SR-702-002-04
e .-
~CitYOf
Santa Monica~
City Council Report
City Council Meeting: October 10,2006
Agenda Item: ~e
To:
Mayor and City Council
From:
Marsha Jones Moutrie, City Attorney
Subject:
Introduction and First Reading of an Ordinance Prohibiting Smoking In
Specified Outdoor Locations
Recommended Action
Staff recommends that Council introduce for first reading the attached proposed
ordinance which prohibits smoking in the following locations in the City: outdoor dining
areas; outdoor service areas; areas within 20 feet of entrances, exits or. open windows
of buildings open to the public; the Third Street Promenade; and the Farmers Markets.
Executive Summary
At its meeting on July 25, 2006, Council directed staff to draft an ordinance expanding
the locations at which smoking is prohibited in the City. After discussing the recent
reports of the California Air Resources Board and the U.S. Surgeon General regarding
second-hand smoke, reviewing recent legislation in other locations, and hearing
testimony from the public, Council directed staff to prohibit smoking at each of the five
locations described above.
1
The attached proposed ordinance fulfills Council's directive, with one modification. Staff
recommends limiting the 20-foot prohibition to open windows at public buildings.
In addition, this Staff Report contains the following new information obtained sInce
Council last visited the issue in July:
1. A new summary of studies on the economic impact of smoking prohibitions;
2. Updated information from other locations regarding the implementation of
outdoor smoking laws; and
3. More detailed information on locations adjacent to the Third Street Promenade
where smoking would still be allowed under the proposed ordinance.
Discussion
Summary of Studies on Economic Impact of Smokinq Prohibitions
At the Council meeting on July 25, 2006, a concern was raised that prohibiting smoking
at outdoor dining areas and the Third Street Promenade might hurt business revenue.
Staff responded that all available information from other California cities, other states,
and other countries indicated that anti-smoking laws were either neutral or beneficial to
business including locations where tourism is an important part of the economy.
Staff has since obtained a summary of relevant studies addressing the economic impact
that anti-smoking laws have had on businesses. The summary, prepared by Healthier
Solutions, Inc., is attached as Appendix A to this staff report.
2
The summary indicates that the overwhelming weight of evidence shows that smoking
restrictions either improve, or have no measurable impact on, the economic success of
affected businesses. Reports included in the summary also describe the efforts of the
tobacco industry to create false or misleading studies on the subject.
Implementation of Similar Smokinq Laws in Other Cities
An outreach survey was done by the California Clean Air Project and Healthier
Solutions of other locations that have implemented similar outdoor smoking restrictions.
The survey included nine California cities. It found the following:
1. Of nine California cities surveyed, all reported excellent success with
implementing and enforcing outdoor smoking laws. Compliance has been high and
public acceptance has been very good.
2. Berkeley, which has had smoke-free outdoor dining since 1997 and was
among the first two cities to implement a smoke-free radius outside businesses,
reported that their program has been "hugely successful." In nearly ten years, Berkeley
has had only two occasions on which follow-up visits were required at businesses due
to violations.
3. Calabasas, which recently adopted the most restrictive outdoor smoking law in
the nation, reports that its program is going very well. City officials received a small
amount of early negative feedback after the adoption of the ordinance. However, that
stopped after about one month. Since then, compliance has been excellent as has
acceptance by the business community.
3
4. The California cities reported no negative impact on business due to outdoor
smoking restrictions.
5. Hawaii has yet to implement its statewide law which goes into effect in
November. However, early public response is very positive. State officials met with
representatives from tourism agencies that do business with Japanese tourists. The
agencies reported that their foreign tourists are used to increasing smoking restrictions
in the U.S. and the agencies did not foresee a negative impact from the new state law.
Various local governments there, including on the "Big Island" of Hawaii, already had
strong smoking restrictions in place. The Big Island conducted a study which showed no
negative impact on tourism from the previous smoking prohibitions there.
Locations Adiacent to the Third Street Promenade Where Smokinq Will Still Be Allowed
Some concern was expressed about where individuals i~ the Third Street area would be
able to smoke under the proposed ordinance, in light of the Promenade ban and the 20-
foot radius outside businesses generally. In response to these questions staff
investigated the locations near the Third Street Promenade where smoking would still
be allowed under the proposed ordinance. Staff discovered that on each of the four
cross streets intersecting the Promenade (Broadway, Santa Monica, Arizona and
Wilshire), there is ample space only steps from Third Street that is more than twenty
feet from business entrances. Smoking would be permitted at these locations under the
proposed ordinance. Additionally, staff concluded that a person walking anywhere on
the Third Street Promenade would not have to walk more than one-half block to get to a
location where smoking would be permitted.
4
Public Outreach
Staff previously spoke with a number of local agencies whose constituents would be
affected by the proposed ordinance. More recently, staff met with Convention & Visitor's
Bureau staff and Board. They expressed concerns about the law impacting
international tourism and about educating international travelers if it passes. If Council
adopts the ordinance, staff will conduct a further campaign of public outreach to various
business and government organizations and the public to educate about the law, to
oversee signage and other measures, and to help facilitate the law's implementation.
Budqet/Financiallmpact
No significant cost to the City is associated with the recommended action. Staff
anticipates that expenses will be covered by the existing budget. Staff is informed that
some funds for signage and outreach are available through Los Angeles County and the
State of California. Publicity, education, and enforcement are expected to entail only
modest amounts of City staff time and expense. If additional resources are required,
staff will address that need in future budget requests.
Prepared by:
Adam Radinsky, Head, Consumer Protection Unit
Paula Rockenstein, Consumer Affairs Specialist
Forwarded to Council:
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f:\atty\muni\laws\mjm\smokingregs 10-1 0-08ord.doc
City Council Meeting October 10, 2006
Santa Monica, California
ORDINANCE NUMBER
(CCS)
(City Council Series)
AN ORDINANCE OF THE CITY COUNCIL OF THE CITY OF
SANTA MONICA AMENDING CHAPTER 4.44 OF THE SANTA MONICA MUNICIPAL
CODE TO PROHIBIT SMOKING AT ALL OUTDOOR DINING AREAS, OUTDOOR
SERVICE AREAS, AREAS WITHIN 20 FEET OF ENTRANCES, EXITS OR OPEN
WINDOWS OF BUILDINGS OPEN TO THE PUBLIC, THE THIRD STREET
PROMENADE, AND FARMERS MARKETS
WHEREAS, in January 2006 the California Air Resources Board ("CARB")
officially identified second-hand smoke, or ETS, as a "toxic air contaminant" pursuant to
Health and Safety Code Section 39660, providing the most authoritative finding to date
of the health dangers of ETS in California; and
WHEREAS, the CARB's Scientific Review Panel found that ETS concentrations
in some outdoor locations was comparable to those found inside smokers' homes; and
WHEREAS, the CARB report noted the following health statistics resulting from
second-hand smoke exposure each year in the state of California:
· Over 400 additional lung cancer deaths
· Over 3,600 cardiac deaths
· About 31,000 episodes of children's asthma
· About 21 cases of SIDS
· About 1,600 cases of low birth weight in newborns
1
· Over 4,700 cases of pre-term delivery; and
WHEREAS, in June 2006 the United States Surgeon General issued a landmark
report describing "massive and conclusive scientific evidence" that ETS causes
premature death and disease in adults and children, including cancer, cardiovascular
disease, and asthma; and
WHEREAS, the Surgeon General's Report concluded that "there is no risk-free
level of exposure to secondhand smoke" and that exposure to ETS has "immediate
adverse effects" on the cardiovascular system;
WHEREAS, the Surgeon General's Report concluded that public smoking laws
are having the effect of improving public health and also reducing the incidence of
smoking generally; and
WHEREAS, the Centers for Disease Control estimates that secondhand smoke
exposure causes as many as 300,000 children in the United States to suffer from lower
respiratory tract infections such as pneumonia and bronchitis, exacerbates childhood
asthma, and increases the risk of acute, chronic middle ear infection in children; and
WHEREAS, the United States Environmental Protection Agency (EPA) has
classified second-hand smoke as a Group A carcinogen, the most dangerous class of
carcinogens; and
WHEREAS, the EPA has concluded that second-hand smoke causes coronary
heart disease in non-smokers; and
WHEREAS, more than 440,000 people die in the United States from tobacco-
related diseases every year, making it the nation's leading cause of preventable illness;
and
2
WHEREAS, exposure to ETS is the third leading cause of preventable death in
this country, killing over 52,000 non-smokers each year, including 3,000 deaths from
lung cancer; and
WHEREAS, second-hand smoke is especially hazardous to particular groups,
including those with chronic health problems, the elderly, and children; and
WHEREAS, what the scientific research has confirmed is reflected in the large
and growing number of local, state, and national governments that have prohibited
smoking in public places in recent months;
WHEREAS, the City of Santa Monica is committed to keeping its public spaces
safe, healthy and pleasant for everyone; and
WHEREAS, cigarette and cigar butts and used matches dropped onto the ground
in public spaces degrade the aesthetic quality of those spaces; and
WHEREAS, smoking in outdoor dining areas endangers the health of other
patrons; and
WHEREAS, smoking in outdoor service areas endangers the health of others
who are waiting in the same area; and
WHEREAS, smoking near entrances and open windows of buildings open to the
public endangers the health of those who use and work within the facilities; and
WHEREAS, smoking on the Third Street Promenade and at Farmers Markets
endangers the health of others present in those locations;
WHEREAS, children and youth who observe smoking in public places may
model the behavior; and
3
WHEREAS, banning smoking at all outdoor dining areas, outdoor service areas,
areas within 20 feet of entrances or open windows of buildings open to the public, the
Third Street Promenade, and the Farmers Markets is necessary to protect the public
health, safety and welfare of Santa Monica residents, workers and visitors,
NOW, THEREFORE, THE CITY COUNCil OF THE CITY OF SANTA MONICA
DOES HEREBY ORDAIN AS FOllOWS:
SECTION 1. Chapter 4.44 of the Santa Monica Municipal Code IS hereby
amended to read as follows:
CHAPTER 4.44
REGULATION OF SMOKING
Section 4.44.010. Definitions.
The following words and phrases, as used in this Chapter or in any
other applicable law regulating smoking, shall have the following
meanings:
(a) Dininq area. A non-residential location where food or
beveraqes are served bv a business or routinely consumed bv customers.
This includes but is not limited to restaurant or bar seatinq areas and
patios.
(b) Service area. A place where people use or wait for services
provided by a private or government entity, such as waiting areas for
public tr~msportation. This includes but is not limited to bus stops, A TM
lines, information kiosks and theater lines.
4
(a.Q) Smoke or Smoking. The carrying or holding of a lighted pipe,
cigar, cigarette, or any other lighted smoking product or equipment used to
burn any tobacco products, weed, plant, or any other combustible
substance. Smoking includes emitting or exhaling the fumes of any pipe,
cigar, cigarette, or any other lighted smoking equipment used for burning
any tobacco product, weed, plant, or any other combustible substance.
Section 4.44.020. Prohibitions.
(a) Smoking in specific locations.
It shall be unlawful to smoke in the following places:
(1) Any elevator;
(2) Any public park;
(3) Any public beach;
(4) Anywhere on the Santa Monica Pier; except in designated
areas;
(5) Any outdoor service area;
(6) Inside any public building (as that term is defined in
Government Code Section 7596) or 'Nithin 20 feet of any entrance, exit or
'/Iindo'A' of a public building
(7) Any outdoor dininq area;
(8) Within twenty feet of the entrance, exit or open window of
any building open to the public;
5
(9) The Third Street Promenade;
(10) Anv Farmers Market.
(b) Disposal of smoking waste.
No person shall dispose of any cigarette, cigar or tobacco, or any
part of a cigarette or cigar, in any place where smoking is prohibited under
this Chapter, except in a designated waste disposal container.
(c) Enforcement and Penalties.
(1) Infraction. A violation of this Section is an infraction and shall
be punished by a fine of two hundred fifty dollars.
(2) Nonexclusive Remedies and Penalties. Punishment under this
section shall not preclude punishment pursuant to Health & Safety Code
Section 13002, Penal Code Section 374.4, or any other law proscribing
the act of littering. Nothing in this Section shall preclude any person from
seeking any other remedies, penalties or procedures provided by law.
Section 4.44.030. Sale of tobacco by vending machine or other
mechanical device or out of package.
(a) Purpose. The City Council finds cigarette smoking and other
tobacco use by minors to be a continuing problem with grave public health
consequences. Studies show that the vast majority of adult smokers
began as teenagers, and that teenagers who begin using tobacco before
the age of fifteen eventually have much higher cancer rates than non-
tobacco using teenagers. In recognition of the Surgeon General's
6
conclusion that nicotine is as addictive as cocaine or heroin, action is
needed to curtail the easy access of minors to cigarettes and other
tobacco products. The purpose of this Chapter is to implement a strict and
enforceable system to prevent the illegal sale of cigarettes and other
tobacco products to minors.
(b) Vending Machines. On or after May 1, 1991, no person shall
sell or dispense cigarettes or other tobacco products by vending machine
or any other device that automatically sells or dispenses tobacco products.
(c) Out of Package Sales Prohibited. It is unlawful to sell
cigarettes out of the manufacturer's package or without required health
warnings.
SECTION 2. Any provision of the Santa Monica Municipal Code or appendices
thereto inconsistent with the provisions of this Ordinance, to the extent of such
inconsistencies and no further, is hereby repealed or modified to that extent necessary
to effect the provisions of this Ordinance.
SECTION 3. If any section, subsection, sentence, clause, or phrase of this
Ordinance is for any reason held to be invalid or unconstitutional by a decision of any
court of competent jurisdiction, such decision shall not affect the validity of the
remaining portions of this Ordinance. The City Council hereby declares that it would
have passed this Ordinance and each and every section, subsection, sentence, clause,
or phrase not declared invalid or unconstitutional without regard to whether any portion
of the ordinance would be subsequently declared invalid or unconstitutional.
7
SECTION 4. The Mayor shall sign and the City Clerk shall attest to the passage
of this Ordinance. The City Clerk shall cause the same to be published once in the
official newspaper within 15 days after its adoption. This Ordinance shall become
effective 30 days from its adoption.
APPROVED AS TO FORM:
8