City Council Staff Report (2018-05-15)
City
Council
Report
TITLE: Initiation of a Zoning Code Amendment to Adopt a New Land Use
Table and Revised Sign Standards for the C-3 (Central Business
District) Zoning District
RECOMMENDED ACTION
That the City Council initiate a Zoning Code Amendment to adopt a new land use table
for the C-3 (Central Business District) Zoning District.
BACKGROUND
Starting in late 2012, staff was tasked with researching how other cities control land use
in a downtown environment. This was done in response to Council and community
concerns that too many restaurants were displacing retailers, diminishing the
Downtown's traditional retail character.
Previous Meetings: The Council and Planning Commission have held multiple study
sessions and public hearings to consider potential ordinance and policy changes that
could address this perceived imbalance. In order to assist the Council's understanding
of these meetings, a chronology is provided in Attachment 1 (all previous reports can
be accessed by clicking the blue hyperlinks).
Ad Hoc Committee: At the conclusion of the City Council's August 15, 2017 meeting, an
ad-hoc committee was appointed to provide further direction to staff. At the committee's
meeting of October 17, 2017, staff discussed that the Economic Development Division
would prepare a report analyzing other comparable downtowns to provide additional
information and perspective. Additionally, staff would review the potential of simplifying
the list of allowable land uses by merging the various redundant uses into fewer
categories and identifying land uses by features and characteristics. Other suggestions
offered to staff included preparing a list of uses that would not be permitted.
Benchmark Study: Included as Attachment 2 is the Downtown Mix of Uses
Benchmarking Study that compared the downtowns of Campbell, Los Altos, Los Gatos,
Mountain View, Saratoga (village), and Willow Glen (San Jose). The study included a
numeric count of business storefronts at the street-level of each downtown's main
street(s) as well as a comparison of land use composition, sales tax revenue, and
Police calls-for-service. In terms of a balance of uses, the "bottom line" conclusion of
the report is that Downtown Campbell's proportion of restaurants (18%) is in line with
Item: 18
Category: OLD BUSINESS
Meeting Date: May 15, 2018
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the average (20%) of surveyed communities. Moreover, Downtown Campbell has a
greater proportion of retailers (28.8%) than the average (20%).
DISCUSSION
The following discusses a revised approach to managing land use in the Downtown
including creation of a new land use table and definitions.
Land Use Definitions: At its previous meeting, the Council expressed a desire to
develop a list of prohibited uses; specifically those uses that did not further the vision of
a pedestrian-oriented and family-friendly downtown. This approach was based on the
idea that by identifying and prohibiting only undesirable uses the Zoning Code would be
more accommodating to new or novel business ideas. However, as staff began to
develop this list staff realized that the list of prohibited uses would be excessively long
and be bound to be incomplete. This approach would be a significant change to the
basic protection of the existing Zoning Code—that if a use is not specifically allowed it is
prohibited. Taking the prohibited use approach would mean that the City would lose its
ability to prevent an undesirable use that had not been explicitly prohibited. Such a
zoning structure would also be inconsistent with the organization of the Zoning Code's
other districts where lists of permitted, conditionally permitted, and prohibited uses are
clearly written.
To avoid these shortfalls while still responding to the Council's direction, staff has taken
a hybrid approach that creates a broad new category of prohibited uses termed
"incompatible activities". As defined, below, "incompatible activities" would include
several clearly undesirable uses (e.g., tattoo parlors, payday lenders, etc.) as well as
any use that incorporates certain undesirable characteristics such as outdoor storage or
manufacturing. To provide greater clarity, "incompatible activities" would be juxtaposed
with a new category of allowable uses, similarly defined has incorporating certain
desirable characteristics, termed "pedestrian-oriented activities."
By creating two broad categories of land uses—one prohibited and one allowed—the
C-3 zoning district can allow enhanced flexibility for new business concepts, while still
providing the City adequate safeguards against undesirable uses.
New Definitions
"Incompatible Activities" means any land use not identified in Table 2-11A
(Land Use Table) or that incorporates one or more of the following
characteristics, as determined by the Community Development Director in
compliance with Section 21.02.020.F (Allowable uses of land):
x Services offered by a "body art" practitioner as governed by California Health
and Safety Code sections 119300-119324 (i.e., tattoo parlors and similar
uses);
x Services offered by a deferred deposit transaction "licensee" as governed by
California Financial Code sections 23000-23106 (i.e., payday lenders and
similar uses);
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x Services offered by a "check casher" as governed by California Civil Code
sections 1789.30-1789.38 (i.e., check cashing and similar uses);
x Services offered by a "pawnbroker" as governed by California Financial
Code sections 21000-21307 (i.e., pawnshops and similar uses);
x Services offered by a "secondhand dealer" or "coin dealer" as governed by
California Business and Professions Code sections 21500-21672 (i.e.,
secondhand/thrift stores, consignment shops, gold buying, and similar uses);
x Services offered by a practitioner of hypnotism or an occult science requiring
a permit pursuant to Chapter 5.08;
x Services requiring a massage establishment permit pursuant to Chapter
5.48;
x Storage of industrial vehicles;
x Storage or warehousing of merchandise or products unrelated to on-site
retail sales;
x Outdoor storage of merchandise or products;
x Assembly, compounding, manufacturing or industrial processing of
merchandise or products;
x Breeding, harboring, raising, or training of animals;
x Repair, maintenance, or sale of motor vehicles;
x Service to consumers within a motor vehicle (i.e., drive-through lane, drive-
up window, or drive-in service);
x Smoking or vaping of tobacco products (as defined by Chapter 6.11);
x Cultivation, processing, sale or dispensing of Cannabis ("marijuana" as
defined by Chapter 8.38 and 8.40); or
x Emission of dust, fumes, glare, heat, liquids, noise, odor, smoke, steam,
vibrations, or similar disturbance which is obnoxious or offensive or creates a
nuisance.
"Pedestrian-Oriented Activities" means any land use or combination of land
uses that incorporate all of the following characteristics as determined by the
Community Development Director in compliance with Section 21.02.020.F
(Allowable uses of land). This definition specifically includes retail stores, grocery
stores, personal services, spa services/health spa, restaurants, indoor
amusement centers, and studios as defined by Chapter 21.72 (Definitions).
x Provides or offers food, beverages, retail goods, services, instruction,
and/or entertainment to the general public;
x Is open to the general public on a regular basis;
x Is conducted within the interior of a building, except for outdoor displays
and outdoor dining areas as allowed by this section;
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x Maintains a transparent storefront open to the interior of the business
and/or onto a merchandise display; and
x Is not otherwise classified as an incompatible activity as defined by this
Chapter.
Land Use Table: Staff's approach also includes replacing the C-3 land use list with a
table so that uses may be separately allowed between upper and lower floors. The
intent of this distinction is to reserve the street-level primarily for "pedestrian-oriented
activities". In addition to "incompatible activities" and "pedestrian-oriented activities" the
land use table would still separately identify several uses that do not neatly fall into
either of these new categories (i.e., apartments, offices, etc.) or that should remain
subject to a Conditional Use Permit (i.e., liquor establishments) even when combined
with an otherwise permitted pedestrian-oriented activity.
The following C-3 land use table specifies land use allowability as either Permitted (P)
(allowed with a business license), Conditional (C) (requiring a Conditional Use Permit),
or Prohibited (-) and whether allowed on the ground or upper floors.
Table 2-11A
Land Use Table – C-3 Zoning District
ALLOWABLE LAND USES GROUND
FLOOR
UPPER
FLOORS
Pedestrian-Oriented Activities P -
Professional Offices - P
Banks and Financial Services C P
Medical Services, Clinics - C
Apartments - C
Liquor Establishments (primary or ancillary to another use) C -
Liquor Stores (primary or ancillary to another use) C -
Banquet Facilities - C
Late Night Activities (in association with any use) C C
Incompatible Activities - -
NEXT STEPS
If the Council is supportive of the revised approach, staff will begin preparation of a
formal zoning code amendment. Revised sign provisions for the Downtown could also
be considered at that time. The draft amendment will be brought to the Planning
Commission for review and recommendation prior to the City Council action.
Prepared by:
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Daniel Fama, Senior Planner
Reviewed by:
Paul Kermoyan, Community
Development Director
Approved by:
Brian Loventhal, City Manager
Attachment:
1. Previous Meeting History
2. Downtown Mix of Uses Benchmarking Study
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Previous Meeting History
¾March 5, 2013 (City Council Study Session): The Council considered a comprehensive
report outlining applicable City policies and standards, as well as an analysis providing
an explanation for the observed shift. At the conclusion of the study session, the Council
directed staff to proceed with preparation of an amendment to the Zoning Code that
would require a Conditional Use Permit for conversion of existing retail space to
restaurant use in the C-3 Zoning District.
¾July 16, 2013 (City Council Study Session): Staff presented a tailored approach that
would require a Conditional Use Permit for a restaurant conversion tied with findings
that would direct the Planning Commission to consider potential "over-concentration" of
restaurants in the immediate area. Although the Council expressed a concern for the
loss of long-term retailers, the consensus was not to proceed with a CUP permit
process at that time. Instead, the Council directed staff to continue to monitor the
situation.
¾February 17, 2015 (City Council Study Session): At the request of the Council, the
issue was revisited. The Council was provided with updated information highlighting the
changes over the preceding two years. The Council discussed various issues including
defining an appropriate "mix of uses," the role of alcohol service, and consideration of a
moratorium for new restaurants. The Council requested that the study session be
continued and reconvened jointly with the Planning Commission to allow for input and
discussion with the Commission.
¾June 16, 2015 (Joint City Council/Planning Commission Study Session): At the joint
study session, the Commission and Council received public comment and had a wide-
ranging discussion on the role of restaurants in the Downtown, the future of local retail,
potential regulatory options, and the City's economic development efforts. At the
conclusion of the meeting, there was an emerging consensus that the Conditional Use
Permit requirement should be reviewed again. As a result, preparation of Zoning Code
Amendment was placed on the FY2016 Work Plan for staff to bring forward within the
fiscal year.
¾February 23, 2016 (Planning Commission Public Hearing): As directed by the Work
Plan item, staff prepared a zoning code amendment that would have required approval
of a Conditional Use Permit for any new restaurant, tied to specific findings intended to
encourage an appropriate balance of uses, diversification of eating establishments, and
to limit an "overconcentration" of restaurants in the immediate area. The Planning
Commission supported the proposed amendment and forwarded a recommendation to
the City Council.
¾March 15, 2016 (City Council Public Hearing): The Council's discussion concluded with
a decision not to adopt the proposed amendment. Although there was support for a
Conditional Use Permit process, the Council directed staff to review incentives that may
encourage retailers as well as reviewing the list of allowable uses in the Downtown. The
thought process for this direction hinged on the idea that if property owners had a broad
choice of use types, the market would correct the displacement of retail.
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¾February 7, 2017 (City Council Study Session): The Council held a study session to
continue the ongoing discussion on the mix of uses in the Downtown. At the meeting's
conclusion, the Council provided general direction and questions for subsequent follow-
up, including: revise the list of allowable uses to include additional uses, provide an
allowance for historic buildings to have more use flexibility, eliminate the parking
exception for restaurants, modify the signage standards to allow secondary (smaller)
wall signs for menu listings (and similar signs), explore electronic parking signage and
a trolley system, and streamline commercial tenant improvement (TI) permits.
¾May 2, 2017 (City Council Public Hearing): The City Council considered a revised
zoning text amendment that identified additional land uses that could be principally or
conditionally permitted in response to Council direction. Public comments expressed
concern that new land use types would vary from the goal of creating a vibrant
Downtown. As a result of the public comment and Council deliberation, staff was
directed to look at use types that were pedestrian friendly.
¾June 6, 2017 (City Council Public Hearing): Due to a long agenda, the item was
continued without Council action being taken.
¾August 15, 2017 (City Council Public Hearing): Based on the Council feedback from
May 2, 2017, staff presented a new land use table focused on encouraging pedestrian-
oriented uses and revised signage and parking requirements. The Council felt that what
was presented remained inconsistent with their direction. As a result, the Council
continued the meeting and approved appointment of an ad-hoc committee to review the
matter further.
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To:Paul Kermoyan, Community Development Director Date:April 17, 2018
From:Michael Thomas, Economic Development Specialist
Subject:Downtown Mix of Uses Benchmarking Study
Background
The City Council has directed staff to document Campbell’s current mix of uses in the
downtown area and discuss possible new uses. In response, Economic Development
staff conducted a benchmark study to identify the mix of uses in Downtown Campbell
with those of neighboring communities with similar downtown areas. In this study, the
city staff counted the first floor uses of six downtown areas in the following cities and
town:
Table 1: Downtown Areas Observed
Downtown Area Total Community
Population
Downtown Area
(In square miles)
Campbell 42,726 0.048
Los Altos 31,402 0.072
Los Gatos 31,314 0.033
Mountain View 79,278 0.066
Saratoga Village 30,569 0.027
Willow Glen (San Jose) 70,785 0.054
Source: California Department of Finance, U.S. Census Bureau and Google Maps
Methodology
In a benchmark analysis, Economic Development staff identified and counted the
different land uses in the aforementioned six downtown areas. Staff conducted their
observations between November 14, 2017 and January 31, 2018.
City staff counted individual buildings in each downtown area at street level excluding
second story uses because local zoning districts permit commercial uses in first floor
tenant spaces and a typical consumer sees what is relative to eye level. The collected
data were grouped into eighteen categories, and inputted into a data collection and
survey tool. The following 18 categories were selected because each one represented
the most common use types located in downtown areas.
Table 2: First Floor Uses Identified by City Staff
City of CampbellMEMORANDUM
Economic Development Division
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Art / Music Studio Food Retail Professional Office
Auto / Gas Grocery Store Restaurants
Bars Medical Office Retail Stores
Beauty / Spa Other Showroom Retail
Education / Daycare Personal Service Vacant
Fitness Studio Pet Related Retail Wine Tasting Room
Findings & Analysis
Comparing overall trends in this study reveals that restaurants, retail stores,
professional office, beauty / spa and food retail uses were the most frequently observed
uses in the six downtown areas as measured by count and proportion. Conversely, art /
music studios, wine tasting rooms, education / day care, auto / gas and pet related retail
uses were the least observed. Table 3 provides a breakdown of each use by count
ranked from most to least, and how Downtown Campbell’s mix of uses compares to the
mean and median count for each use.
Table 3: Property Use by Count
Ranked Most to Least
Rank Use Mean Count Median Count Campbell Count
1 Restaurants 32 26 12
2 Retail Stores 29.3 21.0 19
3 Professional Office 28.3 27.0 6
4 Beauty / Spa 12.3 11.5 5
5 Food Retail 9.7 7 7
6 Personal Service 9.5 7 6
7 Vacant Space 7.2 7 2
8 Other 6 5 1
9 Showroom Retail 4.5 3 3
10 Tie Bars 2.7 2.5 6
10 Medical Office 2.7 2.5 0
12 Fitness Studios 2.3 0.5 1
13 Grocery Stores 1.8 1.5 0
14 Art / Music Studios 1.5 1.5 0
15 Wine Tasting Room 1.3 0.5 0
16 Tie Education / Daycare 1 1 0
16 Auto / Gas 1 1 0
18 Pet Related Retail 0.8 0 0
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Table 4 provides a breakdown of each use by proportion ranked from most to least, and
how Downtown Campbell’s mix of uses compares to the mean and median proportion
for each use.
Table 4: Property Use by Proportion
Ranked Most to Least
Rank Use Mean %Median %Campbell %
1 Restaurants 20.2 18.2 18.2
2 Retail Stores 19.8 17.0 28.8
3 Professional Office 16.8 17.9 9.1
4 Beauty / Spa 8.5 7 4.5
5 Food Retail 6.7 6.8 10.7
6 Personal Service 6.2 5.8 9.1
7 Vacant Space 4.9 5.0 3
8 Other 3.4 2.5 1.5
9 Showroom Retail 3.2 3.3 4.5
10 Bars 2.7 1.8 9.1
11 Fitness Studios 1.5 0.8 1.5
12 Tie Medical Office 1.4 1.4 0
12 Wine Tasting Room 1.4 0.2 0
14 Tie Art / Music Studios 1.3 1.3 0
14 Pet Related Retail 1.3 0 0
16 Grocery Store 0.9 1 0
18 Tie Auto / Gas 0.5 0.5 0
18 Education / Daycare 0.5 0.4 0
The following lists represent distinctive trends observed in each community’s downtown
area.
Campbell
x Lowest total of uses (66) compared to the other downtown areas observed by
staff
x The three most frequently observed uses were retail stores (19), restaurants
(12), and food retail (7)
x Six of the restaurants provide full alcohol service
x Campbell is the only downtown area without a medical office
x Campbell does not have any wine tasting rooms, but Tessora’s Wine Bar
operates in downtown
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x Although not counted among the uses in the downtown core area, the Art
Beat art studio operates just outside of the downtown gateway at 68 E.
Campbell Ave.
x No education and day care, grocery store, auto / gas, or pet related retail
uses operate in downtown
x Campbell has dedicated the least amount of space for professional offices
with only six offices counted
Los Altos
x Second highest total of uses (232) and showrooms (9) counted
x Least amount of food retail stores (6)
x Services featured in Los Altos’ “Downtown Triangle” include a dry cleaner,
jeweler, US Postal Service, tailor, and picture framing
x Unique uses include a newspaper publisher, hardware store, senior care
living facility and an arcade
Los Gatos
x Third highest total of uses counted (161)
x Highest total of retail stores (60), second in showroom retail uses (8) and third
highest count of professional offices (20)
x Los Gatos does not have any uses for pet related shops, education and day
care, or fitness studio uses
x Some unique uses in Los Gatos include a movie theater and an experiential
retailer—Petroglyph (a painting and ceramics store)
Mountain View
x Highest number of uses counted (246)
x Mountain View has the most restaurants (69), professional offices (51), food
retail stores (22), personal service uses (20), and uses categorized as “other”
(18)
x Mountain View and Los Altos have the highest number of vacant spaces at 12
each
x Some unique uses include non-profit community service organizations: The
Fraternal Order of Eagles and The Independent Order of Odd Fellows
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Saratoga
x Fifth highest total of uses counted (73)
x Most wine tasting rooms (5)
x Staff did not observe fitness studios, education and day care, grocery stores,
auto and gas stations, or pet related retail uses
Willow Glen
x Willow Glen has the fourth highest total of 150 uses compared to the other
downtown areas visited by staff
x Highest total of beauty and spa businesses with 20 counted by staff
x Third highest count of professional offices (34)
x Some unique uses in Willow Glenn include experiential retail uses including a
cooking school, candle making store (i.e. Glow), and a ceramic making store
(i.e. Petroglyph)
When analyzing the observed downtown uses by proportion, staff concluded Campbell
has a healthy restaurant mix from a proportional perspective. Currently, restaurants (12)
account for 18.2% of the space used in Downtown Campbell when compared to the
average (20.2%) and median (18.2%). This proportion is similar to Los Altos (42
restaurants) and Los Gatos (29 restaurants), which currently have restaurant use at
18.1% and 18% respectively. Mountain View (28%) and Saratoga Village (23.3%) have
the highest proportion of restaurant uses.
In terms of retail stores, Campbell’s retail space accounts for 28.8% of its downtown.
This proportion is higher than the mean (19.8%) and median (17.0%) for this use type.
Campbell’s retail store proportion is second highest behind Los Gatos (37.3%) The
other four observed downtown areas are as follows: Willow Glenn (13.3%), Los Altos
(20.7%), Mountain View (8.9%), and Saratoga (9.6%). Overall, Downtown Campbell’s
proportion of retail space is higher than those of other downtown areas.
In terms of professional of first floor office space, 9.1% of tenant space is used for this
purpose in Downtown Campbell. This proportion can be explained by professional
offices that abut E. Campbell Ave. between Second Street and Winchester Boulevard.
Campbell’s proportion of professional office use is below the average (16.8%) and
median (17.9%) proportions. Willow Glen has the highest proportion at 22.7% followed
by Los Altos and Mountain View at 20.7% each. Saratoga Village (15.1%) and Los
Gatos (12.4%) have the lowest proportion of tenant space for professional office use.
Compared to the other communities, Downtown Campbell has the lowest proportion of
beauty and spa uses at 4.5%. This proportion is below the mean (8.5%) and median
(7%) of this use type. Mountain View (5.4%), Los Gatos (6.2%) and (Los Altos (7.8%)
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are also below the mean proportion for this use type. Saratoga Village (13.7%) and
Willow Glen (13.3%) having the highest proportion for beauty and spa uses.
Overall, the fifth most common use type is food retail, which enables consumers to
purchase food items directly from sales staff for on-site or off-site consumption. Some
examples in Downtown Campbell include Snake and Butterfly, Frost Cupcake Factory,
Rocket Fizz and Campbell Creamery. Downtown Campbell has the highest proportion
of food retail use at 10.7% followed by Mountain View (8.9%) Willow Glen (8.0%) and
Saratoga Village (5.5%). Los Gatos (4.4%) and Los Altos (2.6%) have the lowest
proportion for this use. Downtown Campbell’s proportion of 10.7% is above the mean
(6.7%) and median (6.8%) for this use type. Tables 3 (Page 2) and 4 (Page 3)
Sales Tax Revenue
As an ancillary component to this study, Economic Development staff requested sales
tax data from each community in which each downtown district is located. The data in
Table 5 (Page 6) provide aggregate sales tax revenue for the last four available
quarters from Q4 2016 through Q3 2017. This data does not breakdown the sales tax
generated by use type or by a specific business, but rather how much sales tax revenue
was generated in the geographic areas observed by staff. Besides, specific businesses’
sales tax revenue is confidential. Comparing overall sales tax revenue is being
assumed as a benefit to a downtown area’s mix of uses because sales tax funds public
programs for example. Willow Glen and Mountain View report the highest revenue for
each quarter. Saratoga Village generated the third highest sales tax revenue for Q4
2016 and Q1 2017 with $350,000 each quarter. Q2 and Q3 2017 revenue data were
unavailable. If Saratoga Village generated $350,000 for Q2 and Q3 2017, these totals
would still rank third highest behind Willow Glen and Mountain View followed by Los
Altos and Campbell respectively.
In time period for which sales tax revenue data was provided, Downtown Campbell’s
sales tax revenue reached a high of $171,953 in Q2 17 and reached a low of $153,465
in Q1 17. Overall, Downtown Campbell has the lowest sales tax revenue in all four
reported quarters compared to the other four downtown districts that provided data.
Downtown Campbell’s highest quarterly sales tax revenue amount ($171,953 in Q2 17)
was lower than the lowest quarterly total reported by any other community— businesses
in Downtown Los Altos’ generated $254,225 in Q1 17. While Campbell and Los Altos
saw a decline in sales tax revenue in Q1 17, Willow Glen and Mountain View saw slight
increases and Saratoga saw no change. The first quarter is traditionally a time when
consumers reduce spending following the holiday season in November and December.
To further illustrate the difference in sales tax revenue for this four-quarter period,
Downtown Campbell’s total sales tax revenue of $660,353 is lower than Willow Glen’s
lowest quarterly total of $793,868 (Q4 16).
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Table 5: Sales Tax Revenue in USD Last Four Reported Quarters
City / Town Q4 16 Q1 17 Q2 17 Q3 17 Total Average
Campbell $168,943 $153,465 $171,953 $165,992 $660,353 $165,088
Los Altos $313,093 $254,225 $276,114 $273,976 $1,117,408 $279,352
Los Gatos Data Not
Available
Data Not
Available
Data Not
Available
Data Not
Available
Data Not
Available
Data Not
Available
Mountain
View $393,000 $403,000 $420,000 $414,000 $1,630,000 $407,500
Saratoga
Village $350,000 $350,000
Data Not
Available
Data Not
Available
Data Not
Available
Data Not
Available
Willow Glen $793,868 $798,366 $809,023 $813,841 $3,215,098 $803,775
Average $403,781 $391,811 $419,273 $416,952 $1,655,715
Sources: Cities of Campbell, Los Altos Mountain View, Saratoga and San Jose
When examining change in revenue, Mountain View (+5.1%) and Willow Glen’s (+2.5%)
sales tax revenue illustrates an upward trend for the last four reported quarters while
Campbell (-1.9%) and Los Altos’ (-11.6%) trends show a downward trend during this
time period. Revenue change from Q4 16 to Q1 17 saw Campbell’s sales tax revenue
drop by 9.2%, but increase by 10.8% between Q1 17 and Q2 17. This proportional
change was the largest quarter-to-quarter gain among the observed downtown areas
that provided data. This 10.8% increase was the only time featuring a double-digit gain
out-pacing the next highest growth rate for this period by nearly 3% (Los Altos +7.9%).
The Q1 17 to Q2 17 period was the only time in this sample data when all downtown
districts except Saratoga Village reported sales tax growth from the previous quarter. It
is assumed that growth is anticipated since consumers reduced spending in Q1
17.Table 6 provides the proportional change in sales tax revenue between each of the
referenced quarters for communities that provided data.
Table 6: Change in Sales Tax Revenue by Proportion
City / Town Q4 16 to Q1 17 Q1 17 to Q2 17 Q2 17 to Q3 17 Overall Trend
Campbell - 9.2% +10.8% -3.5% - 1.9%
Los Altos -18.8% +7.9% -0.7 -11.6%
Los Gatos Data Not Provided Data Not Provided Data Not Provided Data Not Provided
Mountain View + 2.5% +4.0% -1.4% + 5.1%
Saratoga No Change Data Not Provided Data Not Provided --
Willow Glen + 0.6% +1.3% +0.6% + 2.5%
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Police Calls for Service
As an additional ancillary component to this study, staff examined calls for service to
each community’s local law enforcement agency. For the purposes of this study, calls
for service are defined as requests made by individuals via phone calls, in-person visits
to law enforcement facilities, and online law enforcement reporting systems. Staff
requested aggregate numbers of calls for service for each quarter of calendar year
2017. Calls for service do not include officer-initiated traffic and patrol stops because
this study is measuring calls placed by individuals requesting service. Calls for service
include both criminal and non-criminal activity. Some examples of criminal calls include
assault, theft and burglary. Some examples of non-criminal activity include disabled and
abandoned vehicles, stray animals and disturbances.
Staff contacted each of the law enforcement agencies that serve these downtown areas
for this data. The Santa Clara County Sheriff’s Office serves the City of Saratoga while
the other five communities have their own dedicated police departments. Staff
successfully obtained quarterly calls for service data for Downtown Mountain View and
Saratoga Village while an annual total was provided for Downtown Campbell. Campbell
Police records staff is working to provide quarterly calls for service totals. As of the
drafting of this memorandum, requests to the Los Altos and San Jose Police
Departments for these data are pending. Los Gatos Police Department did not provide
data. Table 7 lists calls for service data provided as of the drafting of this memorandum.
Table 7: Calls for Service to Local Law Enforcement Agencies
City / Town Q1 17 Q2 17 Q3 17 Q4 17 Total
Campbell Data Not Provided 1,255
Los Altos Request Pending
Los Gatos Data Not Provided
Mountain View 362 347 399 418 1,526
Saratoga Village 118 127 145 137 527
Willow Glen Request Pending
Just as the sales tax data provided an overall illustration of the sales tax revenue
generated by specific geographic areas, the calls for service data are intended to
provide the overall number of calls in a geographic area (i.e. the downtown areas
observed by staff). The data does not breakdown the types of calls generated by a use
type or a specific business to comply with confidentiality rules.
Based on this incomplete data, Mountain View has a higher total of police calls for
service compared to Campbell and Saratoga. Mountain View’s downtown district in
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terms of area is 27% larger than Campbell and 59% larger than Saratoga Village.
Mountain View’s total population of 79,278 is larger than the total combined population
of Campbell and Saratoga (73,295 people). An assumption can be made that more calls
for service occur in a community with a larger downtown area and a larger population
than a community with a smaller downtown area and smaller population. However,
another assumption can be made that not all calls for service are requested by a
specific community’s residents, but by visitors from other communities who happen to
be in that community at a certain time. In addition, another assumption can be made
that not all calls for service result from actions caused by a specific community’s own
residents, but by visitors from other communities who happen to be in that community at
a certain time.
Staff will include additional calls for service data in the event they are provided.
Analysis
Based on the data, Downtown Campbell has a healthy proportion of restaurants
(18.2%) compared to the average (20.2%) and median (18.2%) for this use type. This
proportion does not account for the types of restaurants, however. Downtown
Campbell’s retail stores (28.8%) represent the largest use type by proportion which is
second only to Los Gatos at 37.3%. Combined, retail stores and restaurants represent
47.0% of the total uses in Downtown Campbell while Downtown Los Gatos’ restaurant
and retail store mix accounts for 55.3% of it uses. The other communities’ top two uses
by proportion are restaurant and professional office with the exception of Los Altos,
which has retail stores and professional offices as the two most common uses in its
“Downtown Triangle.” Table 8 provides more details on the most common uses in these
downtown areas
Table 8: Most Common Use Types by Proportion
Downtown Area Most Common
Use
%Second Most
Common Use
%Total
%
Campbell Retail Store 28.8 Restaurant 18.2 47.0
Los Altos Retail Store 20.7 Pro Office 20.7 41.4
Los Gatos Retail Store 37.3 Restaurant 18.0 55.3
Mountain View Restaurant 28.0 Pro Office 20.7 48.7
Saratoga Village Restaurant 23.3 Pro Office 15.1 38.4
Willow Glen (San Jose) Pro Office 22.7 Restaurant 15.3 38.0
Despite Downtown Campbell’s retail and restaurant heavy mix, total sales tax revenue
was the lowest when compared to the other four communities that provided sales tax
data. Downtown Campbell averaged $165,088 from Q4 16 through Q3 17 which is well
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below the average of $401,143, which includes the outlier of Willow Glen’s average
sales tax revenue of $803,775. Removing this outlier provides an average of $300,485,
which is significantly higher than Campbell’s average for the reported time period.
Campbell’s low sales tax revenue data requires further research to determine why this
number is low compared to the other downtown areas represented in this study. Given
the limited data provided for police calls for service, it is difficult to draw conclusions and
make generalizations about this data and how it correlates to uses in the downtown
area.
Conclusion
In conclusion, the downtown area’s current mix of uses needs to be re-examined with a
consideration for new uses, and whether limiting or expanding the presence of other
uses is warranted. Causes of Downtown Campbell’s low sales tax revenue need more
research and whether or not this issue correlates with the current mix of uses. These
considerations should be made with the community’s needs in mind.
Attachments
1. Benchmarking Results by Count
2. Benchmarking Results by Proportion
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Packet Pg. 96 Attachment: Downtown Mix of Uses Benchmarking Study (1160 : C-3 Zoning Code Amendment Initiation)