Staff recommends constructing the angle parking as designed, which includes constructing back-in angle parking on streets within the two-way conversion where angle parking is designated. This is consistent with the recommendation of the design engineer (DOWL).

W.O. 23-11 will construct the conversion of 2nd Avenue North, 3rd Avenue North, and the remaining north-south one-way streets from one-way to two-way traffic within downtown Billings. North 29th Street and North 30th Street were converted to two-way operations in 2021. The angle parking stalls on North 29th Street and North 30th Street were converted from pull-in to back-in angle with the conversion to two-way traffic. Back-in angle parking was designed and is proposed to be installed with the current project on portions of the following roadways: North 25th Street, North 26th Street, North Broadway, North 32nd Street, North 33rd Street, North 34th Street, North 35th Street, and 2nd Avenue North. 

Basis for Initial Recommendation (2021)
Back-in angle parking was considered on North 29th Street and North 30th Street mainly due to the safety benefits. Back-in angle parking allows drivers to pull past an open parking space and then reverse into it. This means that when they leave the parking spot, they drive forward into the traffic flow. This maneuver provides better visibility for both the driver and the other road users. When pulling out of a parking space, drivers have a clearer view of pedestrians, cyclists, and other vehicles. This reduces the risk of crashes and improves overall safety. A back-in parking configuration also minimizes the chance of cyclists being surprised by a car backing out of a parking space directly into their path. Other benefits include improved access to the trunk of a car for loading and doors directing car users back towards the sidewalk rather than towards the street. 

Back-in angle parking was also considered with North 29th Street and North 30th Street to provide consistency with an anticipated change to Montana Avenue. The City and Montana Department of Transportation (MDT) have been in discussion on a potential road diet on Montana Avenue. A road diet would reduce the driving lanes between North 27th Street and North 21st Street from three lanes to two lanes. Angle parking could feasibly be added to Montana Avenue with the space gained by a reduction in travel lanes. Generally, MDT prefers parallel parking on their roadways. MDT's stated order of preference for existing angle parking is as follows: eliminate; convert to parallel parking; change to back-in angle parking; change the angle; leave as is. Based off their stated preferences, as well as conversions with MDT specifically on Montana Avenue, MDT would require back-in angle parking if angle parking is added to Montana Avenue. Input is needed from the local business community on Montana Avenue before continuing design efforts on the Montana Avenue road diet.  Angle parking on Montana Avenue would substantially increase the number of parking spaces and improve safety.  Both improvements are supported by businesses in this thriving business district. 

User Feedback from North 29th Street and North 30th Street
Feedback from the public on the existing back-in angle parking downtown appears to be mixed. Back-in angle parking compliance has been consistent on both roadways. The parking stalls on North 29th Street are fairly consistently utilized. North 30th Street, which has less business activity and fewer retail spaces fronting the roadway, appears to have less consistent utilization. Business owners downtown, however, have reported negative feedback on the parking configuration to both the City of Billings and the Downtown Billings Association (DBA). A handful of business owners on North Broadway and 2nd Avenue North have expressed their preference for pull-in parking to remain in-place through the design process. Notably, back-in angle parking also exists throughout the East Billings Urban Renewal District (EBURD). Public Works has not heard of complaints about the angle-parking configuration within the EBURD from the public or the business owners in the area. There is a known issue of parking meters being damaged if they are too close to the curb, or do not align with the parking stripes. To mitigate this issue, the parking meters are proposed to be relocated a minimum of three feet from the curb with the project.

Basis for Current Recommendation and Alternatives (2024)
Back-in angle parking continues to be the design engineer (DOWL) and Public Works' recommendation for the parking configuration in downtown Billings due to the safety benefits noted above as well as providing consistency in parking. The current project adds buffered bike lanes and/or shared lane markings on three corridors in downtown Billings: 2nd Avenue North, North Broadway, and North 25th Street. By providing enhanced bicycle facilities in downtown Billings while also expecting bicyclists to navigate a vehicle backing blindly into the travel lane puts the more vulnerable bicycle user at an increased safety risk. For these reasons, Public Works does not recommend mixing pull-in angle parking with a shared lane marking or bike lane. Additionally, consistency and predictability are two important concepts for making streets safer. Adopting a uniform parking approach - whether it's all back-in or all front-in - creates consistency for all users. Predictability is essential for safe navigation of roadways. When parking behavior is consistent, pedestrians, cyclists, and drivers can anticipate each other's movements more effectively. This reduces confusion and potential conflicts. All alternatives, listed in order of staff recommendation, are listed below:

1. Public Works' recommendation is for all angle parking downtown to be back-in angle parking with limited exceptions to avoid confusion for users and all modes. The situation where pull-in parking is proposed to remain includes locations where ADA stalls are specifically set up for a front-in angle configuration and are isolated from other angle parking stalls. The rationale behind this recommendation is twofold:

• Multi-Modal Emphasis: Given the project's focus on multi-modal transportation, including bicyclists, back-in angle parking aligns well. It enhances safety by providing better visibility for both drivers and other road users.
• Consistency: Uniformity in parking behavior reduces confusion. When all parking spaces follow the same approach, pedestrians, cyclists, and drivers can predict each other's movements more effectively. 

The project has been designed, bid, and awarded with back-in angle parking included, so there are no cost implications for this recommendation.

2. Redesign parking within the current project to pull-in angle, and convert the angle parking on North 29th Street and North 30th Street to pull-in angle parking. All angle parking downtown will be pull-in angle. A consistent parking layout will create a predictable environment for all users, enhancing safety.  Public Works does not recommend pull-in angle parking with shared lane markings, so the bike facilities would be removed on the following roadways: 2nd Ave N (Division to N 25th St), N 30th St (6th Ave N to Montana Ave), and N Broadway (6th Ave N to Montana Ave). The cost implications are as follows:

• The parking within the current project and on North 29th Street and North 30th Street would require redesign. This will cost $50,000, which was budgeted in the Contract Administration Amendment that was previously approved by Council. If this change is not made, the $50,000 budgeted will not be spent.
• A change from back-in to pull-in angle parking will result in less signage for the project, which will result in a construction savings of approximately $52,000.
• A change in parking configuration on North 29th Street and North 30th Street is more involved, and multiple options were considered to accomplish this change. The work is best accomplished by providing a new scrub seal between 6th Avenue North and Montana Avenue on North 29th Street and North 30th Street. This is estimated to cost an additional $380,000. Other solutions explored either won't be effective long-term, have anticipated continual maintenance costs, or are less cost-effective.
• Net project cost: $378,000 additional cost

3. Maintain back-in angle parking on streets with bicycle facilities. Safety for all modes will be optimized by allowing all modes to see all users when navigating the parking and thoroughfares within the project limits. This recommendation applies to 2nd Avenue North, North 25th Street, North 30th Street, and North Broadway. The majority of the streets with pull-in angle parking under this recommendation will be outside the downtown core: North 35th Street, North 34th Street, North 33rd Street, North 32nd Street, North 29th Street (existing) and North 26th Street. 

• Parking on a portion of the streets would require redesign. It is estimated this will cost $26,000. This money has been budgeted in the Construction Administration Amendment and will only be spent if a design change occurs.
• A change from back-in to pull-in on select streets will reduce signage for the project, which will result in construction savings of approximately $28,000
• A change in parking configuration on North 29th Street will result in additional construction cost of approximately $190,000
• Net project cost: $188,000 additional cost

4. Maintain back-in angle parking on streets with existing back-in angle parking, including North 29th Street and North 30th Street, and construct pull-in angle parking on all other streets where angle parking is proposed. Public Works does not recommend pull-in angle parking with shared lane markings, so the bike facilities would be removed on the following roadways: 2nd Ave N (Division to N 25th St) and N Broadway (6th Ave N to Montana Ave). Additionally, businesses on North 29th Street and North 30th Street may see this as an unfair option, and future costs may be incurred to change the parking configuration. The cost implications are as follows:

• Redesign the parking configuration within the current project only, which is estimated to cost an additional $26,000 in engineering fees.
• A change from back-in to pull-in angle parking will result in less signage for the project, which will result in a construction savings of approximately $52,000.
• Net project cost: $26,000 in savings

 

Staff is requesting direction from City Council regarding the angle parking within the Downtown Two-Way Street Conversion project. Alternatives include the following (in order of staff and consultant recommendation):

1. Proceed with back-in angle parking as designed (all angle parking will be back-in angle, with limited exceptions).
2. Redesign parking within the current project to pull-in angle, and convert the angle parking on North 29th Street and North 30th Street to pull-in angle parking (all angle parking downtown will be pull-in angle). Planned bicycle facilities will be impacted.
3. Provide back-in angle parking on streets with bicycle facilities, including 2nd Avenue North, North 30th Street, North Broadway, and North 25th Street. Redesign parking on North 35th Street, North 34th Street, North 33rd Street, North 32nd Street, North 29th Street, and North 26th Street to pull-in angle parking (mix of pull-in and back-in angle parking). 
4. Redesign parking within the current project to pull-in angle, and leave the parking on North 29th Street and North 30th Street as back-in angle parking (mix of pull-in and back-in angle parking). Planned bicycle facilities will be impacted. 

Fiscal effects for each alternative are estimated as follows:
 

Alternative	Fiscal Effect	Notes
1: Back-in Angle Parking on All Streets	$0	Aligns with current design, no construction or engineering cost implications
2: Pull-in Angle on All Streets	$380,000	Requires $50,000 to redesign streets within the project as well as North 29th Street and North 30th Street, and approximately $330,000 in additional construction costs to convert North 29th Street and North 30th Street
3: Back-in Angle Parking on Streets with Bike Facilities	$188,000	Requires between $26,000 in additional design fee and $162,000 in additional construction fee
4: Pull-in Angle on Streets within Current Project, Back-in Angle on North 29th Street and North 30th Street	Savings of $26,000	Requires a design fee of $26,000 to update the current plans to pull-in angle parking; approximate cost savings of $52,000 due to reduction in signing