HomeMy WebLinkAbout05/20/2008, PH4C - PARKING ENTERPRISE FUND REVIEW 2008 i
council "�`D"May 20,2008
j acEnaa Report �N
C I T Y OF SAN LU IS OBISPO
FROM: Jay Walter,Director of Public Wor O� ��p,
Prepared By: Tim Bochum,Deputy Director of Pub Works "1"/
Robert Horch,Parking Services Manager
SUBJECT: PARKING ENTERPRISE FUND REVIEW 2008
CAO RECOMMENDATION:
1. Review and discuss the 2008 Parking Enterprise Fund Review.
2. Before beginning the design of the Palm-Nipomo parking structure, authorize the CAO to
execute a consultant services agreement, at a cost not-to-exceed $40,000, to work with an Ad
Hoc Parking Fund Review Committee in preparing a report for Council consideration by
November 2008 that will include:
a. The financial analysis of the Parking Fund to verify its present fiscal condition and project
its future conditions with, and without, the Palm-Nipomo parking structure.
b. Options and strategies for: 1) correcting any identified imbalances under a "no added
structure scenario," if any such imbalances are projected; 2)promoting use of a new parking
structure at Palm-Nipomo (should one be built); and 3) generating sufficient revenues to
meet projected construction and operating costs of a new structure at Palm-Nipomo.
3. Appoint a Council member to serve on a six-member Ad Hoc Parking Fund Review
Committee, along with one representative from each of the following: Planning Comrnission,
Mass Transportation Committee, Residents for Quality Neighborhoods, Downtown Association
and Chamber of Commerce.
DISCUSSION
Background
This report presents the annual review of the City's Parking Enterprise Fund at the midway point of
2007-09 budget cycle. During this first year, all approved significant operating program changes
have been accomplished along with several Capital Improvement Plan (CIP) projects.
In 2009-10 the remaining Council approved parking rate increases will go into effect. At this time,
the City's Parking Fund is in good financial shape as detailed in the.attached financial schedule.
Both the Chinatown and Garden Street Terraces redevelopment projects have been programmed
into the analysis of this report. It appears that in the short term, based on the assumptions of those
projects as they stand today, the fund can meet its current operating, capital and debt service
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Parking Enterprise Fund Review 2008 Page 2
obligations while retaining working capital reserves that are stronger than the City's policy of 20%
of operating expenditures.
There remain several key questions to the long-term financial stability of the fund:
1. What new revenues will be required to fund the debt service and operating costs of a Palm-
Nipomo parking structure?
As reflected in this report, while Parking Fund revenues (based on approved increases) are
adequate in meeting current operating, debt service and capital requirements, new revenues will
be needed to construct and operate a new structure at Palm-Nipomo (or any other location).
2. If we build it, will they come? Stated simply, is there sufficient parking demand in the Palm-
Nipomo area to warrant construction of the City's fourth structure at this location?
3. Can the fund continue to replace "low cost-higher revenue producing" assets like parking
meters with "higher cost-lower revenue producing assets like parking structures?
Redevelopment Projects
The Chinatown and Garden Street Terraces projects are well on their way through the City's permit
process. At the time of this report both projects are being redesigned which will most likely delay
when the projects occupy City parking lots.
Garden Street Terraces Project. For analysis purposes, staff has programmed the Garden Street
Terraces project to close parking Lot 2 (Broad Street across from Big Sky restaurant) beginning in
FY 2008-09 and re-open in 2011-12. During this anticipated 2-year construction period, all parking
revenues from this location will cease. When the parking lot reopens, there will be fewer parking
spaces, which translate into reduced meter and fine revenues. Under the non-binding memorandum
of understanding (MOU), the fund will receive $660,000 for the replacement of 22 metered spaces
permanently lost to the project. The MOU also calls for the Parking Fund to advance $2.4 million
dollars, which will be repaid in full (including interest), estimated at $105,000 annually for 30
years.
Chinatown Project. This project will eliminate all of the parking spaces (primarily metered spaces)
in parking lots 3 and 11 (lots across from 842 Palm parking structure) as the small lot next to 955
Morro. This project is programmed to begin in 2010-11 in the attached analysis. All associated
revenues will permanently cease. The fund will receive mitigation costs for the lost parking spaces.
What is of concern for the overall health of the Parking Fund is the strategy of offering City parking
lots for redevelopment. This strategy supports many land use and planning goals. Chinatown and
Garden Street Terraces are examples of this strategy as was the Court Street Project on the former
parking Lot 6. Redevelopment of single-use parking lots into mixed-use projects contribute to a
vital downtown while increasing revenues for the General Fund. However, for the Parking Fund, it
eliminates strong revenue sources while increasing expenditures.
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Parking Enterprise Fund Review 2008 Page 3
Parking lots with parking meters and associated fines generate significant revenue and do not have
debt service and high operating costs like structures. The loss of these metered spaces is
transitioning the Parking Fund from "high revenue-low cost" resources to `low revenue-high cost'
resources in the form of parking structures. Although the fund can raise rates, the City may be
reaching the reasonable limits of what our parking customers will pay. Our rates should not be too
high so that it deters downtown customers and visitors. Some rates were raised in 2006-07 and
another rate increase is scheduled for 2009-10.
Pending Parking Rate Increase
In 2004, the Council formed a community-based task force to fully consider and make
recommendations to Council for parking revenue increases. (The membership of this task force is
provided in Attachment 2). The fust phase of revenue increases began in 2006-07. To lessen the
overall impact on rate payers; the second phase of Council approved rate increases are scheduled to
begin in 2009-10. These increases were originally approved for the purpose of partially funding the
Palm-Nipomo parking structure for capital costs, debt service, and operating costs; and offsetting
net revenue losses from the Garden Street Terraces and Chinatown project.
In 2009-10, the following rate increases are scheduled to occur as follows:
2009-10
Current Rate. Rate Per
Per Hour hour
Structure Rates' $0.75 $1.00
Inner core meter rates $1.00 $1.25
Outer core meter rates $0.75 $1.00
*Parking Stnictures retain the 1'60 minutes free.
In 2012-13, the fust full fiscal year after the rate increases and the impacts of two redevelopment
projects are felt, the fund is projected to have $4.5 million in total revenues with $3.9 million in
total expenditures, for net revenues of about$600,000 annually. Two years later, in 2014-15, there
will be another half-million dollars in savings when the debt service for 842 Palm structure and the
original Marsh structure expires. Conceivably, the Parking Fund will have$1.1 million in revenues
over its expenditures by this time, along with available working capital of$8.2 million, after setting
aside policy level reserves of about$500,000. While this is unlikely to fully cover construction and
operating costs, this will definitely assist in funding the Palm Nipomo parking structure.
Palm-Nipomo Parking Structure
In 2007, the Council reviewed detailed options for a parking structure at this site and as a result
endorsed Design Option D3 (self-park design); and directed staff to investigate the Wells Fargo site
and proceed with preparing a request for proposals (RFP) for design. Funding is already approved
in the Parking Fund for environmental review ($300,000) and full architectural design ($1.2
million) for the Palm-Nipomo parking structure. There is approximately another$42,000 in unused
funding from land acquisition and the initial design budget. No other financial aspects of the
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Parking Enterprise Fund Review 2008 Page 4
structure have been programmed into this fund analysis. Early estimates of the annual debt service
have been as high as $1.5 million. Staff has not moved forward with the RFP process because of
the concerns regarding parking demand in the area and long-term funding.
Other Sites for a Fourth Structure. The Palm-Nipomo site, which we already own, works well
for our initial design and is consistent with the Downtown Concept Plan. While the Wells Fargo
site has a number of advantages as to the location in the west-end of Downtown, it is not being
pursued because the property is not for sale and the bank has been clear that.it is not interested in a
future City use on the parking lot area they own. However, even if the City moves forward with
Palm-Nipomo there are concerns about whether there is sufficient parking demand in the west-end.
This lack of demand may limit the City's ability to generate enough revenues to cover increased
debt service and operation costs of a parking structure..
Where to From Here?
Fresh Look at Parking Finances. Due to the financial questions that surround the Parking Fund's
lona-term fiscal health including those raised by Council Member Carter, the CAO recommends
hiring a consultant to take a "fresh look" at the fund. The consultant will be able to assess staff's
financial projections and assumptions in light of current trends and future projects. Specifically, the
consultant will be asked to provide a financial analysis of the Parking Fund to verify its present
fiscal condition and project its future condition, with and without the added construction, debt
service, and net operating costs of a new structure at Palm-Nipomo.
The scope of work will also include options and strategies for:
1. Correcting any fiscal imbalances under a "no added structure scenario," if any-such imbalances
are projected.
2. Assuring adequate use of a new parking structure at Palm-Nipomo, should one be built.
3. Assessing whether there is adequate demand for a structure at Palm-Nipomo that will generate
sufficient revenues to meet projected capital and operating costs.
Appointment of Ad Hoc Parking Review Committee. The CAO also recommends forming an Ad
Hoc Parking Review Committee to work with the consultant and City staff in addressing the issues
outlined above. Staff recommends a six-member committee composed of one Council member
along with one representative from each of the following: the Planning Commission, Mass
Transportation Committee, Residents for Quality Neighborhoods, Downtown Association and
Chamber of Commerce. Because Council Member Carter has had a keen interest in the fiscal health
of the Parking Fund, staff recommends appointing him as the Council representative. Staff will
request that the other groups select their representative on the Committee. This ad hoc committee
will cease at the end of this specific project.
The goal is to present findings and recommendations to the Council in November 2008. Depending
on the outcome of this analysis, the Council may decide at that time to approve requesting
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Parking Enterprise Fund Review 2008 Page_5
proposals from qualified architects to begin environmental review, design and preparation of
construction plans and specifications for the Palm-Nipomo parking structure.
ALTERNATIVES
1. Begin the Process of Hiring an Architect. Until concerns regarding parking demand and
funding are resolved, staff does not recommend moving forward with hiring an architect.
2. Defer Consideration of Building a Fourth Structure Indefinitely. A major parking project
will take time to design, move through the approval process and be built. Taking more time
may put the City in the undesirable position of trying to catch up to a lack of downtown
parking. Although there is sufficient available parking in Marsh and 842 Palm today, after the
Chinatown and Garden Street Terraces projects eliminate parking spaces and increase demand,
the City may not have enough parking. For these reasons, staff recommends moving forward
with the Palm-Nipomo project.
3. Do Not Hire a Consultant for the Proposed Workscope. Staff believes that there is value in
taking a fresh, independent look at the Parking Fund's finances and parking demand in the
west-end of Downtown.
4. Do Not Form an Ad Hoc Parking Fund Review or Modify Its Membership. Staff believes that
the Council will benefit from focused stakeholder involvement before making decisions on the
future direction of this project.
FISCAL IMPACT
There are no direct fiscal impacts associated with the CAO recommendation. As discussed above,
adequate funds are available in the Palm-Nipomo project account to cover the proposed consultant
costs. However, the results of the proposed analysis will be important in protecting the long-term
fiscal health of the Parking Fund.
ATTACHMENT
1. 2008 Parking Fund Analysis
2. 2004 Parking Task Force Members
TABudget Folders\2008-09 Financial Plan Supplement\Enterprise Fund Working Capital\3. Parking Fund\CAR 2008 Pkg Fund
Review.DOC
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ATTACHMENT 1
2008 Parking Fund Analysis
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May 20, 2008
Prepared by the
Public Works Department
city of san WIS OBISPO
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Attachment 1
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crty of&U1 LUIS ompo
2008 Parking Fund
TABLE OF CONTENTS
I. OVERVIEW
A. 2008 Parking Fund Accomplishments
II. 2008-09 FINANCIAL PLAN
A. Summary of Operating Programs
B. Capital Improvement Plan Requests
C. Debt Service Payments
III. ASSUMPTIONS
IV. LOOIQNG TO THE FUTURE
A. Electronic Parking Way-finding Signs
B. Marsh Street Parking Structure Painting
V. EXHIBIT A—2008-09 FINANCIAL SCHEDULE
Attachment 1
Page 3
Clty Of
ENG6 san LUIS OBISPO
2008 Parking Fund Report
I. OVERVIEW
This report presents the financial condition of the Parking Fund, based on the 2007-09 Financial
Plan. It incorporates the 2008-09 operating program budgets, debt service, and capital requests
to address the identified needs in the Parking and Access Plan. The Chinatown and Garden
Street Terraces projects have been programmed into this budget cycle, however these projects
may or may not occur in the time frames projected or may change during the-future. The Palm-
Nipomo parking structure has not been programmed into this budget due to uncertainties
outlined in the staff report. The main issues are will there be sufficient parking demand in the
area and can the Parking Fund afford the operations and debt service.
A. 2008 Parking Fund Accomplishments
1. Resurfacing of Parking Lot 9 (next to the Old Carnegie Library)
2. Updated parking meter communicating devices and accompanying software. (2007-08
approved Significant Operating Program Change Request)
3. Updated parking citation writer software and handheld devices. (2007-08 approved
Significant Operating Program Change Request)
4. Converted 3/4-time Administrative Assistant to a full-time position. (2007-08 approved
Significant Operating Program Change Request)
5. Completed the Old Town Residential Permit District survey and reported results to
Council.
6. Fleet Replacement of the Meter Repairman and Parking Coordinator vehicles.
7. Worked on EIR process for Chinatown and Garden Street Terraces projects.
8. Update parking information and created new parking validation brochure.
II. 2008-09 FINANCIAL PLAN
A. Summary of Operating Programs
2008-09
BUDGET
Staffing 958,700
Contract Services 604,200
Other Operating Expenditures ' 166,600
Minor Capita! 0
Total Parking Services $1,725,500
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- Attachment 1
Page 4
B. Capital Improvement Projects
2008-09 2009-10 2010-11 2011-12 2012-13
Requests Proposed Proposed Proposed Proposed
Fleet Replacement: Truck& Sedan 19,500
Fleet Replacement: Utility Carts 67,800
IT Strategic Plan 7,700
Sharepoint Electronic Content Mgmt. 1,500
GST Advance* 2,400,000
0 21,000 75,500 2,400,000 0
*Garden Street Terraces Advance is shown as a CIP to pinpoint the expenditure for this period. This is a.loan that
is paid back over 30 years with at 5105,000 annually.
C. Debt Service Payments
2008-09 2009-10 2010-11 2011-12 2012-13 2014-15
BUDGET Proposed Proposed Proposed Proposed Proposed
842 Palm & Marsh * 502,300 499,300 502,300 501,600 499,500 0
Marsh Expansion 425,800 425,200 424,500 423,700 423,000 421,400
919 Palm 538,000 539,600 538,200 539,300 540,000 537,800
Dispatch Center/Radio System 9,000 9,000 9,000 9,000 9,000 9,000
1,475,100 1,473,100 1,474,000 1,473,600 1,471,500 968,200
" Last Payment in June 2014
III. ASSUMPTIONS
The following assumptions have been programmed into the long term forecast of the Parking
Fund. The Chinatown and Garden Street Terraces projects impact three of the City's parking
lots. The dates of when these projects are programmed into this analysis are staff's estimate of
the soonest they could occur. If they occur later than projected it will allow for additional
revenues to accumulate for the Fund.
1. Revenue from meters, garage fees, passcard sales, meter permits, leases, and fines will
increase by one percent each year due to increased parking demand.
2. Ongoing operations appropriations will increase by three percent each year due to C.P.I.
adjustments.
3. Capital project appropriations from fund balance will include(See details on page 4):
a. Fleet Replacement of one Sedan @ $19,500 in 2009-10.
b. Fleet Replacement of Utility Carts (for Parking Officers) @ $67,800 in 2010-11.
c. The Parking Fund's share of Information Technology Strategic Plan @ $7,700 in
2010-11.
d. The Parking Fund's portion of the Sharepoint Electronic Content Management @
$1,500 in 2009-10
Attachment 1
Page 5
4. A reserve equal to the annual debt service plus 20% of the total Operating Program
expenditures should be maintained by City's fiscal policy.
5. In June 2006, City Council approved several revenue enhancements with the goal of
providing increased revenues to afford the next City Parking Structure. The next phase
of these increases are programmed as follows:
a. Overtime parking meter fines will increase annually by $1 each year beginning in
2007-08 until they reach the maximum of$20 in 2011-12.
b. The downtown core parking meter rates will increase from $1 an hour to $1.25 an
hour beginning in 2009-10.
c. The downtown outer area parking meter rates will increase from $0.75 an hour to
$1 an hour beginning in 2009-10.
d. The parking structure rate will increase from $0.75 an hour to $1 an hour
beginning 2009-10 (the first 60 minutes will remain free).
e. Parking validations (100 free hours of parking) will increase from $45 to $60 in
2009-10 due to the structure per hour increase.
f. Construction parking meter bags will increase from $14 a day to $17 dollars a day
in 2009-10 ($1.25 core meter rate x 9 hours x 150%).
6. Chinatown Project Fiscal Impact:
a. Parking meter revenues will cease for parking lots 3 and 11 beginning 2010-11.
b. Parking fines will decrease by approximately 11% due to the loss of parking
meters in lots 3 and 11 beginning 2010-11.
c. Based on recommended mitigation in the Environmental Impact Report (EIR) for
this project, the fund will receive $2,361,000 for the replacement costs of 144
parking spaces (144 x $16,400= $2,361,100).
d. Operating costs will be credited for the costs associated with the loss of meter and
fines in parking lots 3 and 11 @ $13,200 beginning in 2010-11. (Citation
processing, meter collections, etc.)
e. In taking a conservative approach in projecting future resources, no revenue from
the sale of the parking lots is reflected at this time, as an allocation of the
proceeds between the General Fund and Parking Fund has not yet been made by
the Council.
7. Garden Street Terraces Project Fiscal Impact:
a. Parking meter revenue for parking lot 2 will cease for two years during
construction of the project beginning in 2009-10 to 2010-11.
Attachment 1
Page 6
b. Parking fine revenue will decrease by approximately 9% for the loss of parking
lot 2 during construction of the project beginning in 2009-10 to 2010-11.
c. Operating costs will be credited for the costs associated with the loss of meter and
fines in parking lot 2 @ $7,600 in 2009-10, $7,600 in 2010-11, $3,900 in 2011-12
and 2012-13.
d. Lease revenue of approximately $2000 a year for trash leases in parking lot 2 will
cease in 2009-10.
e. . Parking meter revenue for parking lot 2 will resume in 2011-12 with a reduction
for the permanent loss of 22 meters (from 62 to 40 parking spaces).
f. Parking fine revenues for parking lot 2 will resume in 2011-12 with a reduction of
permanent loss of 22 metered spaces.
g. Parking In-Lieu for the replacement cost of 22 lost public parking spaces in Lot 2
will be $660,000 in 2009-10 or "upon issuance ... of building permits for the
Project." (MOU page 5, Section 2.5)
h. The Parking Fund will advance 2.4 million dollars to the developer to finance the
new parking facility (40 public parking spaces and the 56 hotel spaces below
grade) in 2011-12, or ``within 30 days following the first date on which the forty
(40) public spaces ... are available for use by the general public." (MOU pages 5-
6, Section 3.1)
i. Lease revenues are estimated to increase to $105,000 annually for 30 years
beginning in 2011-12 for the repayment of the 2.4 million dollar advance.
According to page 6, Section 3.2(b)(i) of the MOU, the calculation for the lease is
the amortization payment plus the supplemental parking revenue replacement
payment reduced by the net realized increase in property tax. This has been
estimated as $165,000 + $28,000 - $88,000= $105,000.
VI. LOOKING TO THE FUTURE
A. Electronic Parking Way-finding Signs
Staff issued Request for Proposals (RFP) for this project. Staff will return to Council
with cost proposals and more information on these signs before execution of any contract.
This CII' was approved by Council as part of the 2003-05 Financial Plan. If approved,
these dynamic informational signs are anticipated to go to construction in late 2008. They
will assist the public in finding available downtown parking with "real-time" occupancy
rates for our structures. The signs will also promote structure usage which has the
potential to maximize structure revenues.
B. Marsh Street Parking Structure Painting
A CIP was approved by Council as part of the FY 2001-03 Financial Plan to paint the
exterior of the original portion of the Marsh Street Parking Structure. Staff is working on
the specifications to solicit bids for work to begin in September 2008. This project is
necessary to adequately seal the structure with elastomeric paint to correct water
penetration problems and to improve the appearance.
`—� Attachment 1
Page 7
EXHIBIT A
2008 PARKING FUND
FINANCIAL SCHEDULES
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Attachment 2
Members of the 2005-06 Parkin Task Force
1. Brad Bilsten Downtown Association appointee representing retailers
2. Cheryl Burcheri Old Town resident
3. Deborah Cash Downtown Association staff appointee
4. Cydney Holcomb Residents for Quality Neighborhoods (RQN)
5. Daniel Kuhlman Student appointee
6. Jim Nielsen SLO Ministerial Association appointee
7. Matt Quaglino Chamber of Commerce appointee representing property owners
.8. Pierre Rademaker Chamber of Commerce appointee representing service providers
9. Susan Rains Alternative Transportation appointee
10. Terry Westrope Downtown Association appointee representing tourism
11. Patricia Wilmore Chamber of Commerce staff appointee