1988 DT Dev PlanORDINANCE N0. 1733
BEING AN ORDINANCE AMENDING THE LAND USE
ELEMENT OF THE GENERAL PLAN OF THE CITY OF
CAMPBELL, CALIFORNIA, TO ADDRESS LAND USE
POLICIES IN THE DOWNTOWN AREA (CITY-INITIATED
APPLICATION, GP 88-02).
The City Council of the City of Campbell does ordain as follows:
SECTION ONE: That the Land Use Element of the General Plan of the
City of Campbell, together with amendments thereto, is hereby changed and
am~,nded as per Exhibit A, attached hereto.
SECTION TWO: This Ordinance shall become effective 30 days following
its passage and adoption and shall be published once within 15 days upon
passage and adoption in the San Jose Mercury News, a newspaper of general
circulation in the City of Campbell, County of Santa Clara.
PASSED AND ADOPTED this 28th day of November, 1988 by the following
roll call vote:
AYES: Councilmembers: KOTOWSKI, ASHWORTH, BURR, WATSON
NOES: Councilmembers: NONE
ABSENT: Councilmembers: NONE
• 'PROVED : ~'`~<_.___~---~
anette Watson, Mayor
ATTEST:
LAND USE ELEMENT
PROPOSED AMENDMENTS),
A. Goals/Objectives.
Add Section 6, as follows:
EXHIBIT "A
of ordinance
for GP 88-02
6. To identify the downtown, commercial core as an area requiring
special land use policies and development standards.
B. Policy Implementation Matrix
Chantte 4. to read as follows:
4. The land use policies and design standards specified in the
"Campbell Downtown Development Plan" shall be used as a guide for
_ ~ development in the downtown area.
Department/Agency Responsible for Implementation
(a) Redevelopment Agency/Redevelopment Director
(b) Other Departments and Agencies within the City as
directed by the City Manager.
F. Policy for the Downtown Area. (New)
The "Downtown Area" of Campbell is generally defined as that area
surrounded by Civic Center Dr. and Orchard City Dr. This area is the
subject of a Specific Plan, known as the Campbell Downtown Development
Plan, which was adopted on January 11, 1988 by the Redevelopment Agency.
The plan identifies specific land uses for the downtown area as well as
parking, design, and signing standards that are different for the downtown
area than for the rest of the City.
By adopting the Campbell Downtown Development Plan, the City is
recognizing the special character of the downtown area, its potential, and
its problems. Implementation of this downtown plan will be accomplished
through special toning for the area which is consistent with the plan, and
other actions by the Redevelopment Agency.
f:landuse
Campbell Downtown
Development Plan
PREPARED FOR:
CAMPBELL REDEVELOPMENT AGENCY
PREPARED BY:
WURSTER, BERNARDI AND EMMONS, INC.
JOHN B. DYKSTRA & ASSOCIATES
FEHR & PEERS ASSOCIATES
RECHT HAUSRATH & ASSOCIATES
FEBRUARY, 1988
TABLE OF
CONTENTS
PART 1: INTRODUCTION
Background ...........................................................................................................1
Existing Conditions .............................................................................................. 3
PART 2: GOALS AND POLICIES
General .................................................................................................................. 7
Circulation ............................................................................................................ 7
Parking ............ ..................................................................................................8
Land Use and Development ................................................................................. 9
Urban Design ........................................................................................................9
Implementation and Funding ............................................................................11
PART 3: CIRCULATION PLAN
Background .........................................................................................................13
Vehicular Circulation Plan ................................................................................14
Pedestrian Circulation Plan ...............................................................................18
Public Transit ............................................:........................................................20
PART 4: PARKING PLAN
Background ......................................................................................................... 23
Revised Parking Ratios .......................................................................................25
Expanding the Parking Supply ..........................................................................27
Parking Provision and Management .................................................................. 2 7
LIST OF
DIAGRAMS
Diagram 1 Study Area Boundary .............................................................................2
Diagram 2 Possible Alternative Access Improvements
from Highway 17 ..................................................................................15
Diagram 3 Vehiculaz Circulation Plan ...................................................................17
Diagram 4 Pedestrian Circulation Plan ..................................................................19
Diagram 5 Potential Transit Station Sites .............................................................. 21
Diagram 6 Existing Downtown Pazking Supply .................................................... 24
Diagram 7 Future Public Parking Resources .........................................................29
Diagram 8 Downtown Pazking Zones ....................................................................30
Diagram 9 Land Use Concept ................................................................................. 34
Diagram 10 Special Land Use Requirements ..........................................................35
Diagram 11 Downtown Development Standazds ....................................................37
Diagram 12 Urban Design Concept Plan ..................................................................45
Diagram 13 Campbell Avenue -Partial Plan ...........................................................46
Diagram 14 Campbell Avenue -Section ...................................................................47
Diagram 15 Public Plaza -Plan ................................................................................48
Diagram 16 Landscaped Setback .............................................................................50
Diagram 17 Highway 17 Connection- Section ........................................................50
Diagram 18 Central Avenue Section ......................................................................51
Diagram 19 Pedestrian Way -Section ......................................................................52
Diagram 20 Pedestrian Way -Plan ...........................................................................53
Diagram 21 Alleyway -Section ................................................................................54
Diagram 22 Directory of Public Improvements ....................................................... 56
Diagram 23 Building Conservation ..........................................................................59
Diagram 24 Property Acquisition ............................................................................ 78
Diagram 25 Redevelopment Agency Organization Chart .......................................80
Diagram 26 Phase One: Short Term Implementation Strategy ..............................84
Diagram 27 Phase Two: Mid-Term Implementation Strategy ...............................85
Diagram 28 Phase Three: Long Term Implementation Strategy ............................86
LIST OF
TABLES
Table 1 Current and Revised Parking Ratios for
Individual Developments .......................................................................... 26
Table 2 Revised Parking Ratios with Reduction for
Shared Use ................................................................................................: 26
Table 3 Projected Increase in Parking Supply with
Development of Public Parking Resources ............................................... 29
Table 4 Downtown Development Standards Summary ........................................ 40
Table 5 Public Improvements Preliminary Cost Estimates ................................... 88
Table 6 Master Implementation Schedule ............................................................. 90
Table 7 Total Projected Funding Requirements by Phase .................................... 92
Table 8 Demonstration Funding Program by Phase .............................................. 94
PART 1:
INTRODUCTION
BACKGROUND
The preparation of this Downtown Development Plan marks the completion of over one
and one-half years of study and discussion of planning and revitalization issues in
downtown Campbell. This plan was prepared for the Campbell Redevelopment Agency
by an interdisciplinary team of consultants headed by the firm of Wurster, Bernardi and
Emmons, architects and planners. Fehr & Peers Associates provided traffic analysis and
planning, and Recht Hausrath & Associates served as economic and marketing consultants.
The implementation and funding strategy was developedby John B. Dykstra & Associates.
All four consultants worked closely with city staff, the Citizens' Advisory Committee,
interested property owners and members of the general public to develop this plan.
Purpose of the Downtown Development Plan
Downtown Campbell is centered on East Campbell Avenue in the area outlined by the
"loop" roads, Civic Center Drive and CMchard City Drive, an area which encompasses
approximately nine blocks (Diagram 1). This downtown core area is part of a larger
redevelopment area which includes approximately 260 acres. The redevelopment area
extends west as far as the community center and stretches east to include most of the
Southern Pacific Railroad corridor through the northern half of the city. The downtown
area, therefore, is considered a specific project area within the greater redevelopment
area.
This Downtown Development Plan has been prepared to outline and implement a
specific redevelopment program for downtown Campbell. Its provisions apply to the
area encompassed by the loop roads, also referred to as the downtown core area.
However, specific recommendations may apply to special sites immediately adjacent to
the downtown core. Issues of particular concern which have been identified and
addressed through the planning process include the following:
• Maintenance of a retail focus for downtown.
• Preservation of significant historic and architectural resources.
1
and public action programs were presented to the Advisory Committee and then
discussed with the City Council and Planning Commission in a joint work session. Two
of the alternatives were the subject of further study along with a third which called for
a level of change in between the two most ambitious alternatives. Following further
development and evaluation, this hybrid alternative was eventually selected as the
basis for the Development Plan.
Phase 3 of the planning process was devoted to the drafting and refinement of the
various elements of the Development Plan:
• Goals and Policies
• Circulation Plan
• Parking Plan
• Land Use Plan and Development Standazds
• Urban Design Plan '
• Implementation and Funding Plan
Use of the Downtown Development Plan
Upon its adoption in February of 1988, the Downtown Development Plan became a~
policy document of the city and the Redevelopment Agency. Both the city and the
Agency have major responsibilities in implementing the plan. The plan will be used to
guide public actions ranging from property acquisition, relocation and site clearance to
the implementation of zoning changes and administration of design guidelines and
development standards. In addition, it will provide guidance to private property
owners, tenants and developers interested in undertaking changes or new projects in the
downtown azea.
The policies and public actions outlined in the Plan will help to achieve the physical
revitalization of downtown Campbell and will aid in restoring economic health to the
area. However, the success of the plan will depend on two factors: the public sector's
ability to successfully implement it in a timely manner and the private sector's
willingness to participate and take the initiative where appropriate.
EXISTING CONDITIONS
The nine block area which comprises downtown Campbell has declined in importance
and vitality as the city's retail focus over the years. Historically, this stretch of East
Campbell Avenue, especially between Second Street and the railroad, provided a full
range of retail and commercial services. The closure of the fruit packing plants and the
rise of strip commercial developments along Winchester Boulevard and Hamilton
Avenue have contributed to the downtown's decline as a retailing area.
Although the western and outer edges of downtown have experienced some new
development in recent times, it is principally office uses which have moved in. These
uses, though desirable from many aspects, do not contribute to a lively, pedestrian
3
All of the above factors were evaluated over the course of the planning effort. The mazket
opportunities and constraints have strongly influenced the recommendations regarding
land use and development. The strengths and weaknesses of the existing circulation
system and traffic patterns were cazefully considered before recommending changes in
these areas. The availability of convenient pazking for current and future users was
carefully evaluated prior to recommending an expansion of the supply. The level of
pedestrian and urban design amenities in the downtown was weighed against what
would be desirable and effective in attracting pedestrians. And the availability of funds
from both public and private sources was taken into account in developing the
implementation and funding program. ,
Intent and Major Concepts
The Downtown Development Plan is based on a number of basic concepts which are
intended to guide the implementation process. These concepts, listed below, should
remain intact even though the details of the plan or its implementation may change.
1. Enhancement of downtown as a destination for local residents.
2. Improvement of access to downtown from Highway 17 to the north.
3. A reduction in unnecessary through traffic in the downtown core.
4. Provision for adequate future pazking.
5. An increase in pedestrian safety and amenities.
6. The enhancement of downtown's image and attractiveness to pedestrians by building
on positive features, especially scale and historic resources.
7. The provision of mechanisms for implementation of recommended policies and
programs.
Each of the major elements of the plan is presented in one of the six sepazate parts of the
report which follows.
PART 2:
GOALS AND POLICIES
GENERAL
Goals: A. To retain and enhance the downtown as a unique retail environment.
B. To enhance downtown Campbell as an economically viable retail and
business center.
Policies:
1. The focus of downtown busincss shall be primarily on local and community commcrcial
nccds with an cmphasis on maintaining and cnhancing rctail activity.
2. Land use rcgulations shall be structurcd to allow an cconomically viablc nuxturc of rctail,
commcrcial officc and scrvicc uscs.
CIRCULATION
Goals: A. To improvc cast and clarity of access to the downtown arcs.
B. To adcquatcly handlc intcrnal circulation without allowing through traffic to
adverscly affcct the rctail environmcnt.
C. To improvc the pcdcstrian cnvironmcnt to providc bcttcr access and safcty.
D. To maintain flcxibility to accommodate futurc transit nccds within Downtown
Campbcll.
Policies:
1. Campbcll Avcnuc shall be maintaincd as a one-way strcct with convcnicnt on-strcct
'parking and pedcstrian/landscapc amcnities.
7
6. On-strcct pazking on Campbcll Avcnuc shall be maintaincd in a parallcl rathcr than
diagonal configuration to allow for flcxibility in rcvcrsing traffic flow.
7. All pazking facilitics shall be cazcfully dcsigncd, attractivcly landscapcd and wcll main-
taincd with a minimum of 20°~ of the sift arcs dcvotcd to landscaping.
LAND USE AND DEVELOPMENT
Goals: A. To strongly cncourage ground floor retail use.
B. To promotc a compatiblc mix of uscs in the downtown.
C. To cstablish dcvclopmcnt intcnsirics consistcnt with the scalc of the downtown
arcs and the amount ofparlcing which can be accommodatcd within and adjaccnt
to it.
D. To rcinforcc Campbcll Avcnuc as a pcdcstrian-oricnted rctail strcct.
Policies:
1. Land use zoncs shall be cstablishcd to promotc uscs which azc both cconomically viablc
x and contributc to the vitality and pcdcstrian oricntation of downtown.
2. The azca cast of Sccond Strcct shall be dcsignatcd as the primary rctail tort azca with
ground floor uscs which contributc strongly to rctail continuity, cspccially along
Campbcll Avcnuc.
The azca wcst of Sccond Strcct shall be dcsignatcd as a mixcd use azca whcrc a high quality
mix of profcssional officcs, scrviccs and rctail uscs is cncouragcd.
4. Buildings facing Campbcll Avcnuc shall be dcsigncd without sctbacks or scparation to
maintain a continuous wall of buildings and promotc a morc activc pcdcstrian-oricntcd
retail environmcnt.
5. The city shall rc-cxaminc currcnt planning rcgulations and standazds for arras adjaccnt to
downtown, cspcdally on the castcrn cdgcs, to cnsurc that proposcd dcvclopmcnt will
complcmcnt and cnhancc downtown vitality..
URBAN DESIGN
Goals: A. To incrcasc downtown idcntity as a retail ccntcr and mccting placc for local
residents.
B . To maintain the comfortablc scalc and charactcr of a small town business district.
C. To preservc and cnhancc significant historic buildings within downtown.
9
13. A coordinatcd color schcmc shall be dcvclopcd for cach building.
14. Fabric awnings ovcr windows andcntrics shall be cncouragcd. -
15. The cxisting two foot allowancc for the cncroachmcnt of awnings and projccting signs
into the public right-of--way along Campbcll Avcnue shall be incrcascd.
16. All signs shall be crcativc, of good quality and dcsigncd by a profcssional graphic dcsigncr.
17. Spccial dcsign guidelincs for signing shall apply in addition to, cxisting adoptcd sign
rcgulations. -
18. The cxisting ovcnc~ad utilitics shall be undcrgroundcd for the lcngth of Campbcll Avcnuc
through downtown.
IMPLEMENTATION AND FUNDING
Goals: A. To cncouragc rcvitalization and dcvclopmcnt through both public and privatc
scctor actions and invcstmcnts.
B. To dcvclop an affordablc program of public improvcmcnts to support and
cncouragc privatc invcstmcnt in the downtown.
C. To protect and cncouragc privatc invcstmcnt by insuring that adjaccnt improvc-
mcnts arc of high quality.
D. To cstablish a comprchcnsivc program of public actions to support and coact the
politics and programs of the Downtown Dcvclopment Plan.
Policies:
1. The city shall support and cncouragc cfforts to organizc a downtown busincss association.
2. If formcd, the downtown busincss assodation shall be cncouragcd to assumc responsibil-
ity for maintcnance of privatc propcrtics and organizing cfforts for joint promotion.
3. The city shall prepare a spccial zoning district for downtown as ncccssary to coact the
politics of the plan.
4. Formation of a new parking district shall be considcrcd. The district would cncompass
additional propcrtics in the arcs boundcd by Civic Ccntcr Drivc and Orchard Ciry Drivc
that arc not currcntly includcd in the cxisting parking district.
11
PART 3:
CIRCULATION PLAN
BACKGROUND
Traffic circulation around the downtown core area is good. However, regional access
to downtown from Highway 17 to the north is indirect and difficult, especially for first
time visitors. This Circulation Plan is intended to improve regional access to the
downtown, maintain the diversion of through traffic azound the downtown core azea
and improve pedestrian circulation and safety to and within the core area.
Regional Access
Downtown Campbell is served by two major regional highways, Freeway 17 on the east
and the San Tomas Expressway on the west. While downtown is directly accessible
from the San Tomas Expressway via Campbell Avenue, there is no interchange on
Highway 17 at Campbell Avenue. Instead, downtown traffic to and from the north has
to use the Hamilton Avenue Interchange. Traffic to and from the south uses the Camden
Interchange and Winchester Boulevazd.
Although downtown Campbell is, in an area-wide context, centrally located in the
region, access from Highway 17 is not conveniently direct. Traffic using the Hamilton
interchange must travel a circuitous route via Belmar and Harrison Avenues to and from
downtown. Frequent and sharp turns, industrial traffic, substandazd roadway
improvements and conflicts with the railroad make this route somewhat difficult to use.
The other option, using Hamilton Avenue and Winchester Boulevazd, is considerably
longer. Use of more direct routes from Hamilton to downtown such as via Harrison and
Central Avenues is discouraged since these streets pass through well-established
residential azeas.
The construction of a full or partial interchange at Highway 17 and Campbell Avenue
has been studied in the past. However, the lack of appropriate right-of--way, the
closeness to the Hamilton Interchange (1/2 mile), and lack of funding aze reasons why
this proposal is no longer under consideration.
13
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POSSIBLE ALTERNATIVE ACCESS IMPROVEMENTS FROM HIGHWAY 17 Diagram 2
Note: Exact Location and Type of Mnprovements Subject to Fis'thsr Detailed Study
The exact location and type of improvements required under these or other options
would require further detailed study prior to selecting a preferred alternative. In
addition, alternative routes should be cazefully studied in the context of changes in the
industrial azea and existing residential neighborhoods north of downtown. In the
interim, the City should take steps to insure that future options aze not foreclosed by
redevelopment along any of the routes under study, until a final route is selected and
the necessary right-of--way is secured.
Improvement of the access from Highway 17 to downtown may necessitate other
improvements in downtown traffic circulation patterns. Specifically, once the improved
access route becomes heavily utilized it maybe appropriate to reverse the direction of
travel on Campbell Avenue from eastbound to westbound. This change would in turn
call for a new traffic signal at the west end of Civic Center Drive. Timing and
implementation of these improvements should be determined by periodic monitoring
of the Harrison/Salmaz route.
15
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VEHICULAR CIRCULATION PLAN Diagram 3
• • • Through TnffiC Route O Exkting Traffb Signal
mono Local Traffic Routs ~ Futon Traffic Signal
"• ~ Existing On•-Way Street 0 Exiatktg Stop 8ipn
, ~.~ Existing Service ANey ^ Future Stop Sign
~..~ Future Service Aby \\\~ 3trNt P•rtnart•rttly Cloa•d To Whicular Traffic
•~~ 8tr••t Closure for Spscisl Events
development of new alleyways aze those between Central Avenue and First Street on
either side of Campbell Avenue (Diagram 3). These blocks were selected because future
public parking structures would otherwise cut off access to the reaz of buildings, making
delivery and refuse pick-up difficult.
These two alleyways should be developed in conjunction with the adjacent future
public pazking facilities. An additional right- of-way a minimum of 12 feet wide should
be provided for this purpose. Due to the narrowness of this right-of--way, the new
alleyways should be designated for one-way traffic flow. The two existing alleyways
shown on Diagram 3 appeaz to be wide enough to accommodate two-way traffic,
however.
Although the alleys aze intended principally for service use, pedestrian use should be
encouraged to the extent that it does not conflict with servicing. It may be appropriate
to designate specific hours for refuse collection and delivery to facilitate pedestrian use
during non-peak service times. Additionally, the city may want to consider limiting
vehiculaz access to service and delivery vehicles only, and/or completely close the
alleys to vehiculaz traffic during non-service hours, except where the alley provides sole
access to pazking.
17
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Campbell Downtown
Development Plan
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PEDESTRIAN CIRCULATION PLAN Diagram 4
-•-• Pedestrian Zone for Special Events
^ ^ ^ Major Pedestrian Corridor
///// Future Publk: Plaza
^~~^ Existing Pedestrian Connection to Partcing
• ~ • Desired Pedestrian Connection to Parking
dE Existing Protected Pedestran Gosaing
~C Future Protected Pedestrian Crossing
Existing Gosswatii
CrosswaNc to be EBrninatsd
anm~o Future GosswaNc
iiii Future Mid-9bck Crossing
In addition to the above crosswalks, a mid block crossing of Campbell Avenue would
link the two pedestrian connections to parking facilities located in the blocks between
Central Avenue and First Street. Although there would be no signal or stop sign at this
location, other factors would make this a safe crossing. These include the relatively low
volume and speed of vehicular traffic on Campbell Avenue, its narrow, one-lane
configuration and the provision of wide sidewalk bulbs which would limit the roadway
width at the crossing to approximately 20 feet.
Pedestrian Connections to Parking Facilities
To enhance pedestrian connections to existing and future parking facilities, a number
of mid-block pedestrian ways to Campbell Avenue should be provided as shown on
Diagram 4. Two of these are existing and provide access from privately owned parking
areas to Campbell Avenue. Two new pedestrian ways located between Central Avenue
and First Street would provide access to future public parking facilities from both sides
of Campbell Avenue. They would be linked by amid-block pedestrian street crossing.
19
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POTENTIAL TRANSIT STATION SITES . _ Diagram 5
changes in the industrial and surrounding residential areas. This site, which is
considerably larger than the other two, may offer the potential for joint mixed-use
development which could accommodate public transit and parking needs as well as
private commercial development
21
PART 4:
PARKING PLAN
BACKGROUND
The downtown pazking supply consists of approximately 520 off-street and 150 on-
street pazkingspaceswithinthe azeadefined bythe loop roads. Of these, approximately
100 spaces are reserved for Pazking District lA users. This district serves the Orchazd
City Plaza and Water Tower Plaza developments and extends southward beyond the
downtown core area, providing an additiona1370 spaces beyond the boundazies of the
loop roads. Although this pazking supply at first appeazs adequate based on the current
rate of utilization, it appears so only because there is a correspondingly low rate of
building space utilization in the downtown. If existing buildings were fully occupied
and utilized, a shortage could result. Such a shortage wouldbecome more severe should
new development occur.
Existing Parking Supply and Utilization
The existing parking supply was inventoried and analyzed during Phase 1 of the
planning process. The following findings were made as a result of this study. On the
whole, both on and off- street pazking in the downtown is presently underutilized,
averaging about 50 to 60 percent on weekdays and 50 percent on Friday and Saturday
nights. However, individual street segments or off-street lots may experience occu-
pancyrates significantly higher or lower than these averages, depending on the location,
day and time of use. Despite the overall low rate of utilization, spot shortages may occur
from time to time in areas of highest demand. .
When taken as a whole, properties within the downtown azea do not meet the city's
currently adopted off-street parking standards. Although some of the newer projects
may have provided pazking according to these standards, others fall short. This
condition is most severe in the area within the loop roads east of Second Street and north
of the existing Parking District 1A (Diagram 6). Very little public parking exists to serve
this azea and private businesses supply inadequate off-street parking, if any. Coinci-
dentallythis is also the azea of greatest demand, both present and future, especially for
retail uses.
23
Even with these relaxed standards, the pazking available in the district is currently
underutilized. However, it is anticipated that once these projects are fully occupied, the
parking supply will be fully utilized and adequate for their needs. In the meantime, the
parking available in the district lots and structure is committed to serve only those uses
which are included in the district and pay an assessment.
Current Parking Requirements
A compazative study indicates that Campbell's pazking requirements are considerably
more strict than those of other communities in several categories: general offices, retail
stores/shopping centers and reseazch/development. These existing strict parking ratios
contribute to the current situation where there is a "shortage" of pazking according to
code requirements and yet, overall, an underutilization of pazking. In addition to being
strict relative to other communities, Campbell's pazking code applies city-wide, to
individual projects as well as mixed use developments. Such blanket code require-
mentsoften overestimate the need for pazking in downtown and mixed-use azeas where
joint utilization of parking commonly occurs.
REVISID PARKING RATIOS
Revised parking ratios should be implemented for the downtown azea for the following
reasons:
1. Existing facilities aze presently underutilized.
2. Existing requirements aze too strict compared to other similar communities.
3. Development is concentrated in the downtown where the potential for shazed
parking/joint utilization is high.
4. Development of small pazcels, which comprise most of the downtown area, is
difficult to achieve without substantial negative physical results. _.
The revised pazking ratios for individual developments and shazed use aze summazized
in Tables 1 and 2. For individual developments, the reduction ranges from 33 to 50
percent of current standards (Table 1). Where pazking is provided in shazed facilities,
further reductions would be in effect, ranging from 10 to 25 percent of the revised
standazds for individual developments (Table 2). These latter reductions would result
in an average pazking ratio of one space per 330 squaze feet of gross floor azea when
applied to the whole downtown azea.
The use of an average ratio for shared parking would be similar in concept to that applied
to to those of Pazking District 1A. However, relative to District lA, this new average ratio
would result in slightly more pazking for a building with the same floor azea. The intent
is to provide adequately for uses such as banks and community facilities which aze not
as suitable for shared parking reductions.
The ratios in Table 2 indicate the maximum permissible reduction for shazed pazking
facilities. This maximum reduction should be automatically granted only where
25
EXPANDING THE PARING SUPPLY
The need to expand the downtown parking supply arises from three major sources:
1. Underutilization of the existing parking supply will cease once major projects
become fully occupied.
2. As economic/retail activity increases in the downtown the existing parking supply
may become inadequate.
3. An adequate parking supply and a mechanism to expand it is necessary to attract new
development to the downtown. y
To illustrate the magnitude of the problem, if the revised parking ratios were applied to
only the existing development within the loop area east of Second Street, a shortfall of
approximately 225 parking spaces would result. If an additiona1100,000 gross square
feet of new development were to occur in this area, approximately 330 additional new
spaces would be required under the revised ratios for shared parking, bringing the total
to over 550 new spaces. If some demolition of existing buildings is factored in to make
way for this new development, the projected need for additional parking would be
approximately 450 spaces for the downtown area east of Second Street alone.
Future Public Parking Resources
In order to adequately expand the parking supply, five sites are designated for
development with new or expanded public parking facilities. These five sites are
indicated on Diagram 7 along with the existing public parking facilities in District 1A.
The existing and potential parking supply on these five sites is summarized in Table 3.
Within the loop area, on Sites 1 through 3, a net increase of 352 spaces could be provided
in two structures and one lot. Lots on Sites 4 and 5 could provide over 200 additional
spaces outside the loop, for a total net increase of at least 552 parking spaces. This
increase would be adequate to serve existing development plus approximately 100,000 -
gross square feet of new development.
The development of public parking resources on these sites will require extensive site
acquisition or leasing as well as a phasing and development strategy. These issues are
addressed in Part 7 of this document, Implementation and Funding. The projected costs
for acquisition and development are also summarized in that section.
PARI~ITG PROVISION AND MANAGEMEN'T'
Additional public parking resources should be developed and managed principally to
support retail and service commercial users in the downtown. The Land Use Plan,
which is presented in the following section, calls for these uses to be concentrated
within the loop area east of Second Street. Therefore the public parking resources
27
Table 3
PROJECTED INCREASE IN PARI~ITG SUPPLY
WITH DEVELOPMENT OF PUBLIC PARKING RESOURCES
Existing Potential Net
Supply Supply Increase
Site 1 34 210 176
Site 2 12 40 28
Site 3 62* 210* 148
Site 4 0 185 185
Site 5 60** 80 20
-Total 168* 725* 557
* 62 spaces preserved for Parking District 1A.
* * Existing lot is unpaved but is utilized at times by up to 60 vehicles.
The parking standards outlined above should take effect immediately upon adoption..
and implementation of this plan by the city. New development and new businesseswill -
be required to conform to all provisions immediately upon implementation of the
standards. Existing land uses will be required to conform within a specific time frame
established by the city, for example, within five years of the establishment of a new
downtown parking district. Establishment of a deadline for compliance will require
further study and action on the part of the city. In the interim, exemptions to the new
parking requirements will be granted only as specified below.
In Zone 1, east of Second Street, the following standards shall apply:
1. All new parking shall be provided in shared public facilities.
2. The revised parking ratios for shared parking shall apply, with the maximum
reduction for shared use automatically granted. (Table 2).
3. When computing the total parking requirement, credit shall be allowed for existing
on-site parking or for existing shared off-site parking if a formal use and maintenance
agreement is in effect.
29
for parking development.
3. The revised parking ratios for individual developments (Table 1) automatically
apply unless a formal shared parking arrangement is made.
4. Parking requirements may be relaxed for mixed use projects when a formal agree-
mentfor shared use is entered into. Reduction may be granted up to the maximum
(Table 2) to the extent that documentation is adequate to justify it.
5. Existing uses shall not be required to meet the new parking standards until one of
the following occurs:
• There is a change in use to one which requires more parking than is currently
provided.
• An existing use is expanded by 25 percent or more of the existing square footage.
• The property occupied in whole or in part by the existing use is improved,
resulting in an increase of 25 percent or more in the assessor's fair market value.
31
PART 5:
LAND USE PLAN AND
DEVELOPMENT STANDARDS
BACKGROUND
Downtown Campbell includes four principal categories of land use. These are ranked
according to their relative prominence and amount of activity as follows:
• Offices and Banks
• Retail and Service
• Restaurant and Entertainment
• Community and Cultural Facilities
Though found scattered throughout the downtown, offices and banks are more concen-
tratedwest ofSecond Street while retailing and services are found east of Second Street,
principally along Campbell Avenue. However, on the whole, office uses are stronger
and clearly dominate the downtown economy and physical environment.
The market analysis for the downtown area indicates a potential for strengthening local-
servingretail and restaurants but only in conjunction with additional office or service-
orienteddevelopment. The office development is required to provide sufficient support
for additional retailing and restaurants. Major retail operations which might draw
sufficient business on their own would not be supported in the downtown.
Land use and development is currently controlled by the P-D, Planned Development.
zoning designation. Under this zoning, any use which is consistent with the General
Plan is allowable. In addition, development in the downtown area is subject to the city's
site and architectural review process. This process automatically applies in any P-D
zoning district. However, at present there are no standards or guidelines which apply
specifically to buildings or sites in the downtown. The criteria for site and architectural
review are very general and uniform for all areas where applicable throughout the city.
33
Land Use Policies
To carry out these goals, specific policies for districts and sites within the downtown
area have been developed. Two major land use districts are to be established. District
1 includes the area within the loop roads east of Second Street. This area will be the
focus of retail activity, particularly along Campbell Avenue. District 2, west of Second
Street, will be oriented more toward office and service commercial uses. However, retail
uses are encouraged along Campbell Avenue to the extent feasible. The policies
governing development in these two land use districts are further detailed in the
following section under Development Standards.
In addition to the establishment of downtown land use districts, the Land Use Plan
designates certain key sites in and adjacent to the downtown for specific uses. The sites
affected are called out on Diagram 10. These sites are to be reserved for future public
facilities, particularly parking and transit, as called for in the Circulation and Parking
Plans. The policies which apply to these sites are as follows:
1. Adequate sites shall be designated for future public facilities as called for in the
Parking Plan.
2. The potential for public use, including parking, shall be maintained on the site north
of Civic Center Drive adjacent to the railroad. The potential for mixed use, joint
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SPECIAL LAND USE REQUIREMENTS Diagram 10
35
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DOWNTOWN DEVELOPMENT STANDARDS
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~ Continuous Retail Frontage Required /Building Setback Not Albwed
~~ Partial Retail Frontap• Required/Buildk~g Setback Not Allowed
• • • 10-Foot Setback Requlrad for Buildings and Parking
stata>• Opdonai Setback up to 10 Feet Permitted •
R~ Building Setback Not Allowed
3. A maximum floor area ratio (FAR) of 2.0 shall be allowed throughout downtown to
avoid an overwhelming change in scale and intensity of development.
Requirements for District 1:
The following standards shall apply to all properties in District 1 in addition to the
common requirements stated above:
1. Retail and related land uses on the ground floor shall be strongly emphasized for
parcels fronting on Campbell Avenue.
a) Continuous retail or restaurant frontage shall be required along Campbell
Avenue.
b) Service commercial uses shall be permitted only along side streets, pedestrian
ways, or other locations not fronting directly onto Campbell Avenue, up to a
. maximum of 25 percent of the gross ground floor area.
37
Existing buildings which do not conform to the height and/or setback requirements
could not be expanded but property owners should not generally be required to alter
them to bring them into conformance. When a change in tenancy occurs, however, the
standards relating to permitted land uses will apply in all cases. In addition, should
substantial compliance with those standards not be achieved within a five year period,
the city will consider establishing a mandatory date for compliance.
The Development Standazds and the Design Guidelines presented in Part 6 of this
document should continue to be administered through the city's site and architectural
review process. However, additional measures may be required to implement the
Development Standazds. In addition to adoption of the Downtown Development Plan
as a policy document, it may be appropriate to change the existing Planned Develop-
mentzoning inthe downtown to a new classification which incorporates the provisions
of the Land Use Plan and Development Standards. In addition, the plan should be
reviewed against the city's General Plan to insure that there are no conflicts between the
two.
The existing site and azchitectural review process should automatically apply in any
new downtown zoning district, just as it does currently in the P-D Zoning District.
However, rather than reviewing projects against the general city-wide criteria, the
Committee shall review projects for consistency with the specific policies and guide-
lines of this plan. The review process, however, would remain the same. The Site and
Architectural Review Committee reviews all development plans and makes a recom-
mendation to the Planning Commission. The Planning Commission, in turn, makes a
recommendation to the City Council and the Council make the final decision.
In addition to the standazds and guidelines which apply to the downtown azea, the
Downtown Development Plan includes recommendations for sites or areas which aze
outside the downtown core. The review process would also take such policies into
account. Furthermore, additional studies may be required to determine appropriate
guidelines for development of these key sites on the downtown periphery, particulazly
the industrial azea to the northeast which could meet future circulation, pazking and/
or transit needs for downtown and the city as a whole.
39
Downtown Development Standards Summary
Downtown Permitted Land Uses
Land Use District Ground Floor Upper Floor
DISTRICT 1
Parcels Fronting on Continuous Retail or Retail
Campbell Avenue Standard Restaurant Standard Restaurant
Fronting on Campbell Service Commercial
Avenue. Service Office
Commercial Permitted Residential
Elsehere up to a
Maximum of 25% of
Gross Floor Area.
Parcels Fronting on Retail Same as Above.
North-South Streets Standard Restaurant
or Loop Roads Service Commercial
Office
DISTRICT 2
Parcels Fronting on 2596 of Campbell Retail
Campbell Avenue Avenue Frontage Standard Restaurant
Required to be Retail Service Commercial
or Standard Restaurant Office
on Parcels with 100 Residential
Feet or More of
Frontage.
Also Permitted:
Service Commercial
Office
Parcels Fronting on ~~ Same as Above.
North-South Streets Standard Restaurant
or Loop Roads Service Commercial
Office
40
PART 6:
URBAN DESIGN
INTRODUCTION
The Urban Design Plan controls the relationships between elements in the urban
environment to foster the creation of spaces which function effectively and aze pleasant
places for people. This plan for downtown Campbell includes the following elements:
• Design of public improvements such as a plaza, entry statements, and a network of
pedestrian pathways, which will help define downtown as an attractive special
district.
• Designation of specific buildings of architectural significance for preservation and
rehabilitation.
• Development of guidelines to insure that the azchitecture of new developments will
be supportive of apedestrian-oriented retail environment.
Background
The existing architectural character of downtown reflects the history of the town and
many of the changes which have affected it. The oldest and most historically significant
structures date back to the time when the fruit drying plants were operating and the azea
was a complete service center, where people worked, cashed their pay checks, and made
basic purchases. Over the years the properties on Campbell Avenue filled in and the
retail core grew west to Second Street. These new retail buildings were more modern
in style, reflecting the architecture of the fifties and sixties. The period that followed
their development mazked the peak of retail activity. Since that time, the retail mazket
has deteriorated due largely to competition from shopping malls. The city has
attempted to help the merchants reverse this trend, and improve the visual quality of the
azea through the addition of public improvements. Unfortunately these improvements
were so poorly supported financially, that they have done little to enhance the azea It
is important to note that through this period of retail decline, construction has
43
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t. Campbell Avenue Beautification
~~~ 2. Pubtlc Plaza
~~ 3. Building Continuity
"'•••• 4. Landscaped Setback
• e e 5. Highway t7 Connection
^ ^ ^ 8. Central Avsnue Beautification
Campbell Avenue Beautification
~•••• 7. Pedestrian Ways
•~ 8. Alleyways
E. Downtown Entrlea
^ O O t0. North/South Street Improvements
O O O 1 1. Campbell Avsnue Entry Corridor
Campbell Avenue will become the focus of revitalization. Public and private
improvements will build on the existing small town character to create an inviting
pedestrian-oriented street lined with retail shops. The emphasis will be on an outdoor
environment rich in texture and color, where people will stroll, shop and enjoy the
environment.
To bring this concept to life, a number of public streetscape improvements are called for
including the following:
1. Replacement of the existing light standards with small scale, pedestrian-oriented
fixtures.
2. Replacement of the existing trash receptacles and benches with new furnishings to
enhance the quality of the area.
45
Public Plaza
At the east end of Campbell Avenue the existing Ainsley Park shall be expanded and
renovated as a public plaza. The current parking area on Harrison Avenue will be added
to the park and the whole area will undergo a revitalization with improvements similar
to those on Campbell Avenue, including new paving, pedestrian-scale light fixtures,
and street furniture. Specific elements of the plaza design should include preservation
of the historic walnut trees, the addition of a landmark fountain or artwork, and a
platform for staging special events.
The plaza should be designed to be a gathering point for community civic events and
downtown promotional activities such as arts and craft fairs and 4th of July activities.
In addition to these uses it will be an attractive backdrop for the downtown entry and
a comfortable place for individuals to stop and enjoy the environment. Diagram 15
illustrates a potential plaza plan.
47
Building Continuity
A continuous line of retail businesses shall be required fronting on Campbell Avenue
to define the street corridor and add vitality and color to the street environment. This
continuity is essential to the success of apedestrian-oriented retail environment as
vacant properties and pazking azeas create gaps in the street fabric which discourage
customers from window shopping and spending time in the azea. To support this
strategy, vacant and underutilized properties are encouraged to intensify, and design
guidelines have been prepared to insure that new developments will be supportive of
this small scale pedestrian-oriented environment.
Specifically, merchants and property owners aze encouraged to make special efforts to
create colorful and interesting statements along the Campbell Avenue facades. Colorful
signs, awnings and banners projecting into the pedestrian's view would add depth and
interest to storefronts and facades and catch the pedestrian's eye. Special provisions
have been added into the guidelines to allow merchants greater freedom in using these
devices. In addition, shop owners are encouraged to provide attractive displays,
window boxes, planters, and coordinated color schemes for their buildings. All these
elements combined with regular high quality maintenance will help improve the visual
quality of the Campbell Avenue corridor.
Landscaped Setback
In contrast with Campbell Avenue, whichwill be apedestrian-oriented street lined with
shops, the loop roads will primarily serve vehicular traffic and will be bordered with
parking azeas. To soften the edges of the rear building facades and parking areas a
mandatory ten-foot landscaped setback shall be required. (Refer to Part 5: Land Use Plan
and Development Standards.) This setback shall apply to all public and private
properties bordering on the loop roads. The landscaping and maintenance of these
setbacks shall be the responsibility of the adjacent developments. Tree planting is
encouraged, especially adjacent to the parking garages where height will help screen the
structures. Diagram 16 illustrates the scale of the setback.
Highway 17 Connection
One of the primary goals of the Downtown Development Plan is to clarify the access from
Highway 17 to downtown. As described in the Circulation Plan, several alternatives for
accomplishing this were analyzed and determined to be appropriate long range
alternatives. As an interim measure, the existing Salmar/Harrison route shall be
upgraded with new curbs, gutters and sidewalks. In addition, new signing directing
vehicles from the Highway 17 off-ramp to downtown shall be installed, with colorful
banners attached to existing light standards to help define the route. New street trees
shall also be planted to improve the visual quality of the streets. Diagram 17 illustrates
all of these improvements to the Harrison/Salmaz Avenue corridor.
49
Central Avenue
Central Avenue is an important pedestrian link as it connects downtown to the Civic
Center and Water Tower Plaza developments. To highlight this pedestrian emphasis the
street shall be improved with pedestrian scale amenities similar to those described for
Campbell Avenue. These should include new light fixtures, special sidewalk paving,
new street trees and planters where space is available. In addition, traffic signals will
be installed at the intersections with the loop roads to ease the pedestrian crossing.
These improvements are designed to invite people to leave their cars and walk
downtown, and to make downtown feel a part of a larger destination area. Diagram 18
shows a section through the improved Central Avenue.
(~lVTRAL AVENUE -SECTION Diagram 18
51
PARKING AREA
PIDESTRIAN WAY -PLAN
Diagram 20
53
North-South Street Improvements
Modest landscape improvements shall be made on the north-south streets within the
loop to improve their visual qualities and unify the area. These improvements include
maintenance to sidewalks, curbs and gutters, and new street trees to add color, texture,
and define the edge of the streets.
Campbell Avenue Corridor
Improvements along Campbell Avenue, outside the loop between Winchester Boule-
vard and the freeway, shall be installed to create an attractive entry corridor. These
improvements include new landscaping and maintenance of public improvements.
Over time it is hoped that the properties along this route will develop with uses which
will reinforce downtown's role as a retail center.
PUBLIC Il1~ROVEII~NT STANDARDS
Many improvements such as landscaping, pedestrian-scale light fixtures, decorative
paving and street furniture will be repeated throughout downtown. The following
descriptions and photographs have been developed to help the city select actual
furnishings for the revitalization. Diagram 22 identifies these elements and illustrates
their use along Campbell Avenue.
Lighting
Traditional cast iron light fixtures repeated throughout downtown will create a strong
visual image which will give the area a special night character, emphasize the historic
buildings, and unify downtown. However careful selection of the fixtures is necessary
to insure that the new lamps will be compatible not only with the historic structures but
with the wider range of architectural styles currently located within the loop. Therefore,
while a traditional style is recommended, the city should limit its selections to those
which are simpler in form; heavy elaborate styles would be inappropriate to the scale
and character of the area. First priority for placing the lights should be on Campbell
Avenue, Central Avenue, and in the Plaza. Special lighting would also be appropriate
at downtown entries and at the edge of public surface parking lots. A wall fixture of
similar design would be an attractive and useful addition to the pedestrian ways and
parking garages facing onto the alleys.
Landscape
Landscaping and trees add softness, shade, texture and color to contrast the harsh lines
and colors of urban environments. As such they make the environment more human
and comfortable. In addition, regular planting of trees adds a rhythm and unity which
can tie an area full of diverse elements into an integrated whole. Trees and planters are
recommended in almost every component of the Urban Design Concept Plan. The
following guidelines should be kept in mind when the landscape plan is developed:
55
• A sturdy tree with shading potential which requires limited maintenance should
be selected for street planting. These trees should be planted at uniform intervals
except at extensions into the pazking lane on Campbell Avenue where trees
should be clustered. All trees should be protected with tree grates.
• The plaza and entry azeas offer opportunities for plantings of special accent trees
that add color and reflect the change of seasons.
• Parking areas shall be planted with low maintenance trees which provide shade
and softness to break up the expanse of paving. Trees which drip sap or drop fruit
should be avoided.
• Raised wall type planters shall be provided at extensions into the pazking lane on
Campbell Avenue as they sepazate the pedestrian from traffic and will make these
areas more sheltered and comfortable.
• Planters shall be large enough in size to allow automatic irrigation as this will
simplify maintenance.
• All planters shall be attractively planted; those at mid-block areas, downtown
entries and the public plaza should provide areas for accent colors.
Paving
Special paving shall be installed to strengthen the pedestrian scale and improve the
definition of the boundazies and entries to downtown. Possible materials include brick,
interlocking pavers, or the cobbles. All of these are unitary which means they are small
units which fit together to cover the area and add a sense of scale. The overall color of
the paving should be a subtle earth tone that unifies the entire azea and contrasts with
the asphalt in the streets and parking areas. Decorative paving should be installed on
Campbell and Central Avenue sidewalks and in the plaza. It would also be appropriate
in the pedestrian ways which connect Campbell Avenue to the pazking azeas.
Street Furniture
Benches, trash receptacles, bollazds, newspaper racks, public telephones and bicycle
racks all constitute the furniture of the street. These elements add scale and chazacter
and invite people to stop and enjoy the space rather than just pass through. The furniture
shall be cazefully selected to complement historic buildings in the azea and also to be
compatible with the newer building additions. Traditional materials such as cast iron
and wood are appropriate, but designs should be simple. Deliberate attempts to look
"old time" or "high tech" are discouraged. The organization and placement of furniture
should also be carefully considered to maximize the useability of the furnishings. The
extensions in the sidewalk along Campbell Avenue offer opportunities for people to
gather and should be supplied with benches and trash containers, as should the public
plaza.
57
BUII.DING CONSERVATION
Historically, Campbell's downtown was the focal point of the community and its
agricultural industry. Many buildings from that period can still be found in the study
area. The City's Historic Preservation Task Force surveyed these buildings and
presented a list of historic buildings to the City Council which the Council approved in
March of 1984. This Historic Resources Inventory lists the potentially historic buildings
in and around the downtown area. Of some 60 buildings identified, 16 are located in
the downtown area between the loop roads.
The Task Force has prioritized historic buildings within the downtown area in order of
their relative significance. These priority rankings are indicated on Diagram 23. The
highest ranked property is a complex of buildings which housed the Campbell Fruit
Growers Union. It lies south of the downtown loop area and has been recently
rehabilitated into an office/retail complex, Water Tower Plaza. The remaining build-
ings, all within the loop, have been numbered according to the Task Force's priority
ranking. A few of these have been renovated or simply maintained in good condition
over the years and retain their original architectural features. Others are in poor repair
or have been altered significantly in appearance from the original clesign.
J ~ - -
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Campbell Downtown
Development Plan
0 700 200 300 leer
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BUILDING CONSERVATION Diagram 23
Buildings Within the Loop Area are Numbered in Sequence According to the Priority for Preservation
as Determined by the Historic Preservation Task Force.
59
BUILDING GUIDELINES
The intent of these guidelines is to stimulate high quality architecture which is
appropriate in Campbell's small business district. They are prepared both for use as
references by property owners and their architects when planning projects and as
guidance to the city when evaluating proposals. The guidelines are presented as basic
principles designed to insure that future developments will be of high quality and
compatible in character. They shall apply to all properties located within the downtown
loop system.
Building Massing
1. Large building facades shall be divided into smaller elements twenty to thirty feet
in width, to complement the intimate scale created by the existing small property
divisions.
2. Second floor decks or terraces at the rear of buildings for use by adjacent offices or
restaurants are encouraged to add a sense of vitality to the rear building facades.
3. Flat roofs with parapets are preferred. While other roof forms may be considered
appropriate, mansard, shed, undulating, or residential type roofs are discouraged...
4. The existing residential building types of historic significance should retain their
character, including features such as landscaped setbacks.
61
SECOND FLOOR DECKS AT THE REAR OF BUILDINGS
Building Form and Composition
1. Unique and historic building elements such as parapet details and belt courses shall
be retained and restored.
2. Traditional commercial building forms such as transom windows, storefronts and
parapets are encouraged.
3. Open air dining areas facing Campbell Avenue are encouraged. The buildings
should not be set back from the street but should contain the dining areas within their
architectural framework.
4. The height of building facade elements such as belt courses and window and door
heights shall relate to adjacent buildings.
5. Upper stories in multi-story buildings are required to have solid surfaces with
vertical, rectangular windows, set in frames. Glass curtain walls should be avoided.
6. Simple, timeless design is encouraged. Attempts to make buildings look distinctly
"old time" or "modern" are discouraged.
7. Buildings shall incorporate distinct base and cornice elements.
~-AWNINGS
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BELT COURSE -CORNICE rWINDOW SOXES -OVERHANG
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^EXTERNALLY
ILLUMINATED SIGNS
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DIRECTORY OF BUILDING PARTS
63
Storefronts
1. First floor frontages shall have an integrated design including display windows, an
entry and signing.
2. The building storefront shall be framed within a base, side columns or walls and a
cornice, overhang, or belt course.
3. Walls facing pedestrian ways are encouraged to have elements of visual interest,
such as fenestration, displays, signing or landscaping. Large areas of blank walls are
discouraged.
4. Buildings facing Campbell Avenue shall have their primary entries along that street.
5. Recessed entries are encouraged as they add depth to the storefront and act as
transition areas between the street and shop interiors.
6. Doors and windows shall be of clear glass. Wood doors, screen doors and doors or
windows of heavily tinted or reflective glass are discouraged.
7. Storefront windows shall reflect the building's character. For instance, on 1940's
and 50's "showcase" buildings exposed aluminum frame windows are appropriate;
all other building types should have darkly painted or anodized window frames.
8. Ground floor offices facing Campbell Avenue are required to maintain the same
storefront character as retail spaces, but may have low walls on the exterior or
interior modifications.
9. The use of awnings on building facades is encouraged, as they add color, weather
protection and opportunities for signing. As in other architectural elements, the
awnings should be designed to reflect the building's geometry. For instance, the
most appropriate awnings for 1940's and '50s "showcase" buildings with integral
overhangs would be straight, hanging awnings.
Materials, Colors and Finishes
1. Primary facade materials shall be limited to brick or stucco to unify the visual quality
of the district and reflect the traditional building materials used in the area.
2. Exterior wall finishes shall be smooth and of finished quality, not deliberately rough
in an attempt to look antiqued or used.
3. Primary building colors shall be light neutral tones such as white, blue-gray or beige
to act as a background for accent trim, awnings, and signing.
65
SIGN GUIDELINES
The intent of these guidelines is to stimulate creative, good quality signing which will
complement the intimate scale and architectural character of the area.
Background
Unlike many commercial areas, downtown does not have a wealth of oversized, ugly
signs. However, many of the businesses have failed to take full advantage of the
opportunities that signing offers to identify the services or merchandise they provide.
Many downtown businesses have small signs, which are difficult to read from across the
street or from a moving vehicle, and some shops have no sign at all. In fact, the whole
area could be greatly enlivened, and more easily identified as a retail center, if the
merchants became more ambitious and creative in their signing.
Summary and Intent
The existing City of Campbell Sign Ordinance requirements and restrictions shall apply
with the following exceptions:
• The allowed projections and clearances for awnings and projecting signs should
be modified along Campbell Avenue to allow merchants greater freedom.
• Internally illuminated signs shall be prohibited. All signs are required to be
designed by a professional graphic designer.
67
WALL SIGN
AWNING SIGN
69
71
PROJECTING SIGN
13ANNr;K 51(iN
DISPLAY
73
PART 7:
IMPLEMENTATION
AND FUNDING
THE Il~LEMENTATION STRATEGY
The implementation and funding actions required for the successful revitalization of
downtown Campbell are outlined in this part. Major strategy components are outlined,
public and private responsibilities are described, and implementation and funding
schedules aze provided.
Establishing a .Successful Revitalization Climate
Many declining downtown business districts have been revitalized largely without
governmental assistance. Quite often these private efforts have been boosted by a strong,
expansive local economy. In some cases they have found themselves strategically
located in the path of burgeoning suburban development. In other cases businesses have
been prodded into action by an aggressive downtown association or the threat of a
competing shopping center.
In downtown Campbell several conditions tend to mitigate against a totally private, self-
revitalization approach. These conditions include:
• The presence of relatively small parcels, sub-standazd buildings, fragmented
ownerships and, in some cases, marginal businesses.
• Street frontages with inadequate retail continuity.
• A downtown that is insufficiently attractive to intercept potential customers passing
by on adjoining streets.
• A potentially inadequate supply of parking.
• An investment climate that deters property owners and businesses from making
expenditures for rehabilitation, expansion, or new construction.
75
All implementation and funding schedules contained in this development plan have
been prepazed in accordance with this phasing schedule.
Public Actions
A wide range of public actions will be required for the successful implementation of the
downtown development plan:
• Streetscape and Urban Design Improvements
The plan provides for more than $1.4 million in public streetscape and urban design
improvements. These improvements aze described in more detail in Part 6 of this
plan.
• Circulation Improvements
A number of circulation improvements will be needed to implement the plan. These
improvements aze described in Part 3 of this plan.
• Public Parking
A total of five new or expanded public parking facilities aze scheduled for development
in the Downtown Development plan. The total cost of these facilities (to be funded
by a combination of in lieu pazking fees, assessment districts, and tax allocation bond
funds) could exceed $8.5 million. The parking program is described in Part 4 of this
plan. Projected parking facility costs aze summarized in Table 5.
• Property Acquisition, Relocation, and Site Clearance
The successful implementation of the plan will require the acquisition of a number
of private properties to eliminate blighted buildings, assemble land for new and
expanded public parking facilities, and assemble sites for private development.
Property acquisition is summazized in Diagram 24.
The relocation of businesses and residents, property management of acquired
properties, and site cleazance will be necessary also.-
• Developer Assistance
It is anticipated that assistance to private developers (both owner participants and.,
new developers) will need to be provided to implement the plan. Typical assistance
could include land writedown (i.e. the disposition of land by the agency at less than
acquisition cost) and the assembly of land by the agency (including the use of
eminent domain, if necessary) for private development.
Although the city will need to fund these activities during early years of project
revitalization, it should be possible to recapture a substantial portion of these costs
77
• Administration of Development Standards and Guidelines
Part 5 of this plan sets forth land uses, standards, and guidelines for public and
private development under the plan. The successful implementation of the plan will
require effective administration by the city and the agency of these standards and
guidelines.
• General Plan and Zoning Changes
Some general plan and zoning changes may be required to conform to the requirements
of this plan. These changes should be implemented in the eazly stages of plan
implementation.
• Parking Management Program
As the Downtown Development Plan is implemented, pressures on available
parking resources maybe expected to increase. Although the development of new
and expanded pazking facilities may grant some relief, a pazking management
program should be implemented also. Although the details of the program have not
been defined, it could include, as pazking demand increases:
1. Designation of less central azeas for employee pazking.
2. Adjustment of time zones.
3. Parking meters.
4. Pazking permits.
5. Introduction of pazking validation systems.
6. Pazking lot monitors.
7. Increased parking regulation enforcement.
• Enactment of Funding Measures
As may be appropriate, both city and agency will need to make timely approvals of
budgets, appropriations, and bond issues to fund public improve-ments and related
implementation costs. Such approvals also will include the sponsorship of special
assessment districts andlor enactment of legislation authorizing the collection of in-
lieu pazking fees.
• Project Administration
Effective implementation of the plan will require added full-time staff and substantial
support from other city departments. Two fulltime positions are recommended: an
Assistant Executive Director and an Acquisition/Relocation/Rehabilitation
Coordinator.
79
construction of new buildings, the organization of an effective downtown business
association, and the sponsorship of downtown marketing and promotion efforts.
Two major approaches will be utilized to ensure active private participation in the
financing of parking and streetscape improvements:
• Formation of A Special Downtown Assessment District
The formation of a special downtown assessment district is recommended eazly in
phase one as a means of ensuring private participation in the revitalization of
downtown Campbell.
During phase one the assessment district should be expected to assume full
responsibility for funding all streetscape maintenance activities and partial
responsibility for funding pazking and streetscape improvements. In subsequent
revitalization phases the district should be prepared to take an increasingly stronger
role in funding these activities. The long-term objective is an assessment district that
has the capability of assuming full responsibility for the financing and maintenance
of all downtown pazking and streetscape improvements not otherwise provided for
under other assessment districts (such as the Water Tower Plaza/Orchazd City Plaza
assessment district).
The type of assessment district (such as 1911-1915 Act, AB 1693, or Mello-Roos), the
area to be included, and the level of assessments will all be defined in the future.
• In-Lieu Parking Fee Program
An in-lieu pazking fee program should be implemented early in phase one to ensure
an adequate supply of public pazking in the downtown azea. The program should
apply to all properties within the downtown plan area. A property owner within the
area desiring to improve his or her property in a substantial way (for example, an
increase in assessor's fair market value of 25 percent or more) would be required to
satisfy the parking requirement specified elsewhere in the development plan by
either: (1) providing required parking spaces on-site or, (2) paying an in-lieu parking
fee.
Normally the amount ofthe in-lieu parking fee would be determined by multiplying
the cost of providing a space in the public parking facility (open parking lot or gazage,
whatever is appropriate at the time of application) by the number of on-site spaces
for which relief is sought. However, the payment could be based also upon a
reasonable percentage of that total cost.
In-lieu fees provide a fair and equitable method for shazing the cost of new pazking.
It is expected that in-lieu pazking fees will pay for a significant part of the total cost
of providing downtown pazking lots and structures.
Other private actions include:
81
2. Recommendations for the design and location of signage to facilitate access to
downtown.
3. Recommendations on increasing the number of special events (street fairs,
historic pageants, art shows, sidewalk sales, and grand openings, for example).
4. Outreach programs to attract desirable businesses to downtown, including the
provision of special incentives for such businesses.
It is expected that these activities will be funded privately by the downtown business
association.
Il1~LEMEN'rATION ACTIONS AND PHASING
The successful implementation of the Downtown Development Plan will require a
whole series of public and private actions. Major implementation actions are summarized
by phase below and in Diagrams 26, 27, and 28. Amore detailed description can be
found in Table 6, Master Implementation Schedule.
Phase One: Short-Term
City/Redevelopment Agency Responsibilities
• City loans redevelopment agency money for plan implementation.
• Redevelopment agency sponsors tax allocation bond issue.
• City or agency constructs streetscape and circulation improvements.
• City or agency assembles entire block bounded by Civic Center Drive, Central
Avenue, East Campbell Avenue, and First Street; museum is relocated into new
building in a Civic Center location; residents and businesses on site are relocated
and site is cleared; a parking lot is constructed on northerly portion of the site
(Site 1); and southerly portion of the site is sold to a private developer for a major
project.
• City or agency assembles property for parking lots on Sites 2 and 3; a parking lot
is constructed on Site 2; and the S_ ite 3 area is held for future parking lot
expansion.
• Agency purchases and constructs Site 4 parking lot.
• City implements in-lieu parking fee program, collects fees, and sponsors downtown
special assessment district.
83
Private Responsibilities
• To the extent legally permitted, the existing (Water Tower Plaza/Orchazd City
Plaza) parking district assumes responsibility for reimbursing the city for the cost
of acquisition and construction of the expanded parking lot on Site 3, as well as
for ongoing maintenance.
• The special downtown assessment district assumes a higher level of responsibility
for the financing and maintenance of pazking and streetscape improvements.
J . ~~
=~
__ ~ LI
Cr-U
~ u~wu ;~~ -ENT" oR:i~ n
u
I~••....._„4,,~ - .__ _ _ _ __ f. CAMVlELL AVENUE _ _ _ _ __
J ~ ~~
~ '~' - '~~
-~
Campbell Downtown L
Development Plan
0 100 100 100 leer
o .~ ~
r - s
Nwu s'
- ~ c ~ ~~ C
Parking '
Lot Expanded O ` ~• Cky%Agency Acquires
(Sits 3) ~~ and Constructs
~ 4 Employee Parking Lot
!' ° -(Site 5)
PHASE TWO: MID-TERM IMPLEMENTATION STRATEGY Diagram 27
Phase Three: Long-Term
City/Redevelopment Agency Responsibilities
• Redevelopment Agency sponsors a second tax allocation bond issue.
• To the extent that accumulated special assessments or in-lieu parking fees
permit, city constructs parking structures on Sites 1 and 3 parking lots.
Private Responsibilities
• Previously identified streetscape and parking facility financing and maintenance
. obligations continue.
85
Ongoing Annual Costs
Ongoing annual costs include:
• Project Administration
Estimated annual cost: $191,000.
• Streetscape and Parking Facility Maintenance
Estimates are currently unavailable. As mentioned before, a special downtown
assessment district should be formed to assume full responsibility for these costs.
• Downtown Marketing/Promotion Program
Estimates are currently unavailable. These costs should be paid by the downtown
business association.
• Tax Allocation Bond Amortization
Tax allocation bonds issued by the Agency will need to be amortized on an annual
basis. For the purposes of'the demonstration funding program contained in this
report, two Tax Allocation Bond Issues have been assumed:
• An issue of approximately $4.6 million in Fiscal Yeaz 1988-89.
• A second issue of approximately $10.6 million in Fiscal Yeaz 1995-96.
These issues are illustrative only. The timing and size of actual bond issues will
be determined at a later date.
Il1~LEMENTATION AND FUNDING SCF~DULES
Three schedules have been prepared to summazize the major implementation and
funding activities necessary to carry out the project:
Master Implementation Schedule.
Presented as Table 6, this schedule places all major implementation activities into
sequence.
• Total Projected Funding Requirements.
In addition to public improvements, funding needs to be provided for property
acquisition, museum relocation, rehabilitation facade improvement loan program,
developer assistance, and project administration. Table 7 provides a comprehensive
summary of these requirements.
87
• Demonstration Funding Program.
Major sources of project funding include tax increments (direct revenues and tax
allocation bonds), direct reimbursement of costs by developers and the existing
parking assessment district., city loans to the redevelopment agency, in lieu parking
fees, and block grants. Table 8 matches funding needs with potential funding
sources. The program demonstrates that the chances of successful funding are very
good.
These schedules are illustrative in nature and are designed to demonstrate project
feasibility. The schedules and the cost estimates that support tfiem aze preliminary
in nature and will be subject to change as implementation progresses and changes
aze made in the program. Nevertheless, both schedules and costs aze sufficiently
accurate to permit informed decisionmaking.
89
Table s
City Responsibilities
Construction of
Public Improvements
Developer
Assistance/
Rehabilitation
Private Responsiblities
Downtown Organizational Mazketing
Prepaze for street beautification/
street improvements (CampbelU
Central/North-South Streets and
Plaza) including demolition and
removal (City)
Undergrounding of utilities (City/
PG and E)
Construct street beautification/
improvements (CampbelLCentraU
North-South Streets and Plaza)
(City)
Following assembly of property,
construct Sites 1, 2 and 4 parking
lots (City)
Install new traffic signals oa
Central Avenue and, as appropri-
ate, stop signs and crosswalks
Construct "Highway 17 Connection"
street beautification and improve-
ments (City)
Construct "Downtown Entries"
Expand and reconstruct Site 3
surface parking lot (City)
Build surface Parking lot on Site 5
(City)
Formulate and
approve developer
assistance and reha-
bilitation/
facade improvement
loan program
(Agency/City)
Continue developer
assistance/rehabili-
tation loan program
(Agency/City)
Organize special
assessment district
for parking and
streetscape
construction and
maintenance
Organize Downtown
Business Association
(DBA)
DBA prepazes and
implements Down-
town Marketing
Program, including
marketing brochure
and advertising
DBA endorses Down-
town Development
Plan, in-lieu parking
fee pmgram and
developer assistance
andrehabilitation/
facade improvement
loan program
Special assessment
district assumes
increasingly
responsible role for
parking and streetscape
construction and
maintenance
Continue marketing
program (DBA)
Extend Campbell Avenue
beautification beyond the loop
Continue developer
assistance/rehabili-
tation loan program
(Agency/City)
Special assessment
district continues
streetscape and parking
responsibilities
Continue marketing
program (DBA)
91
Table 7 Footnotes:
(1) Assumes that all streetscape and urban design improvements will be completed in
Phase One. Includes Highway 17 connection.
(2) Special identification at major points of entry, including signage, lighting, and
landscaping.
(3) Land assembly, including related relocation and demolition expenses, for pazking
lots 1, 2, 3, and 4 and private development site.
(4) Relocation of city museum necessary to develop pazking lot 1.
(5) Construction of pazking lots 1, 2, and 4.
(6) Circulation improvements (complete, includes Highway 17 connection).
(7) Allocation for net loss.
(8) Five years at $191,000 per year.
(9) Interest payments on first (1988-89) bond issue.
(10) Assumes 2.5 years' contingency at 4% (10%). Bond interest excluded.
(11) Relocation and demolition for expansion of parking lot 3. Land assembly for
parking lot 5.
(12) Construction parking lots 3 and 5.
(13) Interest payments on first (1988-89) and second (1995-96) bond issues combined.
(14) Assumes 7.5 years' contingency at 4% (30%). Bond interest excluded.
(15) Construction of parking decks on parking lots 1 and 3.
(16) Assumes city loans of $3,268 plus 10 years' simple interest at 9%.
(17) Assumes 12.5 yeazs' contingency at 4% (50%). Bond interest and city loans
excluded.
Note: All sources John B. Dykstra Sc Associates unless otherwise indicated.
For further detail on costs and assumptions, reference should be made to the
Supplemental Cost and Financial Tables, May 1988, available at the offices of the
Campbell Redevelopment Agency.
93
Table 8 footnotes:
(1) Net proceeds, assumed 1988-89 tax allocation bond issue.
(2) Assumes-land cost write-down of 50%.
(3) Assumes recovery of 50% of the acquisition costs of pazking lot 3 expansion from
Water Tower Plaza/Orchazd City Plaza Assessment District.
(4) Source: City of Campbell.
(5) City loan to Redevelopment Agency. Subject to future reimbursement.
(6) Part of net proceeds, assumed 1995-96 tax allocation bond issue.
(7) Assumes recovery of 50% of pazking lot 3 expansion construction costs from Water
Tower Plaza/Orchazd City Plaza Assessment District.
(8) Remaining net proceeds, assumed 1995-96 tax allocation bond issue. -
(9) Assumes recovery of 100% of cost of building pazking gazage on pazking lot 3 from
Water Tower Plaza/C+rchazd City Plaza Assessment District.
Note: All sources John B. Dykstra & Associates unless otherwise indicated.
For further detail on costs and assumptions, reference should be made to the
Supplemental Cost and Financial Tables, May 1988, available at the offices of the
Campbell Redevelopment Agency.
95