Orange City Council
April 11, 2023

Prepared for:

The City of Orange
March 2023
OC21-0831

OLD TOWNE ORANGE

PARKING STUDY
Old Towne Orange Parking Study
March 2023
Table of Contents
Executive Summary ..........................................................................................................................

Introduction ................................................................................................................................... 1 Existing Parking Supply and Demand ......................................................................................... 5 Existing Parking Supply.............................................................................................................................................................. 5 Existing Parking Demand .......................................................................................................................................................... 5 Parking Turnover ........................................................................................................................................................................15 Average Length of Stay ...........................................................................................................................................................18 Existing Conditions Summary ...............................................................................................................................................21 Future Parking Supply and Demand ......................................................................................... 22 Shared Parking Demand Model ...........................................................................................................................................22 Old Towne Future Buildout ....................................................................................................................................................24 Assessment of Future Parking Demand ............................................................................................................................27 Determining Future Parking Deficiencies .........................................................................................................................33 Smart Parking Equipment .......................................................................................................... 34 Old Towne Parking District Boundaries and Fee ..................................................................... 41 Parking Fee Boundaries ...........................................................................................................................................................41 Fee Structures ..............................................................................................................................................................................42 Economic Feasibility ..................................................................................................................................................................42 Parking Strategies Toolbox ........................................................................................................ 44

Appendices
Appendix A: Parking Utilization by Hour (Thursday and Saturday) Appendix B: Old Towne Orange Economic Feasibility Analysis Old Towne Orange Parking Study
March 2023
List of Figures
Figure 1: City of Orange Parking Public Parking Locations Webmap ............................................................................ 2 Figure 2: Old Towne Orange Parking Lots and Street Parking ........................................................................................... 6 Figure 3: Weekday Total Parking Demand .............................................................................................................................. 11 Figure 4: Weekend Total Parking Demand ............................................................................................................................. 12 Figure 5: Peak Hour Parking Utilization (Thursday) ............................................................................................................. 13 Figure 6: Peak Hour Parking Utilization (Saturday) .............................................................................................................. 14 Figure 7: Average Parking Turnover Rate (Thursday).......................................................................................................... 16 Figure 8: Average Parking Turnover Rate (Saturday) .......................................................................................................... 17 Figure 9: Average Parking Length of Stay (Thursday) ......................................................................................................... 19 Figure 10: Average Parking Length of Stay (Saturday) ....................................................................................................... 20 Figure 11: Approved and Planned Project Locations .......................................................................................................... 26 Figure 12: Future Parking Demand by Land Use .................................................................................................................. 28 Figure 13: Future Parking Supply and Demand .................................................................................................................... 32 Figure 14: Old Towne Shuttle “OTiS” ......................................................................................................................................... 49 List of Tables
Table 1: Summary of Off-Street Parking ..................................................................................................................................... 7 Table 2: Summary of On-Street Parking...................................................................................................................................... 9 Table 3: Existing Peak Hour Parking Occupancy ................................................................................................................... 11 Table 4: Parking Demand Peak Hour Comparison ............................................................................................................... 23 Table 5: Future Development List ............................................................................................................................................... 25 Table 6: Summary of Existing and Future Parking Supply Scenarios ............................................................................ 31 Table 7: Summary of Payment Technologies ......................................................................................................................... 35 Table 8: Detection Options Summary ....................................................................................................................................... 39 Table 9: Enforcement Options ...................................................................................................................................................... 40 Table 10: Wayfinding Options Summary ................................................................................................................................. 40 Old Towne Orange Parking Study
March 2023
Executive Summary
The City of Orange Old Towne Parking Study was completed to understand the existing and future parking characteristics of public parking in Old Towne. Ultimately, the goal is to provide adequate measures that will improve the quality of the experience for those visiting Old Towne while balancing the needs of the local businesses.

Existing Parking Supply and Demand
Existing parking supply was inventoried for publicly available parking spaces within the study area, which is bounded by Palm Avenue to the north, Palmyra Avenue to the south, Cypress Street to the west, and Center Street to the east. The study area has approximately 2,666 publicly available city-controlled spaces, including 992 on-street parking spaces and 1,674 off-street parking spaces. Most citycontrolled parking spaces in Old Towne are free and unrestricted.

A parking utilization and turnover survey was collected on a Thursday and Saturday in October 2021 to determine existing parking demand and utilization in Old Towne on weekdays and weekends. Hourly parking surveys were conducted for city-controlled on-street and off-street parking from 8:00 AM to 12:00 AM on Thursday and 8:00 AM Saturday to 2:00 AM Sunday. Utilization deficiencies of 85% and 90% in the study area were considered to determine parking deficiencies; deficiencies were noted if more than 85% or 90% of parking spaces were used during a given period. Using this methodology, the survey results demonstrated that Old Towne Orange has sufficient parking supply to serve the current demand.

Key findings of the existing parking analysis are highlighted below.

Parking Utilization and Peak Hour Demand – Based on the data collected, the Old Towne study area currently has a daily average parking utilization of 47% on Thursday and 43% on Saturday for the citycontrolled parking spaces. Over the course of the 2-day parking survey, the peak utilization occurred on Thursday at 1:00 PM with 64% of parking utilized.

In general, the streets and lots closest to the Plaza had the highest utilization. This included Lots 1A, 2-7, Olive Street, Orange Street, Chapman Avenue and Glassell Street. Less utilized areas were Grand Street, and Lots 10-15, including the Old Towne Parking Garage. During the 2-day survey, the Old Towne Parking Garage did not exceed 53% utilization.

Old Towne Specific Plan
Parking Study Goals
Identify parking strategies and
smart parking technologies in
Old Towne to encourage better
utilization of existing parking
facilities, investigate ways for
revenue generation and offset
operational costs, and identify
sustainable parking policies to
help achieve future
development goals.

Old Towne Orange Parking Study
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Parking Turnover/Average Length of Stay – To
examine long-term parking of individual vehicles in
the Old Towne study area, the parking survey
included an hourly turnover survey along the core
on-street parking segments. Vehicles generally
remain parked for longer periods of time on the
north-south streets—Olive Street and Orange Street.

Parking lengths tend to be shorter on the Plaza and
along Chapman Avenue to the west of the Plaza.

Future Parking Analysis
Future parking demand was estimated by using data
from Shared Parking, Third Edition (Urban Land
Institute [ULI], 2020) applied to pending or approved projects from the City of Orange, and Santa Fe Depot Specific Plan development assumptions. Overall, existing supply would not accommodate the level of development expected from approved projects and buildout of the Santa Fe Depot Specific Plan. If approved projects and the commercial buildout of the Santa Fe Depot Specific Plan1 provide 50% of the parking supply required per the City’s Municipal Code, then the future parking demand could be accommodated.

The findings of the future parking demand assessment are described below to achieve 85% and 90% parking utilization in the study area:
 Scenario 1: No new parking supply is provided in Old Towne. Approved projects and the commercial buildout of the Santa Fe Depot Specific Plan provide no new parking supply. 1,002 parking spaces would be needed on to provide 85% utilization. 799 parking spaces would be needed to provide 90% utilization.
 Scenario 2: Approved projects and the commercial buildout of the Santa Fe Depot Specific Plan provide 50% of the parking spaces required by the City’s Municipal Code. No additional parking spaces will be needed to provide parking at 92% utilization. 287 parking spaces would be needed on to provide 85% utilization. 84 parking spaces would be needed to provide 90% utilization. 1 Residential projects in the Specific Plan were assumed to provide 100% of parking as required by the City’s Municipal Code. This supply is anticipated to be provided on-site for residents and visitors only and is not anticipated to contribute to the demand for additional public parking.

Old Towne Orange Parking Study
March 2023
Parking District Fee
Under current operations, the existing parking in-lieu fee may not provide adequate revenue to support more comprehensive parking improvements in Old Towne. The current district boundaries also limit the number of properties that can participate in the fee and does not capture the areas where most new development and redevelopment is expected to occur.

Based on economic feasibility analysis conducted by Economic & Planning Systems, and input from City staff, the following recommendations should be considered for the parking district fee:
 Expand the current fee boundaries to include an area generally bounded by Parker Street, Palm Avenue, Grand Street, and Palmyra Ave
 Convert to in-lieu fee to a parking mitigation fee or special assessment district to offset developments that do not provide parking consistent with the City’s code  A one-time mitigation fee of $10,000 per parking space would be feasible under current economic conditions, and enables redevelopment projects that would otherwise be economically or physically infeasible if all required parking spaces had to be provided on site  Alternatively, an annual special assessment district fee could be levied in place of or in addition to the one-time fee to fund ongoing improvements and operations within the parking district. An annual fee of $300 to $600 per business would be feasible under current economic conditions.

Parking Strategies Toolbox
Based on the review of the existing and future parking conditions, a toolbox of strategies are provided to manage existing and future parking demand in Old Towne:
 Create Additional Parking Supply
 Price On-Street Parking
 Establish Parking Time Limits
 Enforce Valet Service
 Microtransit Pilot Program
 Develop Informational Programs
 Accommodate TNCs
 Update Parking Standards
 Implement Travel Demand Management
This study includes general background information for each parking strategy, including advantages and disadvantages of each approach, and a suggested implementation in Old Towne. As transportation technologies continually advance, new trends and modes of transportation will need to be considered in decisions related to parking and land use to determine the most appropriate solutions or Old Towne.

Old Towne Orange Parking Study
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Introduction
Old Towne is a historic, vibrant mixed-use community located in the heart of the City of Orange. The area features a diverse mix of civic, retail, restaurants, and residential uses in a walkable environment. A variety of community events are hosted throughout the year, including holiday events and a weekly Farmers Market attracting residents and visitors alike.

Chapman University’s campus is located on the north side of Old Towne, and the City’s Metrolink station is on the west side. OCTA bus routes 54, 59, and 453 provide public transit service to Old Towne.

The City, merchants, and property owners embrace the high level of activity in Old Towne; however, concerns over parking demand within Old Towne and the anticipated development in the Santa Fe Depot Specific Plan area nearby have generated the need to study parking to prepare for future growth.

Purpose of the Parking Study
A parking study is intended to comprehensively address parking supply and demand, a parking study can be applied to on-street parking spaces, off-street parking lots, or a combination of on- and off- street parking typically found in a downtown area. Historically, the tendency has been to address parking issues through an increase in supply. In many areas, the desire to increase parking supply results in constructing additional surface lots or parking structures. Developed parking structures may require hundreds of thousands of dollars for maintenance and operation on a yearly basis. This overall approach is costly, as the initial construction cost of a single parking space in a structure can be upwards of $30,000. In addition to potential costs, the approach is not consistent with the historic and urban form that characterizes Old Towne.

Instead of addressing only supply, a parking study addresses the demand for parking, through the management of parking demand, creative informational measures, and the provision of additional supply when necessary. Additionally, a parking study outlines recommendations and strategies for implementation of parking-related improvements. In Old Towne, a parking study is appropriate because there is overall availability of supply within Old Towne currently, but possible future supply shortfalls as additional development occurs. There are also existing parking shortfalls at selected locations or during selected times.

Old Towne Orange Parking Study
March 2023

City of Orange Public Parking Locations Storymaps
The City of Orange maintains an interactive webmap on their website that provides public parking information for 14 public parking facilities in Old Towne such as their locations, number of parking spaces, parking time limit, directions, and street view, as illustrated in Figure 1.

Figure 1: City of Orange Parking Public Parking Locations Webmap Source: City of Orange website, 2022

Old Towne Orange Parking Study
March 2023

Potential Parking Lot on Grand Street
The existing fire station and Grand Street and Almond Avenue may be converted into a public parking lot with up to 163 parking spaces. As this project is preliminary and still being conceptually developed, it was not included in any of the parking supply or demand projections in this study.

Previous Studies
As part of this Parking Study, a review of previous studies completed in Old Towne was conducted to understand the existing context of parking supply and demand in Old Towne and document what the City has done to address parking utilization.

Santa Fe Depot Specific Plan Update (2006)
Adaptive Reuse Analysis
As part of the Santa Fe Depot Specific Plan Update, the City of Orange initiated an analysis of nineteen historic buildings within the Specific Plan area for adaptive reuse. This analysis included a review of all the pertinent historical surveys completed for the buildings, a brief historical and architectural description, character-defining features, suitability for adaptive reuse, and possible new uses for the buildings. The report asserted that parking was a restrictive factor for adaptive reuse suitability. Some of the buildings lacked on-site parking and/or had limited potential for future parking.

Development Capacity Analysis
As part of the Santa Fe Depot Specific Plan, the City of Orange commissioned a development capacity analysis for traffic impact analyses. The purpose was to identify a range of potential alternative land uses appropriate for selected sites (opportunity sites) that correspond to market conditions as well as to evaluate development feasibility and financial feasibility on each site. The evaluation of potential alternative land uses for each opportunity site was based on a series of factors, including the high cost of replacing public parking and the limited options for on-site parking to serve new uses in historic buildings. The analysis included a list of identified parcels likely to develop by 2020, including the nowcompleted Lemon Street surface public parking lot, the now-completed Metrolink surface parking lot, and the Chapman University-owned parking lot on Palm Avenue.

Santa Fe Depot Specific Plan EIR Traffic Study (2011)
The Traffic Study was conducted in 2011 in support of the Program Environmental Impact Report (PEIR) for the Santa Fe Depot Specific Plan. The document describes existing transportation conditions, including a street-by-street parking inventory for the Study Area.

Old Towne Orange Parking Study
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Santa Fe Depot & Downtown Plaza Parking Districts Study (2015) The City of Orange initiated a parking districts study in 2015 to address parking conditions in the Santa Fe Depot Area and the Downtown Plaza District. The purpose of the study was to establish the existing baseline parking conditions in the area, estimate future parking needs and identify options for increasing the parking supply, and evaluate future options. The parking study concluded the following:
 On-street utilization was consistently well used throughout the day whereas the off-street parking utilization was slightly more peaked.
 The study area had peak parking utilization levels that were close to the practical capacity of the parking supply, with the Downtown Plaza District peak utilization being above and the Santa Fe Depot Area utilization being below.
 There was an existing parking shortfall in the Downtown Plaza District which could be satisfied by parkers utilizing surplus capacity in the Santa Fe Depot Area.  There was a minimal increase in parking demand forecast in the future for the Downtown Plaza District because there was very little land available for new development.  There was significant future demand in the Santa Fe Depot Area for projected Specific Plan development growth (approximately 1,300 additional spaces) that would relate to the eventual buildout of the Specific Plan.
 Future parking demands from the Santa Fe Depot Specific Plan would require at least one additional parking garage to be located west of Glassell Street.  The study recommended discontinuing the existing In-Lieu Program as it was not proven to be effective due to the low fee and the difficulty of assembling sufficient revenue to fund capital parking improvements. The study recommended the In-Lieu program be converted into a Parking Credit District and combine the Downtown Plaza and the Santa Fe Depot Parking District into one combined district.

Old Towne West/Metrolink Parking Structure Parking Management Plan (2018) The Parking Management and Maintenance Plans for the Old Towne West/Metrolink parking structure (garage) were finalized in 2018 and establish operating guidelines for the structure. The Plan outlined most parking spaces be allocated for transit patrons with no time limits during the operational hours and the unused transit parking to be available for general public. In addition, the Plan allocated 100 spaces for downtown business use which are located mostly on the ground level of the parking structure with a three-hour time limit.

Old Towne Orange Parking Study
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Existing Parking Supply and Demand
A parking survey was conducted in October 2021 to determine existing parking supply and demand in Old Towne. The study area is generally bounded by Palm Avenue to the north, Palmyra Avenue to the south, Cypress Street to the west, and Center Street to the east. Figure 2 illustrates the study area, including the city-controlled on-street parking segments and off-street parking lots. Table 1 documents the number of off-street parking lots, each lot’s parking supply, and any identified parking conditions and restrictions related to public access. Table 2 documents the number of on-street parking spaces on each roadway segment.

The parking surveys were collected on Thursday, September 30th and Saturday, October 2nd, 2021. Hourly parking surveys were conducted for city-controlled on-street parking and off-street parking lots from 8:00 AM to 12:00 AM on Thursday and 8:00 AM Saturday to 2:00 AM Sunday.

Existing Parking Supply
There are currently approximately 2,666 parking spaces in the Old Towne study area, including 992 onstreet parking spaces, and 1,674 off-street parking spaces in public parking lots. Parking spaces in Old Towne are mostly free with a mix of unrestricted, permit, and multi-hour time limit.

Existing Parking Demand
Figure 3 and Figure 4 summarize the existing utilization during the peak hours in Old Towne. The parking supply includes all legally available city-controlled parking spaces.

Based on the two-day parking survey, the peak hour parking demands occurred at 1:00 PM on Thursday (64% utilization) and 1:00 PM on Saturday (63% utilization).

By comparison, the 2015 Parking District Study had identified higher parking utilization rates (more than 90%) during peak hours in Downtown Plaza and Santa Fe Depot District based on parking data from 2013. The decrease in utilization rate can be contributed to the addition of new parking facilities including the construction of Old Towne West/Metrolink Parking Structure with 627 spaces. It is also possible that the COVID-19 pandemic has shifted travel patterns, and led to an increase in pick-up and delivery orders which decreased the overall parking utilization.

Public Parking
Supply:

Maximum Parking
Demand:

I2
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Palm Ave
Chapman Ave
Palmyra Ave
Lot 2 Lot 1
Lot 3
Lot 5 Lot 4
Lot 6
Lot 8 Lot 7
Lot 9
Lot
10 Lot 11
Lot
12 Lot 13
Lot 14
Lot 15
C:\Users\smusharrat\Downloads\Orange Parking\Orange_GIS\MXD \Study_Area.mxd Figure 2
N
Parking Lots
On-Street Parking (Turnover)
O
On-Street Parking (Utilization)
On-Street Parking (Closed To Parking At Time Of Data Collection) Parking District
I2 Metrolink Station
Old Towne Orange Study Area
Old Towne Orange Parking Study
March 2023

Table 1: Summary of Off-Street Parking
Name Location Total Number
of Spaces Reservations Spaces
Lot 1 South of Chapman Ave, between Orange
St and Grand St 43
Handicap 2
Fire
Department 4
Ride Share 2
Lot 1A South of Chapman Ave, between Orange
St and Grand St 28
3-Hr. Visitor 25
Handicap 2
20 Min. 1
Lot 2 West Orange St, between Chapman Ave
and Almond Ave 93
3-Hr. Visitor 89
Handicap 4
Lot 3 Orange St, between Maple Ave and
Chapman Ave 65
3-Hr. Visitor 61
Handicap 4
Lot 4 Maple Ave and Orange St 19
3 Hr. 18
Handicap 1
Lot 5 Maple Ave and Olive St 26
3-Hr. Visitor 24
Handicap 2
Lot 6 East of Olive St, between Maple Ave and
Chapman Ave 27
3-Hr. Visitor 26
Handicap 1
Lot 7 Olive St, between Chapman Ave and
Almond Ave 13 3-Hr. Visitor 13
Lot 8 West of Olive St, between Chapman Ave
and Almond Ave 53
3-Hr. Visitor 50
Handicap 3
Lot 9 Olive St and Almond Ave 26
3-Hr. Visitor 25
Handicap 1
Lot 10
(Old Towne
West/Metrolink
Parking Structure)
Maple Ave and Lemon St 627
3-Hr. Visitor 118
Handicap 15
Clean Air/Van
Pool/EV 42
Electric Vehicle 5
Old Towne Orange Parking Study
March 2023

Name Location Total Number
of Spaces Reservations Spaces
Lot 11 South of Almond Ave, between Grand St
and Center St 36 Handicap 2
Lot 12 Center St and Almond Ave 99
2-Hr. Visitor 10
Handicap 5
Electric Vehicle 7
Reserved 7
Lot 13 North of Chapman Ave, between Grand
St and Shaffer St 154
5 Minute 2
Handicap 6
Authorized 1
Loading 1
Lot 14 Atchison St east of Metrolink Station 53 Handicap 4 Lot 15 West of Metrolink Station 311 Handicap 4
Total Parking
Spaces Available 1,673
Notes:

The above information is based on fieldwork conducted in October 2021.

In Old Towne West Parking Garage, 447 parking spaces are allocated for Metrolink commuters and, are open to general use after 9:00 am. The 3 Hr. Visitor parking spaces are allocated for downtown business users.

Loading spaces are not included in the parking supply
Permit parking spaces were all at 85% utilization or higher except for Lemon St between Maple Ave and Chapman Ave, Maple Ave between Grand St and Center St, and Grand St between Palm Ave and Maple Ave. Approximately 40 of the available 963 spaces on weekdays are permit parking spaces. For weekends, approximately 20 of 989 available spaces are permit parking spaces.

Old Towne Orange Parking Study
March 2023

Table 2: Summary of On-Street Parking
Location Parking Spaces Loading Spaces Reservations Spaces Cypress St B/ Maple Ave - Chapman Ave 36 2
2 Hr. 3
Permit 5
Cypress St B/ Chapman Ave - Almond Ave 32 2 Hr. 4
Lemon St B/ Palm Ave - Maple Ave 37 7
Lemon St B/ Maple Ave - Chapman Ave 19 Permit 12
Lemon St B/ Chapman Ave - Almond Ave 23 2 2 Hr. 2
Lemon St B/ Almond Ave - Palmyra Ave 35
Olive St B/ Palm Ave - Maple Ave 46 Permit 43
Olive St B/ Almond Ave - Palmyra Ave 36
Glassell St B/ Palm Ave - Maple Ave 27
2 Hr. 21
30 Min. 3
Glassell St B/ Maple Ave - Chapman Ave 28 2 Hr. 7
Glassell St B/ Chapman Ave - Almond Ave 22 2 Hr. 5
Glassell St B/ Almond Ave - Palmyra Ave 18
Orange St B/ Palm Ave - Maple Ave 35
1 Hr. 4
Permit 31
Orange St B/ Almond Ave - Washington Ave 19
Orange St B/ Washington Ave - Palmyra Ave 17
Grand St B/ Palm Ave - Maple Ave 39
2 Hr. 5
Permit 34
Grand St B/ Maple Ave - Chapman Ave 29 8 Permit 9
Grand St B/ Chapman Ave - Almond Ave 23
2 Hr. 4
30 Min. 7
Grand St B/ Almond Ave - Washington Ave 19
Grand St B/ Washington Ave - Palmyra Ave 17
Center St B/ Maple Ave - End 20 Permit 20
Center St B/ Chapman Ave - Almond Ave 42 3 2 Hr. 5
Maple Ave B/ Cypress St - Lemon St 8
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Location Parking Spaces Loading Spaces Reservations Spaces Maple Ave B/ Lemon St - Olive St 16
Maple Ave B/ Olive St - Glassell St 14 Permit 6
Maple Ave B/ Glassell St - Orange St 15 1 Hr. 9
Maple Ave B/ Orange St - Grand St 16 Permit 7
Maple Ave B/ Grand St - Center St 20 2 Hr. 3
Almond Ave B/ Cypress St - Lemon St 14
Almond Ave B/ Lemon St - Olive St 13
Almond Ave B/ Olive St - Glassell St 13
Almond Ave B/ Glassell St - Orange St 12
Almond Ave B/ Orange St - Grand St 13
Almond Ave B/ Grand St - Center St 5
Olive St B/ Maple Ave - Chapman Ave 35 30 Min. 4
Olive St B/ Chapman Ave - Almond Ave 27 6 15 Min. 1
Orange St B/ Maple Ave - Chapman Ave 21 6 30 Min. 2
Orange St B/ Chapman Ave - Almond Ave 27 11 2 Hr. 5
Chapman Ave B/ Lemon St - Olive St 17 3 Hr. 2
Chapman Ave B/ Olive St - Glassell St 8 2 Hr. 4
Chapman Ave B/ Glassell St - Orange St 8
Chapman Ave B/ Orange St - Grand St 20
Glassell St/Chapman Ave Circle NW 13
Glassell St/Chapman Ave Circle NE 13
Glassell St/Chapman Ave Circle SE 12
Glassell St/Chapman Ave Circle SW 13
Total Parking Spaces Available 992 23
Note:

The above information is based on fieldwork conducted in October 2021.

Glassell St between Maple Ave and Almond Ave is currently closed-off to parking. The number of parking spaces on this street segment is 54.

Loading spaces and motorcycle parking are not included in the parking supply Old Towne Orange Parking Study
March 2023

Table 3: Existing Peak Hour Parking Occupancy
Day Peak Hour
of Demand
Total
Inventory
Peak Hour
Occupancy
Remaining Parking
Supply % Occupied
Thursday (9/30/2021) 1:00 PM 2,666 1,697 969 64%
Saturday (10/02/2021) 1:00 PM 2,666 1,677 989 63%
Source: Fehr & Peers, 2021
The existing hourly parking supply and demand in the study area on Thursday and Saturday are summarized in Figure 3 and Figure 4.

Figure 3: Weekday Total Parking Demand 452 649 802 855 927 943 901 849 779 713 674 649 643 455 353 277 249 466532601 658681 754 639 600 566 573 586 610 588 528 451 420 384 2,666
34%
45%
54%
57%
60% 64%
58% 54%
50% 49% 48% 48% 46%
38%
30%
26% 24%
0 500
1000
1500
2000
2500
3000 Parking Spaces
Time of Day
Off-Street Parking Demand On-Street Parking Demand Total Supply Old Towne Orange Parking Study
March 2023

Figure 4: Weekend Total Parking Demand
Figure 5 and Figure 6 illustrate the peak hour parking utilization in Old Towne from Thursday and Saturday, respectively. Hourly parking utilization maps for each day of data collection are provided in Appendix A.

Overall, the Thursday and Saturday daily parking trends observed during the data collection show parking supply is approximately half full (50% utilized) by 10:00 AM with midday peaks at 64% occupancy on weekdays and 63% occupancy on weekends. On both days, the PM demand declines after midday and slightly increases after 5:00 PM and starts declining again after 8:00 PM.

Based on the survey data, Thursday had higher parking utilization in the early AM compared to Saturday.

Segments surrounding Downtown Plaza Park along Olive Street, Orange Street, Chapman Avenue, and Glassell Street and most lots between Lemon Street and Grand Street were more than 90% utilized between 10:00 AM and 8:00 PM. Many parking areas were at or near full occupancy, again in those areas closest to the Plaza Park. Some parking locations had occupancy that exceeded supply. In these locations, automobiles parked in unmarked on-street spaces illegally. 483 578 660 719 722 726 680 659 609 598 638 658 650 571 500 454 398 386 340 483578660719 722 788 680 659 609 598 638 658 650 571 500 454 398 386 340 2,666
30%
41%
52%
58% 60% 63%
59% 54%
48% 44%
48% 49% 48%
39%
33%
28%
24% 23%
20%
0 500
1000
1500
2000
2500
3000 Parking Spaces
Time of Day
Off-Street Parking Demand On-Street Parking Demand Total Supply I2
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Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100%
Figure 6
Parking Utilization (12:00 PM - Thursday)
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Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100%
Figure 7
Parking Utilization (1:00 PM - Saturday)
Old Towne Orange Parking Study
March 2023

Parking Turnover
Parking turnover is the ratio of the number of vehicles parked in a duration to the number of parking spaces available. Parking turnover surveys were collected during the hourly data collection periods for the core on-street parking segments in the study area:
 Chapman Avenue between Lemon Street and Grand Street,  Olive Street between Maple Avenue and Almond Avenue,
 Orange Street between Maple Avenue and Almond Avenue,  The Plaza to the northwest, northeast and southeast corners.

Glassell Street between Maple Avenue and Almond Avenue, and the southwest corner of the Plaza were excluded as these street segments were closed off for parking to accommodate outdoor dining during the survey period.

Since Old Towne does not impose universal parking fees or time restrictions for on-street parking, longterm parking has the potential to create a deficient parking supply, particularly in locations with higher demand. To determine the parking turnover ratio, license plate numbers were recorded for vehicles parked along the street in the study area every hour during the survey period to identify how many vehicles utilized each parking space during the 12- or 14-hour period. Daily segment turnover rates were calculated by dividing the total number of vehicles parked along each roadway segment during the total period divided by the total supply of the same roadway segment, as shown in the equation below:

Daily Turnover Rate = (# Parked Vehicles) ÷ (# Parking Supply) Figure 7 and Figure 8 illustrate the average turnover rates from parking data collected from Thursday and Saturday, respectively. The turnover rate indicates the average number of vehicles using each parking space along the roadway segment in a day. For instance, a roadway segment with 5 available parking spaces and a turnover rate of 3 translates to a total of approximately 15 vehicles parked on the segment throughout the 12-hour study. A lower turnover rate indicates the lack of parking turnover activity occurring along a segment.

The locations with the lowest turnover rates for each day were:
 Orange Street between Maple Avenue and Chapman Avenue  Olive Street between Chapman Avenue and Almond Avenue High turnover rates (more than 7 vehicles per space per day) were most prevalent along Chapman Avenue and the Plaza. Turnover rates on Saturday were observed higher compared to Thursday.

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Washington Ave
Palmyra Ave
Palm Ave
Figure 8
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ñ City Hall
Parking District
Parking Turnover Rate
(Average Vehicles per Space per Day)
< 4
4 - 5
5 - 6
6 - 7
7 - 8
8+
Average Parking Turnover Rate (Thursday)
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Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure 9
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Turnover Rate
(Average Vehicles per Space per Day)
< 4
4 - 5
5 - 6
6 - 7
7 - 8
8+
Average Parking Turnover Rate (Saturday)
Old Towne Orange Parking Study
March 2023

Average Length of Stay
Using data from the turnover survey, the average length of stay of parked vehicles was analyzed to identify the average number of hours that vehicles are parked in Old Towne. The average length of stay was assessed to determine the amount and frequency of vehicles that remain parked over an extended period as well as the locations where long-term parking was most prevalent. The parking turnover data revealed the following average lengths of stay over the two-day survey:

Thursday
 74% of vehicles parked for 2 hours or less
 13% of vehicles parked for 4 hours or more
Saturday
 75% of vehicles parked for 2 hours or less
 10% of vehicles parked for 4 hours or more
Figure 9 and Figure 10 illustrate the average
length of stay for each on-street parking segment
where parking turnover data was collected for
Thursday and Saturday, respectively.

As shown, vehicles generally remain parked for
longer periods of time on the north-south streets—
Olive Street and Orange Street. Parking lengths
tend to be shorter on the Plaza and along Chapman Avenue to the west of Plaza Circle. Relatedly, Olive Street and Orange Street have lower turnover rates, while Chapman Avenue and the Plaza have higher rates. The segments with the highest turnover rates by day are listed below:

Thursday:
 Chapman Avenue (north and south side of street) between Lemon Street and Olive Street  Chapman Avenue (north side of street) between Olive Street and the Plaza  The Plaza NE
Saturday:
 Chapman Avenue (north and south side of street) between Lemon Street and Olive Street  Chapman Avenue (south side of street) between Olive Street and Plaza Square  The Plaza SE and Plaza NW Quadrants
 Chapman Avenue (south side of street) between the Plaza and Orange Street I2
ñ
Maple Ave
Almond Ave
t S dnar G
t S egnar O
t Sr et neC
t S no meL
t Sll essal G
t S evil O
t S sser pyC
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure 10
N
I2 Metrolink Station
ñ City Hall
Parking District
Average Parking Length of Stay
(Average Hours per Space per Day)
< 2
2 - 3
3 - 4
4+
Average Parking Length of Stay (Thursday)
I2
ñ
Maple Ave
Almond Ave
t S dnar G
t S egnar O
t Sr et neC
t S no meL
t Sll essal G
t S evil O
t S sser pyC
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure 11
N
I2 Metrolink Station
ñ City Hall
Parking District
Average Parking Length of Stay
(Average Hours per Space per Day)
< 2
2 - 3
3 - 4
4+
Average Parking Length of Stay (Saturday)
Old Towne Orange Parking Study
March 2023

Existing Conditions Summary
The findings of the existing parking utilization survey are detailed below:
 There is sufficient parking supply in Old Towne to meet the current demand. The existing data collection showed that overall, Old Towne Orange has sufficient parking supply to serve the current demand. A threshold of 90% utilization in the study area was used to determine parking deficiencies. Over the course of the two-day parking survey, the peak maximum occupancy occurred midday Thursday with 64% of parking utilized at 1:00 PM. However, there are several parking hotspots where occupancy frequently exceeds 90% during select time periods or where illegal parking occurs, or both. Specifically, parking in the immediate vicinity of the Plaza is heavily utilized, while the areas farther from the circle rarely exceed the 90% threshold. The garage in the study area is particularly underutilized, especially those outside of the core parking district.  Old Towne visitors may not be aware of available public parking in adjacent areas. The results of the utilization study showed a maximum of 64% utilization. However, parking is frequently at capacity in the areas closest to the Plaza. This contradiction indicates that individuals may not be aware of all locations where public parking is available or may not be comfortable seeking parking farther from their destination. As illustrated on the utilization maps in Appendix A, several parking locations show maximum occupancy (shown in red) adjacent to other on- and off-street parking areas that have available parking (shown in green and yellow).  Extended lengths of stay – or vehicles parked over 4 hours – represents an average of 8% of the total parking demand. Without time restrictions on parking, vehicles are permitted to stay in Old Towne without limitation. The two-day (Thursday and Saturday) parking survey revealed that extended parking, in which vehicles stay over 4 hours, represents approximately 7% to 9% of total daily parking demand.
 The Old Towne West/Metrolink Parking Structure is underutilized. The survey data indicates almost half of underutilized capacity for publicly available parking spaces during peak periods of parking demand in the garage. During the weekday (Thursday) parking surveys, the maximum parking utilization of the garage was 47%. The weekend (Saturday) maximum parking utilization was 53% on Saturday night. At the time of the parking survey, Metrolink ridership saw an 85% decrease2 of ridership compared to pre-pandemic levels, and there may be greater demand from Metrolink riders in the future as the ridership continues to return. 2 https://metrolinktrains.com/rider-info/safety--security/health-safety/coronavirus/caresactfunding/ Old Towne Orange Parking Study
March 2023

Future Parking Supply and Demand
Fehr & Peers analyzed future parking supply and demand to forecast future parking conditions in Old Towne using information from the City on planned future development projects. A shared parking demand model was developed to estimate the future parking demand in Old Towne.

Shared Parking Demand Model
To understand how parking demand would change with future development in old Towne Orange, Fehr & Peers reviewed parking demand for the anticipated land uses and parking supply standards from Section

17.34.060 of the Orange Municipal Code. However, these standards reflect the minimum required parking supplied and are not reflective of current or future parking demand characteristics. The parking demand data collected in the surveys were used in combination with data from Shared Parking, Third Edition (Urban Land Institute [ULI], 2020) and the existing land use information to develop a parking demand model that reflects the study area and can estimate the parking demand from approved and pending projects.

The shared parking model uses base parking ratios for land uses that are based on a national study of parking occupancy data from across the United States. The ratios are based on expected peak parking demand of vehicles assuming nearly 100 percent modal split to automobile. In addition to parking demand and modal split, the parking ratios are based on 85th percentile parking demand observed, for the purpose of optimizing supply. This is so that parking supply is not designed to the absolute peak demand generated during limited hours of a peak day on a peak month.

The parking model includes modal adjustments to account for local transit availability, parking fees, ride sharing programs, and other transportation demand management systems. Additionally, the parking model accounts for internal capture of people who park once and visit multiple land uses. Modal adjustments and internalization were adjusted to reflect transit, walking, and biking connectivity to Old Towne. The internalization was adjusted to reflect the relative distance between the various land uses in Old Towne. Time of day and seasonal variations are included in the model to account for the variability of parking demand across various land uses. The variations are based on data from across the United States but were adjusted to reflect the temporal aspects of demand specific to Old Towne. The model provides parking demand ratios that can be applied to a variety of land uses to estimate peak parking demand for a given land use.

Table 4 summarizes the shared parking ratios and the City of Orange parking supply standards per land use type.

Old Towne Orange Parking Study
March 2023

Table 4: Parking Demand Peak Hour1 Comparison
Land Use Quantity Unit
Shared Parking Ratios2 City of Orange
Parking
Standards Weekday Weekend 3
Retail [a] 1,000 SF 3 4 4
Supermarket/Grocery [b] 1,000 SF 5 5 4
Office 1,000 SF 5 2 4
Fine/Casual Dining 1,000 SF 16 18 4
Family/Full-Service Restaurant 1,000 SF 18 17 4
Fast Casual/Fast Food 1,000 SF 14 14 4
Bar/Lounge/Night Club 1,000 SF 18 20 4
Hotels 12 keys 5 5 12
Multifamily Residential: Studio [c] 1 DU 1 1 1
Multifamily Residential: One Bedroom [c] 1 DU 1 1 1.5
Multifamily Residential: Two Bedrooms [c] 1 DU 1.8 1.8 1.8 Multifamily Residential: Three+ Bedrooms [c] 1 DU 2.6 2.6 2 SF = Square Feet, DU= Dwelling Unit
1Peak Hour is assumed at 1PM in the month of October
2Shared Parking, Third Edition, 2020
3City of Orange Municipal 17.34.060: Required Number of Parking Spaces. Required number of parking spaces for Downtown Plaza District. Downtown plaza district includes properties within the eight-block area bounded by Maple Avenue, Grand Street, Almond Avenue and Lemon Street and the requirements are noted in Table 17.34.060(C) of the Municipal Code. The same requirements apply for the Santa Fe Depot Specific Plan. This is consistent for all uses except for Hotel, which is referenced from Table 17.34.060(A) of the Municipal Code. The only hotel project (Orange Plaza Inn/Richland Hotel) is located outside of the Downtown plaza district. [a] Retail less than 400,000 sf
[b] Retail less than 25,000 sf Gross Floor Area
[c] Development Size—3 units to 50 units

Old Towne Orange Parking Study
March 2023

Old Towne Future Buildout
Fehr & Peers worked with City of Orange planning staff to identify planned development projects in the Old Towne area. At the time of conducting this study, six projects were pending, approved, or under construction (approved projects) in the study area that would result in near-term changes to parking supply and demand.

In addition, Fehr & Peers reviewed the Santa Fe Depot Specific Plan to gather information about the anticipated projects in and adjacent to Old Towne which include:
 261 residential units
 316,396 square feet of commercial development
 371,778 square feet of institutional development
 171,160 square feet of industrial development
These land uses will be located west of the Old Towne which will impact parking in the Old Towne when built out. Institutional development from the Santa Fe Depot Specific Plan was not included in the review as these projects will be operated by Chapman University and will provide reserved spaces for the users.

Industrial development projects were not included either due to their location outside of Old Towne and are not anticipated to have any effect of public parking in Old Towne3.

Table 5 and Figure 11 identify the approved projects in and adjacent to the study area and the planned Santa Fe Depot Specific Plan area.
3 Residential projects in the Specific Plan were assumed to provide 100% of parking as required by the City’s Municipal Code. This supply is anticipated to be provided on-site for residents and visitors only and is not anticipated to contribute to the demand for additional public parking.

Old Towne Orange Parking Study
March 2023

Table 5: Future Development List
Name Location Land Use Type Size Unit
Peak Hour
Parking
Demand4
Approved Projects
First Presbyterian Church
Christian Education Center
Adaptive Reuse
191 N Orange St Mixed-Use
Restaurant 2,374 SF
Market 2,288 SF
Retail 800 SF
Office 14,960 SF
(Former) Spic-N-Span
Drycleaner
201 W Chapman
Ave
Commercial Coffee House 1,145 SF
Sunkist Fruit Exchange
Building Adaptive Reuse 195 S Glassell St Commercial Restaurant 2,856
SF
Old Towne Gateway1 401 W Chapman
Ave
Commercial Restaurant 7,610 SF
Hilbert Museum1 167 N Atchinson
St
Educational Art Gallery 5,000 SF
Orange Plaza Inn/Richland
Hotel
137 E Maple Ave Lodging Hotel 12 keys
Santa Fe Depot Specific Plan
Santa Fe Depot Specific
Plan Development2
To the West of the
Study Area
Residential - 261 DU
Commercial - 316,396 SF
Total
Residential Multifamily
Housing 261
DU 394 Spaces
Commercial Retail3 287,844 SF 733 spaces
Commercial Restaurant3 45,625 SF 680 spaces
Office Office 14,960 SF 47 spaces
Lodging Hotel 12 keys 4 spaces
SF = Square Feet, DU= Dwelling Unit
1 Located in the Santa Fe Depot Specific Plan Area
2 Source: Santa Fe Depot Specific Plan Update, Development Capacity Analysis, 2006 3 Assuming 90% of General Retail and 10% of Family/Full Service Restaurant 4Peak Hour Parking Demand was developed using Shared Parking, Third Edition (Urban Land Institute [ULI], 2020). This represents the parking demand at the peak hour (1:00 PM) for each land use type, accounting for the more efficient use of supply due to likelihood that patrons and visitors may park once and visits multiple destinations in Old Towne and the Santa Fe Depot area Metrolink Station
Existing Parking District
2 2
Approved and Planned Project Locations
Figure 11
Pending Projects
Square Footage of Pending Projects
Santa Fe Depot Specific Plan Boundary
Not a part of Santa Fe Depot Specific Plan
Not Included in Parking Demand Calculation
Proposed Fee Boundary
20,925 sqft
2,856 sqft
1,145 sqft
9,953 sqft
7,610 sqft
sqft
5,000 sqft
2 N
Hilbert
Museum
Old Towne
Gateway Sunkist Fruit
Exchange
Spic-N-Span
Drycleaner
First Presbyterian
Church
Orange Plaza Inn
Residential
Existing Kept
Removed
Added
Chapman Ave
Maple Ave
Palm Ave
Parker St
Cypress St
Lemon St
Olive St
Glassell StOrange St
Grand St
Center St
Shaffer St
Sycamore Ave
Walnut Ave
Almond Ave
Palmyra Ave
Washington Ave
New Commercial
Annually
60% Commercial
Annually
Source: Santa Fe Depot S
pecific Plan Update, 2006
201
6 301
144,931
256,091
345,563
490,494
10,000
194,075
371,778
381,778
-
1,316
171,160
171,160
154,931
451,482
888,501
1,043,432
345,563
28,797
207,338
15,949
Commercial Instituional Industrial Totals
Old Towne Orange Parking Study
March 2023

Assessment of Future Parking Demand
The information for the approved and Santa Fe Depot Specific Plan development projects identified in Table 5 was applied to the parking demand model to estimate future parking demand in Old Towne.

Table 5 presents the peak hour parking demand for the future development projects.

Future development is forecasted to increase parking demand by 1,529 new parking spaces on a weekday and 1,537 on a weekend, as shown in Figure 12. Although there are available parking spaces in the study area, it is reasonable to assume that some parking will be built as part of the Santa Fe Depot development projects.

As noted above, the parking demand data collected in the surveys were used in combination with data from Shared Parking, Third Edition (Urban Land Institute [ULI], 2020) and the existing land use information to develop a parking demand model that reflects the study area and can estimate the parking demand from approved and pending projects. The ITE shared parking manual accounts for the mix of uses present in Old Towne and the projected mix of uses in the Santa Fe Depot Specific Plan, which assumes a more efficient use of supply due to likelihood that patrons and visitors may park once and visits multiple destinations in Old Towne and the Santa Fe Depot area.

In coordination with City of Orange planning staff, two scenarios were identified for future parking assessment of weekday and weekend non-residential parking demand. In both scenarios it was assumed that parking will be provided by residential development to meet the demand of residents and visitors.

Old Towne Orange Parking Study
March 2023

Figure 12: Future Parking Demand by Land Use

Old Towne Orange Parking Study
March 2023

Scenario 1
This scenario assumes no new parking spaces are provided. Approved projects and Santa Fe Depot Specific Plan commercial development are assumed to provide no new spaces.

Figure 13 identifies the existing peak parking demand on Thursday from 1:00 PM – 2:00 PM, with a total of 1,697 vehicles parked (64% utilization). With an estimated 1,484 weekday parking spaces demanded for the approved projects and Santa Fe Depot Specific Plan buildout, the total parking demand increases to 3,181 on a weekday. On a weekend, the existing peak parking demand is from 1:00 PM – 2:00 PM, with a total of 1,697 vehicles parked (63% utilization), as shown in Figure 13. With the future development project weekend added parking demand of 1,502 vehicles, the parking demand increases to 3,179 on a weekend.

Under this scenario, 515 and 513 additional parking spaces will be needed to meet the weekday and weekend parking demand, respectively.

Two different utilization rates were considered. A utilization rate, or threshold, is a measure of how utilized parking supply will be. When utilization rates are low, there is an excess of available parking. While this creates an environment where motorists almost always find a parking space easily, it also means public right-of-way and resources have been allocated to vehicle parking that is needed most of the time. A utilization rate between 85% and 90% utilization is typically considered ideal. At this level of utilization, parking supply is considered well-utilized with sufficient capacity for circulation and turnover. 85% utilization is more standard for most suburban shopping centers where parking is free and demand is moderate to high at peak times. 90% utilization is typically used in downtown settings where parking may or may not be priced and demand is high at peak times. Both utilization rates were considered as Old Towne Orange represents a blend of suburban and downtown place types.

To achieve 85% parking occupancy, the recommended future parking supply is 3,742 spaces on a weekday and 3,740 spaces on a weekend. To achieve 85% utilization rate, a total of 1,076 additional parking spaces will be needed to provide sufficient parking on a weekday and 1,074 additional parking spaces on a weekend.

To achieve a 90% parking occupancy, the recommended future parking supply is 3,535 spaces on a weekday and 3,533 spaces on a weekend. To achieve 90% utilization rate, a total of 869 additional parking spaces will be needed to provide sufficient parking on a weekday and 867 additional parking spaces on a weekend.

Old Towne Orange Parking Study
March 2023

Scenario 2
This scenario assumes that approved future development projects and commercial buildout of the Santa Fe Depot Specific Plan would provide 50% of the parking spaces required by the City’s code parking. This parking supply increase results in 715 new spaces added to the existing parking supply to result in a total future parking supply to 3,381 spaces. The future weekday parking demand of 3,181 spaces will result in 94% utilization and the future weekend parking demand of 3,179 spaces will result in a 94% utilization.

Under this scenario, there will be a surplus of 200 parking spaces on a weekday and a surplus of 202 parking spaces on a weekend.

To achieve an 85% parking utilization, 361 additional parking spaces will be needed to on a weekday and 359 parking spaces on a weekend.

To achieve an 90% parking utilization, 154 additional parking spaces will be needed to on a weekday and 152 parking spaces on a weekend.

Table 6 and Figure 13 summarize the existing and future parking supply for both scenarios on a weekday and a weekend.

The future parking demand estimates identified in this section are based on the best available information provided by the City of Orange. Future parking demand can change based on changes to the approved projects or other projects being proposed in Old Towne.

Existing supply would not accommodate level of development expected from approved projects and contemplated in the Santa Fe Depot Specific Plan. If approved projects and the commercial buildout of the Santa Fe Depot Specific Plan provide 50% of the parking supply required per the City’s code, it would accommodate future parking demand. If approved projects and the commercial buildout of the Santa Fe Depot Specific Plan provide more than 50% of the parking supply required per the City’s code, there would be a larger surplus and potentially no additional spaces would be required to meet 85% or 90% utilization.

Old Towne Orange Parking Study
March 2023

Table 6: Summary of Existing and Future Parking Supply Scenarios Weekday Weekend
Scenario 1 – No New Parking Supply Added
Existing Parking Supply 2,666 2,666
Total Future Parking Supply 2,666 2,666
Existing Parking Peak Demand1,2 1,697 1,677
Approved Projects Parking Peak Demand 289 256
Santa Fe Depot Specific Plan Parking Demand 1,196 1,246 Total Future Parking Demand 3,181 3,179
Needed Parking Supply 515 513
85% Utilization of Future Parking Demand 3,742 3,740
Needed Parking Supply for 85% Parking Utilization of Future Demand 1,076 1,074 90% Utilization of Future Parking Demand 3,535 3,533
Needed Parking Supply for 90% Parking Utilization of Future Demand 869 867 Scenario 2 – 50% Parking Buildout
Existing Parking Supply 2,666 2,666
Net New Spaces (50% Parking Buildout) 715 715
Total Future Parking Supply 3,381 3,381
Existing Parking Peak Demand1,2 1,697 1,677
Approved Projects Parking Peak Demand 289 256
Santa Fe Depot Specific Plan Parking Demand 1,196 1,246 Total Future Parking Demand 3,181 3,179
Parking Surplus 200 202
85% Utilization of Future Parking Demand 3,742 3,740
Needed Parking Supply for 85% Parking Utilization of Future Demand 361 359 90% Utilization of Future Parking Demand 3,535 3,533
Needed Parking Supply for 90% Parking Utilization of Future Demand 154 152

1. Represents the maximum demand observed during weekday survey (Thursday 1:00 PM)

2. Represents the maximum demand observed during weekend survey (Saturday 1:00 PM) Old Towne Orange Parking Study
March 2023

Figure 13: Future Parking Supply and Demand

Old Towne Orange Parking Study
March 2023

Determining Future Parking Deficiencies
As development and redevelopment continues in Old Towne and through the Santa Fe Depot Specific Plan, it is likely that individual projects will provide varying levels of parking on-site. It is possible that many projects will supply parking at levels that fall in between the parking supply scenarios studied here (Scenario 1 – no new parking supply and Scenario 2 – 50% of parking supply as required by City code). As noted above, depending on what utilization rate is considered and how much parking is supplied by individual projects, different amounts of parking supply would be required to meet future parking demand. As such, identifying what qualifies as a parking deficiency in Old Towne Orange should use the following procedure:

1. Any residential project should perform a parking demand estimate to consider the parking demand onsite. Any project that does not provide on-site parking that meets the estimated parking demand would be considered deficient.
a. Published parking demand data through ITE or ULI could be referenced to evaluate the residential parking demand.
b. Alternatively, local data could be collected at nearby residential sites to establish a local parking demand rate.

2. Any commercial or mixed-use project should perform a Shared Parking Analysis to consider the parking demand on site. Any project that does not provide on-site parking that meets the estimated parking demand would be considered deficient.
a. The parking demand rates in Table 5 can generally be used to evaluate projects, as these were developed using a shared parking model consistent with Old Towne Orange. If the project is not consistent with the mix of uses or assumptions used in this study, it may not be appropriate to use these rates.

Projects without acceptable parking supply should be required to mitigate their parking deficiencies.

Options for this include:
 Integrating additional on-site parking (may not be financially, physically, or otherwise feasible in Old Towne for many projects due to historical structures and other limitations)  Establishing agreements with nearby properties with available parking supply  Paying into a parking mitigation fee, details are described below  Demonstrating a substantial reduction in parking demand through parking management strategies
Old Towne Orange Parking Study
March 2023

Smart Parking Equipment
Based on the review of the existing and future parking conditions, several types of smart parking equipment and infrastructure are recommended to assist visitors in finding available parking in the Old Towne:

Wayfinding Options: Dynamic digital signage or a parking app coupled with sensors, cameras, or other detection technology can provide live updates on the number of spaces available in a given area. A parking app can also process payment information if needed. A summary of the wayfinding options is provided in Table 7.

Detection Options: To help rectify time limit violations, the City might consider installing vehicle sensors that detect when a vehicle is parked in the space and transmit information wirelessly to parking enforcement officers. While this technology is most effective and most easily installed in parking garages or lots, the sensors can be placed on pavement, in pavement, or on meter posts. Vehicle detection cameras installed overhead above the street are another way to detect when a vehicle is parked in a space and notify parking enforcement officer of violations. A summary of the detection options is provided in Table 8.

Payment Technologies: There are several payment technologies that could be employed in Old Towne, including individual meters, kiosks, and a mobile parking app. A key issue related to all parking charges is setting the optimal level of the charges—a topic that is discussed further in the Parking Strategies Toolbox section of this report. A summary of the payment technologies is provided in Table 9.

Enforcement Options: Effective implementation of time limits and charging for parking requires enforcement. Enforcement can be implemented by installing in-meter cameras or integrated license plate reader cameras at parking meter locations that would detect when a vehicle is parked in the space and take a picture of the license if a violation occurs. A summary of the enforcement options is provided in Table 10.

Aesthetics
Given the historical character of Old Towne, visual style and aesthetics of any new equipment or infrastructure is a key consideration. Most of the smart parking equipment described in this section has some level of customization through different vendors. Wayfinding signage and apps and payment apps and kiosks would be custom-made or customizable equipment/tools. More standardized technology, such as meters and sensors, have fewer customization options beyond paint color, but could be installed with discretion and aesthetics in mind.

Old Towne Orange Parking Study
March 2023

Table 7: Wayfinding Options Summary
Dynamic Digital Signage Parking App
Example
Description
Coupled with sensors, cameras, or other detection these signs provide live updates on the number of spaces available in a given area.

Coupled with sensors, cameras, or other detection this customizable app provides live updates on the number of spaces available in a given area. It can also process payment information if needed.

Typical Vendor ParkHelp Smart Parking
On-Street/Off-Street Off-Street: Lots and Garages On-Street and Off Street Capital Costs $8,000 - $20,000 per sign
The City could integrate existing storymaps website which shows where parking is available in Old Towne at minimal cost, and this is already integrated for the Old Towne West garage on Lemon Street.

Operating Costs
Limited to no ongoing maintenance required. The Old Towne West garage on Lemon Street currently includes this type of signage on the ground floor.

No new operating costs would be expected, as the City already hosts the storymaps for Old Towne and integrates this functionality for the Old Towne West garage.

Summary of
Strengths/Functions

1. Allows for real-time wayfinding.

2. No ongoing maintenance or hosting issues.

3. Already deployed in Old Towne West structure, so familiar to residents and patrons of Orange.

1. Customizable tool that can direct folks to available parking spaces.

2. Can be deployed for on-street and off-street parking.

3. Existing City storymaps already provide a framework, hosting, and maintenance that could be enhanced to include all parking in Old Towne.

Summary of
Weaknesses

1. Limited to off-street facilities, signage may be too clunky or not effectively placed for on-street parking.

2. Does not allow folks to review parking options before traveling to Old Towne.

1. Equity and accessibility concerns for folks without access to a smart phone or data plan.

Old Towne Orange Parking Study
March 2023

Table 8: Detection Options Summary
Sensors
Land Use
Overhead Cameras
Example
Description
Sensors are placed either on pavement, in pavement, or on meter post. Detects when a vehicle is parked in the space and transmits that information wirelessly to meter and parking enforcement officer.

Customers log on to a smartphone app and enter a parking zone or space number. Payment for time spent is automatically drawn from customer's account.

Vehicle detection cameras installed
overhead above the street. Detects when a
vehicle is parked in a space and notifies
parking enforcement officer of violations.

Typical Vendor Nwave; PNI Nwave; PNI IPS Group ParkSonic Spacing One sensor per parking space One sensor per parking space One sensor per parking space
Depends on sight lines, but typically one
per block
Capital Costs Most vendors have no upfront costs, but jurisdiction would need to provide labor for installation
See “Payment
Technologies”
$200 - $500 per camera
Operating Costs $12-$15 per month per sensor; $144-$180 per year per sensor See “Payment Technologies”
Similar to meters and kiosks, some vendors
offer maintenance plans and software
updates, but many municipal customers
choose to cover maintenance through
existing departments/operators that
maintain utilities/lighting within the
jurisdiction, as cameras are most typically
installed on existing lighting or utility poles.

Old Towne Orange Parking Study
March 2023

Sensors
Land Use
Overhead Cameras
On-Street/
Off-Street
On-street and off-street (most
effective in off-street lots and
garages)
On-street and off-street (most
effective in off-street lots and
garages)
On-Street and Off Street
(most effective in on-street
parking)
On-street
Summary of
Strengths/
Functions

1. Allows for more efficient
enforcement by notifying and
directing enforcement officers
to violators.

2. Ability to track vehicles
exceeding maximum time limits
without chalking.

3. Ability to track vehicles
parking without paying.

1. Allows for more efficient
enforcement by notifying and
directing enforcement officers to
violators.

2. Ability to track vehicles
exceeding maximum time limits
without chalking.

3. Ability to track vehicles parking
without paying.

1. Allows for more efficient
enforcement by notifying
and directing enforcement
officers to violators.

2. Ability to track vehicles
exceeding maximum time
limits without chalking.

1. Same enforcement efficiency and time
tracking benefits as sensors.

2. Provides video surveillance options for
other law enforcement applications.

3. Best for unobstructed-view areas with a
high density of parking spaces.

Summary of
Weaknesses
Visual confirmation of violations
must be done by enforcement
personnel
Visual confirmation of violations
must be done by enforcement
personnel
Visual confirmation of
violations must be done by
enforcement personnel
Requires an available place to mount the
camera that has clear sight lines to parking
spaces
Old Towne Orange Parking Study
March 2023

Table 9: Summary of Payment Technologies
Individual Meters Kiosks Parking App
Example
Description
One or two meters are mounted to metal post.

Customer purchases time at the meter up to the
maximum allowable. Remaining time is displayed
visually. Meter is solar-powered, with wireless
communications ability.

Centralized kiosk serves multiple spaces.

Customer purchases time at the kiosk up to the
maximum allowable. In some systems,
customer needs to place a ticket on the
dashboard as proof of payment. Kiosk is solarpowered, with wireless communications ability.

Customers log on to a smartphone app and
enter a parking zone or space number.

Payment for time spent is automatically drawn
from customer's account.

Typical Vendor IPS Group Parkeon ParkMobile
Spacing
Each meter serves one designated parking space
A post that supports two meters can serve two
spaces.

Each kiosk can serve as many spaces as
needed. Spacing should be determined by ease
of walking distance for customers; typically one
kiosk every 150-200 feet.

N/A
Pay-by-Space or
Zones
Pay-by-space only Can do either pay-by-space or zone payment Can do either pay-by-space or zone payment Effect on
Sidewalk
Allow about two feet behind face of curb for
meter installation
Limited; likely need only one or two kiosks on
each block face None
Accepts Coins Yes Yes No
Accepts Bills No Yes No
Accepts Cards Yes Yes Yes
Pay by App Yes Yes Yes
Old Towne Orange Parking Study
March 2023

Individual Meters Kiosks Parking App
Pay by Phone Yes Yes Yes
Potential
Enhancements
for Ease of
Enforcement
Sensors
Overhead cameras
In-meter cameras (only option that would allow
fully automated enforcement)
Sensors
Overhead cameras
Sensors
Overhead cameras
Maintenance
Needs
Many meters to service; however, limited impact
from downtime of an individual meter
Relatively small number of kiosks to service,
but larger impact from downtime of an
individual kiosk
No physical maintenance needed; however,
systemwide impact if app fails
Consumer
Convenience
Issues
Generally well understood by customers and
easy/convenient to use, particularly if meter
allows option to pay by phone.

If doing pay-by-plate or pay-by-space,
customer must walk to kiosk and remember
either license plate or space number. Or,
customer must walk to kiosk and then return to
vehicle to display receipt on dashboard.

Customer must have smartphone with app
installed; can introduce equity issues for those
who do not have or do not feel comfortable
using smartphones.

Capital Costs $450 - $800 per meter $500 - $800 per kiosk No up-front cost to set up app. Vendor also
provides signs and decals (can be customized
for the city).

Operating Costs
Some vendors offer maintenance plans, typically at approximately $1000 annually per kiosk/meter.

Some vendors will negotiate a share of parking revenue, which varies depending on number of meters, parking rates, etc. Operating costs of payment (credit card fees) are typically paid by the customers.
$0.35 per transaction (paid by the consumer).

Customized promo codes for merchant
validations, which can provide discounted or
free parking to the end user. The price for this
service is $250/month.

Summary of
Strengths

1. Convenient option for most customers.

2. Malfunctions isolated to single parking spaces.

3. Visual inspection easy to perform, even without
license plate readers.

1. Greatest payment flexibility.

2. Limited maintenance needs.

1. No physical installation or maintenance
required.

2. No capital cost to the city.

Summary of
Weaknesses

1. Large number of meters to maintain and
service.

2. Takes up sidewalk space.

1. Least physically convenient option for
customers.

2. Kiosk malfunction results in loss of revenue
from many parking spaces.

1. Inconvenient for customers without
smartphones or who do not have app
installed.

Old Towne Orange Parking Study
March 2023

Table 10: Enforcement Options
Name In-Meter Cameras License Plate Readers
Example
Description
Parking meters with an integrated license plate reader camera.

Detects when a vehicle is parked in the space and takes a picture of the license if a violation occurs. Ticket is mailed to violator.

License plate reader cameras installed on enforcement vehicles.

Automatically scans license plates, digitally "chalking" vehicles and notifying parking enforcement officer of violations.

Typical Vendor Municipal Parking Services (only vendor of this technology) Genetec Spacing One meter per one perpendicular or two parallel spaces N/A Capital Costs None; vendor does not sell meters, but instead negotiates to share parking and ticket revenue with City.
$2,000 per reader, typically includes installation onto existing enforcement vehicles.

Operating Costs
Negotiated share of parking and ticket revenue, which varies depending on number of meters, parking rates, and anticipated frequency of violations.

None required, although most vendors offer maintenance plans to cover periodic software updates and damage.

On-Street/Off-Street On-Street and Off Street (most effective in on-street parking) On-Street and Off-Street Summary of
Strengths/Functions

1. Allows fully automated enforcement, so reduces the costs for enforcement personnel.

1. Can be used to enforce all payment technologies.

2. Can also be used to enforce time-limited and residential permit parking areas, as well as for other law enforcement applications.

Summary of
Weaknesses

1. Only one vendor currently offers this technology, so risk single provider of this technology.

2. Parking tickets delivered by mail have uncertain legality in California, so should consult City Attorney before proceeding.

1. High upfront and maintenance costs.

2. Parking enforcement officers only catch violators they pass on their patrol; they do not receive notification of the location of violations.

Old Towne Parking District
Boundaries and Fee
The current in-lieu parking district fee applies to development and redevelopment projects within the bounds of Lemon Street, Maple Avenue, Grand Street, and Almond Avenue when one of the following conditions is met:
 An existing building footprint is expanded
 A new building is built
 Existing parking spaces are eliminated (e.g., conversion to outdoor patios) A project that meets any one of these criteria would be required to provide on-site parking consistent with the City’s municipal code, as presented in Table 4 of this report. If it is infeasible to provide on-site parking consistent with the City’s requirements, that project may opt-in to the in-lieu fee. The current fee amount is $2,100 per space for new building areas and $9,100 per space when parking is removed.

To date, a total of $111,600 has been collected since the fee’s inception.

In reviewing the application and effectiveness of the current fee, the following observations were made:
 The existing fee may not provide adequate revenue to support more comprehensive parking improvements in Old Towne
 The cost to construct new parking exceeds the current fee amount o The average cost to construct a new surface lot space is approximately $10,000 to $20,000
o The average cost to construct a new garage space is approximately $40,000 to $50,000  New state requirements could make an in-lieu fee for parking within ½ mile of the City’s Metrolink station infeasible. Restructuring the fee type to be a mitigation fee or special assessment district would address this issue.
 Further study, such as a nexus study or establishment of a special assessment district would need to be completed to implement a new fee structure.

Parking Fee Boundaries
The current district boundaries are shown in Figure 11 , and as described above are Lemon Street, Maple Avenue, Grand Street, and Almond Avenue. These boundaries do not include most of the approved and planned projects presented in Figure 11. The current boundaries limit the number of properties that can participate in the fee program and does not capture the areas where most new development and redevelopment is expected to occur.

As such, it is recommended to expand the current fee boundaries to include an area generally bounded by Parker Street, Palm Avenue, Grand Street, and Palmyra Ave, also shown in Figure 11.

Fee Structures
As described above, new state requirements under Assembly Bill 2097 could make an in-lieu fee for parking within ½ mile of the City’s Metrolink station infeasible. Rather than enforcing parking minimums established in the City’s Municipal Code, the requirements for inclusion in the fee could consider the existing parking demand compared to provided parking supply. This is described in more detail above when determining future parking deficiencies. The fee could also be restructured as a parking mitigation fee, or a special assessment district could be established to fund parking improvements.

A parking mitigation fee would be a mandatory fee that could only be used to fund capital improvements.

A special assessment district would also be a mandatory fee. Unlike the mitigation fee, the funds from a special assessment district could be used to fund capital improvements and ongoing maintenance and operations of parking management strategies or other parking improvements. Also unlike a parking mitigation fee, the special assessment district would likely require voter approval – either registered voters or business owners within the district, depending on how the program is structured.

As noted above, further study, such as a nexus study or establishment of a special assessment district would need to be completed to implement a new fee structure.

Economic Feasibility
Economic & Planning Systems (EPS) was retained to review the economic feasibility of increasing the fee amount and explore what other options could be used to provide revenue to support parking improvements within the parking district.

EPS reviewed four potential development/redevelopment scenarios which were considered representative of the types of projects common in Old Towne to determine what would be the maximum feasible parking fee that projects could support in Old Towne. The four scenarios were as follows:
 Change of Use/Small Expansion: A local church and small administrative offices are converted into a mixed-use retail, market, restaurant and office space with a small expansion of total square footage. Very limited space for parking is available on-site.  Change of Use/Moderate Expansion: A historic structure used as a specialty retail store is converted to a restaurant and multi-family residential. This results in a moderate increase in square footage. All parking required per the City code for the residential use is accommodated on-site, but there is no space available for parking for the restaurant use.  New Construction/Major Expansion: A small retail building is renovated and an additional larger building is added to the property which includes retail, restaurant, and office uses. There is a

moderate amount of parking accommodated on-site, but a parking deficit remains as the site is limited.
 New outdoor dining: An existing restaurant is configuring their on-site parking to allow for an expanded outdoor dining patio. This new patio space removes four on-site parking spaces.

The feasibility analysis considered the potential revenue, operating expenses and value of the example properties in each scenario to determine how much each property could pay in mitigation fees to offset their parking deficiencies. The detailed economic analysis including all tables and sources is presented in Appendix B.

A one-time fee of $10,000 per parking space would be feasible under current economic conditions and enables redevelopment projects that would otherwise be economically infeasible if all required parking spaces had to be provided on site. This could be levied through a mitigation fee or a special assessment district.

Alternatively, under the special assessment district, an annual fee could be levied in place of or in addition to the one-time fee to fund ongoing improvements and operations within the parking district. An annual fee of $300 to $600 per business would be feasible under current economic conditions. A lower onetime fee could be combined with an annual fee could provide a revenue source for the City to support ongoing operations or maintenance of some of the parking management strategies presented in the toolbox in the following section. An annual fee could also be structured to incorporate existing businesses in Old Towne.

Parking Strategies Toolbox
A variety of parking management strategies have been identified for implementation in Old Towne. These strategies can be used in isolation or combined as part of a larger management strategy. The strategies are summarized below.

The City of Orange intends to prioritize investments in Smart Parking equipment, which while not included in the toolbox below, are described above and facilitate the implementation some strategies below such as paid parking through smart parking payment technologies.

Create Additional Public Parking Supply
Description: Parking demand from the approved projects will be accommodated by the existing parking supply. While parking demand is expected to increase as new development occurs in the Old Towne and Santa Fe Depot Specific Plan area, the anticipated parking demand should be accommodated by the existing parking supply and parking provided by new developments in the Santa Fe Depot Specific Plan area. For Old Towne, this additional parking supply can be provided in a variety of ways.  Renting privately owned spaces for public use could be one way to create parking supply when a small number of public parking spaces are needed. These spaces will have posted restrictions to limit their use by non-customers. This arrangement would allow the City to lease the space under an agreement subject to cancellation by both parties. Alternatively, some cities allow for in-lieu or tax exemptions to property owners who allow public parking to incentivize use of private land for public use. Cities that have set up lease programs for private spaces are uncommon but not unknown.

The Old Towne parking district can be responsible for implementing and monitoring this lease program.

Advantages: The City is able to increase the number of available parking spaces without having to pay to construct the spaces. The business owner benefits by receiving a payment for their parking spaces, which can often go unused due to restrictions on the use by non-customers. By allowing either party to terminate the agreement, there is flexibility to end the arrangement, if the spaces are no longer needed or if the business owner requires their use due to a business expansion or a change in business conditions.

Considerations: The main drawbacks to this approach are the difficulty in convincing business owners to allow the leasing of their spaces and the fact that a leased space is not a permanent public space, compared with a parking lot or garage.

 If parking demand is not met by leasing parking spaces, then off-street parking (parking lots or structures) would need to be constructed. Off-street parking spaces are sometimes funded through the issuance of bonds, which are then repaid through revenue generated by the parking facilities.

In the face of evolving transportation technologies, it is recommended that future parking lots or structures be constructed with consideration for alternative future uses. For instance, private companies are considering how to future-proof parking structures by including creative building materials and utility features, in case portions of the structure are adapted into land uses other than parking over time.

Advantages: Ample parking supply is positively perceived by business owners and visitors. The main advantages of this approach are the ability to garner public support for off-street parking and the permanence of the parking spaces.

Considerations: A significant issue with off-street parking is the desire of business owners to have off-street parking built when it is not warranted or needed. Adding off-street parking results in a higher direct expense and opportunity cost. The average cost of building surface parking is $10,000 - $20,000 per space, the average cost of a parking structure is $30,000 - $50,000 per space, and the average cost of an underground parking is $50,000+ per space. These costs do not include the cost of land on which the parking is built. Absent parking revenues also offset these costs, and these funds must come from other sources. The evolving improvements in technology and transportation require a combination of deliberate and flexible land use decisions that may need to be adapted over time. Additionally, paving land for parking will result in environmental costs such as greenspace loss, stormwater management costs, heat island effects, and traffic impacts from construction. It should also be considered that development of off-street parking poses challenges to the existing aesthetics in Old Towne.

Parking structures can make efficient use of land in downtown where land is more valuable.

Paid On-Street Parking
Description: Paid parking for on-street public parking helps manage parking demand through encouraging drivers to use parking efficiently in the highly desired places and create parking space turnover. Setting the optimal price level for parking is important as parking prices which are set too high may discourage parking and lead to less revenue than charging a lower prices. Parking prices which are too low may not generate sufficient revenue and prove ineffective in managing demand. In Old Towne, Olive Street and Orange Street could implement paid parking to encourage parking turnover.

Several options could be administered for paid parking which include pay stations, parking validation/merchant programs or variable rates (example, first hour fee), parking benefit districts, access control and discounted employee parking. Historically, many parking garages and parking meters used set rates per hour which did not vary throughout the day. Recently, some parking facilities have started to use variable rates which might include the first 90 minutes free, and $2 per hour for each hour after that with a maximum per day. By allowing the first 90 minutes to be free, there is no disincentive for casual shoppers and diners who stay for 90 minutes or less. Related to this variable pricing, some jurisdictions allow for restaurants and shops to validate parking, whereby the first 1 to 2 hours of parking are free.

Validation programs are also oriented towards casual shoppers and diners.

Another variation in paid parking is the allowance of employees to buy discounted parking passes. For example, instead of an employee paying a daily rate for parking, they could be allowed the opportunity to purchase a discounted monthly parking pass. This would allow the City to recover the capital and operating costs of providing parking while providing a benefit to the local employees.

Paid parking would not need to be implemented across the entire Old Towne area to be effective. It should be implemented on streets with similar levels of demand and proximity to the highest demand parking areas. For example, if paid parking were implemented on Glassell Street between Almond Street and the Plaza, it should be implemented on both sides of the street and on the other three approaches (Glassell Street and Chapman Avenue) leading to the Plaza.

Advantages: While charging for parking may be unpopular, several benefits include the ability to effectively manage parking demand, monitor occupancy and turnover and collect revenue. Paid parking creates a revenue source that may fund streetscape improvement, maintenance, and the construction of additional parking spaces. Paid parking can also maximize turnover and manage demand in the most utilized areas of a downtown with the highest parking demand. It can also emphasize the popularity and viability of a downtown, as areas with paid parking tend to be highly utilized and sought after by business, residents, patrons, and visitors.

Considerations: There may be resistance from business owners and residents in implementing paid parking in areas where charging for parking is implemented for the first time. It requires determination of optimal pricing and equipment. The use of paid parking requires the City to administer the program that implements and oversees its operation. For effective implementation of this strategy, application towards an entire parking facility or area should be preferred so potential cruising for free parking is mitigated.

Establish Time Limits
Description: Time-based parking restrictions can be used to discourage long-term parking by employees or residents and encourage turnover of parking spaces. As noted in the discussion of Existing Conditions, approximately 8% of the vehicles in the study area occupied spaces for 4 hours or longer. The extended use of these spaces is likely attributable to employees from businesses. Currently, Glassell Street and Chapman Avenue have 2-hr parking time limits around the Old Towne Plaza and this restriction can be expanded to Olive Street and Orange Street. Enforcement is often administered by the Police Department of the City; although, it is a common practice to have private parking enforcement administered by a contracted vendor.

Advantages: Time limits can be effective in generating turnover in more highly desired or premium spaces.

Considerations: Employees in many downtowns often attempt to evade the hourly limits by moving their vehicles from one space to another throughout the day. Consequently, long-term parking may be pushed from one street to another street without restrictions. Continuous enforcement by Police or contracted vendor to impose parking time limits is required.

Revenues from charging for parking can be used for downtown improvements.

Implementing parking signage with time limits and restrictions and enforcing it is one of the simplest ways of managing parking demand.

Microtransit Pilot Program
Description: Microtransit is a flexible, on-demand shared transportation where rides are usually requested via an app. Programs can also provide a hybrid between fixed-route shuttles and on-demand service. Examples include Free Rides Around the Neighborhood (FRAN) in Center City Anaheim and Free Rides Everywhere Downtown (FRED) in Downtown San Diego. The service allows riders choose to begin and end their trips at one of the predefined stops. This strategy could be effective in encouraging visitors to “park once” at one of the publicly available parking spaces and take the microtransit service to travel to their destinations in Old Towne.

The proposed vision for a potential pilot program for Old Towne is presented below on Figure 14. This service would use all electric shuttles that could carry 5-8 passengers each, connecting residents, students, employees, patrons, and visitors in Old Towne to underused parking supply and shuttling them to their ultimate destination.

The Old Towne Shuttle or “OTiS” could be structured as a free ride program like FRAN or FRED, or as a paid service. The program could be administered by the City, like FRAN, or by a third-party like FRED, which is administered by a company called Circuit. Circuit runs electric shuttle programs in southern California in San Diego, Oceanside, Huntington Beach, Newport Beach, Santa Monica, and Chula Vista. The service could be structured as demand responsive (designated service area, users call for a ride on an app and are picked up/dropped off anywhere in the service area) or fixed route (established route/stops and frequency like traditional bus service). Demand responsive service allows users to tailor their rides to their needs, while fixed route service allows certainty in where and when shuttles will be present.

The shuttles would be restricted to streets with speed limits of 35 mph or less. The key corridors in Old Towne such as Chapman Avenue, Lemon Street, Olive Street, Grand Street and Maple Avenue all meet this requirement.

Advantages: Microtransit encourages taking alternative transportation modes by providing first and last mile service and provides flexibility as it may not follow fixed routes. This service can promote Old Towne businesses by leveraging the branding and adding to the already vibrant identity and character of Old Towne.

Considerations: Extensive communication and marketing are important to adopt this type of pilot program. If a paid microtransit program is implemented, it may attract customers who are willing to pay higher fare for better personalized experience, thus resulting in equity concerns. If the shuttle is provided at no charge, alternate means of funding ongoing maintenance and operations would need to be identified. The annual parking fee discussed above (determined to be economically feasible at $300 to $600 per year per business) could be used to support the operations of this program.

Figure 14: Old Towne Shuttle “OTiS”

Valet Service
Description: Project specific valet service allows visitors to drop off their vehicle with an attendant for efficient parking where visitors will be given a ticket that is used for identifying the appropriate vehicle upon the visitor’s return. Any off-street parking lot in Old Towne Orange could potentially be converted to valet parking.

Advantages: Valet parking allows stacking vehicles to achieve greater density of parking than is possible with self-parking. This results in the use of smaller parking facilities due to the limited access and control of the parking facility. Old Towne has an existing clientele base who may use valet service if provided.

Considerations: The cost of managing and operating the system would fall on the developer of business.

The valet should be contained within the specific development site. A development that is approved with a valet operating will need to continue using the valet operations unless the lack of need for a valet can be justified.

Develop Informational Programs
Description: Parking usage and public perception of parking is affected by how familiar people are with the area they are parking in. For example, first-time visitors will often park in the first space that they see.

While ther visitors may slowly loop around the area in search of prime parking immediately in front of their destination if they are apprehensive or unaware of other places where parking is available. This behavior results in more time spent seeking parking and parking shortfalls in one area adjacent to blocks with available parking.

Another issue is the use of the desirable, high-demand on-street spaces by merchants and employees. In some cases, these individuals might be unaware of the consequences of occupying the high-demand spaces for long-term parking.

Informational programs can reduce these issues by directing people to available parking. They can include a wide variety of elements including static signage, maps showing the locations of parking facilities, websites, mobile apps, and even parking guides or docents.

The City of Orange maintains a website that provides public parking information for 14 public parking facilities in Old Towne. It is recommended that the City explores options to develop a robust informational program for parking.

Advantages: Informational programs are effective means to increase public knowledge of parking availability and easy to implement through branding, signage, online sources, and the existing City website. These programs require limited oversight once in place and promote more efficient use of existing parking supply. They can increase visibility of available parking and activity in the less busy portions of Old Towne as visitors park and walk in areas they may not have visited.

Considerations: Static signs and maps are limited to what can be placed on them, therefore changes to parking facilities may require the installation of new signage. Implementing intelligent signage can be expensive.

Accommodate Transportation Network Companies
Description: Ride-sharing services known as Transportation Network Companies (TNCs) are private carsharing companies, such as taxis, Uber, and Lyft. As demand and use for TNCs rise, this strategy would involve converting select on-street parking spaces or curbs into more designated passenger loading zones.

Advantages: The benefit of adding loading zones to accommodate TNCs is maximizing the number of people gaining access to Old Towne from a single parking space at a much higher turnover rate.

Considerations: Prior to considering modifications to curbside management or adding passenger loading zones, it is recommended that the City conduct a survey to determine the prevalence of TNC or rideshare use in Old Towne. The survey should include interviews with valet vendors to determine if TNC or rideshare is impacting valet use. If the volume of rideshare is substantial, an initial recommendation is to utilize and consolidate excess curb space or areas with a prevalence of illegal parking as pilot pickup/drop-off zones.

Regulatory changes are required to allow for modifications to parking requirements. Determination and monitoring of location and frequency of curbside zones should be done.

Valet service provides better parking efficiency. Downtowns are increasingly accommodating for TNC curbspace management.

Update Parking Standards
Description: Currently there are misalignments between the parking demand and the City parking standards in Old Towne. In coordination with the regular review of parking demand, the City could utilize the collected parking demand data to establish new parking standards for Old Towne developments based on data collected.

Currently, the City of Orange requires that 4 spaces be provided for 1,000 square feet of all commercial developments (retail, office, restaurant, etc.) As shown in Table 4 of this report, the estimated parking demand of a restaurant is noticeably higher than an office or general retail use. As the business mix in Old Towne incorporates more restaurants, bars, and cafes, there may be a misalignment of the parking requirements and the parking demand that will be generated by these businesses.

Providing more flexibility to developers with parking standards based on a development’s location and circumstances can increase parking efficiency. For instance, decreasing parking requirements for projects located near transit can incentivize transit-oriented development and decrease parking demand. Reducing parking requirements for developers that provide bicycle parking or annual transit passes to building occupants can also decrease parking demand. Any such change to parking requirement should be documented and justified by a project applicant.

Advantages: Can decrease parking demand and promote alternative forms of transportation, could create a better alignment between parking supply and demand. This strategy could also increase the generation of revenue from an in-lieu fee, if parking supply requirements were “right-sized” to fit parking demand.

Considerations: Reevaluating and revising parking standards can be time-consuming.

Implement Transportation Demand Management (TDM)
Description: In addition to the various techniques described which address parking supply and its operation, addressing parking demand itself is another method available to the City. This use of Travel Demand Management (TDM) attempts to reduce the number of persons needing or wanting to drive and park in Old Town Orange.

The majority of TDM strategies are for work-related trips, particularly on the employment end. TDM can be classified into three broad categories, which include:
 Informational – These strategies provide information about ride sharing and other alternative travel modes with the thought that when more information is available about travel choices, commuters are more likely to use modes other than driving. Most TDM plans include some level of informational strategies.
 Incentives – These types of strategies provide financial incentives for the use of alternative travel modes. For example, providing free transit passes or monetary travel credits to employees is a

typical TDM measure. Many, but not all, TDM plans or programs have some level of financial incentives.
 Disincentives – Disincentive-based strategies involve charging or assessing fees for driving or using automobiles. These types of strategies are rarely applied in the United States except for parking charges, as previously described.

Advantages: TDM provides a cost-effective way to reduce the need for parking spaces. Fewer people parking has the same effect on providing sufficient parking as building additional spaces.

Considerations: TDM requires administration which may require a City staff person to be designated as a TDM coordinator for Old Towne, who would distribute information on alternative travel modes, coordinate ridesharing, and other related items.

Updated parking standards can decrease parking requirements and allow for alternative modes.

Appendix A - Hourly Parking
Utilization Maps (Thursday and
Saturday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.1
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (8:00 AM - Thursday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.2
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (9:00 AM - Thursday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.3
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (10:00 AM - Thursday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.4
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (11:00 AM - Thursday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.5
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (12:00 PM - Thursday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.6
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (1:00 PM - Thursday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.7
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (2:00 PM - Thursday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.8
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (3:00 PM - Thursday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.9
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (4:00 PM - Thursday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.10
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (5:00 PM - Thursday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.11
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (6:00 PM - Thursday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.12
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (7:00 PM - Thursday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.13
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (8:00 PM - Thursday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.14
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (9:00 PM - Thursday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.15
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (10:00 PM - Thursday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.16
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (11:00 PM - Thursday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.17
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (12:00 AM - Friday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.18
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (8:00 AM - Saturday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.19
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (9:00 AM - Saturday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.20
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (10:00 AM - Saturday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.21
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (11:00 AM - Saturday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.22
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (12:00 PM - Saturday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.23
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (1:00 PM - Saturday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.24
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (2:00 PM - Saturday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.25
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (3:00 PM - Saturday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.26
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (4:00 PM - Saturday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.27
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (5:00 PM - Saturday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.28
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (6:00 PM - Saturday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.29
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (7:00 PM - Saturday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.30
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (8:00 PM - Saturday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.31
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (9:00 PM - Saturday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.32
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (10:00 PM - Saturday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.33
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (11:00 PM - Saturday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.34
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (12:00 AM - Sunday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.35
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (1:00 AM - Sunday)
I2
ñ
Maple Ave
Almond Ave
Orange St
Grand St
Center St
Cypress St
Lemon St
Olive St
Glassell St
Chapman Ave
Washington Ave
Palmyra Ave
Palm Ave
Figure A.36
N
I2 Metrolink Station
ñ City Hall
Parking District
Parking Utilization
0%
< 25%
25 - 50%
50 - 75%
75 - 85%
85 - 100% Parking Utilization (2:00 AM - Sunday)

Appendix B – Old Towne Orange
Economic Feasibility Analysis
Table 1
Summary Table
The Orange Old Towne Parking Study; EPS #214044
Example Change of Use /
Small Expansion
Mixed Use
Redevelopment /
Change of Ownership1
New Construction /
Expansion
Outdoor Dining
Expansion2
Existing Sq Ft 19,000 12,000 11,200 4,000
New Project Sq Ft 20,400 18,350 28,800 5,000
Net New Sq Ft 1,400 6,350 17,600 1,000
Existing Parking 19 0 60 16
Proposed Parking 6 18 65 12
Required Parking 82 46 116 16
In‐Lieu Parking Spaces 76 28 51 4

PROJECT FEASIBILITY ANALYSIS BY FEE TYPE OPTION
No In-Lieu Option3
Parking built on‐site Infeasible Infeasible Infeasible Marginal Option 1: One-time In-Lieu Parking Fee ($ per space)
$2,500
$5,000
$7,000 (current fee)
$10,000
$15,000 Marginal Marginal
$20,000
$25,000
Up to $45,000
Option 2: Annual Parking Payment
$200
$400
$600
$800
$1,000 Marginal Marginal
$1,200
$1,400
Up to $2,800
[1] Feasibility analysis assumes land acquisition costs of approximately $162 per sq. ft. land cost. [2] Net new square footage represents expansion of new outdoor dining space only, not new building space. [3] Providing required spaces on-site is estimated to cost in excess of $40,000 per space, making all projects infeasible or marginal.

Sources: City of Orange; Economic & Planning Systems, Inc.

Infeasible
Infeasible
Feasible
Feasible Feasible Feasible
Feasible Marginal
Infeasible Infeasible
Feasible Feasible Feasible
Marginal

PRELIMINARY DRAFT
Infeasible Infeasible
Table 2
Example 1 - Change of Use / Small Expansion
The Orange Old Towne Parking Study; EPS #214044
DEVELOPMENT PROGRAM ASSUMPTIONS ASSUMPTION/FACTOR PER BLDG SQ. FT. AMOUNT Description Change in use from church administration to retail, restaurant & office use Based on example of First Presbyterian Church Reuse (191 N Orange St) Gross Land Area (sq. ft.) 26,500
Existing Space
Gross Building Area (SF) 19,000
Church administration use (SF) older office 19,000
Existing Parking Spaces 19
Proposed Space
Proposed New Building Area (SF) 1,400
Proposed Gross Building Area (SF) 20,400
Retail (SF) 800
Market (SF) 2,250
Restaurant (SF) 2,350
Office (SF) 15,000
Parking Spaces Required
Retail/Market/Restaurant/Office                   4 per 1,000 square feet 82 Total Parking Spaces Required
Parking Spaces Proposed On‐Site 6
Parking Deficit 76
REVENUE ASSUMPTIONS ASSUMPTION/FACTOR PER BLDG SQ. FT. AMOUNT Existing Revenue
Gross Revenue (NNN)1 $25.00 /sq. ft./yr $475,000
(less) Operating Expenses 3.0% ($14,250)
(less) Vacancy Rate 10.0% ($47,500)
Subtotal, Annual Net Operating Income $22 $413,250
Capitalized Value 6.0% cap rate $363 $6,887,500
Proposed Revenue
Retail/Market/Restaurant
Gross Revenue (NNN)1 $36.00 /sq. ft./yr $194,400
(less) Operating Expenses 3.0% ($5,832)
(less) Commissions 5.0% ($9,720)
(less) Vacancy Rate 5.0% ($9,720)
Subtotal, Annual Net Operating Income $31 $169,128
Capitalized Retail Value 5.0% cap rate $178 $3,382,560
Office
Gross Revenue (NNN)1 $31.00 /net sq. ft./yr $465,000
(less) Operating Expenses 3.0% ($13,950)
(less) Commissions 5.0% ($23,250)
(less) Vacancy Rate 10.0% ($46,500)
Subtotal, Annual Net Operating Income $20 $381,300
Capitalized Office Value 6.0% cap rate $424 $6,355,000
Net Value Increase $140 $2,850,060

PRELIMINARY DRAFT
ANNUAL PARKING PAYMENT IMPACT ASSUMPTION/FACTOR PER BLDG SQ. FT. AMOUNT Annual Parking Payment Cost $0 per space per year $0
Capitalized Value2 5.0% retail cap rate $0
DEVELOPMENT COSTS ASSUMPTION/FACTOR PER BLDG SQ. FT. AMOUNT Direct Costs
Building Costs
Building Construction Cost3 $150 /GLA sq. ft. $11 $210,000 Total Direct Costs $11 $210,000
Indirect Costs
Tenant Improvements (retail)4 $30.00 /net sq. ft. $30 $24,000 Tenant Improvements (market) $60.00 /net sq. ft. $60 $135,000 Tenant Improvements (restaurant)4 $60.00 /net sq. ft. $60 $141,000 Tenant Improvements (office) $30.00 /net sq. ft. $30 $450,000 Parking In Lieu Fee $7,000 per space $26 $532,000
A&E 2% of direct costs $0 $4,200
Other Professional Services 2% of direct costs $0 $4,200 General & Administrative 2% of direct costs $0 $4,200
Property Tax During Construction 1% of retail value $0 $2,100 Financing Costs 4% of direct costs $3 $59,680
Developer Fee 5% of direct costs $2 $37,310
Total Indirect Costs $73 $1,393,690
Subtotal, Direct, and Indirect Costs $84 $1,603,690
Contingency 5.0% of direct and indirect costs $4 $80,185 Project Return 15% of direct and indirect costs $13 $252,581 Total Costs $102 $1,936,456
NET PROJECT VALUE $914,000
Per Square Foot $45
[1] Based on conversations with local brokers and CoStar listings of newer office, restaurant, and retail lease rates. [2] Assumes annual parking payment is paid by and associated with the retail tenant operations. [3] According to Rider Levett Bucknall and EPS experience in the area. [4] Based on conversations with local brokers.

Sources: City of Orange; CoStar; Economic & Planning Systems, Inc.

PRELIMINARY DRAFT
Table 3
Example 2 - Mixed Use Redevelopment / Change of Ownership1 The Orange Old Towne Parking Study; EPS #214044
DEVELOPMENT PROGRAM ASSUMPTIONS ASSUMPTION/FACTOR PER BLDG SQ. FT. AMOUNT Description Change in use from retail & storage to restaurant & residential Based on example of Old Towne Gateway (401 W Chapman Ave) Gross Land Area (sq. ft.) 30,300
Existing Space
Gross Building Area (SF) 12,000
Historic Structure, Retail Use (SF) 5,250
Historic Structure, Storage Use (SF) 500
Non‐Historic Structure, Storage Use (SF) 6,250
Proposed Space
Proposed Demolition (SF) 6,250
Proposed New Building Area (SF) 12,600
New Restaurant (SF) 1,600
New Trash Enclosure & Storage (SF) 100
New Residential (SF) 10,900
Proposed Gross Building Area (SF) 18,350
Restaurant (SF) 6,850
Trash Enclosure & Storage (SF) 600
Residential (SF)                   3 Two‐Story Buildings 10,900 Residential Rental Unit Count           1,090 sq. ft. per unit 10 Parking Spaces Required
Restaurant                   4 per 1,000 square feet 28 Residential               1.8 per unit (assume all 2‐Bedroom units) 18 Total Parking Spaces Required 46
Parking Spaces Proposed On‐Site 18
Parking Deficit 28
REVENUE ASSUMPTIONS ASSUMPTION/FACTOR PER BLDG SQ. FT. AMOUNT Existing Revenue
Restaurant
Gross Revenue (NNN) $0.00 /sq. ft./yr $0
Capitalized Value 6.0% cap rate $0 $0
Proposed Revenue
Restaurant Retail
Gross Revenue (NNN)1 $36.00 /net sq. ft./yr $246,600
(less) Operating Expenses 3.0% ($7,398)
(less) Commissions 5.0% ($12,330)
(less) Vacancy Rate 5.0% ($12,330)
Subtotal, Annual Net Operating Income $31 $214,542
Capitalized Retail Value 5.0% cap rate $626 $4,290,840
Residential
Gross Potential Rent $3.25 per SF/Month $39 $425,100
(less) Vacancy Rate 5.0% of Gross Potential Rent ‐$2 ($21,255) Gross Residential Revenue $37 $403,845
(less) Operating Expenses 30.0% of Gross Revenue ‐$7 $121,154 Net Operating Income (NOI) $21 $282,692
Supportable Development Cost 5.0% Project Yield Rate (on NOI) $413 $5,653,830 Capitalized Residential Value 3.5% cap rate $741 $8,076,900 Net Value Increase $674 $12,367,740

PRELIMINARY DRAFT
ANNUAL PARKING PAYMENT IMPACT ASSUMPTION/FACTOR PER BLDG SQ. FT. AMOUNT Annual Parking Payment Cost $0 per space per year $0
Capitalized Value2 5.0% retail cap rate $0
DEVELOPMENT COSTS ASSUMPTION/FACTOR PER BLDG SQ. FT. AMOUNT Direct Costs
Building Costs
Building Construction Cost3 $275 /GLA sq. ft. $289 $3,465,000 Site work $10 /GLA sq. ft. $10 $120,000
Parking Cost $40,000 per space $60 $720,000
Total Direct Costs $359 $4,305,000
Indirect Costs
Tenant Improvements (restaurant)4 $75.00 /net sq. ft. $43 $513,750 Parking In Lieu Fee $7,000 per space $16 $196,000
A&E 5% of direct costs $18 $215,250
Other Professional Services 3% of direct costs $11 $129,150 General & Administrative 3% of direct costs $11 $129,150 Property Tax During Construction 1% of retail value $4 $43,050 Financing Costs 6% of direct costs $25 $300,885
Developer Fee 4% of direct costs $16 $188,650
Total Indirect Costs $143 $1,715,885
Subtotal, Direct, and Indirect Costs $502 $6,020,885
Contingency 5.0% of direct and indirect costs $25 $301,044 Project Return 15% of direct and indirect costs $79 $948,289 Total Costs $606 $7,270,219
RESIDUAL LAND VALUE $5,098,000
Per Land Square Foot5 $168.25
[1] Based on conversations with local brokers and CoStar listings of newer office, restaurant, and retail lease rates. [2] Assumes annual parking payment is paid by and associated with the retail tenant operations. [3] According to Rider Levett Bucknall and EPS experience in the area. [4] Based on conversations with local brokers.

Sources: City of Orange; CoStar; Economic & Planning Systems, Inc. [5] Based on CoStar transaction data from Aug 2020 - Aug 2022, land value estimated at $162 per square foot. Example property at 401 W Chapman Street sold for $5,000,000 in 2017.

PRELIMINARY DRAFT
Table 4
Example 3 - New Construction / Expansion
The Orange Old Towne Parking Study; EPS #214044
DEVELOPMENT PROGRAM ASSUMPTIONS ASSUMPTION/FACTOR PER BLDG SQ. FT. AMOUNT Description New Retail/Office construction along Glassell Street Based on example of Jensen Building (190 S Glassell St) Gross Land Area (sq. ft.) 50,200
Existing Space
Gross Building Area (SF) 11,200
Retail space (SF) 11,200
Existing Parking Spaces 60
Proposed Space
Proposed New Building Area (SF) 17,600
Proposed Gross Building Area (SF) 28,800
Existing Retail (SF) 11,200
Retail (SF) 4,400
Restaurant (SF) 4,400
Office (SF) 8,800
Parking Spaces Required
Retail/Restaurant/Office                   4 per 1,000 square feet 116 Total Parking Spaces Required
Parking Spaces Proposed On‐Site 65
Parking Deficit 51
REVENUE ASSUMPTIONS ASSUMPTION/FACTOR PER BLDG SQ. FT. AMOUNT Existing Revenue
Gross Revenue (NNN)1 $30.00 /sq. ft./yr $336,000
(less) Operating Expenses 3.0% ($10,080)
(less) Vacancy Rate 5.0% ($16,800)
Subtotal, Annual Net Operating Income $28 $309,120
Capitalized Value 5.0% cap rate $552 $6,182,400
Proposed Revenue
Retail/Restaurant
Existing Retail Revenue (NNN)1 $30.00 /sq. ft./yr $336,000 New Retail Revenue (NNN)1 $36.00 /sq. ft./yr $158,400
New Restaurant Revenue (NNN)1 $36.00 /sq. ft./yr $158,400 (less) Operating Expenses 3.0% ($19,584)
(less) Commissions 5.0% ($32,640)
(less) Vacancy Rate 5.0% ($32,640)
Subtotal, Annual Net Operating Income $65 $567,936
Capitalized Retail Value 5.0% cap rate $1,014 $11,358,720 Office
Gross Revenue (NNN)1 $31.00 /net sq. ft./yr $272,800
(less) Operating Expenses 3.0% ($8,184)
(less) Commissions 5.0% ($13,640)
(less) Vacancy Rate 10.0% ($27,280)
Subtotal, Annual Net Operating Income $20 $223,696
Capitalized Office Value 6.0% cap rate $424 $3,728,267
Net Value Increase $506 $8,904,587

PRELIMINARY DRAFT
ANNUAL PARKING PAYMENT IMPACT ASSUMPTION/FACTOR PER BLDG SQ. FT. AMOUNT Annual Parking Payment Cost $0 per space per year $0
Capitalized Value2 5.0% retail cap rate $0
DEVELOPMENT COSTS ASSUMPTION/FACTOR PER BLDG SQ. FT. AMOUNT Direct Costs
Building Costs
Building Construction Cost3 $275 /GLA sq. ft. $432 $4,840,000 Site work $10 /GLA sq. ft. $10 $112,000
Total Direct Costs $442 $4,952,000
Indirect Costs
Tenant Improvements (retail)4 $30.00 /net sq. ft. $30 $132,000 Tenant Improvements (restaurant)4 $60.00 /net sq. ft. $60 $264,000 Tenant Improvements (office) $30.00 /net sq. ft. $30 $264,000 Parking In Lieu Fee $7,000 per space $12 $357,000
A&E 2% of direct costs $9 $99,040
Other Professional Services 2% of direct costs $9 $99,040 General & Administrative 2% of direct costs $9 $99,040
Property Tax During Construction 1% of retail value $4 $49,520 Financing Costs 4% of direct costs $21 $238,760
Developer Fee 5% of direct costs $24 $270,402
Total Indirect Costs $167 $1,872,802
Subtotal, Direct, and Indirect Costs $609 $6,824,802
Contingency 5.0% of direct and indirect costs $30 $341,240 Project Return 15% of direct and indirect costs $96 $1,074,906 Total Costs $736 $8,240,948
NET PROJECT VALUE $664,000
Per Square Foot $23
[1] Based on conversations with local brokers and CoStar listings of newer office, restaurant, and retail lease rates. [2] Assumes annual parking payment is paid by and associated with the retail tenant operations. [3] According to Rider Levett Bucknall and EPS experience in the area. [4] Based on conversations with local brokers.

Sources: City of Orange; CoStar; Economic & Planning Systems, Inc.

PRELIMINARY DRAFT
Table 5
Example 4 - Outdoor Dining Expansion
The Orange Old Towne Parking Study; EPS #214044
DEVELOPMENT PROGRAM ASSUMPTIONS ASSUMPTION/FACTOR PER BLDG SQ. FT. AMOUNT Description Building new outdoor dining space with existing restauarant tenants.

Gross Land Area (sq. ft.) 10,000
Existing Space
Gross Building Area (SF) 4,000
Restaurant use (SF) 4,000
Existing Parking Spaces Equivalent 16
Proposed Space
Proposed New Outdoor Dining Area (SF) 1,000
Proposed Gross Building Area (SF) 5,000
Restaurant (SF) 4,000
Outdoor Dining Area (SF) 1,000
Net New Parking Spaces Required
Restaurant/Office                   4 per 1,000 square feet 16 Total Parking Spaces Required
Parking Spaces Proposed On‐Site 12
Parking Deficit 4
REVENUE ASSUMPTIONS ASSUMPTION/FACTOR PER BLDG SQ. FT. AMOUNT Existing Revenue
Gross Revenue (NNN)1 $30.00 /sq. ft./yr $120,000
(less) Operating Expenses 3.0% ($3,600)
(less) Vacancy Rate 5.0% ($6,000)
Subtotal, Annual Net Operating Income $28 $110,400
Capitalized Value 5.0% cap rate $552 $2,208,000
Proposed Revenue
Retail/Market/Restaurant
Gross Revenue (NNN)1 $30.00 /sq. ft./yr $120,000
Outdoor Dining Premium $15.00 /sq. ft./yr $15,000
(less) Operating Expenses 3.0% ($3,600)
(less) Vacancy Rate 5.0% ($6,000)
Subtotal, Annual Net Operating Income $31 $125,400
Capitalized Retail Value 5.0% cap rate $627 $2,508,000
Net Value Increase $60 $300,000

PRELIMINARY DRAFT
ANNUAL PARKING PAYMENT IMPACT ASSUMPTION/FACTOR PER BLDG SQ. FT. AMOUNT Annual Parking Payment Cost $0 per space per year $0
Capitalized Value 5.0% cap rate $0
DEVELOPMENT COSTS ASSUMPTION/FACTOR PER BLDG SQ. FT. AMOUNT Direct Costs
Outdoor Dining Patio Improvements $50 /GLA sq. ft. $50 $50,000 Total Direct Costs $13 $50,000
Indirect Costs
Parking In Lieu Fee $7,000 per space $6 $28,000
A&E 2% of direct costs $0 $1,000
Other Professional Services 2% of direct costs $0 $1,000 General & Administrative 2% of direct costs $0 $1,000
Financing Costs 4% of direct costs $1 $3,120
Total Indirect Costs $9 $34,120
Subtotal, Direct, and Indirect Costs $21 $84,120
Contingency 5.0% of direct and indirect costs $1 $4,206 Project Return 15% of direct and indirect costs $3 $13,249 Total Costs $25 $101,575
NET PROJECT VALUE $198,000
Per Square Foot $40
[1] Based on broker conversations and CoStar listings of newer office, restaurant, and retail lease rates.

Sources: City of Orange; CoStar; Economic & Planning Systems, Inc.

PRELIMINARY DRAFT