HomeMy WebLinkAboutItem 14 - Newsracks ' �:" �" �_� � �. -
MEMO TO: HONORABLE MAYOR AND CITY COUNCIL MEMBERS
FROM: BRUNO RUMBELOW, CITY MANAGER 1��
SCOTT WILLIAMS, DEVELOPMENT SERVICES DIRECTOR
MEETING DATE: SEPTEMBER 16, 2008
SUBJECT: AMENDMENTS TO CHAPTER 20, STREETS, SIDEWALKS AND
OTHER PUBLIC WAYS OF THE GRAPEVINE CODE OF
ORDINANCES
RECOMMENDATION:
City Council to consider amendments to Chapter 20, Streets, Sidewalks and Other Pubiic
Ways of the Grapevine Code of Ordinances relative to Newsracks and take any necessary
action.
BACKGROUND INFORMATION:
At the request of some members of City Council, a draft ordinance amendment was
brought to City Council workshop on January 15, 2008 and March 4, 2008. The proposed
ordinance was very complex regulating freestanding newsrack placement, color, and
design, as well as establishing "Multiple Newsrack Zones"for historic districts. City Council
chose to not move forward with the ordinance at that time.
However, staff has been asked to bring this issue back before City Council, and has
prepared a new draft ordinance that is much simpler. This proposed ordinance prohibits
newsracks from pub�i� �treets, sidewalks, alleys ard City-o�vne� proN�rty located witrin
one hundred (100) feet of any property designated with a Historic Zoning Overlay District,
Individual Landmark, the Grapevine Township District, or property designated on the
National Register of Historic Places. The ordinance also provides for violation notification
and removal procedures, as well as penalties.
There are currently a minimum of 35 newsracks placed within the right-of-way on Main
Street alone. Photos are attached showing some of these locations.
Should City Council wish to adopt this ordinance, it will be effective immediately. Staff will
place violation notices on all newsracks in the right-of-way or on City property, and if not
removed by September 23, 2008, the racks will be removed by City crews.
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BOYLE & LOWRY, L.L.P. Attornevs and Counselors
4201 Wingren, Suite 108
Irving, Texas 75062
(972)650-7100
Fax (972)650-7105
NIENIO
DATE: September 10, 2008
TO: Bruno Rumbelow, City Manager
FROM: Matthew Boyle, Assistant City Attorney
RE: Proposed Newsrack Ordinance
You have asked us to review the propriety and legality of regulating the location
of newspaper boxes or newsracks within the City. The questions include whether or not
the City has the legal authority to: 1) ban the location of newsracks City-wide; and 2)
restrict the location of newsracks within the City's historic districts. Following a review
of State and Federal law, we submit the following opinion.
A. Can the City of Grapevine Ban Newsracks City-Wide?
Newsrack regulations have generated much litigation in the past nationwide, and
the primary concern relative to the prospect of regulating the placement of newsracks on
public rights of way relates to First Amendment free speech rights. Public property such
as City rights of way are generally treated as a public forum. Streets and parks "have
immemoi-ially been held in trust for the use of the public and, time out of mind, have
been used for purposes of assembly, communicating thoughts between citizens, and
discussing public questions". Hague v. CIO, 307 U.S. 496, 515 (1939);see also United
States v. Grace, 461 U.S. 171 (1983) (public sidewalks recognized as traditional public
forum property). In public fora, the Supreme Court has held that regulations of the time,
place, and manner of protected expression must be content-neutral, be narrowly tailored
to serve a significant governmental interest, and allow for sufficient alternative channels
of communication. Community for Creative Non-Violence v. Ti�rrter, 893 F.2d 1387,
1390 (D.C.Cir.1990) (citing Ward v. RockAgainst Racism, 491 U.S. 781 (1989)). A City-
wide ban on newsracks in the right of way must meet those standards, the most
problematic of which is the requirement that the ban be narrowly tailored to serve a
governmental interest. Such tailoring must result in the City's interest in the regulation
outweighing the interest of the newspaper vendors. Cornelius v. NAACP Legal Defense &
Ed. Fund, 473 U.S. 788, 800 (1985). Based on the applicable precedent, we conclude that
an outright City-wide ban cannot meet these tests. When faced with directly analogous
issues in the past, several courts have struck down the challenged regulation. Golcl Coast
Pt�blications, Inc. v. Corrigan, 42 F3d 1336 (CAl 1 1994); Miller NewspapeYS, Inc. v.
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City of Keene, 546 F Supp 831 (D NH); Philadelphia News, Inc. v. Borough Council,
Mayor, Manager &Director of Pasblic Works of Borough of Swarthmore, 381 F Supp
228 (ED Pa). Accordingly, we recommend against a City-wide prohibition on newsracks.
B. Can the City of Grapevine Ban Newsracks within the City's Historic
Districts?
In spite of the above-noted limitations regarding the regulation on newsracks,
newsracks are not completely immune from regulation. Gol�l Coast Publications, Inc. v.
Corrigan, 42 F3d 1336 (CA11 1994). However, the obligation to narrowly tailor the
regulation to achieve a compelling governmental interest remains in effect. The City of
Grapevine has been earnestly dedicated to preserving the historical and architectural
integrity of its historic areas. This has been achieved through a combination of initiatives,
including but not limited to Historic Overlay Zoning Districts, Historic Township
demolition restrictions, Preservation grants, and Main Street preservation programs.
Historic preservation has been previously established as a compelling governmental
interest. Mczher v. City of New Orleans, 516 F.2d 1051 (S�h Cir. 1975). Further, in Globe
Newspaper Co. v. Beacon Hill Architecta�ral Comm'n, the First Circuit upheld a total ban
on all "street furniture"in Boston's Historic Beacon Hill District. 100 F.3d 175 (15` Cir.
1996). The court determined that because the Beacon Hill guideline affected a traditional
public forum(public sidewalks) and constituted a content-neutral restriction on the time,
place, and manner of expression, intermediate scrutiny was the appropriate standard: the
� guideline would only be upheld if it was "narrowly tailored to serve a significant �.,;�
governmental interest, and allow far reasonable alternative channels of communication."
Id. at 182-83, 186. The court ultimately held that the Beacon Hill Commission's aesthetic
interest in preserving the district's architectural and historic character served a
"significant government interest," and it additionally found that the guideline was both
narrowly tailored and allowed for sufficient alternative modes of distribution for the
plaintiff publishers. Globe Newspaper Co., 100 F.3d at 187, 192, 194. In addition to the
analogous cases citzd above, the Federal District Court in Massachusetts has upheld a
newspaper rack ban in Boston's Bay Area Architectural District. Hop Publ'ns, Inc. v.
City of Boston, 334 F. Supp. 2d 35, 36-37 (D. Mass. 2004). These cases support a partial
ban on newsracks in historic districts, and accordingly we conchide that a ban on
newsracks in the City's historical districts would be constitutional.
Conclusion
While no ordinance is challenge-proof, we are charged to counsel the City to
avoid obvious challenges and to ensure that if a challenge comes, the ordinance is best
prepared to prevail. Based on the above and foregoing, a City-wide ban on newsracks is
not tenable. However, a ban on newsracks in the City's historic districts is legally
supported. Within those Historic areas (H-Overlay Districts, Historic Township, ...), it
would be permissible to further limit the scope of the prohibition to a lesser included
portion of those same areas. Thank you for your attention to this matter. In the event you
,,,;.
have any questions or concerns, please do not hesitate to let me know.
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S���'S
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ORDINANCE NO.
AN ORDINANCE OF THE CITY COUNCIL OF THE CITY
OF GRAPEVINE, TEXAS AMENDING THE GRAPEVINE
CODE OF ORDINANCES, CHAPTER 20, STREETS,
SIDEWALKS AND OTHER PUBLIC WAYS, RELATIVE TO
NEWSRACKS, PROVIDING AMENDMENTS TO SAME,
PROVIDING A PURPOSE AND INTENT; DEFINING
TERMS; PROHIBITING NEWSRACKS ON PUBLIC
STREETS, SIDEWALKS, ALLEY'S AND OTHER PUBLIC
RIGHTS-OF-WAY AND PROPERTY OWNED BY THE CITY
OF GRAPEVINE; PROVIDING FOR THE REMOVAL OF
NEWSRACKS FOR VIOLATIONS OF THIS ORDINANCE;
REPEALING CONFLICTING ORDINANCES; PROVIDING A
PENALTY NOT TO EXCEED $500; PROVIDING A SAVING
CLAUSE; PROVIDING A SEVERABILITY CLAUSE; AND
PROVIDING AN EFFECTIVE DATE.
WHEREAS, the City Council finds and declares that installation of newsracks
located in the public right-of-way must be regulated in order to ensure safe and
unobstructed passage of pedestrians over those portions of the public right-of-way open
and not open to vehicular traffic; and
WHEREAS, the proliferation of newsracks can impede pedestrian traffic,
including requirements for disability access and pose a significant hazard and
inconvenience to pedestrians, abutting landowners, property, and vehicular traffic; and
WHEREAS, the lack of uniform design and appearanc� standards for newsracks
and other street furniture and streetscape creates visual clutter and blight and has a
deleterious effect on the aesthetic quality of the city's public right-of-way in general; and
WHEREAS, the City Council has recognized the important cultural and
educational significance of our historic properties and districts by designating such
areas as Historic Districts and Landmarks, and created zoning overlay districts; and
WHEREAS, the City Council has established extensive and restrictive
ordinances and design criteria for such districts and landmarks in order to maintain their
historic integrity; and
WHEREAS, the City of Grapevine is authorized by law to adopt the provisions
contained herein, and has complied with all the prerequisites necessary for the passage
of this ordinance, including but not limited to the Open Meetings Act; and
WHEREAS, the purposes of this ordinance are to promote the public health,
safety, and general welfare of the citizens of the City of Grapevine.
NOW, THEREFORE, BE IT ORDAINED BY THE CITY COUNCIL OF THE CITY
OF GRAPEVINE, TEXAS:
Section 1. That all matters stated hereinabove are found to be true and correct
and are incorporated herein by reference as if copied in their entirety.
Section 2. That Chapter 20, Streets, Sidewalks and other Public Ways, is
hereby amended by the addition of a new Section 20-20, Newsracks Placed Within
Public Right-of-Way Prohibited, to read as follows:
"SECTION 20-20 NEWSRACKS PLACED WITHIN PUBLIC RIGHT-OF-WAY
IN HISTORIC DISTRICTS PROHIBITED
(a) It shall be unlawful for any person to place, operate or maintain any
newsrack upon any public street, sidewalk, alley or any other public
right -of-way or City owned property, located within one hundred
(100) feet of any property designated with a Historic Zoning Overlay
District, Individual Landmark, the Grapevine Township District, or
property designated on the National Register of Historic Places.
For the purposes of this section, newsrack shall be defined as any
self service free, coin, cash or credit card operated container, rack,
or structure used or maintained for the display distribution, or sale
of newspapers, periodicals, or other publications.
(b) Procedure for Abatement: The Building Official or his designee
shall notify the owner of any newsrack placed upon public right-of-
way or City owned property in violation of this ordinance that such
newsrack shall be removed.
Such notification shall be by one of the following methods:
(1) Mailing the owner of such newsrack a letter demanding
removal.
(2) Posting of a notice on the newsrack demanding removal.
(3) Publication in the official newspaper of the City an order to
remove the newsrack.
After the expiration of seven (7) days following the notification, the City
may remove the newsrack. The City may keep the newsrack at its
discretion, for a period not to exceed seven (7) days and may return the
ORD. NO. 2
newsrack upon request provided the owner reimburses the City for any
and ail expenses incurred."
Section 3. That a person who installs, operates, or maintains any newsrack
upon any public street, sidewalk, alley, or other public right-of-way or property owned by
the City of Grapevine within the City in violation of this section is guilty of an offense and
upon conviction, is subject to a fine not to exceed five hundred dollars ($500) for each
day that the violation exists.
The penalties provided for in this section are in addition to any other enforcement
remedies that the City may have, other City ordinances, or State law.
Section 4. That all ordinances or any parts thereof in conflict with the terms of
this ordinance shall be and hereby are deemed repealed and of no force or effect.
Section 5. That if any section, subsection, sentence, clause or phrase of this
ordinance shall for any reason be held to be invalid, such decision shall not affect the
validity of the remaining portions of this ordinance.
Section 6. That the fact that the present ordinances and regulations of the City
of Grapevine, Texas are inadequate to properly safeguard the health, safety, morals,
peace and general welfare of the inhabitants of the City of Grapevine, Texas, creates an
emergency for the immediate preservation of the public business, property, health,
safety and general welfare of the public which requires that this ordinance shall become
effective from and after the date of its passage, and it is accordingly so ordained.
PASSED AND APPROVED BY THE CITY COUNCIL OF THE CITY OF
GRAPEVINE, TEXAS, on this the 16th day of September 2008.
APPROVED:
ATTEST:
ORD. NO. 3
APPROVED AS TO FORM:
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ORD. NO. 4
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