HomeMy WebLinkAboutMINUTES - 05211991 - 2.6 r a.6
THE BOARD OF SUPERVISORS OF CONTRA COSTA COUNTY, CALIFORNIA
Adopted this Order on May 21, 1991 by the following vote:
AYES: Supervisors Fanden, Schroder, McPeak, Torlakson, Powers
NOES: None
ABSENT: None
ABSTAIN: None
SUBJECT: Proposed Amendments to Smoking Ordinance
The Board received the attached report dated May 20,
1991 from Victor J. Westman, County Counsel, transmitting the
proposed amendments to the County smoking ordinance as requested by
the Board on April 16, 1991.
Supervisor Sunne McPeak stated that while the draft
amendments are comprehensive and consistent with the Board' s
direction, there were some issues that remained unresolved. She
recommended that Chapter 440-4, Section 440-4. 004 ( 1) be clarified
to refer to common areas of hotels and motels, since a later
section of the chapter deals with designation of smoking and-
non-smoking rooms. She further recommended that the percentage be
changed from 40% to 60% in Section 440-4. 004 ( 5) (b) covering
public transit waiting areas, and that sports arenas and convention
halls designate no more than 40% of the seats as smoking seats, in
Section 440-4. 004 ( 10) . With respect to Chapter 440-6, Supervisor
McPeak noted that some vending machines are located in areas, such
as bars, where minors are restricted from entering, and suggested
that an exemption for such locations would be consistent with the
intent of the ordinance.
Supervisor McPeak referred to the section of Counsel' s
report dealing with advertising, and questioned whether the Federal
law relative to restricting advertising would prohibit the County
from limiting advertising such as billboards placed in close
proximity to schools. She suggested that that issue be further
reviewed.
Supervisor Robert Schroder noted that the Health
Services Department will be responsible for enforcement of the
ordinance, and requested that the Board be provided with an
estimate of the financial impact on the Health Services Department
for such enforcement activities. He commented on the need for
uniformity throughout the County, and urged that the Mayors '
Conference be requested to act as soon. as possible on this issue.
Supervisor Tom Torlakson stated- that he would like to
know how the proposed County amended smoking ordinance compares
with the recently adopted City of Walnut Creek smoking ordinance.
He noted that the Walnut Creek ordinance has a provision for
technology that could be applied for venting whereby an
establishment with an adequate venting system could possibly be
exempt. With respect to tobacco advertising, he suggested that
perhaps the Board would have the ability to restrict advertising
through the permit process.
Supervisor Tom Powers advised that it had been brought
to his attention that the partially blind operator of the snack bar
at the County Building in Richmond could potentially be adversely
impacted by the amended ordinance, since smoking is currently
allowed in the snack bar and he believes his business would suffer
if the area was designated as non-smoking. Supervisor Powers also
commented on the efforts and expense undertaken by a number of
1
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bowling alleys to voluntarily locate vending machines in areas
where minors are restricted and to provide separate smoking and
non-smoking areas. He noted that National Bowling Association
rules require smoking areas to be available at alleys where
tournaments are held. Under the proposed amendment to the County
smoking ordinance, bowling alleys in the County would be prevented.
from hosting profitable national. tournaments, thus adversely
affecting their businesses.
Supervisor McPeak noted that smoking would also be
prohibited in bingo halls, another area where proper ventilating
equipment could be employed to resolve the problem. She suggested
that staff review options for exemption in. certain situations.
Jim Hicks, representing AFSCME Local 2700, stated. that
changes in the ordinance with respect to restriction of smoking in
County buildings or on County grounds by County employees is, in
his opinion., a meet and confer issue.
There being no further. discussion., IT IS BY THE BOARD
ORDERED that the report on the draft smoking ordinance is ACCEPTED.
IT IS FURTHER ORDERED that June 18 , 1991 at 11:00 A.M.
is CONFIRMED for the public hearing on the draft ordinance.
IT IS FURTHER ORDERED that the. Health Services Director
is REQUESTED to provide the Board with an estimate of the financial
impact on the Health Services Department for enforcement of the.
ordinance.
cc: County Counsel
Health Services Director
County Administrator
I hereby certity that this is a true and correct oopy of
an action taken end entered on the minutes of the
Board of Su on the date shown.
ATTESTED: L/22944 oelo /99/
PHIL BATCH ON,Clerk of the Board
of Supervisors and County Administrator
8ft .'Deputy
2
OFFICE OF THE COUNTY COUNSEL
CONTRA COSTA COUNTY
Martinez,California
Date: May 20, 1991
To: Board of Supervisors '
From: Victor J. We ur1
~,unsel
By: Ed ww an;e'Jr.. uty
Re: Proposed Ame.ndmeits o- Smoking Ordinance
The attached draft of amendments to the County's smoking ordinance has been
prepared pursuant to the direction of the Board on April 16, 1991 (which also
fixed June 18, 1991 , as the date for hearing on the draft. ) The shaded portions
are additions to the existing provisions; the strikeouts, deletions to the
existing provisions. We provide the following comments regarding the attached
draft:
1. County contractors. A proposal to require companies located outside
of this County's unincorporated area and contracting with the County to adopt
smoking regulations similar to the County's has been omitted at the suggestion
of the involved County departments. The views were expressed that:
a. It may be unrealistic to expect companies to comply with such a
provision.
b. Many companies, because of labor relations contracts may not be able to
comply.
c. If enforced, such a provision would probably deny the county to access
to the products of most large companies.
d. Instead, the County, as a matter of policy, may wish to encourage its
contractors to voluntarily adopt smoking policies consistent with the County' s
policy.
2. Vending machines. The language used in the attached vending machines
provisions has been taken from the recently adopted Vallejo City ordinance.
Also, the ability of the County to regulate placement of cigarette vending
machines to prevent easy access by minors may be preempted by Penal Code section
308. The question of legality of this type of regulation is currently before the
Court of Appeal in Bravo Vending v. City of Rancho Mirage No. E009272. (The City
prevailed in the trial court. ) Although section 308 doesn't specifically
regulate the location of vending machines, it does make it a crime to sell
cigarettes minors and states:
"For purposes of this section, the person liable for selling
or furnishing tobacco products to minors by a tobacco vending
}
Board of Supervisors -2- May 20, 1991
machine shall be the person authorizing the installation or
placement of the tobacco vending machine upon. premises he or she
manages or otherwise controls and under circumstances in which he or
she has knowledge, or should otherwise have grounds for knowledge
that the tobacco vending machine will be utilized by minors. "
(Penal Code § 308(a). )
".It is the Legislature's intent to regulate the matter of this
section. As a result, no city, county, or city and county shall
adopt any ordinance or regulation inconsistent with this section. "
(Penal Code § 308(e). ) (Emphasis added. )
Section 308 also provides criminal penalties for minors who purchase or
receive tobacco products. Itis our understanding that the Board desires to take
action now to ban cigarette vending machines subject to whatever the courts
ultimately determine what has, or has not, been preempted by section 308.
We do not believe that section 308 would be interpreted to preempt County
land use regulation of the placement of cigarette vending machines. Here
however, if any cigarette machines have already been installed pursuant to
existing land use regulations (LUPs, etc. ) , it may be necessary to provide for
phasing out current machines over a reasonable amortization period rather than
immediate removal from premises covered by the permits as was done in the Vallejo
ordinance. At this time, it is not clear that such amortization is legally
required. We have used the Vallejo language which permits a vending machine
owner to apply for an"amortization period" in the case of demonstrated hardship.
If the amortization provision is retained, it will be necessary to designate a
County Officer (e.g. treasurer, zoning administrator, etc. ) for its
administration.
We note that the City of Walnut Creek ordinance has delayed the effective
date of the ban on vending machines until October 1 , 1991. Also, that city's
ordinance permits vending machines in a place which has a "type 61 , type 42, or
type 48 license from the Department of Alcoholic Beverage Control . "
3. Meet and Confer. To the extent that changes are made in the ordinance
with respect to smoking in County buildings or on County grounds, meeting and
conferring with recognized employee organizations under the Meyers-Milias-Brown
Act may be required.
4. Advertising. We have not addressed the issue of restricting tobacco
advertising on transit vehicles, sports arenas, and elsewhere. The question
involves complex issues in that substantial control of advertising of tobacco
products has been preempted by federal Cigarette Labeling and Advertising Act
("Act") , (15 U.S.C. §§ 1331 et seq. ) and the question of limiting advertisements
of tobacco products brings into question Constitutional issues of free speech.
Board of Supervisors -3- May 20, 1991
We believe that under the act, the federal government has precluded local
regulation of the content of tobacco advertising. (15 U.S.C. §§ 1334(b). ) Under
Central Hudson Gas & Electric Corp. v. Public Service Commission, 447 U.S. 447,
65 L.Ed.2d 341 (1980) , in striking down a New York ban on public utilities
advertising, the Supreme Court formulated a four-part test regulating restraints
on commercial speech. (65 L.Ed.2d at pp. 349-50. )
A. To have First Amendment protection, commercial speech
must concern lawful activity and may not be misleading.
B. A restraint on otherwise protected speech must attempt
to implement a substantial governmental interest.
C. The restraint must directly advance the governmental
interest.
D. The restraint must not be more restrictive than
necessary to serve the government's interest.
Pursuing this issue further would require considerable time both in
determining the permissible limits of such restraints and developing the factual
findings necessary to support any restraints that the Board determines to enact.
Consequently, we recommend that consideration of restrictions on advertising be
considered at a future date if that is desired.
5. Americans With Disabilities Act (ADA). Generally, the ADA requires
that employers, among others, accommodate persons with disabilities. Yet to be
answered is whether smoking (nicotine addiction) may be construed as a disability
under the ADA. If nicotine addiction is a disability, a number of provisions
limiting the rights of smokers may be preempted by the ADA and require
modifications at that time. The current draft regulations issued by the Equal
Employment Opportunity Commission (EEOC) do not specifically address the issue.
While it seems unlikely that the ADA will be so construed by either the EEOC or
the courts, we cannot say for sure that it won't happen.
EVL:d
ORDINANCE NO. 91-
(Repealing and Reenacting the Smoking Ordinance)
The Contra Costa County Board of Supervisors ordains as follows (omitting the
parenthetical footnotes from the official text of the enacted or amended
provisions of the County Ordinance Code):
SECTION I: Division 440 (Sections 440-2.002 through 440-2.022 inclusive) of the
County Ordinance Code is repealed.
SECTION II: Division 440 (Sections 440-2.002 through 440-10.008 inclusive) is
added to the County Ordinance Code to read:
Division 440
TOBACCO PRODUCTS
Chanter 440-2
fINDINGS AND DEFINITIONS
440-2.002 Purpose and findings. (a) The board of-supervisors
of the county of Contra Costa hereby finds that:
- ( ` u d i e s h a y e n�7::>p:<'< ?ilii.,,._..,..,i ilii iiia;*`>:::: «'iq :.>;:::;;:;::;>.•;:o;.,
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that tobacco..:smoke::.i.s::. major
coritri6iitor f ptt indoor air pollution; and
(2) Reliable studies Piave shown that breathing sidestream or
secondhand smoke is a significant health hazard< '€ 3dr` Gulr1 for
tea' , ' elderly people; individuals
with cardiovascular disease, and individuals with impaired
respiratory function; including asthmatics and those with
obstructive airway disease; and
(3) Health hazards induced by breathing sidestream or
secondhand smoke include I` e i ung cancer, respiratory
infection, decreased exercise °`tolerance, decreased respiratory
function, bronchoconstriction, and bronchospasm; and
(4) Nonsmokers with allergies, respiratory diseases and those
who suffer other ill effects of breathing sidestream or secondhand
smoke may experience a loss of job productivity or may be forced to
take periodic sick leave because of adverse reactions to same; and
(5) The smoking of tobacco, or any other weed or plant, is a
danger to health.
(6) Accordingly, the health, safety and general welfare of the
residents of persons employed in, and persons who frequent thi.s
country would be benefitted by the regulation of smoking in enclosed
places, including places of employment.
ORDINANCE NO. 91-
Page 2
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440-2.006 Definitions. The following words and phrases,
whenever used in this division, shall be construed as hereafter set
out, unless it is apparent that they have a different meaning:
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( ) "Bar" means an area w%ic"h is devoted to the serving of
alcoholic beverages and in which the service of food is only
incidental to the consum tion of such bevera es' :C. S
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(4) "Employee" ...means any person who is empToye.d by any
employer in consideration for direct or indirect
monetary wages or profit.
(5) "Employer" means any person, partnership, corporation,
including municipal corporation or public entities, who employs the
services of more than three persons.
(6) "Enclosed" means closed in by a roof and 4-a =walls with
appropriate openings for ingress and egress.
ORDINANCE NO. 91-
Page 3
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(8) ......of employment" means any enclosed area under the
control of a public or private emp.loyer which employees normally
frequent during the course of employment, including but not limited
to, work areas, employee lounges, conference rooms, and employee
cafeterias. A private -residence is not a place of employment unless
it is used as a child care or health care facility. The dining area
of a restaurant is not a place of employment.
(9) "Smoking" means the carrying or holding of a lighted pipe,
cigar, or cigarette of any kind, or any other lighted smoking
equipment or the lighting or. emitting or exhaling the smoke of a
pipe, cigar, or cigarette of any kind.
(10) "Sports Arena" means sports pavilions, gymnasiums, health
spas, boxing arenas, swimming pools, roller and ice rinks, bowling
alleys, halls, and other similar places where members of. the public
assemble to engage in physical exercise, participate in athletic
competition, or witness sports:events.
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5-5
440-2.008 Regulations. The County Health Officer is
authorized to promulgate regulations implementing this division.
Chapter 440-4
REGULATION OF SMOKING
440-4.002 County-owned facilities. ik'
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11
. (Ords.
91-__, § 2, 87-13, 85-57 §3. )
440-4.004 Prohibition of smoking in enclosed places. Smoking
is prohibited in the following places within the unincorporated area
of Contra Costa County and to the extent allowed by law in county-
owned facilities:
ORDINANCE NO. 91-
Page 4
(1) All enclosed areas available to and customarily used by
the general public and all businesses patronized by the public,
including, but not limited to, retail stores, hotel and motels,
pharmacies, banks; attorneys' offices, 'ktpt and other
offices;
2 Within all restaurants. <<< : < ;
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(4) Waiting rooms, hallways, wards, and semi-private rooms of
health facilities, including, but not limited to, hospitals,
clinics, physical therapy facilities, doctors' offices, except that
health facilities shall also be subject to the provisions of Section
440-2.010 regulati-ng._smoking in places of employment;
(5) Elevators, public restrooms, indoor services lines, buses,
taxicabs and other means of public transit under the authority of
public entities, and in ticket, boarding, and waiting areas of
public transit deport; provided, however, that this prohibition does
not prevent (a) the establishment of separate waiting areas for
smokers and nonsmokers, or (b) the establishment of at least forty
percent of a given waiting area as a nonsmoking area.
(6) In public area of museums and galleries;
(7) Enclosed theaters, auditoriums, and halls which are used
for action pictures, stage dramas and musical performances, ballets
or other exhibitions; except when smoking is part of any such
production;
(8) Retail food marketing establishments, including grocery
stores,and supermarkets, .except those areas of such establishments
set aside for the serving of food and drink, restrooms and offices,
and areas thereof not open to the public, :which may be otherwise
regulated by other sections of thisper 'vs ;
(9) Public schools and other public facilities under the
control of another public agency, which are available to and
customarily used by the general public, to the extent that the same
are subject to the jurisdiction of the county;
(10) Sports :arenas and convention hall:s., exceptin:designated
smokin areas, hi....s < 'I>>t '> ""rtd.... ..rprT :..:meas..:
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(TT) private residences when used as child care or health care
facilities. Board and care facilities shall provide smokefree
ORDINANCE NO. 91-
Page 5
living quarters for non-smoking boarders. °
Notwithstanding any other provision of this section, any
owner, operator, manager or other person who controls any
establishment described in this section may declare that entire
establishment as a nonsmoking establishment. (Ords. 91-_, § 2, 87-
13, 85-57. §4. )
440-4.006 Regulation of smoking in places of em to ent.}y� y, ,j�. � ..::i::a.a.::.':: :.'?;;.=+iii.::' F;j..:i::if::aiCi� :
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to
the ia7 4ffiumrextent possible, but mmployers are not required to 4ne-
any
per'
p "' . ,ter y�,� ,�^
r�{�ne days of the e��t'c'cT7clote of the ord;nanen
eediTec 4n th4s-eha to r, eh nleyer and eae•h alae a of emnlo.anent
l ee-a��zd-with;n the u n i eEerperated as=ea-ef 4--he-ee k+-sha-1-l--adopt,
4iff"?fnent, fflake knewn and fflaintain a written smeking pol4ey,
-(1)-D-reWb- -o„ of smek=inn-;-n-cenfereFEe and meeting remj'
t.'TTd Trr'vvnio, aud4ter4uffis, s , medieal TTII , ha4lways,
and-E?lI eyaters l
i
isher (2) Any employee 4 a n l a,tee-ef em 1p-*oyffieet may des-i gRate Ws
her
an aj3Prepr4ate-s'i gn or-signs, to-die-pray 4 ded-by the employer. The
�dep er shall elude hl def 444
�6l-���--a�vTrted-�y-the•-e}ii�$yc,-terra-r�-:,TCTavc-c'r�-ea�56n c,�„rc,v,r
e;—t.he term"i ed4ate-werk ar+_
air any dispute r; ;nn aer a"smoking-p6l4ey,the r4ghhts-
of the-ne;Tsn,onor shall be goy eek-eeedenee;
(1) Provision and fflaintenanee of a separate and eent4guew-s
hens
eappae4�—floor-space in e�afete�s, nlopeon
loungesand; .......... ............ .. ......... .....
{ } The emfig p
: t _> _>tlt< shall be
communicated to all employees wtfiln three weeks`-of its adoption,
and at least annually thereafter.
(6) Pletw4thstand4ng the prey4s4ens of subseratien (a) of the
c'7LL C.i end every employer-s#;;ll h;;yn the r;nht to des gnate any nlae+e
ef-employffient, or pert4on thereof, as a Rensmaking area. (Ords. 91-
§ 2, 87-13, 85-57 §5. )
440-4.008 Optional smoking- areas. Notwithstanding any other
provisions of this ehapLer >� 7:s to the contrary, the following
areas shall not be subject to the smoking restrictions of this
.eh apt ` ' 14
F.
€:
ORDINANCE NO. 91:
Page 6
(1) A private residence, including one which may serve as a
place of employment, except when covered by
§ 440-2.00 (10 ► .>;;;:;;:.;,::<:.::;::.:.;>::;»;>;;::.::<;<.;;:<.;>;>
_....(2.). .Bars't'< XC :: eY°4 a bar ae$ :t samic:lse . aria
ttlt a r siya�trat t, Che r also stall b des t ated as ion smak1404
(3 Hotel and motel rooms rented to guests, prgdecitgw er,.
.: h ill {1 htF �1 WI
r m :::'>::>:: :rr :::>; ma >::rt >:: :ttal::1;;:>:: :::>:: gf�:: : : :#ed::::ir:here;::rt
:::::.
(4) Retail stores tfiat deal exclusively. in the sale of tobacco
and .smoking paraphernalia;
(5) Re is t n n r -
T�TT�T��-�dt�i-t`lfi�f ��@�—dflf�-i�16 ce�-c�fi�E�e�}Ee--•9T�ricct-�� r96FFF5,
.-and pbibl4e and priyate assembly reems while these plaees are be4ng
wgpd # ,
(b ) A private enclosed place` used exclusively by smokers,
even though such aplace may be visited by nonsmokers,
ewer^d ..9..��;^�� pxvred ftwever, that ttte plate shall riot be pane
:is#w.Ti.. ...F::F. :G:;.:>tV»;:L:t./:ti:.i:> G.1:1.G{.: :a>:}. .I:3:I.: .:4+::: I:t ;>:< .7 ::1: :.>::.t:IVt:.>:. :>: .:.»
ter > an:.. excepting places i:n_.w i.c
smok i rig is prohib i ted 6y .th& fire department or by any other law,
ordinance, or regulation. (Ords. 91-_, § 2, 87-13, 85-57 §6. )
440-4.010 Posting requirements. (a) "Smoking" or "No
Smoking" signs, whichever are appropriate, with letters of not less
than one inch in height or the international "No Smoking" symbol
(consisting of a pictorial representation of a burning cigarette
enclosed in a red circle with a red bar across it) shall be clearly,
sufficiently and conspicuously posted in every building or other
place where smoking is controlled by thisvQri, by the
owner, operator, manager or other person having 'control of such
building or other place.
b Ever r . .... ..:.................. ..:....... :...
Y
^ l>t �1` > �r«< 1trc�t � regulated by this
ehapt� 1N.s g will have posted' at . its entrance a sign clearly
stating that a 'nonsmoking s^�,—is�i^ ts available, and every
patron shall be asked as to his or her"`preference. (Ords. 91-_, §
2, 87-•13, 85-57 §7.)
C. .. A0"
ii:.6.11
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to c rho 1 s <..........
ORDINANCE NO. 91-
Page 7
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:::::.:::::.:: :::::.......:
ORDINANCE NO. 91-
a
Page 8
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talc para plgr�ur Qr or�..ar ..othe ; lac t�rgt#n ur. any,:
....a : t:<or etploy of any persv� f7tvc�at�cnr
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14
Or
:.:::::::...::.::.::.:::: :::::.:::::::... .::..:::�::^:::::::::::::::.::::.::::::::.::::::::::.:::.::::.:::::.::f.::::::. ::.::.:::::::::.:: .::::.:::::::::::::::: ..:..::..:::::::::::
10
.........................
...................
Chapter 440-10
ENFORCEMENT/PENALTIES
440-10.002 Enforcement. (a) Administration of this
toshall be by the Contra Costa health services
department or its designees.
(b) Any citizen who desires to register a complaint hereunder
may initiate enforcement consideration with the Contra Costa health
services department or its designees.
(c) Any owner, manager, operator, or .employer of any
establishment controlled by this ; C may inform persons
violating this Er of the.. . aPPropriate provisions
thereof. (Ords. 91-_, §.:..2.....8T=13, 85-57 §8. )
ORDINANCE NO. 917
Page 9
440-10.004 Penalties. (a) It is unlawful for any person who
owns, managers, operates or other wise controls .the use of any
premises subject to the restrictions of this section to fail to:
properly post signs required hereunder:;;; to pray-ide -Tiger ferthe
use -E4 1 eyees--4—de s i g n a-t i rig -the 4 areas; to—set -aside "Na
-moi
w #-
(b) It shall be unlawful for any person to smoke in any area
restricted by the provisions of this section.
(c) Any person or business who violates subsection (a) or (b)
herein, or any other provision of this section, shall be guilty of
an infraction, punishable by:
(1) A fine, not exceeding one hundred dollars, for the
first violation;
(2) A fine, not exceeding two hundred dollars, for a
second violation of this ordinance within one year;
(3) A fine, not exceeding five hundred dollars, for each .
additional violation of this ordinance within one year. (Ords.
91- § 2, 87-13, 86-35 §2, 85-57 §9. )
440-10.006 Nonretaliation. No person or employer shall
discharge, refuse to hire, or in any manner retaliate against any
employee or applicant for employment because such employee. or
applicant exercises any rights afforded by this � r .
(Ords. 91- § 2, 87-13, 85-57 §10. )
440-10.008 Other applicable laws. This � [ shall
not be interpreted or construed to permit smoking where it is
otherwise restricted by other applicable laws. (Ords. 91- § 2,
87-13, 85-57 §11. )
2
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S:c1:ti:<:t� :e :: :{y '.: �j... :>{::::.:j♦'�i�'}y:(:j:::':::<: ':�y..: �y. '{j;;>:a yie'»:siecl Cyd to be.
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:+arakl
ORDINANCE NO. 917
Page 10
SECTION IV: EFFECTIVE DATE. This ordinance becomes effective 30 days after
passage, and within 15 days of passage shall be published once with the names of
the supervisors voting for and against it in the
, .a newspaper published in this County.
PASSED ON _ by the following vote:
AYES:
NOES:
ABSENT:
ABSTAIN:
ATTEST: PHIL BATCHELOR, Clerk of
the Board and County .Administrator
By
Board Chair
[SEAL]
EVL:
(May 20, 1991)
ORDINANCE NO. 91-