy observations that ay not have been reflected in the inforation provided by the City. Calculating 'true' parking deand ratios required factoring out any dwelling vacancies, so total parked cars were correlated only to occupied units. 1 One of the 17 sites was under construction (i.e., ajor redevelopent), as such there were no tenants, nor was there any iproved parking lot (also under construction). Therefore, the tables and charts contained in this eo purposely oit "Residential #14" because parking deand was not easurable at the tie of the survey. s:: Parking & Transportation Page 2 4

5 August 218 (v1) This is the sae ethodology eployed by the nstitute of Transportation Engineers (TE} to calculate parking deand by land use category. The TE anual is the de facto source of parking data for ost jurisdictions. However, while the TE inforation is a good starting point, it draws saples fro across Aerica, includes deand figures that date back as far as the 198s, and contains data fro extreely sall saples. By coparison, the approach followed by this study exclusively utilies Albany data gathered in May/June (218) and provides a superior result copared to relying on published TE tables. The ethodology used for this study provides the ost accurate representation of local existing conditions. t is iportantto recognie that the sites studied were constructed at various points in tie and not all under the current Albany Developent Code parking requireents. Therefore, when coparisons show that provided parking is less than current Code requireents that does not ean that the property owner didn't coply with Code requireents at the tie of construction. These properties are not required to adjust their parking as Albany changes Code requireents overtie. While this concept is iportant to understand it has no ipact on the findings of this study. This study evaluates the "on the ground" deand for parking based on the nuber of units. This deand is independent of provided parking, however, it can help explain why any one site appears to have inadequate parking; or conversely, too uch parking. The derived deand for each site will be copared to the current code inius to deterine ifit (code language) requires adequate parking for new ulti-faily developent. This process provides the data necessary to "calibrate" Albany's Code to its specific counity needs, using real data. :r: :s: -;... Parking &Transportation Page 3 5

6 August 218 (V.J) Glossary of Ters u - - the nuber of stalls built/constructed for a specific building or property. A 15, square foot building built with 3 parking spaces would have a built parking ratio of 2.. Ratios are typically shown as stalls per i,ooo square feet of building area; however, in the case of ulti-faily residential buildings, ratios are shown as nuber of stalls per housing unit. -o "niu (Parking Requireen ) -the iniu aount of parking that ust be built fora specific land use type as required by current city code. Delt -the difference between the built supply and the Market Calibrated Ratio. - a flexibility 'cushion' typically added to true deand to allow for the ebb and flow of parking activity for a land use over the course of the day. Traditional coercial buffers (for land uses with high turnover) are 15% - which is the basis for the 85% Rule for on-street parking. Providing a 15 Ai buffer for ixed use, retail, and office land uses is considered ideal. Other land uses require saller buffers. A 1% buffer is adequate for ndustrial land uses as the priary use for parking is for eployees and less parking turnover is needed. A 5% buffer is adequate for Residential and Hotel; virtually no turnover is required for these uses since parking is specifically provided by the unit for these purposes. Marlt'et Cal"brated R tio - is true deand plus the Deand Buffer-the true need for built parking based on easured 'real' parking deand (including supporting deand buffer). Peak Hou -the period of day when the highest nuber of vehicles are observed parking for a given land use. r p R -the aount of parking provided for a given land use developent. The ratio is usually shown as stalls per 1, square feet of building area (e.g., 2.5 stalls per 1, SF) or as stalls per housing unit or stalls per hotel roo. - the observed peak hour parking deand for a specific land use. This would include vehicles parked in the property's parking lot and could include vehicles parked on-street in proxiity to the property. True deand ust be a easure of parking deand correlated to occupied building area. Ratios are expressed as stalls per residential unit (or stalls per 1, square feet of building area). s::... Parking & Transportation Page 4 6

7 August 218 (v.7) Map of Study Sites.. 1.t";,.'11.LW...,;.vtt " u -. ;! h 'i ' 'i 4Uft""' ''i' H.. )....,_ i ; Residential Deand Study i ' 'lllal. W WAflBCOMUl.11Nll Plot k fll & 1' 'll 11ap P'Cillt fll."' ' :: s: Parking & Transportation Page s 7

8 August 2i8 (v.j) Findings The findings of this report in broken out into two sections, one that focuses exclusively on ulti-faily residential dwellings, and another that focus solely on senior and assisted living facilities. n each case, the findings are suaried below, shown using parking deand ratios for each housing type, both in graphical (charts) and in tabular forats (tables). Multi-Faily Residential Each of the original 14 sites were selected and vetted by the City of Albany. The intent was to have a variety of ulti-faily residential housing stock represented - fro properties with a sall nuber of units (as few as 6) to large coplexes with as any as 152 units. Table 1 shows the distribution of residential sites chosen by nuber of units. Property anagers were contacted by city staff to get additional inforation about the sites (e.g., breakout of units by nuber of bedroos, vacancy rates, nuber of parking stalls/garages) and to seek approval for accessing the property to ake the late-night parking counts. As the table indicates, 753 total units were included in the survey. One- and two-bedroo units ake up the ajority of unit types, representing 2 units (27%) and 421 units (56%), respectively, or 83% collectively. Table 1: Distribution of Sapled Multi-Faily Residential Sites., Totals );! () :r s: Parking & Transportation Page 6 8

9 August 218 (v.7) Article 9, Table 9-1 of the Albany Developent Code specifies the off-street parking requireents for land use types within the city liits. The residential section provides details for all housing types including single-faily, duplexes, assisted living, senior housing, and ulti-faily. The code requires the following for ulti-faily residential (the focus of this assessent):" LO stall per studio and 1-bedroo unit, plus 1 visitor stall for every 4 units3 1.5 stalls per 2-bedroo unit, plus 1 visitor stall for every 4 units 2. stalls per 3-bedroo or ore units, plus 1 visitor stall for every 4 units The code allows for reductions in the parking inius when certain criteria are et, such as properties located in the HD, CB, DMU, and WF oning districts. The language states, nto proote ore pedestrian-friendly developent, iniu parking requireents in HD, CB, DMU, and WF are reduced as follows." [Ord. 5894, 1/14/17] n the case of ulti-faily dwellings (up to 7 units) shall provide parking with the following ratios: (paragraph i) Studio, one-bedroo, and two-bedroo units: one space per unit [Ord. 5894, 1/14/17); and developents with ore than 7 units shall provide parking at the ratios (paragraph ii) listed in Table 9-i, except that visitor parking shall not be required. [Ord /14/17]. Figure A provides a graphic suary of the ulti-faily residential sapled sites, coparing the ratio of stalls built to accoodate the site (orange bars) versus the actual use, or true deand, ofthose stalls {green line) and the arket calibrated true deand (blue bars) at the peak hour. Data for this figure is derived fro Table 2(page1)-which provides even greater detail. The code also references ulti-faily quad and quint units requiring.75 stalls per unit. The language used to describe this requireent is soewhat abiguous; does it affect 4 and 5-unlt residences (i.e., 4-plex and 5-plexes) and require parking siply based on the nuber of units, ratherthan by nuber of bedroos like the rest of the ultifaily code? As written, it sees inconsistent with the other provisions in the code. When t coes tie to revise the code language, this specific reference should have greater clarification for these unit types. 3 As required by Code all visitor stalls were induded as part of this analysis, both in the bullt.supply and n the deand calculations. RCK WLLAMS C ONSULTNG Parking & Transportation Page 7 9

10 August 218 (v1) Figure A: Parking Deand Ratios - Multi-Faily Residential Use 218 ALBANY PARKNG DEMAND EVALUATON LAND USE: RESDENTAL (STALLS PER UNT) Built Parking Ratio Market Adjusted Deand -True Parking Deand Ratio 2.25 l ,... co O' N,..... "" "' ' "' ' "" "" Vl V1 Vl Vl ;;; ;;; "' w w w w w "' w w w ;;; V1 Vl.... N "' "' "' a: a:: a: a: a: a: a: a: w w w w w w a: a: a: a: a: a:.25. Table 2 below provides a coparative suary of findings for the surveyed sites. Key findings include: Built parking ratios range fro.83 stalls per unit (Residential #13) to as uch as 1.99 stalls per unit (Residential #4). The edian built parking ratio for (ulti-faily) residential uses is 1.64 stalls per unit, regardless of configuration of bedroos provided. True parking deand ratios range fro.6 vehicles per unit (Residential #11) to 1.57 vehicles per unit (Residential #4). The edian true deand for parking for ulti-faily residential uses (all sites cobined) is 1.26 stalls per housing unit. Parking &Transportation Page 8 1

11 August w:s.8 (v.7) A 5% buffer4 was added to true deand nubers to allow for the ebb and flow of residential users within the off-street parking supply. Adding a buffer to the true deand figure (1.26) results in a arket-ca/;brated ratio of 1.33 stalls per residential unit. The current code iniu requireent is between 1. and 2. stalls per ulti-faily residential unit, which (on average) is on the high side of the average arket-calibrated rate of 1.29 or the edian arket-calibrated rate of Eight of the 14 sapled sites have built parking supplies that are below what would be required by today's code iniu. These include Residential #'s 1, 7, 8, 9, u, 12, 13, and 17. Of these sites, only three (Residential #'s 12, 13, and 17) have arket calibrated deand that exceeds their built supply. Though any of these sites were developed with less parking than required by the current code; their actual deand for parking s still less than the supply they actually provide (i.e., they are still overbuilt to a certain degree). The reasons for why the sites were developed with less parking less than the aount required by code ay be the result of the date the sites were originally built (possibly preceding current code standards) or allowed reductions were taken by the developers per ADC 9.3. Six sites were developed with ore parking spaces than required by the current code (Residential #'s 2, 4, 5, 6, 1, and 16). n all six cases, their arket calibrated deand was less than the supply built. Siilarly, all six have arket calibrated deand that is less than or equal to the code iniu. Taken together, these six sites provide an oversupply/surplus that averages 23%. The edian "arket-calibrated" ulti-faily parking deand ratio of 1.33 is 19% lower than the edian existing built supply (1.64). For the ost part, ulti-faily residential uses are supplying parking at a rate greater than actual deand. However, the over-build is not solely driven by the current code iniu; in soe cases developers are electively choosing to build ore than the required parking iniu. 4 For purposes of narket" calibration, buffers are frequently used to account for a range of possible variations and factors that could nfluence the true deand calculation data derived fro a single survey day. This can include seasonality, eployent growth, saple sie, and other factors affecting parking. For the ost part, buffers provide a ore conservative approach to true deand. Also, the sie of the buffer generally varies fro 5% to 15% based on the land use, with retail/office land uses (with higher custoer traffic volues) trending higher and ore fully eployent focused land uses (e.g., ndustrial), trending lower. n situations where data collection is ore frequent, the use of buffers can be iniied. n the case of Albany, RWC used a buffer for all of the surveyed ulti-fally uses to reflect a conservative approach to true deand, in this case 5%. Parking &Transportation Page 9 11

12 August 218 (v.7) Table 2: 218 Albany Parking Deand Evaluation - Multi-Faily Residential Use Residential % 12? unit+ visitors Residential % 2848 l unit+ visitors Residential ]% unit+ visitors Residential 5 4 1% unit+ visitors Residential % 182'"' unit+ visitors Residential 7 4 1% / unit +visitors Residential % unit + visitors Residential % unit+ visitors Residential % J unit + visitors Residential % unit+ visitors Residential % unit+ visitors Residential % unit+ visitors Residential % J unit+ visitors Residential % /unit+ visitors Median l % % ]% % % % % % % % % % % s% % 5 Residential iniu parking code requires 1. stall per studio and 1-bedroo unit, plus 1 visitor stall for every 4 units; 1.5 stalls per 2-bedroo unit, plus 1 visitor stall for every 4 units; 2. stalls per 3-bedroo or ore units. Senior housing (Residential #3 and Residential #13} have a requireent of 1. stall per 2 units. A distribution of unit types by bedroo sie is located in the appendix of this report. 6 Each site's parking requireent was calculated based on their unique ix of bedroos per unit per ADC Article 9 (.1-.8). 7 includes 24 garage stalls 8 ncludes 53 garage stalls 9 ncludes 2 garage stalls 1o ncludes 26 garage stalls )> ::r s: Parking & Transportation Page 1 12

13 August 218 (v1) Senior & Assisted Living Residential Two senior and assisted living residential sites were selected by the City of Albany to evaluate parking deand levels at these properties. Table 3 shows the akeup of each senior/assisted living residential sites by nuber of units. As the table ndicates, 217 total units were ncluded in the survey. These facilities offer studio, one- and two-bedroo units and represent 37 units (17%), 138 units (64%) and 42 units (19%), respectively. Table 3: Distribution of Sapled Senior and Assisted Living Residential Sites - r - : - -- Resi. # SS Resi. #1S Totals Table 4 provides a suary of findings for the surveyed senior and assisting living residential sites. Table 4: 218 Albany Parking Deand Evaluation - Senior and Assisted Living Residential Use Residential 3 Residential 15 Median unit o.s/ unit 11 Residential iniu parking code requires 1. stall per studio and 1-bedroo unit, plus 1 visitor stall for every 4 units; 1.5 stalls per 2-bedroo unit, plus 1 visitor stall for every 4 units; 2. stalls per 3-bedroo or ore units. Senior housing (Residential #3 and Residential #13) have a requireent of 1. stall per 2 units. u Each site's parking requireent was calculated based on their unique ix of bedroos per unit per ADC Article 9 (.1-.8) sg )> (") ::c s: Parking & Transportation Page 11 13

14 August 218 (V-7) Only two sites were included in the saple and as such findings should be viewed as 'theatic' rather than providing conclusive outcoes. Findings include: The edian built parking ratio is.48 stalls per dwelling unit. The edian true parking deand ratio is.34 stalls per dwelling unit The edian arket calibrated deand ratio is.36 stalls per dwelling unit. Considerations 79% of Albany's sapled (ulti-faily) residential sites have parking supplies built in excess of arket-calibrated deand-on average (edian), 21% overbuilt. While not excessive, this results in a surplus ofunderutilied built parking areas, which would likely continue to grow with each new developent. Consequently, the City ay consider reducing and siplifying the iniu parking ratio to 1.33 stalls per unit, which is consistent with the ore conservative edian arket-calibrated deand (1.33) versus average true deand of n only 3 cases were ulti-faily sites deterined to have higher parking deand than the current built supply (Resi. #12, 13 and 17). However in ach instance tho sites wer built usin Alban 's current residential arkin inius there would be enou h s aces to contain all of the deand. As such. the standards in place today are NOT causing ulti-faily developents to under-build their parking supplies. As written, the parking developent code places considerable ephasis on the nuber of bedroos within the units, which can create additional layers of coplexity and unneeded specificity. This type of code structure favors ore vehicle intensive tenants, such as college students or young professionals, where each bedroo is occupied by soeone of driving age as copared to a traditional faily odel where one or ore bedroos are occupied by children or occupants not of driving age. By contrast, any cities are opting for ulti-faily residential parking requireents that focus ore on the nuber of units rather than the nuber of bedroos. Based on the findings of this assessent, Albany ay consider 'flattening' or siplifying its code into a single by-unit ratio based on the arket-calibrated true deand average. This would account for the diversity of bedroos by unit ix deonstrated in this analysis. Parking & Transportation Page 12 14

15 August 218 (v.7) Schedule periodic reviews of parking developent requireents for ulti-faily residential and other land use types. t is recoended this be done every 5 to 7 years as a eans to capture econoic and arket trends. Periodic recalibration of inius will result in ore space efficient land uses that axiie leasable residential/coercial/industrial square footages while "rightsiing" the supportive parking supply. Table 5: 218 Parking Deand Evaluation Suary-Multi-Faily Residential Multi-Faily Residential /unit (edian) visitors 1.23 (average) 1.33 {edian) 1.29 (average).35 (edian).24 (average) 21% (edian) 16% (average) 1.33/unit Suary Findings fro the data analysis of local sapled ulti-faily residential sites indicate that the built parking supply for this land use type is being oversupplied. Current code inius are not n and of theselves causing the oversupply of parking; in several instances developers elected to build ore parking than the required iniu. A handful of sites in this saple provided parking at ratios less than current code requireent (because they were constructed before the current standards were in place), yet still had ore parking than the actual arket calibrated true deand of their tenants {resulting in parking surpluses). To support land use efficiencies within the code, current standards could use soe inor recalibration, tracking ore closely to actual deand for parking, priarily in ters of siplifying ratios related to nuber of bedroos to a per unit standard. The City's parking code inius 13 Recoended Parking Minius reflect suggested changes to the Average Code Miniu (current) shown in Table 2 based on the parking deand analysis conducted as part of this study. s: Parking &Transportation Page 13 15

16 August 218 (v.7) should allow for prospective residential ulti-faily developents to be built with "right-sied" parking supplies that ore accurately represent true deand. Siplifying and standardiing the parking iniu will establish a ore intuitive, user-friendly approach, while also reflecting the arket's true deand. Given that the current code is playing a role in the oversupply of parking, the city ay want to consider reducing the required parking iniu to align with the edian arket calibrated deand ratio of 1.33 stalls per unit. Going forward the City should continue to periodically collect parking deand data to onitor changes in parking developent and utiliation patterns and work with developers during the pre-develop design phase of their projects, educating the on the relationship of built supply to true or calibrated arket deand, which ay reduce the tendency to oversupply parking. s: RCK WLLAMS C ONSULT NG Parking & Transportation Page 14 16

17 August 218 (v.7) Appendix- Residential Site by Unit Type All Resident1a Sites - Multi-Faily, Senior and Aggregated Units Studios 1 Bedroo 2 Bedroo 3 Bedroo 4 Bedroo Assisted Living Resi. # Resi.# Resi. # Resi. # Resi. # Resi. # Resi. # Resi. # Resi. # Resi. # Resi.#u 15 Resi. # Resi. # Resi. #14" Resi. # Resi.# Resi. # Totals Reoved fro analysis due to the site being under construction (no occupants) at the tie of data collection. (') s:: Parking & Transportation Page 15 17