1994 DT Dev PlanCAMPBELL DOWNTOWN
DEVELOPMENT PLAN
Prepared by
City of Campbell Redevelopment Agency
City of Campbell Community Development Department
City of Campbell Public Works Department
November, 1995
i
'"' TABLE OF CONTENTS
Background .................. .................... 1
Introduction ........................................ 1
General .......................................... 4
Land Use ......................................... 4
Development Intensity ................................. 5~
Parking .......................................... 6
Urban Design ........................ ~............... 8
Circulation ........................................ 11
Economic Development/Downtown Marketing ................... 12
Implementation and Funding .............................. 13
LIST OF DIAGRAMS
Diagram 1 Study Area Boundary Map ..................................................... 3
Diagram 2 Conceptual Land Use Plan ..................................................... 14
Diagram 3 Existing Parking Resources .............................................. 15
Diagram 4 Future Parking Resources ................................................ 16
Diagram 5 Vehiclar Circulation Plan ................................................. 17
Diagram 6 Pedestrian Circulation Plan ............................................... 18
Diagram 7 Streetscape Improvement Plan ........................................... 19
Diagram 8 Historic Preservation ...................................................... 20
A-
rty o amp a wntown ve opment an
1
BACi~GROUND
-" Downtown Campbell has traditionally been centered on East Campbell Avenue in the area bound
by the "loop" streets, Civic Center Drive and Orchard City Drive. Historically, this stretch of
East Campbell Avenue; especially between Second Street and the railroad, provided a full range
of retail and commercial services. In the late 1960's and 1970's, the azea declined in importance
due to the closure of the fruit packing plants and the rise of strip commercial developments along
Hamilton Avenue and Winchester Boulevard. The following years saw suburban malls flourish
and retail shopping patterns change throughout the Santa Clara Valley leading to the demise of
the central business district in traditional downtowns such as Campbell's.
The Central Campbell Redevelopment Project Area was created in 1983. The Area encompasses
260 acres in and azound downtown Campbell. The major purpose of this Project Area is to
eliminate blight in and azound the downtown azea and to revitalize the central core of the City.
Specific goals include restoring downtown Campbell to its historic role as the symbolic, cultural,
functional and economic focal point of the City; to promote and facilitate economic revitiliation;
and to retain the historic character of downtown through preservation and rehabilitation.
One of the first major steps in the redevelopment process was to develop a downtown
revitalization plan. In 1988, the Campbell Downtown Development Plan was completed as a
result of over one and a half years of study and discussion of planning and revitalization issues
in the downtown. The planning process involved working closely with a special citizen's
-- advisory commitee, property owners, the City Council and staff.
INTRODUCTION
Since the adoption of the Campbell Downtown Development Plan in 1988., a number of projects
have been completed to implement the Plan and revitalize the area. These include the
undergrounding of utilities on East Campbell Avenue; the construction of a $2.5 million
streetscape improvement project which enhanced the downtown with attractive landscaping,
hardscape, lighting and traffic improvements; the relocation of the historical Ainsley House to
the Civic Center Complex to help serve as a focal point; the construction of Ainsley Park,
Orchazd City Green and Hyde Pazk; the conversion of Fast Campbell Avenue from one-way to
two-way traffic to enhance the retail environment; the installation of distinctive downtown
signage; the addition of parking on the loop streets in certain areas; the installation of street
improvements in the Railway/Dillon Avenue area adjacent to the downtown; facilitation of new
development in and around the downtown including the 348-unit Canyon Creek Apartment
Development at 500 Railway Avenue, the establishment of a downtown marketing program to
attract businesses to the azea; the development of a storefront improvement program for the azea;
and the adoption of an Economic Development Plan.
,--
rty o amp wntown ve opment an
Over the last seven years the Agency has- accomplished many of the "short-term" goals
recommended in the 1988 Campbell Downtown Development Plan. The purpose of this revision
- and update is in essence to build on the foundation established by the 1988 Downtown Plan and
to evaluate and reprioritze improvements for the area over the next five years.
The basic concepts of the 1988 Plan remain, however, some of the implementation methods are
modified to better fit Downtown Campbell for the next five years in light of budget constraints
and other redevelopment priorities outside of the downtown area.
};n summary, this Downtown Plan for the next five years. will focus on attracting retail and
restaurant business and facilitating development dowwtown, enhancing the perception of the
downtown beyond the loop streets, upgrading downtown storefronts, adding public parking
where it is economically feasible and making public improvements to enhance the gateways to
the downtown as funding permits.
ity o amp a wntown ve opment n
2
,•.~
,~",
,-,
3
'~' DOWNTOWN DEVELOPMENT PLAN
_ GOALS AND POLICIES
I. GENERAL
A. Goals
1. To restore downtown as the civic and cultural center of activity for the City
of Campbell.
2. To facilitate the development of downtown as an economically viable
commercial district.
3. To enhance the perception of the downtown beyond the loops streets through
land use patterns, traffic circulation and urban design.
4. To restore and protect the historic character of downtown.
B. Policies
1. Civic and community activities shall be centered in and around the
~-
downtown.
2. The focus of downtown business shall be a mixture of resident serving
business and destinations with an emphasis on providing a balance of day
and evening activities.
3. The future development of downtown shall include ways to eliminate the
physical and visual barriers created by the loop streets.
4. The historic character of downtown shall be preserved through the protection
and restoration of its historic buildings and landmarks.
II. LAND USE
A. is
1. To develop a mix of economically viable commercial uses downtown creating
a balance of daytime and evening activities.
qty o amp a wntown ve opment an
4
2. To expand the boundaries of the downtown beyond the loop streets through
land use patterns.
3. To develop and maintain downtown as a pedestrian oriented district.
4. To provide attractive public gathering areas and open spaces.
B. Polici
1. Land use regulations shall be structured to encourage retail and restaurant
uses.
2. E. Campbell Avenue between Second Street and the railroad tracks shall be
designated as the primary retail and restaruant core with ground floor uses
that contribute strongly to retail. continuity.
3. E. Campbell Avenue west of Second Street shall be designated as a mixed
use area for professional office, retail and personal service uses.
4. Current planning regulations and design standards shall be reviewed for areas
adjacent to the downtown to ensure development will complement and
enhance downtown vitality.
5. A range of uses shall be permitted on the upper floors of buildings, including
retail, restaurant, commercial, office and residential.
III. DEVELOPMENT INTENSTfY
A. Goal
To maintain development intensities consistent with the small town scale of
the dowrnown.
B. Policies
1. New construction downtown shall be in scale with existing densities and
development patterns. Building placement shall allow for the retention of
existing mid-block parking.
a. Maximum building coverage shall be 1.0 and the maximum floor area
ratio (FAR) shall be 2.0.
.-
ty o amp a wntown ve opment an
5
-- (i) Actual building coverage and FAR shall be determined on a -case
by case basis once mid-block parking and access have been
identified.
(ii) It is recognized that in order to maintain mid-block parking and
access, it may not be possible to achieve the maximum allowable
FAR and coverage.
b. Maximum building height shall be lesser of 3 stories or 45'. Third story
floors shall beoff--set.
(i) New buildings shall be in context with the height and scale of
adjacent buildings.
(ii) New buildings shall maintain similar horizontal and vertical
proportions with adjacent facades.
C. Action Item
Amend the C-3 Ordinance to implement the above referenced policies.
-~-~ IV. PARKING
A. Goals
1. .To provide adequate parking in the downtown.
2. To maximize the use of existing and future parking resources.
3. To encourage the joint utilization of parking.
B. Policies
1. The Redevelopment Agency shall prepare and implement a plan for adding
parking onto the loop streets.
2. Parking in-lieu fees shall be considered as a means of financing public
parking. Such a program may be structured to provide incentive to build
downtown.
.-,
ity o amp a wntown ve opment n
6
3. Further evaluate the parcel at the northeast corner of Harrison Avenue and
Civic Center Drive as a future public parking resource. Development of the
site may provide some opportunities of shared parking with downtown
businesses.
4. Parking structures, if necessary, shall be underground or low profile to
maintain the small town character of the downtown.
a. Consideration of parking structures on the Campbell Museum site and at
33 S. Central Avenue shall be deferred. The City may consider the
redevelopment of these sites in the future.
5. Maintain existing mid-block parking. New development and major additions
to existing development shall provide access to mid-block parking .where
possible.
6. The City shall work with the property business owners to develop a parking
management plan to maximize the use of existing parking. This may include
the following:
a. Working with employers to have employees park in non-customer areas,
and placing such provisions in leases;
" b. Study restriping existing parking lots to provide additional parking;
c. Coordinate with the Police Department regarding parking enforcement.
7. Parking facilities or vehicular access to parking facilities shall not be
permitted on E. Campbell Avenue.
8. The City shall continue to work with property owners to promote and
facilitate the provision of shared parking facilities.
C. Action Items
1. Modify the map of Future Public Parking Resources.
2. Develop a. Parking Management Plan.
3. Determine the location, cost and number of new parking spaces that can be
added on the loop streets.
ity o amp a wntown ve opment an
7
,,,._ IV. URBAN DESIGN
A. Goals
1. To further develop downtown as the cultural and civic center of the City of
Campbell
2. To enhance the identity of the downtown as a central business district that
serves as a meeting place for local residents as well as a destination.
3. To preserve and enhance the history and historic character of downtown
Campbell.
4. To maintain the small town scale of the downtown.
5. To enhance the retail continuity and pedestrian oriented environment.
6. To unify the architectural character of downtown while allowing design
flexibility on individual projects.
7. To improve pedestrian, visual and vehicular connections between downtown
and adjacent areas.
8. To enhance the perception of the downtown beyond the loop streets through
urban design.
9. To restore the Hyde Park Water Tower as an historic landmark
` " ~~ ~ 1ITl~ 1
~ .. ~-, _
Buildings facing E. Campbell Avenue shall be designed to maintain a consistent development
pattern that promotes retail activity and an active pedestrian oriented environment.
'~' ity o amp a wntown ve opment
8
~-•wMMO{
~fMD ILOOA MMDOwE
- [Eli CW[[[ --COMxC[ ! '.wwloow Wi[[ -OV[wwYlo
-Exi[~w•ur
a~ww~rEO sows
~~~~~
t;
'~,1`
~-ra.[TES `~` ` +-swwwa /tw.pew wNOOws
iaE u[e `wsu sww
S wEC[fK0 lwior
Building elements which add scale and interest such as bay windows, belt cornices,
parapets, the base and awnings are encourged.
B. Policies
1. The small town character of downtown Campbell shall be maintained by
encouraging. the preservation of important historic resources, promoting the
improvement of existing properties and businesses, and encouraging new
development compatible in scale with existing development.
-- 2. Preservation of historic buildings shall be encouraged through the designation
of significant historic structures as historic landmarks to protect their exterior
character and discourage demolition.
3. Buildings facing E. Campbell Avenue shall be designed to maintain a
consistent development pattern that promotes retail activity and an active
pedestrian-oriented environment. Recessed buildings, particularly on corner
lots, may be allowed to provide for outdoor dining, public areas or design
excellence determined to contribute to the overall benefit of the downtown.
4. Large areas of blank walls without .fenestration or other scale articulation
facing pedestrian walkways shall be discouraged.
5. Creative and attractive display windows shall be encouraged on the ground
floor to enliven the pedestrian street environment.
6. Office uses along Campbell Avenue shall provide elements of visual interest
along the street. Covered windows shall be discouraged, particularly on the
ground floor.
7. Open air dining areas shall be encouraged at street level facing onto E.
s--
~ty o amp wntown ve opment n
9
Campbell Avenue.
8. Entries to retail and service commercial uses shall be encouraged along
pedestrian walkways.
9. Upper floor decks, terraces and balconies shall be encouraged at the rear of
buildings to provide an active transition zone between reaz pazking azeas and
Campbell Avenue.
10. Large buildings shall be divided into multiple store fronts or similarly scaled
elements to complement the existing small property divisions.
11. Two-story building facades on Campbell Avenue are encouraged to increase
the itrtensity of activity, and to enclose, define and add visual interest to the
street.
12. Building elements which add scale and interest such as bay windows, belt
cornices, parapets, and cornices, aze encouraged.
13. Stucco and/or brick shall be the primary building materials on facades
downtown.
14. A coordinated color scheme shall be developed for each new building.
15. Fabric awnings over windows and entries are encouraged.
16. The existing two foot allowance for the encroachment of awnings and
projecting signs into the public right-of--way along Campbell Avenue shall be
increased.
. 17. Special design guidelines for signing shall apply in addition to existing
adopted sign regulations.
18. A funding strategy shall be formulated and implemented to fund the
restoration of the Hyde Pazk Water Tower.
C. Action Items
1. Implement the design guidelines contained in the C-3 Ordinance
2. Amend the C-3 Ordinance as necessary to implement these policies.
V. CIRCULATION
ty o amp a wntown ve opment
10
--- A. oS~
1. To improve access to the downtown area.
2. To expand the boundaries of the downtown beyond the loop streets through
vehiculaz and pedestrian circulation.
3. To increase vehicular traffic along the stretch of E. Campbell Avenue from
the railroad tracks to Fourth Street.
4. To accommodate a Vasona Light Rail Station in the downtown azea.
5. To decrease vehiculaz speeds along the loop streets and provide more of a
pedestrian environment and downtown feel.
B. P to icier
1. Circulation improvements shall be considered to enhance the perception of
the downtown beyond the loop streets, particularly in the area of Harrison
Avenue and Civic Center Drive.
2. Pedestrian and bicycle connections shall be enhanced between the downtown
-- and the Community Center on the west and the Los Gatos Creek
TraiUPruneyazd Shopping Center on the east.
3. New curb cuts and access drives shall not be allowed on E. Campbell
Avenue between the railroad and Third Street and existing ones shall be
phased out over time.
4. The future Vasona Light Rail Station shall be located between east Campbell
Avenue and Orchard City Drive.
5. Traffic mitigation measures and control devices shall be considered as a
means to shift traffic to E. Campbell Avenue and decrease traffic speeds on
the loop streets, including making the loop streets one lane in each direction.
6. The Sahnar Avenue connection linking downtown and Hamilton Avenue shall
remain in its present alignment. However, this entryway shall be enhanced
with streetscape improvements including curbs, gutters, sidewalks, light
fixtures and appropriate street trees and landscaping.
7. Streetscape improvements shall be considered along E. Campbell Avenue
between Highway 17 and the railroad tracks to provide an attractive entrance
,-.
ity o amp a wntown ve opment n
11
"-` to the downtown from the east and make the area more pedestrian friendly.
8. Traffic design improvements shall be considered along E. Campbell Avenue
between Winchester Boulevard and Fourth Street that would provide on-street
parking on the south side of E. Campbell Avenue and distinguish the area as
an entry into the downtown from the west..
9. No traffic circulation plan shall be implemented that will severely delay
traffic through the downtown area.
10. Traff c circulation changes should be tried on a trial basis prior to permanent
implementation to ensure traffic safety.
VI. ECONOMIC DEVELOPMENT/DOWNTOWN MARKETING
A. oafs
1. To help facilitate the economic development of downtown and the
surrounding areas.
2. To attract and retain desirable businesses downtown.
B. Policies
1. The Agency shall help facilitate the marketing of vacant commercial space
downtown.
2. The Agency shall help facilitate the permit approval process for desirable
new businesses or new construction downtown.
3. The Agency shall consider providing financial assistance for desirable
businesses wishing to locate in the downtown which otherwise would not be
economically. feasible.
4. The Agency shall work with the Downtown Campbell Business Association
(DCBA) to help facilitate their efforts.
5. When appropriate, the Agency shall consider the assemblage of property to
facilitate redevelopment projects.
6. The Agency shall consider providing financial assistance for upgrading
storefronts downtown.
qty o amp a wntown ve opment n
12
7. The Agency shall work closely with business and property owners regarding
the revitalization of properties and business activities.
VII. IlIZPLEMENTATION AND FUNDING
A. Implementation Strategy
The implementation of the recommendations in this plan are expected to take
approximately five to seven years to complete. Implementation will depend to a
large degree on the funds available to the Redevelopment Agency and the priority
of all redevelopment projects as determined by the Agency Board. However, the
implementation strategy generally calls for those items that have the greatest
cost/benefit ratio to occur early on while some of the more costly but less crucial
improvements will happen as funding is available. In general, the priority of
funding will be established in the Agency's five year implementation plan and its
annual budget. The following provides a preliminary priority list of the major
improvements planned for the downtown.
B. Implementation Priorities
1. Implement a storefront improvement program to enhance the facades of
buildings downtown.
'~ 2. Provide financial assistance for desirable businesses wishing to locate
downtown that otherwise could not do so economically.
3. Study the conversion of the loop streets from two lanes to one lane with on-
street parking and enhancing pedestrian access.
4. Assemble properties for the redevelopment of key parcels downtown.
5. Install appropriate street and streetscape improvements along the
Salmar/Harrison Avenue connection to the downtown beginning at Hamilton
Avenue.
6. Evaluate E. Campbell Avenue between Winchester Boulevard and Fourth
Street to consider providing on-street parking on the south side of E.
Campbell Avenue and help distinguish the area as a gateway into the
downtown.
7. Consider streetscape improvements along E. Campbell Avenue between
Highway 17 and the railroad tracks to link this area to the downtown and
enhance it as a gateway from the east.
,,,, qty o amp a watown ve opment
13
D
,D
A
rl
cd
Z..~
n~
W
a~
~--i
P
Q~
Q
~r
W
O
J~
~~ ~~ ~Q <
W ~
Z 0
Oz
UQ
l
U ~ {
a W z ~ ~~~" ai
W ~ Y Z N ~
} ~ ~ ~ ~ ~
~ U U ~ C U
? r o~ ~ ~
°Ca ~ a a ~ 2 a
Q
14
aiv aais~rawi
O4
~~
-~
_v~;
,,,•`
M
-o .~
~a
~ ~
A~
~--~
a
~ o
p., N
~ A
1 ~r ati~ ~ ~
~` ~ ~
~ ~
_~
_ ----- -
[S 3~1'd
`j1`. -._
_ _ ~.__.'
~r 31001
a ~ . /;~~
a v
•,
1S 1S1Lf N r ~ ~ ~ ~ u `~~. S ___~
Q
pEl ~ ~
O ! ~i ~
O r ~
1S O~Q03; N _ u D~~ S _..-- ~ ~ _
ww ~op' ~ ~
~ ~ a ~ ~ ~
cn~ ~ _ ~ x ~
Y
u aiw[ ~ is aura s C O
tl.. W ~1~ ~.~~~~ d'~f Fi- T __-_--- a a
O ~
~ c~
_zz
F- Y
X Q
W ~ ~
l
~~
a~
~ z
a a
Z Z Z
Vf V1 N
W W W
1
1
r~l
A
15
~_
,,,--
~~ ~ d'
~~ ~ ~
~ -~-~--~
~ o0
~ A
~;~~ u~~
a~
O
~ ,_..,
a
~~
r +~ m ~
O
_ ~''~ W ~
~ ~ ~z -
A., ~
~ ~ _
~ Y
~ ~Q
U Q ~ ~
~% °I1~c
~~~
1f lfi!! N Lf lfi[/ f - /
-- ~ ~ --- - k ,///
W ~ '
__...
lS Gh093f N !t QW.77f_vf ... K W
op
~o
Y ~
~. ~, _
Y
- - - < Z ~ H
tf ara ,p U,~s mru s ~ ~ F to
V _ -. _-
0 j ~ ~ ~
^ > > ~
a a
W W W W
if NlU1Q.1 f `~'~
~ ~ ~ ~
N~ d7/5}R7Mw _ __.
16
.--. -
~~ ~ ~
~~ ~ ( ~ ~'
~(~' ~
3 ~~
$ Q
~~ ~`
u ~wu
i
i
^ - ~' { ~`
3~r .~coos~~
p T i` f
a
.~~
- ~ •3
~~
q ~
^_ ~
~'' T~ '
~~ O
~~ o
~---~- .~
o ~ ~ ..
{ ~ ~~
Z .,
Q
J •. . ~.
~ ~ ~ ~~p ~
Z
o ~
-«-~ a O ~ ~
~ .~ Q ' ~ ~ a
A a~ ~
-~'~~ ~ ~ ~
~ o ~~~~~
~ «~ ~~
J i W ~ (A
A ~ ~ ~ ~ W ~ W
V - ~
S ~
_ ; ~ ~ I
,~ acv ~ +mss~w y
17
~~ ~ 1 A^
~~ ~ ~ ~"
1 ~ ,~
~~~ ~ Q
h,
~~
D,
r~ ~~ I i
~_~ i
;~
~ ~a
°.~
o~
~~. ~~
Q
~
~
o
A .~
a
q
a~ o
a
~'
U
a ~
i~-~1 Q
~ ~
~
A ~
(!
W
1__._' f ~ 'i 0.
~_
^ •~~~ ~ O
a~ ~ ~ ~ '
y .___ ___
~-- - ~
#~ T' _ ~ ,/
kk
Y s
~~
I QKA7lC N - ~ pypQ~ ~ ~.~. ~
p ~ '~--___ - ~ o
~f~ ~
f ~ ~W
;~~ - ~Z
~ ~ ~ ~ ~ W
_ _ ~ ~
ar rums s x Z W~c~ 8
1= 0 UJ
~ ~'~~~~
~ ~ ~ •
~ ! ~ II •
j __. .~ _
air ~' ,iF ~ ~ uus~rarr. ,
is
~`~
~
.~; ; -.
,,
'
,.~ '~
~
~~ ,~'~
=~
. .
--~
~
Y
{~ _
E
~
I Gy
^
' -~-i
^ ~ 11
.A~~ ~~~.
~~,:~~'~
- =fir-~
y i
r i +7fj'
4 1
:,
0
~
o
~ J~
Q
~
a ~
~
QQ
~ ~~z
~ ~ w~~
~
a ~w
zw~
0 0~~
~ ~
~ A -
- ~
~_
~ .
, ~
.
~~ Fr
~
~
~~
~, A
,q ~i
~ ~I ~'~
-
4 I
h ~
'
~I
~ ~
~ ~I ~
.' y
I
19
~$ ~J ~
.~
A
.--
^i~
~ D ~ '"
~~ ~~
a a
~~
~ '~i~
I ~
0
-~ .~
A~
~ a
.a °
~ A
~~ t ~ ~ ~
~6 _ Ra+r _ ~ : +y
~ 0 ~~ O
It lf~[! N 1S LSiti S .. _
~~ T~ ...~
~ '° ~
_~Y
Z la 007s N is aQ1' S S _ -
o ~ ~p
~ ~ ~ ~
~ ~ ~~ o
,W^ i
V / u s_OAilft ~ ~~ u 01114_s
w ~ ~ ~
~ ~~o
u rum s
~_
_- ._...
acv
20