HomeMy WebLinkAbout2005-06-28; City Council; 18187 v1 08-10; Exhibits to Staff Report Regulating Adult Businesses and Performers8
HOUSTON CITY COUNCIL
SEXUALLY ORIENTED BUSINESS
ORDINANCE REVISION COMMITTEE
LEGISLATIVE REPORT
COMMITTEE MEMBERS:
Jew Don Bon«y, Jr.
Helen Huey
John Castillo
Ray DriscoU
Joe Roach
Jodson Robinson, Jr.
Grade Guzman Saenz
Orlando Sanchez
January 7,1997
Table of Contents
Introduction ........................................ , .................................................. 3
History of the Ordinance ......................................................................... 4
Description of the Committee's Woric ................................................
General ......................................................................................... 5
Findings and Condusiou ................................. : ................................ 5
HPD Vice Review ................................................. . ......................... 7
Public Hearing Summary ................................................................ 10
%
Review of Written Correspondence .............. . ................................... 11
A. Adult Arcade Ordinance Changes ................................................ 12
B. Procedural Changes - SOB Enforcement ...................................... 13
C. Land Use & Related Changes .................. : ................................. 14
D. Conduct and Operations ........... . ..... . .......................................... 15
E. Amortization. ........... . ...... ..- ....................................... • ..... «... ..... . ....... 16
Section by Section Analysis ............................................................... 19
Conclusion ......................................................................................... 37
L-tUHU. UtrM. * 8176450903 NO.154 004
INTRODUCTION COPY
This report has been prepared by the Sexually Oriented Business Revision Committee for
the purpose of summarizing the Committee's work in drafting a proposed amendment to Articles
n and HI of Chapter 28 of the Code of Ordinances, Houston, Texas. In addition, a new Article
Vin has been proposed to be added to Chapter 28. These summaries include prior efforts of
regulating sexually oriented businesses (hereinafter "SOBi"), testimony by the Vice Division of
the Houston Police Department, reports and request*, citizen correspondence, industry memos,
legal department research, and summaries of the principal themes heard in the public testimony
taken by the Committee.
The Committee's intention is to supplement prior reports issued in 1983,1996, and 1991.
The original Ordinance was adopted in 1983. The 2986 Supplemental Report included premises
that serve alcohofic beverages. The 1991 Supplemental Report addressed the addition of adult
bookstores and movie theaters as regulated enterprises within the Ordinance's land use controls.
The primary purpose of the current committee was twofold. First, the Committee desired to
review the existing Ordinance and the City's abflhy to enforce the existing Ordinanoe. Secondly,
there existed a need to assess and analyze the Ordinance with regard to its strengths and
wcafcnovrs and review them with regard to how effectively this Ordinance protects the interests
of the pubfic as well as the rights of the businesse* subject to regulation. These amendments and
additions relate principally to the ucenatng of SOB employees, lighting configurations, distancing
requirements between land uses, prohibition of "glory holes," elimination of closed-off areas,
public notification of sexually oriented business applications, dear lines of vision, and dancer "no-
touch" policies.
SOBs enjoy Constitutional protection and must be allowed to exist and operate regardless
of feelings about them. If the regula^ns were to be so onerous or so burdensome that they
preclude or inhibit them being able to even exist, they would likely be declared unconstitutional.
The Committee made it dear, both during the hearings a«J afterwards, that it was not the
intention of the Committee to propose any ordinance that would be subject to a successful court
challenge because it either direcuy or indirectly (or for that matter inadvertently) eliminated the
opportunities for such businesses to exist in the Chy of Houston. Therefore, the challenge is to
keep SOBa from infringing on the rights of citizens without denying SOBs a reasonable
opportunity to operate in the Chy.
This report is not intended as a legal treatise on the regulation of SOBs, although the
Committee waa guided in its deliberations at various points from advice by the Legal Department
and received numerous legal comments from counsel for the regulated businesses. This report is
intended to be reviewed from a lay perspective for the use of the members of the Chy Council and
numbers of tb» public in undcntandmg the reasons that the amendment and addrtiona to the
Ordinance have been proposed. This report is intended only as a summary. The Committee has
developed extensive files in connection with its work that are available far review.
On May 24, 1996, the Mayor's Office announced the members of the newly re-crested
irittee, now tided the " StxuaBy Oriented Business Ordinance Revision Committee." Council
Members Jew Don Booty. Jr. and Helen Huey fcrved u co-chain. In addition, Council Members
Castillo, DriscoU, Roach, Robinson, Sanchez and Saenz served as members.
HISTORY OF THE ORDINANCE
The existing Ordinance hid its baits in the work of the 1983 Chy Council Committee on
Sexually Oriented Businesses that resulted m the adoption of Ordinance 83-1812. The history of
the QOTrnhtee's work U documented in the report filed with the City Secretary in connection
with Ordinance 83-1812 . This ordinance adopted a land uie piugiam that was contented
through permits and various incidental regulations for SOB*. In focus was on regulating adult
modeling studios, adult entertainment parlors, adult manage parlors and other similar busk
Ordinance 83-1812 did not extend land use controls to prenriset that had alcoholic beverage
*rt «Aifr tw>fr««nt^« nr trt aAiH mrrw> ihiattvr* W«»y. jk
upon which the Ordinance was predicated did not then authorize land use controls on those forms
of adult businesses. See former Art 2372w Tex. Rev. Civ. Stat Ann~
>ui!98S the Texas Legislature revised the state enabling law to delete the exemption for
premises that add alcoholic beverage permits and licenses. FoUowing the revision of the state
enabling law, the Committee reconvened to consider adding the so-cafled "topiesa bars" to the
land use control structure of the Ordinance. The Committee reconsidered its prior work and took
additional evidence relating in the adoption of Ordinance 86-323 which extended land use
controls to the topless part and placed the Ordinance into mbstirrtislly its present form. The
work of the Committee in the submiasoD of Ordinance 86-323 is extensively documented in the
Legislative Report filed with the City Council at the time of its adoption.
The genesis for the 199 1 proposal amending the Ordinance related to circumstances
virtually identical to those that arose in 1915. The Legislature in its 1989 session again amended
the state enabling law. The 1989 amendments deleted the exemption from land use controls that
had formerly existed in the state law for adult bookstores and adult movie theaters. However.
some of the evidence received from the public in 1983 and 1986 related to adult bookstores and
adult movie theaters. For this reason the Committee drew upon its 1983 and 1986 works in the
preparation of the amended Ordinance draft and regarded the 1983 and 1986 evidence and
experiences as pertinent to its 1991 work
The scope of the Committee's recent work evolved as a resuh of increasing community
concern regarding the proliferation of Sexually Oriented BUWKM under tn«
NO. 154 006
In addition, the Houston Police Department urged the City Council to consider means to control
serious violations that were increasingly repetitive it numerous SOB estabiixhrnenu. Because of
these requests and concerns the current Committee was established to review and strengthen the
costing ordinance-
A DESCRIPTION OF THE COMMITTEE'S WORK
General. The Committee was reestablished in the summer of 1996 to review ideas on
strengthening the currant Ordinance. The Committee haa conducted its business in pubfic
meetings. These meetings were posted on the CHyHatt bulletin board and were typically attended
by Ac Committee Members, Chy support stiff and interested members of the public and/or the
regulated businesses. The Committee also conducted three of hs meetings as public hearings at
which members of the industry and the general public testified. Along with the City Hafl posting,
notification of these public meetings was published in the newspaper and tettera were seat to civic
associations, individual! iwho had requested participation, ami ctirrent SOB pennh holders. The
mailing list consisted of more than 1.000 names and was maintained in the office of Council
member Huey and the Mayor's Citizens Assistance Office. Proponents and opponents of the
regulation of SOBs were encouraged to speak openly of their ideas and viewpoints.
Li addition to these pubfic hearings, a significant number of people chose to voice their
opinions through written correspondence to the mayor, city council, and/or legal department. The
authors of these letters consisted of civic association presidents, topless club owners, City of
Houston citizens, SOB dancers, state elected officials, advocates of various organizations and
other concerned citizens. There are approximately two hundred and seventy-five letters on file.
Most urged for the strengthening and enforcement of the current ordinance. While others
stressed First Amendment rights, some urged industtycooperition, and othen voiced ccflcerns
about the growing number of unlicensed SOBs,
C/pnchiaioria Based upon t^*?* pmrjx«tiitg«_ jhe committee h**
additional findings and conclusions to supplement previous legislative reports.
First, because of the crbronsl activities that are associated with SOBs, the Committee
determined the necessity of licensing all SOB entertainers and managers. Reojuinng an *****' *•«?»**
or manager to be licensed would establish a foundation far documenting those who have previous
convictions for prostitution, public lewdnesa and other lonflar offenses. In addition, licensing
could bdp cfiminate underage entertainers because they would be required to prove that they are
eighteen or older in order to obtain the license.
Second, the Committee found that there exists a serious predicament in The enforcement of
pubUc lewdneas, prostitution, indecent exposure, and other criminal activities. Vice officers
testified that because they do not engage in inappropriate behavior (such as removing their
NO. 154
clothing, convictions are difficult to achieve. Hie officer's non-participation is perceived fay the
•that he is working under cover. The emeruiner proceeds with caution, Avoiding lewd
behavior that night normally occur. In addition, wb« a patron U charged along with the
entertainer, it is difficult to obtain a conviction became of the sensitivity of the relationship
between the two accused.
Third, the Committee was shown a video by the HPD Vice of a bookstore "glory hole."
These exist in snail room or booths in which individuals are admitted and permitted to use one
or more arcade devices. The endoaed booths are joined to the neifdiboring booth by a hole in
the wall These "glory holes" are used to promote anonymous sex and thus facilitate the spread
of sexually transmitted diseases.
- i
Fourth, the Committee found that sexually oriented businesses that did not nave dear lines
of vision encouraged lewd behavior or sexual contact Many businesses are designed with areas
that are out of the view of managers and are conducive to illegal behavior. Entertainers are
cognizant of these areas where violations can occur unobserved by management or law
enforcement personnel who are conducting open inspections. For example, high back chairs are
used as barricades to shield iffich behavior. In addition, testimony revealed that private, secluded,
dimly fit areas have the same effect Testimony revealed that once the entertainer felt comfortable
with the patron, ruling out that he was an undercover officer, be would be asked to move to a
more private area. In some cases he would be asked to pay a fee to enter the "VIP" room by
either purchasing a membership or pnn-haaing an expensive bottle of champagne. HPD cannot
always affoid these admittance fees in the course of investigations and often cannot access and
""""' monitor these specific areas.
Fain, Ac Committee considered the issue that muhifanoly tracts were being counted as one
tract in the residential quota, where in actuality, ntany families were lhang independently upon one
tisctThnxighthePlaTH^aiKiDevelopnientDepartnent a new formula was established based on
average homeuwuera' property sac Mat would account for the piece of land. These new figures were
used to achieve a residential formula of eight single family tiirts for each acre of rouhi-fanaly track.
In addition, those iota platted for residential development, but currently unimproved, were added to
the residential tract formula.
Sixth, inadequate lighting JM events managers and police officers from monrtonng illegal
activities. Often the fighting is so dim mat an investigator cannot observe the activities tram one table
to the next Vice officers testified that smaller harnesses use lighting aa a way to camouflage illegal
activitiea. As a measurement for nsponsibk fighting it was suggested that the requirement be similar
to those f"«""»"«n requirements established by the Uniform Building Code for 'exit' signs.
Seventh, the committee determined that enterprise* that had locked rooms, were often used
as fronts for prostitution. An entertainer would amply request the patron to remove his dothing.
Those who objected were deemed to be Vice officers therefore restricting the usual services of the
entertainer. The more money that a customer showed, the greater the iservices'.
14:36 LEGSL DEPT. •» 8176450903 NO. 154 P08
Eighth, in keeping -with the theme of famfly preservation, the coranrittee was urged through
public and expert testimony to include pubHc parks in distancing restrictions. A "public park" is
defined as a publicly owned or publicly leased tract of land, whether situated in the city or not,
designated, maintained and operated for public use for recreational purposes by die city or any
political subdivision of the state and containing improvements, pathways, access or facilities intended
for public recreational use. The term "public park" shall not include public roads, rights-of-way,
esplanades, traffic circles, easements or traffic triangles unless such tracts or areas contain and
provide improvements or access to a recreational use by the public. Additionally, members of the
Committee felt that the testimony supported inclusion of ^private paries" as a protected land use. The
legal Department was asked to consider possible inclusion of this category in the final draft
On
Ninth, repeated testimony requested that notification of a pending Sexually Oriented Business
Permit be given to surrounding neighbors of proposed sights. It is within the framework of the
current case law to require a SOB applicant to post signs on the proposed site in addition to
pubbshmg an ntent to apply for a permit tn the local newspaper. Testimony revealed a peat deal
of concern over the graeral public's lack of warning of the SOB application unfa! it has been approved
and opened. •
Tenth, the committee found that continuing the amortization previsions of the previous
Ordnances would be preferable to grandfathering the sexually oriented businesses that do not'comply
whh the amended Ordinance. Grandfathering would allow noncoixfbmung uses to continue under
the new ordinance in perpetuity, or until market forces wiped out the business, Gnmdfkthering
creates a monopofisoc position for non-conforming property uses and prevents the municipality from
exercising its power to protect its residents. Under the amortuaoion provisions of the previous
Ordinance, a business regulated as to location had six months to come into compliance. However,
if such a business befieved that six months was an inadequate period in which to recoup a reasonable
return on invested capital, that business would have the opportunity to request an extension of the
compliance period. In fight of this recourse, and taking into account the present, ongoing and serious
detriment that such businesses pose for the community at large, the Committee determined that an
appropriate balancing of interests justified continuation of the amortization provisions.
HPD Vice Review:
The Houston Pofice Departmenfa Vice Division played a major rdeb providing the City with
statistics, details and testimony regarding their experiences with SOBs. In addition to written
reports, three undercover vice officers testified at the August 29th hearing. Currently, the Geensed
SOBs are broken down as follows:
10-430^0j NO. 154 (?e.9
36 Topics* Clubs
9 Adult Theaters
9NudeQuba
4 Video Stores
28 Modeling Studios
18 Aduh Bookstores
In idffitkm to the above Est, there are approximately 18 adult theaters, bookstores and video stores
with mjuncove rdief under federal court order in pending litigation styled, 4330 Richmond Avenue
T"fifmn7nBni rt ai v TteGtvofff""*™- The City cannot enforce the SOB ordinance against the
enterprises while the litigation is pending.
Between Jury 1, 1995 and August 31, 1996, the Houston Police V«» Division recorded 5 17
atTt8tainSOBaresulQ^m3S5oonvicdcns,oraoonvktkxintteof 69%. Topless clubs experienced
289 dancer arrests •with a conviction rate of 59%. In addition two managers -were arrested but not
convicted. Thar* were sot patrons of adult theaters taken into custody, rewhing in a conviction me
of83%. DaaoeramaD nude duc« accounted for 31 srasta, of wro^ 71% were coirvictea\ Thirty.
;npairomrfadiiftvidtastona were arrested rebuking m The modeling studios1
record consisted of four arrests and one conviction. One hundred and forty-nine patrons of adult
bookstores were arrested -with 125 convictions (§4%).
O. While seventeen
chibs had less than 10 arrests in the last two yeara, one dub bad 50. Prostitution, public lewdness,
narcotics, and indecent exposure nude up these violations. Auto theft* are also on the rise in
topJenbwvnnitMS. Thais due largely to the iact that a thief knows that he has about an hour and
a half to steal the car before the owner comes back.
Topless dubs make up the majority of arrests in the Vice Division's enforcement experience.
When the officer goes under cover in a dub, he must assume the identity of a patron. Employees
expfiddy ask for badges, weapons, handcufia, and go as far as feeling sround the patron looking tor
theseiteras. Once they fW comfortable that the patron is not a police officer, they wiD often aifc him
to tnove to a rnore secluded area, or possibry the VIP room of the dub. The entertainer explains that
she can do better dances in these anas and a 'lot more tnings' beouse they sjroH watched as closely.
This is when the opportunity for sexual or lewd activities occurs.
The Vice Division representatives testified that licensing and crimmal background checks will
usist in the regulation of the entertainers behavior. Often, the same dancer is arrested under a
different or "stage" name. A license will ensure sn individuals true name, thus avoiding the use of
stage names. This wffl ensure that mdrviduals who are arrested and convicted are property identified
in the event of future criminal arrests.
Modeling studios, tanning salons, encounter parlors and similar SOBs require the patron to
disrobe on entry. Performance is based specifically on the amount of money a patron is wilfing to
spend. TTiu takes place behind locked doors. Vice officers'testimony revealed that in their opinion,
these businesses were merely fronu for prostitution. Vice officer* elaborated on schemes of credit
card find contributed to these enterprises. Often the charged amounts are altered or bogus charges
are sem through fer payment When the cfient complains, he is threatened with the disclosure of the
type of enterprise that he was in.
Vice officers testified that "bookstores ere nothing more thin just blatant open sexual contact
between people wfth complete anonymity." With professionally cot 'glory holes', random sexual
activity between mates is rampant One officer went aa&r as testifying that in his eleven years with
Vke he doe* not recall ever seeing anyone go into » booth, witch the movie for thirty minutes and
walkout
The HPD Vice officers firft th*t the following ordinance change suggestions would be helpful in the
enforcement and regulation of sexually oriented businesses:
i.) Scenaing of persons involved in * SOB - manager, owners, dancers, waiters, bartenders
2.) minimum age 21 (thii requires ft state law change)
3.) premise* need to be well fit inside
4.) no touching
5.) models in modeling studios should not be allowed to remove afl their clothes
6.) make it a violation for models to tik patroni to remove afl clothes
"7.) require bookstores and arcade* to be well fit, no dark corners, no booths, no access
between video booths, and no "gtory holes'
o.j entertainers to oc conswcrco cmpioyeei rather than contractors
9.) afl investors and shareholders to be disclosed and licensed
10.) public display of licenses
11.) 6 foot distances between performer and patron
12.) no private viewing areas
13.) devices used as barriers limited to four foot heights
14.) illumination of one candle foot at floor levd minimum
IS.) no k?ckffd int^riffrcfootr p* irKxfefing w ^w^r>z fftidiot
16.) regulate escort service*
17.) probibiuon agatnat use of inanhnate objects by SOB employees to depict sexual conduct
18.) prohibition agamat warning systems
19.) redefine "multi-unit center"
20.) restrict transier of permit/Dcense
21.) dcvdop tone une &r revocaoon/suspenstoc hearing
22.) amend terms "knowingh/" and "negligence"
23.) owners, managers and employee* of a SOB shall have their license immediately
available
Although not afl of these items were determined by the Legal Department as legally defensible under
the extant enabling statute and case law, they were taken into consideration.
PUBLIC HEARING SUMMARY
The initial PubKc Hearing waahdd on July 15, 1996 in the City CouncB Chamber.
Cound] Member Boney outfitted the intentions of the current committee at:
a. review the ordinance
1. enforcement issue*
2. efivctiveness of the ordinance
b. rwewiUSOBvr«S'^ed wd licensed, unlicensed and ilJegiJ
c. h censing of employees
d. visibility issues
e. revision of land policies
£ balance SOB»* constitutional right and the right of the communities
The public testimony proceeded aa follow*
According to members of the industry, policies for pubtic lewdnesa cases are made in a
personal and participative way. In other words. Vice officers encourage lewd behavior, even to
the «<ent of participating, in order to "get a case." Industry representatives generally agreed
that employee licensing ia necessary, though some prefer the Police Department, others prefer the
Health Department. Depending on the quality of an arrest, three or five within twelve months
should be sufficient for revocation/suspension of SOB license. In addition, h is felt that there
lacks effective police enforcement of unlicensed tanning Batons and massage parlors.
Dr. Devinney, professor of Abnormal psychology, testified that sexual deviants are
attracted to communities because of Sexuafly Oriented Businesses. There are some deviants who
cannot get sexual saria&ction unless they pay for it, While others are not satisfied unless they
take or steal it In addition, there are some sexual deviants who cannot have sexual satisfaction
without forbidden partners soch aa children, invalids or elderly. SOBs located in residential or
even retail areas attract sexual deviants because they have theV entertainment, then they come out
and have a fertile field for solicitation. Therefore, they do not belong ta or near residennal
Because of the advene secondary effects caused by Sexually Oriented Businesses, citizen
responses urged the increase of distancing of SOBs from schools, churches and licensed day
cares. In addition, they perceived a need to decrease the current residential formula of 75% to
25%. They also requested notification to area residents of proposed SOBs, either by posting a
large signer the property or individual mail outs. In addition, they urged that billboard
advertising be illegal.
10
The second public hearing occurred on July 29, 1996. Attorneys representing the SOB
industry requested that a hearing panel be developed to deal with permitting issues. In addition,
the pand should consist of non-law enforcement individuals, and contain several different hearing
officers.
Testimony indicated that although many SOBa follow the rules, most industry
representatives are not against granger regulation! in regards to licenmg the gntertamer? Often
the dancers are transient. The establishment of t license issued through HPP would create a data
basB of infbi uiation.
Furthermore, a great deal of discussion was given to a "no touch" policy. Owners and
dancers afike stated that touching wi» part of the entertainment Plexiglass barriers, mini-stages,
and six foot distancing were all criticized.
A third public hearing was scheduled for the public to ^"ITTTT* 0*1 the draft ortf TWKT
prior to final council approval, and was held January 6, 1997.
REVIEW OF WRITTEN CORRESPONDENCE
More than two hundred seventy-five letters were received regarding the sexuaBy oriented
business ordinance. These letters came from property owners, SOB employees, concerned
citizens, parents, educators, civic association, and business owners. While not ail suggestions
could be incorporated into this summary, each letter was cansfuDy reviewed and passed to other
members of the cuiuuiiiice. These documents an on file in the Legal Department.
Approximately one hundred seventy five letters wen the result of a letter writing
campaign promoted by 'Adult* for Legal Freedom'. The principal theme of these letters was the
over-regulation of the aduh business industry. They fed that this industry attracts tourism, pays
considerable tax revenues; and creates jobs, and therefore U a viJuaWeasaet to the city. In
addition, they believe the reworking of this ordinance is for political reasons only.
Letters came in urging the extension of distancing between a SOB and neighborhoods,
schools, licensed daycares, churches, medical clinics, government offices, historic districts, public
parks, hospitals, and distancing between sexually oriented businesses. It was asked that new
residential projects with preliminary approval from the planning commission be included in the
residential formula. Also, concerns arose over the representation of nmltifamfly dwellings in th«
residential radius computations.
Notification of the public that a Sexually Oriented Business has applied for an application
was a relatively new issue brought before the committee members. Suggestions ranged from 90
li
ia:xf LEOTL DEFT. •» 8176450903 NO. 154 013
day notices by property signs to postcards being mailed to afl residents in the area. Notification
by newspaper, certified mail, and public hearings were also brought forth.
With regard to entertainers, recommendations were to prohibit touching, prohibit asking
customers to undress, install an 8* high stage, require 6 feet distances from patron, and plexiglass
barriers, license all dancers, increase minimum dancing age, require criminal background f*"*-^
no licenses issued to convicted felons, and require license to be worn at aQ times when inside an
enterprise.
Other correspondence recommended that SOB permits should be renewed annually,
repeated violations should be ground for denial, prohibit locked interior doors, require sufficient
Humiliation of the facility, and to hold owner/manager accountable for activity occurring on the
' premises.
While opinion* and suggestions varied. Most people agreed with the proposition that
sexually oriented businesses would continue to exist, and expressed concern to create a solution in
which they could coexist without infringing on the rights of the citizens of the city.
COMMITTEE RECOMMENDATIONS
A. Adult Arcade Ordinance Changes.
1. It is recommended that the Police Department's concerns regarding "adult
arcades" or "peep shows" be addressed by amending art n of Ch. 28 of the Code
of Ordinances to eliminate profaiemt of sexually transmitted disease and criminal
sexual conduct in such operations. At present, art n prohibits enclosed booths for
viewing sexually oriented entertainment but regulates only establishments whose
"arcade devices" arc intended for the viewing of five or fewer persons. The
recommended amendment would make devices intended for viewing by less thy
one hundred persons come under the purview of an. JL In addition, no adult
arcade or adult mini-theatre shall be configured in such a manner as to have any
opening in any partition, screen, wafl or other barrier that separates viewing areas
for arcade devices or adult muiMheatre devices from other viewing areas for
arcade devices or adult mini4heatre devices. This provisiou shall not apply to
conduits for plumbing, heating, air conditioning, ventilation or electrical service,
provided that such conduits shall be so screened or otherwise configured as to
prevent their use as openings that would permit any portion of a human body to
penetrate the wall or barrier separating viewing areas. This should tfmwrtg the
12
problem of eocloied booths tad "giory notes." in such establishments. In
addition, it shall be the duty of the owner* *ad operator and it start also be the
duty of uy agents and employed preient in an aduh arcade or adult mini-theatre
to ensure that the premise) i« monitored to auure that no openings arc Allowed to
earn in violation and to ensure that no patron » allowed access to any portion of
the premises where any opening exist* in violation.
2. It is, recoowjeaded that responsbifitiei for hearing appeals from pcnaitdecutoitf of
tne Director be considered by t hearing officer, nxner dun the city's General
Appeals Board, winch is the present appellant body under art. U of Cb, 28 of the
Code of Onfinaaces. Thi« recommendation would only impact article U of
Chapter 28, u afl other appeals regarding aexuaQy oriented businesses are
presentiy heard by & hazing official. The hearing officer sheO b« aa official
appointed by the mayor and confoned by city council If, after the hearing officer
determine*, based upon the nature of the violation, thai the ends of justice would
be served by a suspension uiBeu of a revocation, he nuytuspewJtte
the permit for * period of one to be stated is the order of suspension, not to
exceed nro (2) months. The General Appeals Board has never heard such an
appeal U principally concerned with Building Code matters, rather than regulation
of sexuaBy orianted buaoteiaea.
*3. XaaddKdon. it is ncoamended that the feet Miociated tvith the proceMing of
applicaiiona ahouid be brought up to date to reflect current actual eoeu.
B. Procedural Changea-SexuaUy Oriented BuaineMEnrorcement
I. It is recommended that the appellate procedures in art HI of Ch. 28 of the Codeof
Ordinances be revised to provide for a panel of hearing officer*, appointed by the
Mayor and confirmed by ihe City Council, caiuuong of licensed attomeya, serving
on rotation, who wfll consider afl sppesta relating to sexually oriented buanewcs
and licenses. Pedsions by juca hearing officers wffl be final and subject to
immediate jmfetal reviow. The availability of an intenaediate appeal to the City
Council from 6aaaoa» of the hearinf officer should be eliminated. Although the
need fct an intermediate appeal from permit decisions to the City Council at one
time appeared neceuary, it now appears ihat due process requires only one
hearing prior to judicial review. This change •will efiounate delay
and will prevent Dry Council from being miinriarod with the large number of
appeals anticipated due to unplementanoti of iacreaaed regulations.
13
2. It is recommended tint the Chief of Police be required by ordinance to report to
the Mayor and the City Council, on a monthly basil, all violations of sexually
oriented buaineai regulations and related state laws, with respect to all licensed
faculties and licensed persons.
3. It is further recommended that the Legal Depattmeut, through the City Attorney,
should have authority to initiate all administrative actions regarding suspension or
revocation of any permit or license under the various ordinances. The city
attorney shaft execute a monthly report sununariang revocation actions filed,
currently pending or decided during the reporting period This authority currently
rests with the Chief of Police in his capacity as Director.
4. It is recommended that sexually oriented business permits involved in
administrative hearing or procedures regarding denial, suspension or revocation be
prohibited from being transferred to another entity during the pendency of the
administrative process.
5. It is recommended that the Chief of Pofice continue as Director under Ch. 28 of
the Code of Ordnance* &r purposes of permitting, investigation and enforcement
requirements, with the exception noted above that die Legal Department wiQ be
responsible for initiating administrative enforcement actions.
C. Land Use and Related Changes — Sexually Oriented Bust
Information from the Planning Department indicates that the present distance
requirements with respect to churches, schools and day care centers could be
substantially increased, perhaps to as much as 1500 feet from the present 750 feet,
and thai toe raduia for courffirtg residential tracts could be increased to 1500 feet
from the present 1 OOP feet, all without unduly ntirrirting availability of conforming
locations for sexually oriented businesses to operate. The Committee recommends
that these changes be instituted to protect such land uses from the adverse
-effects of SOBs.
It is recommended that muhj-famify dwellings situated on a single tract be
corwdered for additional protection under the residential teat Under the present
ordinance, a sexually oriented business may not operate at a location if 75 percent
or more of the tracts within a 1,000 foot radius of the business are residential in
character.
Although it nay not be possible to count each unit in a multi-fioiiily development
as a separate residential "tract" for purposes of the residential restrictions of the
ordinance, h is recommended that a ratio of eight single family tracts for each acre
14
5'fiP
of multi-family tract be considered to provide additional coruddentioo. for
protection of residential neighborhoods that include multi-finmly developments.
3. Signage restrictions under the present ordinance apply essentially only to single
use, freestanding sexually oriented businette* and am to "multi-tenant centers."
As » practical natter, this allows some sexually oriented business** to utilize large
fi'gnage and otherwise prohibited exterior decorations by the simple expedient of
incfajdrngtwoornroresmaBnoiVBexualtyorierrtedbua^
premise*. It is recommended that the signage and exterior appearance provisions
of the ordinance be strengthened to eliminate thii practice.
4. In keeping wnh the theo^ of fknaiy preservation, the (^^
inclusion of "pubtic park", and, if legally definable, "private parks" to the
protected land uses. Pubfic and expert wmiesses testified that the inclusion of the
was necenary to continue their rejuvenation. The tarm 'readential' shafl also
include anynni'mppTviprl tml 4«ff%r"»H fof W •pr»*Mttl papaams M rfmdrnfhl
by the Harris Q>ontyAapriiaal District In addition, it ihafl include any tract, that,
based upon the records of the i planning official has been aubdrvided or platted for
rrndrmial use, but that is not yeTdeagnated for tax appraisal purposes as
resraeutuu. .
5. The committee trconnnends that each anpficam . foflowiag the filing of the
*pptiration and payment of the ^^g fise, place signs at the premises intended as
.the site for the SOB (at least 24 inches x ^ inches in oza) dot provide notification
and nrfbrnvoibri specifically «a^g'^eniafly(>icntedBusine3aJ)erniit"
Application. PendingJ" ~^5ii.' •' -i." ' .
'* , ••-. •' •-3- - -' i-. -,il-S_'»i*'t ''..:' ;. .' _'
- " " —&~~- •• -' •'-s" • — : .-- '•.'*•" "••'.. . - • " ••- '*•
6. - The comiiiiaee reconuueiuia that each applicant give notice of the application by
;. .-. .publication at his own expense m two consecutive jaaocii of a newapaper'pufa&ahed "- '
and Opqationt -
1. The committee recoinniaida that all entertainers and managers of SOBa hold
permits issued by the vice division of the police department. The permit
•ppjtcatxm «h*fl include "«m^ t^Mr**^ date ofbirth, photo identmcattoa, a fiat of
criminal charges pending, convictions and time in jail Crones ^mtfying a. denial of
a ywi iiit are Grntttd to flflrnm r^Hf'g ti? rriranff^ tr"ti ^nmtntrt ««d ermnxal
actrvitiea known to be prevalent in SOBa. •'
15
COPY
~***f 2. The committee recommends the issuance of two photographic permits, a personal
card and an cm-site card. Each manager or entertainer shall conspicuously display
tea personal card upon hia person at all tiroes while acting as an enrntainer or
' of or in an enterprise. The on-site card ahaQ remain in the charge of the
on-atte manager of the enterprise to hold wage the manager or entertainer is on the
premises.
3. The cononitteerecoiniiien& that is shall be uniaw
customer or the dotting of a customer white engaging in entertainment or while
exposing any specified anatomical areas or engaging in any specified sexual
activities.
E. Amortization
Beginning in 1983, prior to the adaption of the current series of City regulations
regmrdhig sexually oriented buauieaiea, the Chy Council Committee studying the issue
concluded that the nature of the advene secondary vffixts produced by the operation of
scoiaQy oriented businesses ro^iM oniy be addirfifd by Trf"^11^ regulations against
costing businesses (i.«., "amortization1*), rather than allowing businesses existing at the
.time of the ordinance passage to exist essentiaffly in perpetuity (Le. "granTflathrring"). Toe
City Councii legislative report, which was subsequently adopted by the full Chy CouncO
concluded, "During the hearings, it became evident to the Conanittee that the problems
created by sexually oriented businesses had been allowed to persist for so long that mereiy
addressing the problem 'from here on out' would not be adequate. Prospective.legislation
•would do fittle or nothing to alleviate the current serious proWem caused by ousxne»e*
mlready existing. -The CouimittM therefore concluded that exJKing bii^nmes should
come under the ordinance; for this reason the'Comtnteee rejected grandftttiering of .
existing businesses ««f dgtwuiunnl tfw mn'i tir^itnti^mtiM be the appnapriate approach.'*
(Houston Chy Council^^on the Proposed Regulation of Scoalty Oriented Businesses
Report, December 1,1983, pg. 29).
rHua position was reconfirmed when the City Cound reviiiwd negulation of
sexuafiy oriented butinesaea in 1986 and 1991. Each sibaequent revision of the City's
sexually oriented business ordinances included an ajnc«tia«ic«ntt>visica^d«gnedtogrve
all *«'**"'g sflbcted sexually utieutd businesses an TT*rt'a^ sfac-ntomh period for
compGance, mdudtng relocation^ if necessary, "and art opportunity to justify an additional
extension for lawful operation before a heiring examiner appointed by tbe director under
the ordinance. Records of the amortization hearings indicate that many affected
businewes were atte to obtain extensions of up to 5 1/2 yean foflo wing the initial scx-
month compliance period. The avenge extension, historicaay. has been about 2 to 3
yean. The factors considered in granting additional extensions of time included:
16
(1) the amount of the owner's investment in the existing enterprise through
the date of passage and approval of the Ordinance;
(2) the amount of such investment that hu been or will be realized through
the 180th day following the efEecnve date of the Ordinance:
(3) the life expectancy of the existing enterprise;
(4) the existence or nonexistence of tease obligations, ts well ss any
contingency clauses therein pennittmg termination of such leases.
Amortization, as opposed to grandfatfacrihg, of existing sexually oriented businesses in
Houston was specifically upheld by the federal dtsoict court m tne c=« of 6IX/://^ V,
City of Houston. 636 F.Supp. 1359 (SXLTexT I9g6), affirmed «37F.2d 1268 (5th Gr.In
SDJ. the court held that "It is generally accepted that preexisting non-conforming uses are
not to be perpetual11 636 F.Sopp. at 1371; The Court noted that Texas follows the
generally accepted rule that nonconformraguses, subject to zoning or stmuar regulations,
•re not to be perpetual, and that amortization to allow for The recoupment of arw
in aa ending land use is an appropriate measure to balance the property owners* rights
Against the proper exercise of the City's pofice power to regulate mm-uiufinmnag uses.
See, «.y.. City of University Park v. Burners, 485 S.WJd 773 CTex. 1972).
"Gnmdfidhering" eaaentiaJly contemplates .-;?'•£
ptgrnoaea or land uae» following the paasage of aonaig or smajarkbd use ordmanrrx, ~~'s £
notwithstanding that such businesses or uses deaiiy violate the provisions "of the '^-'. - -V
ordinmGe.' The effect of "grandfathering" ia to continue such non-confcrnung uses r 'V jt
u^efinh^.aWiough new land uses nisybel^ '*±':%
mimberc^azrtnornieshc4dthate8*aW«hsd^ ' "' %'^}?
must be aQowed to continue the use, notwithstanding timntftrbr change m'owncrshJp. . ' : V .^
S«, S«^cuj 25-183 JOT McQuQlin, Mimicipd Corpo^ : 'J ^
^^be enforced sgainst the particalar property Wbusinessuse//^ While these luthontics
may not neoessarfly preclude teraanan'oa of noo-con&umuig rights npon Uanafig of .- -.-'
ownerao^ under Texas law, it uahog^herpossu^
oriented businesses could find -wmya to structure ssle of assets or. ownermip interests m~
such a manner as to perpetuate the entity "owning" the sexually oriented business to avoid
of Tiou-confiynung lights. In any svect, most ooo-cofltofnung sfxiiaHy
oriented busincsaes would Gkrfy enjoy the opportunity far s very teng continuation in
business .under sny "grandfittherouy scheme.
In contrast, amortization has been determined by the prevajaing majority of courts in this
country to be a reasonable means of accommodating the need to protect the public from
17
adverse land uses, while *t the same <inn; giving consideration to the rights of business
owners to recoup business investments, prior to feeing the «5ecta of a restrictive
ordinance The problem with "grandfathering" ia that it perpetuates oon-ccafbnning uses
for an indefinite period, thus preventing the effective exercise of the City's police powers
to protect its residents. Aa noted by the Supreme Court of Texas, "There are strong
po&cy arguments and a demonstrable public seed for the &ir and reasonable terminatioaof
non-conforming property uses which most often do not disappear but tend to thrive in
monopolistic positions in the community. We are in accord "with tfae principle that
municipal zoning ordinances requiring the tenmnaiion of non-cc^nmng uses under
reasonable conditions are within the scope of municipal police power. That property
owners do not acquire a constitutionally protected vested right in property uses once
i(fHiu)tfriwfcftfy\ anujflj f4««^ffii-fft'<7«^ pflCT tnadff. Otherwise, a lavfiil wxnltf *?ftih**
poficepowerbytbeo^venungbodyoftheGtywoiidbeprBchtded." City of University
farJcv. Seaners, supra, 485 S.W.2d at 778.
The adult bookstores and theaters that challenged the 1991 City of Houston sexually
oriented business amendments aa requiring then to change operation or rclnn^* daizned
in tin) pending &deral lawwh that the C^y -waa legally required to gnndraxher them at
their present locations!' The City has vigorously contested tWsconrjenrimi, which is not in
accord with the settled law[governing the matter. In additions, all prior City Council
canmitteea and City CouncOs considering «mri*»ri'"t<tiofl of new sexually oriented
•business ordinance revisions have concluded that amortization ia im's^nay to provide
protection to aQ residents of the City, while recognizing the ability of business owners to
remain n opera&aa :wntoifi reloca^
hu occisionalry experimented, on a small icale, wrA agnuc&theriag^ai the past, such.
provisions have been fiinited to relatively small numbers of businesses such as automotive
salvage yards.',lh .no such case haa trie City Council documented exteoarve adverse
secondary effects OTj9umwndu%neigfaby^ to this
Committee and prior City Council committees regarding tfae operation of sexually oriented
As a practical matter, the "grandfkthering" of existing sexually oriented businesses under
any proposed ordinance revision would allow such businesses to cc^rtinue to operate in
violation of riew regulanoM'Indefinitery. Hbwever/p«nona propoaiiig to operate new ;
sacuafly oriented bastne&se* would have to comply with the xuO force of more stringent
regulations, and residents and neighborhoods presendy ad^acertto easting sexiiafly .
orieoted busineoaea would have to essentially ove with me continuing eflects\>fsuch
busmesaes on their localities for an indefinite period. Whflc such a situation would not
rih/give rise to any legal cause of action on the part of such new businesses or
existing neighborhooda, the potential for the pen^ption of uneven treatment with respect
to the protected position of existing sexually orientad businesses is readily apparent.
18
Historically, the City's aroortizition program has significantly reduced the advene
secondary effects of sexually oriented businesses b a relatively abort time-frame, while still
terminating existing mritrxHuomiuig businesses tn a legally permissible fashion. Further,
the City's position in pending litigation involving amortization of adutt bookstores is best
served by maintaining an amortization policy consistent with patt practice, rather than
experimenting with grandfathering. In conclusion, although "graad&thering" remains
technically available as a legal option for implementation of proposed sexuaOy oriented
business amendments, h clearly posei significant legal and policy disadvantages, as noted
above. The Committee therefore recommends that existing SOBs rendered
noflconfonmng be allowed to recoup investment through an amortization process.
SECTION BY SECTION ANALYSIS
The Amended Ordinance incorporates a substantial number of procedural and
administrative changes that reflect ten yean of operating experience with the Original and two
Amended Ordinances snd a bfttw understanding of the ways in which *utfi'tv*ntf nt of the
ordinance could be improved. This portion of the Report briefly outlines on a section-by-section
basis the major changes that have been made and the reasons far those changes.
Section 28-81. P*^"^*ipflii General Comment. As a genenl matter, definitions in Section 28-81
have in many cases been reworded to conform more closely with definitions already used in other
municipal ordinances. In addition, "adult mini-theatre** hff been addfd throughout mis amended
ordinance.
Section 28-8 1 . DtffljtiffBii "^JBJt piini«tlieatie." In the previous Ordinance, no mention was
made of an "adult mini-theatre." This definm'on has been added to incorporate theatres iha are
hmaided for the viewing of five (5) to one hundred (100) patrons.
Section 28-81. Drf«jtiq*yt •"Man-theatre deyjce." In the previous Ordinance, no mention was
made of a "mini-theatre device." This definition has been added to incorporate any coin or slug
operated or electrically or electronically or mechanically controlled machine or device that
dispenses or effectuates the dispensing of 'entertainment, ' that is intended for the viewing of more
than five (5) persons but less than 100 persons mexchangc for any paymeatofany consideration.
It is not intended to include any conventional motion picture screen or projections that are
designed to be viewed in a room containing tier or rows of seats with a viewer seating capacity of
100 or more persons.
19
28-81. D^HtfelBi "Owner or owners." This definition his bean expanded to include
the major siorirholdon/controBcra of a corporation. Although requests cane in to fist all
stockholders, h does not require the disclosure of om-controlling parties.
Section 28-81. P^nitiom. "Spypifcd «n.il7**"7fll ar**|i5." In the previous Ordinance, no mention
was made of "specified anatomical area*" in this particular section. As a nutter of consistency
throughout the ordinance, h has been added here.
Section 21-92 (el Application. Theaduhccadeoraduhnmu-theatrepcnnitfeewBsestabfished
eleven years ago and analysis reveali that with the increase in administnaive costs, this figure is
no longer viable. Therefore, the incrcwe from $75.00 to J275.00.
Section 28-92 ffl. AflpKeafr?"i In tn effort to darirV the appBcatioo process, the submission of
the applicant must be submitted by hand defivery fay the intended operator. '
Section 28-92 fliV Application. Where a premise* is so configured and operated as to constitute
both an adult arcade and an adult mini-theatre, then die operator may apply for and obtain a
combined permit authorizing operation as both an aduh arcade and an adult mini-theatre.
28-93 fg), Tynan** or denial by polity chief For purposes of consistency throughout the
ordinance, the notice of issuance or dental of the permit has been expanded to twenty days with a.
possible extension totaling thirty days.
Section 28*93 (R). ^im'UKt y 'ilyittl fry PoHco chief! AD fees must be paid with either a, certified
check, cashier's check or money order.
Section 28-94. Term. Permit terms have been restructured to read as follows: "Each permit shall
be valid for a period of one (I) year and shall expire on the anniversary of its date of issuance;
unless sooner revoked, or surrendered. Each permit shall be subject to renewal as of its
cxpii^oa date by the fifing of a renewdappGcsdon with the pofice chief. Renewal applications
must be filed at least twenty (20) days prior to the expiration date of the permit that is to be
renewed and shall be accompanied by a fee of one hundred dollars ($100.00).
Section 2S-9S. flrt Transfer upon champ The original transfer fee was set over ten years ago.
The VHM dcfMBtinent ivcenuy analyzed the current costs for transfer. The transfer application fte
has changed to $100.00 to reflect these costs.
and "lewd conduct" have been added here to be consistent throughout this Ordinance.
Section 7?-99 fbV Appeals. "Secretary of the general appeals board" has been deleted and
replaced by "hearing officer" because it was determined that the transfer of this duty wiB
streamline the appeals into an efficient, professional, and impartial process. In the event it is not
20
ADULT
ENTERTAINMENT
BUSINESSES IN
INDIANAPOLIS
AN ANALYSIS 1984
ADULT ENTERTAINMENT BUSINESSES IN INDIANAPOLIS
AN ANALYSIS
Department of Metropolitan Development
Division of Planning
February, 1984 .
TABLE OF CONTENTS
SUMMARY AND RECOMMENDATIONS I
INTRODUCTION 1
STUDY METHODS 2
CRIME INCIDENCE 8
MAJOR CRIMES 9
SEX-RELATED CRIME 15
CRIME IMPACT BY AREA TYPE 22
REAL ESTATE IMPACT 27
PROFESSIONAL APPRAISAL OF IMPACTS 32
20% NATIONAL SURVEY 33
lOOt MSA SURVEY 39
APPEND!CIES
I. AREA MAPS l-l
II. SURVEY OF APPRAISERS II-I
III. LAND USE CONTROL OF IM-I
ADULT ENTERTAINMENT
f
SUMMARY AND RECOMMENDATIONS
During the past ten years, Indianapolis has experienced a signi-
ficant growth in the number and variety of adult entertainment
businesses located in its jurisdiction. An adult entertainment
business, for the purposes of this study, is an establishment
which primarily features sexually stimulating material or per-
formances. As of mid-1983 there were sixty-eight such businesses
operating in this City. They were located at forty-three separate
si tes.
The proliferation of these businesses heightened the community's
awareness of their existence and resulted In numerous requests
that the City control their presence. Beyond the moral objections
raised by many citizens, it was also alleged that such businesses
had a detrimental effect on property values and contributed to
high crime rates where they were located.
The Indianapolis Division of Planning undertook this study in
July of 1983. Of the existing adult entertainment sites, the
study examined six representative locations ( the Study Area }
and the presence - or lack thereof - of certain relevant condi-
tions therein. It then compared these sites with six physically
similar locations ( the Control Area ) containing no adult en-
tertainment business. Both groups of sites were compared with
the City as a whole.
Because of their importance to the public welfare of the commun-
ity, the study examined the factors of crime incidence during
the period 1978 - 1982 and real estate value appreciation from
1979 - 1982. In support of limited real estate data on a small
area level, the City collaborated with Indiana University in a
national survey of real estate appraisers to develop a "best pro-
fessional opinion" as to the effect of adult entertainment busi-
nesses on surrounding real estate values.
As discussed In Appendix 111 of this report, case law has firmly
established the' legal and constitutional basis for control of the
use of land within their jurisdiction by states and municipalities
in order to safeguard "the public health, safety, morals and gen-
eral welfare of their citizens". The "public welfare", in this
context, embraces the stabilization of property values and the
promotion of desirable home surroundings. On the other hand,
case law has also upheld the right of this business sector to
operate in the community under the First and Fourteenth Ammend-
ments of the Constitution.
In establishing an empiric base to determine whether controls were
warranted in order to direct the location of these businesses,
analyses of the data showed:
- The average major crime rate ( i.e., crimes per 10,000 ^f
population ) In the IPD District was 748.55, the Control
Area 886.34, and the Study Area 1090.51. Major crimes oc-
curred in areas of the study that contained at least one
adult entertainment establishment at a rate that was 23*
higher than the six similar areas studied not having such
businesses and 46J higher than the Police District at
large.
- Although it was impossible to obtain a discrete rate for
sex-related crimes at the police district level, it was
possible to compare rates between the Control Areas and
the Study Areas. The average sex-related crime rate in
the Control Areas over the five year period was 26.2,
while that rate for the Study Areas was 46.4.
- If the ratio of sex-related crimes was the same as that
established for major crimes between the Control Area and
the Study Area, however, we would expect a sex-related
crime rate of 32.3- The actual rat* of 46.4 Is 77t high-
er than that of the Control Areas rather than the 23* that
would be expected and Indicate* the presence of abnormal
influences In the Study Areas.
- Close examination of crime statistics within the Study
Areas Indicate a direct correlation between crime and the
residential character of the neighborhood. Crime frequen-
cies were 561 higher In residential areas of the study
than in its commercial areas.
- At the same time, sex-related crimes occurred four times
more frequently within residential neighborhoods having
at least one adult entertainment business than In neigh-
borhoods having a substantially district-related commer-
cial make-up having adult entertainment.
- Although the housing base within the Study Areas wes of
a distinctly higher value than that of the Control Areas,
its value appreciated at only one-half the rate of the
Control Areas' and one-third the rate of Center Township
as a whole during the period 1979 - 1982.
- Pressures within the Study Areas caused the real estate
market within their boundaries to perform in a manner con-
trary to that within the Control Areas, Center Township
and the County. In a time when the market saw a decrease
of 50t in listings, listings within the Study Areas actu-
ally Increased slightly.
II
w(
- As a result, twice as many houses were placed on the market at
substantially lower prices than would be expected had the Study
Area's market performance been typical for the period of time
in question.
- The great majority of appraisers (75)) who responded to a na-
tional survey of certified real estate appraisers felt that an
adult bookstore located within one block would have a negative
effect on the value of both residential (80%) and commercial
(72%) properties. 50% of these respondents foresaw an Immedi-
ate depreciation in excess of 101.
- At a distance of three blocks, the great majority of respon-
dents (71%) felt that the impact of an adult bookstore fell off
sharply so that the impact was. negligible on both residential
(641) and commercial (77*). At the same time, it appears that
the residual effect of such a use was greater for residential
than for commercial properties.
- In answer to • survey question regarding the impact of an adult
bookstore on property values generally. 50% felt that there
would be a substantlal-to-moderate negative Impact, 30% saw
little or no Impact, and 20% saw the Affect as being dependent
on factors such as the predominent values (property and social)
existing in the neighborhood, the development standards impos-
ed on the use, and the ability of an existing commercial node
to buffer the Impact from other uses.
While the statistics assembled and analyzed In this study should not
be construed as proving that adult businesses cause the negative im-
pacts illuminated herein, an obvious variable In each instance of com-
parison is-their presence. Crime rates - particularly those that are
sex-related - show substantial deviation from normal rates for this
population. Analyses of real estate listings and sales show a nega-
tively abnormal performance of the real estate market in areas where
adult entertainment Is offered.In this latter case, the best profes-
sional judgement available indicates overwhelmingly that adult enter-
tainment businesses - even a relatively passive use such as an adult
bookstore - have a serious negative effect on their immediate envi-
rons.
Consequently, it would seem reasonable and prudent that the City ex-
ercise Its zoning power to regulate the location of adult entertain-
ment businesses so that they operate in areas of the community that,
while accessable to their patrons, are yet located in districts that
are least likely to injure the general welfare cf residents.
r
IT IS, THEREFORE, RECOMMENDED:
- THAT ADULT ENTERTAINMENT BUSINESSES BE ALLOWED TO LOCATE IN
AREAS THAT ARE PREDOMINANTLY ZONED FOR DISTRICT-ORIENTED
COMMERCIAL ENTERPRISES - I.E., C4 OR MORE INTENSE USE
CATEGORIES.
THAT NO ADULT ENTERTAINMENT BUSINESS BE ALLOWED TO LOCATE
IN AREAS THAT ARE PREDOMINANTLY ZONED FOR NEIGHBORHOOD-
ORIENTED COMMERCIAL ENTERPRISES - I. E., C3 OR LESS INTEN-
SIVE USE CATEGORIES.
THAT EACH LOCATION REQUIRE A SPECIAL EXCEPTION WHICH, AMONG
OTHER CONSIDERATIONS, WOULD REQUIRE APPROPRIATE DEVELOPMENT
STANDARDS DESIGNED TO BUFFER AND PROTECT ADJACENT PROPERTY
VALUES.
THAT THESE USES NOT BE ALLOWED TO LOCATE WITHIN 500 FEET
OF A RESIDENTIAL. SCHOOL, CHURCH OR PARK PROPERTY LINE NOR
WITHIN 500 FEET OF AN ESTABLISHED HISTORIC AREA.
iv
7 •
I.
I
INTRODUCTION
As is the case in nose large cities, Indianapolis has experienced
a rapid growth in the number and variety of adult entertainment
businesses over the past ten years. As of June, 1983 there were
sixty-eight such businesses located singly and in clusters through-
out Marion County.
For the purpose of this study, the term "adult entertainment busi-
ness" is a general term utilized to collectively designate busi-
nesses which primarily feature sexually stimulating material and/
or performances. These non-exclusively include adult bookstores,
adult cabarets, adult drive-in theaters, adult mini motion picture
theaters and arcades, adult entertainment arcades and adult ser-
vice establishments.
These enterprises have posed a particular problem due, in part, to
the moral implications attendant upon such businesses in the minds
of many members of the community. While this is, perhaps, the view
of the majority, case law on the subject has clearly established
that the exclusion of such businesses from a community is an in-
fringement of First Amendment rights. The proliferation of such
businesses providing various forms of adult entertainment In Mar-
ion County has exacerbated this dilemma and given rise to addition-
al charges of negative impacts on neighborhoods in proximity to
their location.
Through the use of their zoning power, cities have within the past
half century directed the physical growth of communities in order
to assure a harmonious blend of land uses which foster the general
welfare of the population. This power has been applied more recent-
ly to adult entertainment businesses in many communities and has
served as a prime means of controlling possible negative impacts
on neighborhoods.
This study was undertaken to examine these alleged negative impacts
with the purpose of empirically establishing, to the extent poss-
ible, their existence or non-existence as well as their real di-
mensions in Indianapolis. The possible relationships between these
impacts and the land use characteristics of the sites in which they
are offered were also examined to ascertain whether certain land
use classifications were better suited than others for the loca-
tion of adult entertainment businesses.
STUDY METHODS
As described below, the study methodology employs the comparison
of different land areas in Indianapolis. The two basic areas of
comparison are Study Areas and Control Areas. They are distin-
guished by the existence of adult entertainment establishments
within their boundaries { the Study Areas } or the absence there-
of ( the Control Areas ).
These two designations are further differentiated as to the gen-
eral purpose or emphasis of the land uses they contain. Those
that generally serve the immediately surrounding residential uses
are termed "Neighborhood-Re lated" while those that contain uses
meant to serve a broader geographic area are designated "Commun-
ity-Related".
STUDY SITE LOCATIONS
At the time of the study's inception, there were at least forty-
three possible, distinct sites in Indianapolis where adult enter-
tainment was offered either singly or in clusters of establish-
ments. For manageability purposes, it was decided to select six of
these sites that were representative. In choosing these subject lo-
cations (as well as the Control Areas of the study),the determinant
characteristics were their zoning mix, population size and the
relative age of housing stock. In each case, adult entertainment
was offered during the time span of the study.
The selection process was additionally based on the number of es-
tablishments located In a given neighborhood, whether It was resi-
dential in nature and therefore neighborhood-related, or contained a
significant portion of its land use in regional, commercial uses
which made It community-related.
The designation "Neighborhood-Related" was applied where a prepon-
derance ( 75* or more ) of the area within 1000 feet of the site
was zoned 01 through 012 ( residential dwelling district classifi-
cations ) and the commercial areas were neighborhood-related - prin-
cipally C3 ( a neighborhood commercial classification ). Special
Use designations were judged to be neighborhood-related or not on *n
individual basis. SU1 (church) & SU2 (school), for example, were
judged to be generally neighborhood-related.
"Community-Related" areas were described as areas where a signifi-
cant proportion (301; or more) of the zoning within the 1000-foot
radius was Ck ( Communlcy-Regional Commercial ) or more intense and
the Special Uses within the boundaries were of a community-wide na-
ture. SU6 (hospital) and SU21 (cemetery) were judged, therefore, to
be related to the community generally.
Within these two broad classifications, six locations were chosen.
Two of them were situated in residential settings, two in re-
gional-commercial settings and two in areas that fell in between,
i. e., areas that had a high percentage of residential zoning but
also contained a certain proportion of regionally oriented com-
mercial zoning. These six locations became the Study Areas of
this investigation, (cf. Appendix I)
r
SITE
Residential
East 38th St.
2.3155 East 10th St.
Com I ./Residential
3.3555 West 16th St.
4.2101 V. Washington
Commercial
AREA ZONING CHARACTERISTICS
STUDY AREAS
CHARACTERISTICS
5.6116 E. Washington
6.4441-63 N. Keystone
Residential
04-821
05-75*
05-78%
05-60*
05-65*
06-5*
05-15*
Commerciar
C1-7*
C3-8*
C3-24*
C4-22*'
C>3*
C4-18*
C4-30*
C2-5*
C3-10*
C5-40*
Special
SU1-3*
SU9-1*
SU2-17*
*•
MU-12*
120-13*
Parks
-
PK1-2*
•»
PK2-5*
Of the two sites chosen In residential areas, on* contained an
adult bookstore (Apollo Adult Books, 5*31 East 38th St.) and a
massage parlorfEw's Garden of Relaxation, 5429 East 38th St.)
The other residential location contained an adult Movie house
(Rivoli Theater, 3155 East 10th St.) and a topless bar (Ten-De
Club. 3201 East 10th St.)
One of the commercial/residential areas had a topless bar within
its boundaries (Blue Noon Saloon, 2101 West Washington), while
the other harbored the White Front Bar which featured topless
dancing (3535 West 16th St.)
The two commercial areas chosen were In the sixty-one hundred
block of East Washington St. and the forty-four hundred block
of North Keystone. The first site contained two adult book-
stores (Modern Art Bookstore at 6118 and Adult Arcade at 6122)
and a message parlor (Spanish Moon at 6116.) The North Keystone
location contained four massage parlors (Other World, 4441,
Diamond's Angels, 4445, Pleasure Palace, 4461, and Town and
Country, 4463), two adult bookstores (Video World, 444? and
Adult Bookstore, 4475) as well as a topless lounge (Devil's l
\D
r
Hideaway. 4451).
Six areas were a.lso selected to serve as control sites for the
study. These sites were chosen on the basis of their proximate
location to the Study Areas (or their location on major thor-
oughfares in areas physically similar in location and types of
development), size of population and zoning characteristics.
None contained adult entertainment businesses. Selection was
also made so that two of the sites were in predominantly resi-
dential areas, two in commercial areas and two in areas that
contained a significant mix of residential and regional com-
mercial zoning. These six sites became the Control Areas of the
study, (cf. Appendix I.)
SITE
Res i den t i a I
1.2300 West 10th St.
2.2500 East 10th St.
Com]./Residential
3.5420 E. Washington
4.2600 W. Washington
Commercial
AREA ZONING CHARACTERISTICS
CONTROL AREAS
CHARACTERISTICS
5.5200 14. Keystoo«
6.750 N. Shade Iand
Residential
05-82*
05-801
05-62%
D6-8X
08- 10*
05-35*
04-3^*
02-7*
04-2*
05-15*
07-6*
02-3*
03-15*
07-1*
Commercia
C1-4*
C3-14*
C2-12*
C3-8*
C3-1*
C4-19*
Cl-2*
C2«1*
C5-13*
C7-8*
C1-4*
C3-9*
C5-25*
C7-20*
CS-2*
C4-49*
C5-10*
CS-5*
Special
-
SU1-3*
SU2-3*
11U-10*
SU1-15*
Parks
-
-
-
r
AREA ZONING CHARACTERISTICS
NEIGHBORHOOD-RELATED COMMUNITY-RELATED
Residential
Study Area
1. 100)
2. 99* It
Control Area
1. lOOt
2. 100t
Cornl./Residential
Study Area
3. 78t 22t
4. 82t I8t
Control Area
3. 8lt 19*
k. 78t 22t
Commercial
Study Area
5. 70t 30t
6. 35t 65t
Control Area
5. *3* 57t
6. 36t 64*
STUDY SITE COMPARISONS
Throughout the following analyses, a scries of comparisons are
made at several different levels of geography: i.e., County/
Police District; Census Tract/Census Tract Cluster; and Control/
Study Area.
Large Area
When dealing with crime statistics, the Indlanpolis Police
Department District is used as the largest universe of com-
parison. In the case of real estate Information, Marion
County is used as the largest geographic area of comparison.
Center Township is also used as a basis of comparison in
the analysis of adult entertainment impacts on property
values
Mid-Size Area
Intermediate geographic levels used for comparison in the
study were census tracts when study sites were centrally
located within their boundaries. Where they were not, those
census tracts in proximity to the site were chosen as the
basis of comparison.
CENSUS TRACTS/TRACT CLUSTERS
Study/Control Areas
1 2 3 4 5 6
Control Areas pTTT 3527 36lT 3417 32l6~ 36bT
2416 35*7 3612 3426 3217 3607
35*8 3608
Study Areas 3310 3526 3*11 3*14 3607 3216
3601 35^8 3*26 3224
3549 3538 3225
3226
Sub-Area
The Control Areas and the Study Areas, as described above,
formed the smallest geographic group of the study. These
target areas were constituted using the criteria listed
in the previous section of this report and data derived for
them by aggregating block-level or addressed data within
a 1000-foot radius of the area centroid.
f
I
• Study Area
O Control Area
1980 CENSUS TRACTS
ADULT ENTERTAINMENT BUSINESS STUDY
CRIME INCIDENCE
The Data Processing Unit of the Indianapolis Police Department
performed two computer runs of their "Incidence Files" ' in August
of 1983 at the request of the City Division of Planning. The re-
sultant printouts detailed all reported incidents to which po-
lice had been dispatched in the Control Areas and the Study Areas
during the years 1978, 1979. 1980, 1981 and 1982. Data were assem-
bled from these printouts on a year-by-year, area-by-area basis.
They were then grouped by Major Crimes2 and Sex-Related Crimes.3
Summary data for the Indianapolis Police District were also assem-
bled for major crimes during the years 1978 through 1982. Unfor-
tunately, sex-related crimes had not been discreetly assembled
for the Police District and study constraints would not allow
their tabulation manually.
The purpose of these tabulations was to identify any possible
abnormalities that might have occurred In expected frequency and
nature of crime between the Indianapolis Police District, the
Control Areas which were chosen for their similarity to the
Study Areas and the Study Areas themselves in which adult enter-
tainment establishments were In operation.
As was demonstrated in the previous section, the Study Area loca-
tions were chosen as being representative of existing adult en*
tertalnment sites in zoning mix, size of population, age of hous-
ing stock and types of adult entertainment services offered in
the area. Excepting the latter, these same criteria were used in
the choice of Control sites. Because they were representative,
it is possible to compere Control and Study Areas as well as in-
fer findings to other adult entertainment locations in the com-
mon i ty.
Based on the summaries of crimes, crime rates were computed for
each area using 1980 Census data as the population constant. *
The crime rate statistics portrayed the frequency of crime in
each area for each 10,000 of population and allowed direct com-
parison of crime impacts between the three areas. The same tech-
nique was used to compare the magnitude of sex-related crime in
the Control Areas and the Study Areas.
MAJOR CRIMES
The crimes of Criminal Homicide, Rape, Robbery, Aggravated
Assault, Residence and Non-Residence Burglary, Larceny and
Vehicle Theft are reported on a monthy basis by the Indian-
apolis Police Department as Major Crimes. During the period
of this study ( 1978 - 1982 ), there were 175,796 major crimes
reported in the IPO District with an annual high of 37.220
occuring in 1980. The crime rate for this year was 792.42
in the police district.
This represented an increase of 2,115 major crimes over the
previous year total and an increase of 6) in the crime rate.
The lowest annual total in the study period ( 33,898 ) was
reported in 1981 which represented a drop of lOt In the
crime rate from the previous year.
f
Indlanapolla Potfca Dlatrict Major Crimaa/Rataa
1978-1982
Population- 4M.700
wa 1*7*1M1
TV/I.**M/1.M
•Jobbery 1M3V41.7*
Aeerwctee'
t1§4/4«w71
ia>4/»aj< 174V97.11
•MAV1M.11
•watery ma/ao.»a
1«Ma^«74« 1M27/40244
77M/1M.7O
ttia/47.1t
17497/37U1
V«Mch>Tfceiu tttt/u.1*
Tetek *4e*7/74i.«a
TeMOrtmet iTeVTM
Per lOuOOO
8
r
Over the same period of time, the Control Area for this study
had 5J70 major crimes committed within its boundaries - the
highest number occurring In 1980 when 1,099 crimes were re-
ported. The crime rate for this year was 9*»2.05 in this area.
This is compared to the lowest total of 912 and a crime rate
of 781.76 for 1978. This represented an absolute difference
of 187 total major crimes and a difference of 21* In the crime
rate ( 160.29 ).
Control Area Major CrinwB/Ratt** 1978- 1982
Murdar
Rape
ftofetoery
Aggravated
Aaaeutt
Maaidence
Burglary
Non-RaaidancaBurglary
Lareany
VaMelaTheft
Tout
••w 10400 ^opU
1676
1/046
6/646
67/31.72
16/1646
161/126.42
71/6046
464/41448
141/12046
812/781.76
letat
1678 1660
4/3.43 3/247
12/1O46 16/1246
44/37.72 44/37.72
36/30.00 26/2446
226/166.30 262/22446
60/4246 62/63.18
644/46641 874/4S2.OS
112/68.01 110/6449
1430/662.81 1466/64246
1661
6/446
6/646
60/4246
60/28.72
272/233.16
66/6047
AaWI/fUVA Ait
83/71.16
1662
2/1.71
13/11.14
36/30.66
67/31.72
166/166.72
76/67.72
678/43641
80/77.16
1.066V63643 1434^6644
Tetat 6.170
Averaga: 66644
During th« period 1978 - 1982, 4,657 major crimes were committed
in the Study Area. As In the IPO District and the Control Area,
the greatest volume of major crimes ( 1,103 ) occurred in 1980
which had a crime rate of 1,291.^2. The fewest number of crimes
in the study's time frame was 867 In 1978 which represented a
differencial In the total number of major crimes reported and
the rate of crime of -236 and -276.32 respectively from 1980
17
Study Araa
tera
Major Crlmaa/Rataa* 1978-1982
tPopUatkxr-6441)
1641 1*12
12/1444
63/6244
2/244
11/19
o/-
4/1044
24/30.44
Aggravated
ftMWane*
Burglary
Non-ftMMeflMBurglary
Larceny
VeMcto
Tlwlt
M/C4.4O
aevta.27
161/14640 200/234.17 244/26546 160/222.46
44/81.62
442/64042
46/76.10 44/7443
460/62647 * 664/466.10 640/466.66 444/64344
60/10647 100/11744 77/M.19
•Mr 10400
Totat 447/1016.10 641/103140 1103/1241.42 431/1040.04 476/1024.47
Totat 4.667
Av«rag« 10*aS1
r
Th« frequency of crimes In th« IPO District, the Control Areas and
the Study Areas showed approximately the sane pattern. In each of
the areas, the number of major crimes Increased from 1978 to 1980
when they peaked. Subsequent years showed frequency levels below
the 1980 high.
The average crlne rate figure for the Indianapolis Police Depart-
ment District was 7*8.55. The Control Area had a rate that was
137.79 higher than the overall police district, whereas the Study
Area was .204.17 points higher than the Control Area. In other
words, people living In the Control Area of the study were ex-
posed to a major crime rate In their neighborhoods that was 18}
higher than that of the IPO population generally.
Residents of the Study Area, however, were exposed to a major
crime rate, that was 233 higher than that of the Control Area and
463 higher than the population of the IPO District as a whole.
c
10
C
Major Crime Rate* 1978-1982
•WMT IKHfflHPCO IT
>Y
iro outrict —
Control Ar«a — •
•tudy Araa
1800
1300
11OO
hoisj k
80O
TOO
600
1031.8
•42.1 •99.9
1024.5
•86.3
739.8
1978 1878 1880 1881 18«2
*Th« miiMrie*l iMtanc* of CrimlMl Homlckto. Rap*. Mobbory. Ag8rtv«t«d Assault. Noaldonc*
•urglary. Non*fte«ldonc« 8urolary. Larceny and Vohleto Thott- p«r 10.0OO Population.
11
It is interesting to examine crime rates within the Control
and Study Areas In relation to the land use characteristics
of th« locations In which they occurred.
Crime rates provide a better understanding of actual impact
on the resident of the area than crime frequencies in that
they establish a ratio of crime to each 10,000 of popula-
tion. In this way, they tell us just how vulnerable a neigh-
borhood is historically to crime within Its boundaries.
r
1.
2.
3.
k.
5.
6.
Studj
2!
3.4.
5.6.
1978-1982 ANNUAL AVERAGE MAJOR CRIME RATE
BY LAND USE
Commercial Com)./Res.Residential
Pop./Cri me/Ann. Rt Pop./Crime/Ann.Rt. Pop./Crime/Ann.Rt.
379 240 1267
523 11*7 4386"535" T387 3075
2828 837 592.
2382 70S 592
"5210 754T 592
2159 1173 1087
1067 629
2256" 807
219 439 '(009
831 13651218 831 I!
T537 T270" 1768
1015 834 1643
1203 653 1086
27TJ
3656 1232 674
1230 668 1086
1550" 778
Accordingly, we find that this Impact Is 741 higher In dis-
trict commercial areas of the Control Area than similar dis-
trict commercial areas of the Study Area. However, while the
rate Is approximately the same In the residential areas of
both, the Study Area exhibits a crime rate that is 127* high-
er than the Control Area In locations that are mixed district-
commercial and residential In nature.
12
1978-1982 Annual Averag* Major Crlrn* Ratal*: Mtettd Ar«a«
Total Aroa Coot. Com!./
Itaa.
ROM Total Ar««
Control
CoaM. Coffll./ Baa.
Study Aroa •
*Ptf 10.0OO Population
SEX-RELATED CftlHE 3
Crimes of Rape, Indecent Exposure, Obscene Conduct, Child Mo-
lestation, Adult Molestation and Commercial Sex were segre-
gated and then aggregated from police printouts of total crime
incidence occurring within the Study Area and the Control Area
for the period 1978 - 1982. A total of 153 sex-related crimes
was reported in the Control area during this period, with a high
of 39 having occurred in 1979. During the same period, the Study
Area experienced 198 sex-related crimes, reaching a high of 52
in 1981.
r
Control Area Sex-Related Crtme»/Rate»*1978-1982
a
7
e
•
a
e
ia
10
t
10
a
1
a
4
a
ia
a
a
i
e
it
4
1
It
a
e
tS/1*.T tO/M.7
tta
Study Area S«x-ftalate4 Crimea/Rate* *197«-1M2
11
tt
a
t
a
i
tt a
a
w/iB.4 44/tt*
Sex-Related Crime Rate* 1978-1982
•o
e<
•o
40
38
30
28
20
10
80.4_ --
33.4
24.8
Control Ar••
8ttidy Ar•*
k«0.8
»8.t
40.6
27.4
1878 187t 1880 1881 1882
* Tho numeric*! ln*t*flc« of H«o«. In4«e«nt Exposur*. Obae«n« Conduct. ChiM Mol«statlen. Adult
MotoMation and Comm«re)«l S«>- fmt 1O.OOO
IS
Whereas sex-related crime rates in the Control Areas varied
from a low of 19.7 In 1978 to a high of 33.k in 1979, th«
Study Areas increased from a low of 22.3 In '978 to its peak
of 60,9 <n 1981.
The average sex-related crime rate in the Control Area was
26.2 over the five year period. The rate in the Study Area
was approximately-77% higher than this average during the
same period of time at 46.k.
Comparing the crime rate for sex-related crimes by land use
categories in the Control and Study Areas, a different pat-
tern than that for major crime rates emerges.
Area
Control
1.
2.
3.
4.
5.
6.
Study
1.
2.
3.
A.
5.
6.
1978-1982 ANNUAL AVERAGE SEX-RELATED CRIME RATE
BY LAND USE
Commercial Com 1. /Res. Residential
Pop. /Crimes/Ann. Rt. ~?op. /Crimes/Ann. Rt. Pop. /Crimes/Ann. Rt.
379 2 11
_5il 7 27
902 J 20
2828 35 25
2382 29. 2*
S2lo" W 25
2159 *»9 453395 29 17
fflt-Tf 28
219 5 46
1218 23 38
1*17 ~2& 39
1015 38 75
imr 70 63
3656 69 38
1230 31 50 1TOSTHoTT 41 1
1
16
1978-1982 Annual Avarao* SwHtotoUd Crlm« RaU.*: SalecUd Areas
*P«r 10,000 Population
17 ^<
Whereas major crime rates were similar in residential areas of
the Control and Study Areas, the Control Area rate was substan-
tially higher in district commercial areas and lower in mixed
district commercial/residential areas, in contrast to this, the
sex-related crime rate was uniformly higher in all land use cate-
gories of the Study Area, ranging from +46i in residential areas
to +152$ in district commercial/residential areas.
SUMMARY OF FINDINGS
Both the Control and the Study Area experienced a sig-
nificantly higher incidence of major crimes/10,000 population
than the IPO District as a whole. Much of this increase
would be expected given their location in generally older,
less affluent and more populous areas of the city.
It is more difficult to explain the distinctly higher crime
rate experienced in the Study Areas as compared to the Con-
trol Area - 1,090.51 versus 886.3A.
This dicotomy Is even more apparent in the Instance of sex-
related crime rates In the two areas. The average sex-related
crime rate in the Control Areas was 26.2. The Study Areas had
an average rate of 46.%*
If the same ratio between the Control and Study Areas estab-
lished for major crime during this period were applied, we
would expect a crime rate that was 232 higher - or 32.3 " In
the Study Areas. The actual rate of 46.4 is 11% higher than that
of the Control Area and underscores a distinct departure from
the expected. Not only Is the rate substantially higher In
the Study Area, but It Is twice the rate that would have been
expected from the distribution of crimes generally tn Indiana-
polls.
The anomalies demonstrated In the comparison of the Study
Area with the general population and the Control Area will not.
In themselves, establish a causal relationship between Adult
Entertainment Businesses and the crime rates tn the Immediate
area surrounding them. Tna fact does remain, however, that In
each subsection of the Study Areas where adult entertainment Is
offered a substantially higher sex-re lated crime presence ob-
tains over the corresponding subsections of the Control Area,
in which no adult entertainment Is offered. The same Is true
regarding the rate of major crimes.
r.
18
f
In areas chosen for their similarities otherwise, an obvJous
difference lies in the presence of one or more adult enter-
tainment establishments.
19 27
FOOTNOTES
1. The Incidence File is a computerized listing of all reports
made by police after initial investigation of an incident
to which they were dispatched. It, therefore, provides a
more reliable indication of crime incidence than the com-
puterized "Police Run" file which logs police dispatches
based on preliminary information on the incidents.
2. Criminal Homicide, Rape, Robbery, Aggravated Assault, Resi-
dence Burglary, Non-Residence Burglary, Larceny and Vehicle
Theft.
3. Rape, indecent Exposure, Obscene Conduct, Child MolestatIon,
Adult Molestation and Commercial Sex.
k. Since population estimates were not available for each year
of the survey, the 1980 Census figures were used because they
were the result of an actual enumeration and, falling at the
mid-point of the survey, they would tend to balance out popu-
lation trends during the five year time span.
5. Sex-related crimes are not isolated and compiled on a routine
basis for the IPD District as a whole. A manual compilation
of these data was proscribed by the time limitations of the
study.
20
r
IMPACT BY AREA TYPE
As it will be noted, sample size poses a distinct problem when
attempting analysis at the small area level. This is particu-
larly true in the instance of mortgage information. Due to
this inadequacy, it is impossible to compare the impact of
adult entertainment businesses on residential property value
below a certain level of geography.
This is not the case, however, with crime statistics. In this
case it is possible to compare sub-areas of the target areas
since the comparisons are based on the actual instance of crime
in the area ( unlike mortgage data where average value Is the
basis of comparison.)
The sub-area comparisons were based on the nature of the areas
in relation to their land use composition as determined by the
Comprehensive General Land Use Plan of Marion County. Four sub-
areas were of a distinct regional commercial nature, four were
residential In nature and four were of a mixed residential-
commercial makeup.
The three groupings were compared with each other to determine
if crime, from a historical viewpoint, occurred more frequent-
ly in areas of one land use configuration than another.
Whether or not crime frequencies, at least In part, are deter-
mined by the land use characteristics in which they were com-
mitted cannot be definitively answered here. Several striking
patterns do emerge from th« comparison, however.
CRIME FREQUENCIES BY AREA TYPE
Of the 9,829 major crimes committed In the Control and Study
Areas during 1978 - 1982, 27* were perpetrated in regional com-
mercial areas, 31* in mixed commercial-residential areas and
J»21 in predominantly residential areas. In other word*, crime
frequencies were 563 higher In residential areas than commer-
cial areas while mixed commercial-residential areas were 37*
higher than commercial areas.
The following tabfc displays major crime frequencies for the
five year period by type of area, the existence or non-exls-
tance of adult entertainment and specific location.
21
MAJOR CRIME FREQUENCY f
1979 1980 1981 1982 Tot. %_
District Commercial
Study Area
No, .Keystone 83 71 112 87 86 439
E. Washington 150 1$2 202 166 141 831
1270"~2lT "HI ITT 293 III
Control Area
No. Shadeland
No. Keystone
Mixed Res./Com!.
Study Area
W. Washington
West 16th St.
Control Area
W. Washington
£. Washington
Residential
Study Area
East 10th St.
East 38th St.
Control Area
East 10th St.
West 10th St.
42%
The pattern Mas similar in comparison of the frequency of sex-
related crime within the three areas during the same period of
time. It was more pronounced, however. Fifty-one percent of the
total occurred In residential environments, while thirty-eight
percent occurred In mixed commercial-residential areas, in com-
parison , only eleven percent of the total occurred in dis-
trict commercial areas.
The following table displays sex-related crime frequencies for
the five year period by type of area, the existence or non-exis-
tence of adult entertainment and the individual locations inclu-
ded in the study.
22
3
District Commercial
Study Area
No. Keystone
E. Washington
Control Area
No. Shade land
\o. Keystone
Mixed Res/Coml.
Study Area
W. Washington
West 16 St.
Control Area
W. Washington
E. Washington
Residential
SEX-RELATED CRIME FREQUENCY
1378 1979 1980 19811982 Tot... %
Study Area
East 10th St.
East 38th St.
Control Area
East 10th St.
West 10th St.
These trends are not easily explained on the basis that "where
there are more people there will be more crlfne."Community-rela-
ted commercial areas draw clientele from a broad geographic area
and can be expected to attract many times the residential popu-
lation of the Immediately surrounding area. This is the purpose
of the district commercial zoning designation. Further, the trans-
ient nature of this population could be considered to contribute
to the incidence of certain crimes.
23
Major Crimes / 1978-1982, Selected Areas
r.Commercial
Study
Control
Residence/
Commercial
Study
Control
Residential
Study
Control
2657
4140
1000 2000 MOO 4OOO eooo
Sex-Related Crimes / 1978-1982, Selected Areas
Commercial
Study
Control
Residential/
Commercial
Study
Control
Residential
Study
Control
37
134
100 200 200 300
25 33
SUMMARY Of FINDINGS /
There appears to be a strong correlation between crime frequency
and the residential character of neighborhoods, i.e., the more
residential the nature of the neighborhood, the greater is the
instance of crime in that neighborhood. Crime frequencies Mere,
in fact, fifty-six percent higher In residential areas than dis-
trict commercial areas.
The above correlation is even more acute when considering sex-
related crimes. Sex-related crimes occurred four times more fre-
quently in substantially residential milieus having one or more
adult entertainment businesses than in commercial environments
having one or more such businesses.
REAL ESTATE IMPACTS
This study also undertook the quantification of possible effects of
the proximity of adult entertainment businesses on the value of
residential properties within a one thousand foot radius of their
locations.
In examining the potential Impacts, three sources of residential
property values were investigated: I.e., Indianapolis Residential
Multiple Listing Summaries (MLS) of the Metropolitan Indianapolis
Board of Realtors, the I960 Census (tract and block occupied,
single-unit housing valuation data); and, annual lending Institu-
tion statements under the Federal Home Mortgage Disclosure Act (MOA).
Summary data from the MLS were available over the period 1979 -
1982, while actual mortgage values reported by lending institutions
were available for the period 1977 - 1982. The U.S. Sureau of the
Census provides homeowner estimates of home value at the time of
the 1980 Census (April 1, 1980).
The data available from these three sources differ In other ways.
The 1980 Census, while relying on homeowner estimates of the worth
of property, Is a 100 percent survey and Is described down to the
block level. Home Mortgage Disclosure Act data provide a record
of actual mortgages processed and reported by local 'lenders (only
a portion of the total volume). The lowest geographic level at
which this information Is available Is the Census Tract and, even
at this level, at times poses a difficulty with the available
sample size. Multiple Listing Summaries generally reflect an esti-
mate of worth based on current market conditions for the area and
can be assembled at virtually any geographic level since they are
listed by address. As in the case of the Mortgage Disclosure Act
statements, however, there are at times problems with the suffi-
ciency of the sample size at the small area level.
Each of the data sets presents some weaknesses. Although the 1980
Census only reflects an estimate of housing value at one point In
time, it has the advantage of being a 100 percent survey of occupied,
single-unit housing. The other two sources offer time series data
over periods of four and five years. They have the liability, how-
ever, -of sometimes lacking a sufficient sample size at the small
area level In any given year to allow an acceptable level of statis-
tical confidence.
Due to these characteristics of the data, certain modifications
were made In the study's original Intent. Rather than doing annual
comparisons of housing value, 1979 was cho*«n as th« comparison
year and the 1980 Census data set chosen due to the ability to
summarize It at the county, tract and block level.
ssr
The geographic levels of comparison were the County as a whole,
the Census Tract or Tract cluster In which the Study or Control
Areas ^ere located and the areas within a 1000-foot radius of the
Study and Control location centroids.
A next step was to use the data available on real estate activity
in the Multiple Listing Summaries to establish market performance
between 1979 and 1982 in both the Control and Study Areas.* The
results were compared to real estate activity In the residential
market of Center Township which, In terms of value and general
housing condition, most close! y resembles the two areas among the
nine Marion County townships.
COMPARISON RESULTS
AVERAGE MORTGAGE VALUES - 1973
Marlon County1 $ 41,85*
Control Areas Study Areas
Tract/Tract Clusters1 $31,858 $28,003
I Tract/Tract Clusters2 1 [ 27.872] [ 21,605]
1000-Foot Radius1 23,721 24,616
{ 1000-Foot Radtus3 ] [ 16,038 J { 23,823 ]
1. Source: 1980 Census.
2. Source: Home Mortgage Disclosure Act Statements.
3. Source: Residential Multiple Listing Summaries.
Comparison of the 1980 Census data would Indicate that the*value
of housing In the areas addressed In this study are from 40 to 73
percent below the Marlon County average. While the average value
of housing at the census tract level was somewhat higher fn the
census tracts In which the Control Areas were located than those
In which the Study Areas were located ($31,858 vs. $28,003), the
opposite was true when comparing the target areas themselves.
Housing values within 1000 feet of adult entertainment businesses
In the Study Areas were greater (although by a lesser Margin) than
those in the Control Areas ($24,616 vs. $23,721).
* Whereas the sample size Is sufficient In most years to provide
acceptable confidence levels for mortgage averages, the sample Is
only marginally acceptable In 1981 and 1982 for the Control Area. 4
28
c
This finding Is borne out by an examination of actual mortgages
executed within the affected census tracts of the Control and
Study Areas, as well as real estate listings at the 1000-foot
level.
Using mortgage and real estate listing data we find that, while
consistent with the Census data findings, the disparities were
more acute. Average mortgages at the tract level were $27,872 vs.
$21,605 In the Control and Study Area tract clusters respectively.
At the 1000-foot level, real estate listing values in the Control
Areas dropped to $16,038 while Study Area listings Increased by
approximately 10 percent over the average mortgage value in the
tract clusters of the Study Area.
it would appear that, while property values at the tract cluster
level are appreciably higher surrounding the Control Areas,
housing within the Study Areas themselves Is, on the average, of
distinctly higher value than housing stock in the Control Areas.
TIME SERIES ANALYSIS RESULTS
During the period 1979 through 1982, mortgages processed in the
Control Areas of the study showed an average annual appreciation
rate of +24.7 percent. During the same time frame, mortgages
appreciated at an average annual rate of only +8.7 percent In the
Study Area. In comparison, residential mortgages In Center Town-
ship appreciated at a +16.7 percent average annual rate for the
period.
AVERAGE MORTGAGE VALUES
1979 - 1982
1979-1982
1979 1980 1981 1982 > Change
Control Area1 $16,038 $21.687 $22,650 $28,420 + 77*
Study Area1 23,823 25,432 30,964 30,090 + 26%
Center Township2 16,100 17,178 18,903 25,099 * 56*
1.Source:Indianapolis Multiple Listings for Residential Prop.
2.Source:Home Mortgage Disclosure Act Statements.
29 37
MORTGAGE VALUES
% Change From Base Year (1979)
r
Center Township
5tudy Area
Control Area
1379 1980 1982
REAL ESTATE LISTINGS
% Change From Base Year (1979)
Center Township
Study Area — -
Control Area —
-100
1973
30
The average value of mortgages from 1979 to 1982 (n Center Town-
ship increased by 56 percent while Control Area values Increased
by 77 percent and the Study Area by 26 percent.
RESIDENTIAL REAL ESTATE ACTIVITY
1979 - 1982
1979 I960 1981 1982 ^Change
Control Area Listings1 29 23 15 15 - 52*
Study Area Listings1 28 28 26 29 + A*
Center Township Mortgages^ 898 635 377 182 - 80X
1. Source: Indpls. Multiple Listings, Residential Properties.
2. Source: Home Mortgage Disclosure Act Statements.
Both Center Township and the Control Area followed general market
trends In the volume of real estate activity, falling by 80 per-
cent and 52 percent, respectively, from 1979 to 1982. Once again,
the Study Area performed in an atypical fashion, actually regis-
tering a slight increase in volume (4 percent) over the same period.
CONCLUSIONS
While bearing in mind the above-mentioned difficulties In certain
cases with the sample size at the sub-area level, the following
observations may be made on analysis of the data.
A comparison of residential real estate listings Indicates that
the areas chosen In this study which have adult entertainment
establishments within their boundaries have, on the average, a
residential housing base of substantially higher value than that
located In the areas chosen as control sites.
Despite the higher value of housing stock in the Study Areas,
property values appreciated at only one-half tfte rate of the Con-
trol Area and at one-third the rate of Center Township as a whole.
Another anomaly apparent In analysis of real estate activity within
the three areas Is that market forces within the Study Areas were
present which caused real estate activity within Its boundaries
to run completely contrary to County, Township and Control Area trends.
31
In summary, the available data indicate that twice the expected |
number of houses were placed on the market at substantially low- -
er prices than would be expected had the Study Area real estate
market performed typically for the period of time in question.
32
PROFESSIONAL APPRAISAL OF IMPACTS
Because of the great number of variables that have the potential
to cause a particular real estate market to perform erratically
at a small area level, it was decided to solicit a "best available
professional opinion" from real estate appraisers regarding the
market effect of adult entertainment businesses on proximate
land values.
The Indianapolis Division of Planning approached the Indiana
University School of Business* Division of Research for assis-
tance In polling the real estate appraisal community on the sub-
ject. The University proposed that the survey be national in
scope and offered to design and pretest the survey instrument.
Dr. Jeffrey Fisher of the University's School of Real Estate
collaborated in drafting the instrument and conducted the ini-
tial test at a workshop in early September. Analysis of this
pretest indicated the need for minor adjustments to the form.
In its final format, the instrument (cf. Appendix II ) posited
a hypothetical middle income, residential neighborhood in
which an adult bookstore was about to locate. Respondents were
asked to numerically rate the impact of this business on both
residential and commercial property values within one block and
three blocks of the store. They were also asked to rate a num-
ber of potential other uses as to whether they would increase
or decrease property values. Finally, survey participants were
asked to express what they generally felt the effect of adult
bookstores was on property values.
The survey sample was drawn at two levels. Using the membership
of the American Institute of Real Estate Appraisers as the sur-
vey universe, a twenty percent random sample of members was
constructed for the entire nation. In addition, MAI (Member
Appraisers Institute) members who practiced in 22 Metropolitan
Statistical Areas1 (MSAs - as defined by the U. S. Bureau of the
Census) of a size similar to Indianapolis were surveyed at the one
hundred percent level.
In January of 1984, 1527 questionnaries were mailed. As of
February 22, 507 (331) had been returned. These returns were split
evenly between the 20% (249 returns) and 100* (258 returns) samples.
In the national sample the rate of return by geographic region2 was
fairly consistent: East,41 - 27t; North Central, 56 - 28%; South,
89 - 25); and. West. 63 * 24*.Return rates from the 100* MSA survey
varied from 14* from Newark, N. J. to 62* from Cleveland, OH.
33
r20% NATIONAL SURVEY RESULTS
Survey respondents overwhelmingly (80S) felt that an adult book-
store located in the hypothetical neighborhood described would
have a negative impact on residential property values of premi-
ses located within one block of the site. Of these, 21% felt that
the property value would decrease in excess of 20%, while 59%
foresaw a value decrease of from 1% to 20%. One-fifth of the
respondents saw no resulting change in residential property val-
ues.
Seventy-two percent of the respondents also felt that there would
be a detrimental effect on commercial property values at the same
one block radius. Only 10%, however, felt that the effect would
exceed 20} of worth with the majority (62%) seeing a It to 20t
decrease In value. 28t of the survey predicted that there would
be no negative effect.
While the great majority of appraisers felt that the effect of
an adult bookstore on property within one block of the site
would decrease property values, they felt that this Impact fell
off sharply as the distance from the site increased.
At a distance of three blocks, only 36% of the respondents felt
that there would be a negative Impact on residential properties, .
whereas 64% felt that there would be no Impact at all. Better •
than three-fourths (77%) of the survey saw no Impact on commer- V
ctal property at this distance.
In summary:
- The great majority of appraisers who responded to this sur-
vey felt that there is a negative impact on residential and
commercial property values within one block of an adult
bookstore.
- This negative Impact dissipates markedly as the distance
from the sit* Increases, so that at three blocks the esti-
mate of negative Impact decreases by nor* than one half
judged by the number of respondents Indicating negative
Impact at three blocks.
- The majority of respondents felt that the negative impact
of an adult bookstore is slightly greater for residential
properties than for commercial properties and decreases
less dramatically with distance for residences.
3*
NATIONAL SURVEY OF APPRAISERS
Impact of Adult Bookstores On
Property Values
RESIDENTIAL PROPERTY AT ONE BLOCK 2
10Q_
80-
60.
23-
^_
*cr IIM*wt
1*
•1.*
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. I*.I.
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•I§».•
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. M.
ai.ii.«
at««.j_n.i
M.« I .
20+ H- 1- Neg. No
20 10 Chg.
COMMERCIAL PROPERTY AT ONE BLOCK
tm. »"
fCf PKT
MCM«t* »«t(
. J .
•UMM* !•»••••
100-
I
Jt^l»^
!•*
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M^
.•••.
I**••«.,It.r
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i«•».»w»».
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fl
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. *»^.
••••
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•1
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60.
20.
\ 20* 11
20
1* N«g.
10
No
Chg.
35
NATIONAL SURVEY OF APPRAISERS
Impact of Adult Bookstores On
Property Values
RESIDENTIAL PROPERTY AT THREE BLOCKS
100
83
60
40
20 i
20* It-
20
1- (teg.
10
Ho
Chg.
<•»«* I
(•. >Ctim ftt
. I J
MUIOI l«*l»l
.- «. ;i - ^j
i
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IMCM1M >OTM*« I
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. 1*4*
_f».JU.I
•II
COMMERCIAL PROPERTY AT THREE BLOCKS
!*•*
MM» MM
a . .» . •
. M.
•».!
.M.4 .J
*«.•
•B* •§».•""
!••*
••.*_•••- 4. .!•*.
•»« I •«*
I «l JB . M «•.I *••• M^ ».• • M^
100
80
20 -j
20 10
r
Respondents were also asked to evaluate the impact on residential
property within one block of a number of alternate uses for the
hypothetical site described in the survey.
Of the alternate uses proposed, a clear majority felt that a medi-
cal office or a branch library would increase the value of sur-
rounding residential property. A store-front church, welfare of-
fice, tavern, record store, ice cream parlor or video-game parlor
were generally felt to neither improve nor decrease residential
property values significantly. On the other hand, a substantial
majority felt that a pool hall, drug rehabilitation center or a
disco would decrease property values - although not as overwhelm-
ingly as an adult bookstore.
NATIONAL SURVEY OF APPRAISERS
Impact On Residential Properties
Land Use Value
Higher
Store- front church
Pool hall
Welfare office
Neighborhood tavern
Record store.
Medical office
Drug rehab Center
Ice cream parlor
Video-game parlor
Disco
Branch library
Much
5*
1*
-
2%
8*
24*
-
151
l*
-
2k*
Some
20*
8*
12*
18*
274
38*
7*
30*
184
11*
34*
Same
58%
45*
46*
45*
61*
35*
35*
53*
50*
42*
38*
Lower
Some
162
38*
33*
32*
5*
2*
42*
3*
27*
35*
4*
Much
1*
8*
8t
4*
-
-
17*
-
5*
12*
37.
The survey also asked the degree to which adult bookstores affect
property values generally and the basis for this opinion.
Twenty-nine percent of those expressing an opinion saw little or no
effect as the result of adult bookstores on surrounding property
values. They based this opinion on their own professional exper-
ience 03$), the observation that this use usually occurs in an
already-deteriorated neighborhood (24$) and the feeling that
only one such adult entertainment use would be inconsequential.
A s ubs t an t i al- to-moderate negative impact was projected by 50$
of the respondents. Twenty-nine percent felt that this was be-
cause it attracted "undesirables" to the neighborhoods In which
they were located, while 14$ felt that it creates a bad image of
the area and 15$ felt that the use offended pervailing commun-
ity attitudes so that home buyers /customers would be discouraged.
based their opinion on professional experience.
A number of survey respondents (20$) saw the potential impact on
a neighborhood as being contingent on certain variables. 28$
of these felt that it would depend on the existing property val-
ues in the area as well as the subjective values of its resi-
dents. 23$ felt that development standards such as facade and
sign age would determine Impact and 11$ saw the nature of the ex-
isting commercial area and its buffering capacity as being most
important.
None/
little
Subst/Cont.
NATIONAL SURVEY OF APPRAISERS
Impact Of Adult Bookstores on
Property Values
39
100$ MSA SURVEY RESULTS
The 100% survey of Metropolitan Statistical Areas similar in size
to Indianapolis produced results that were consistent in virtually
all respects with the results of the 201 national survey.
As in the nationwide survey, respondents overwhelmingly (781)in-
dicated that an adult bookstore would have a negative effect on
residential property values in the neighborhood described if they
were within one block of the premises. 19$ felt that this depreci-
ation would be in excess of 20%, whereas 59$ foresaw a decrease in
value of from 1* to 20$.
Sixty-nine percent saw a similar decrease in commercial property
values within one block of the adult bookstore. As In the national
survey, far fewer (only 10%) felt that a devaluation of over 20$
would occur. The majority (59%) saw the depreciation as being in
the 1$ to 20$ range.
Once again, the negative impact observed within a one block radius
of the adult bookstore fell off sharply when the distance was In-
creased to three blocks - although, judged on the number of those
indicating no Impact, there would appear to be more of •residual
effect on residential properties than on commercial properties.
39$ of the appraisers felt that a negative impact on residential
properties would still obtain at three blocks from the site. Only
three percent felt that this Impact would be in excess of twenty
percent. The remaining 36$ felt that depreciation would be some-
where in the one to twenty percent range. 61$ saw no appreciable
effect at all at three blocks.
Commercial property was judged to be negatively impacted at three
blocks by 23$ of the survey. 76$ saw no change in value as a re-
sult of the bookstore.
In summary:
- Appraisers assigned a negative value to an adult bookstore
located within one block of residential and commercial pro-
perties at an approximate three-to-one ratio.
- At a three block distance, this ratio tended to be reversed.
- The number of those Indicating • decrease In value at three
blocks decreased at only one half the rate for residential
property as for commercial property.
40
USA SURVEY OF APPRAISERS
IMPACT OF ADULT BOOKSTORES OH RESIDENTIAL PROPERTY AT ONE BLOCK
No Decrease
20
MSA SUPVEY OF APPRAISERS
IMPACT OF ADULT BOOKSTORES ON COMMERCIAL PROPERTIES AT OHE BLOCK
.'Jo Decrease
r, 0
50
MSA SURVEY OF APPRAISERS
IMPACT OF ADULT BOOKSTORES ON RESIDENTIAL PROPERTY AT THREE BLOCKS
U-10!
Dec re as
80
MSA SURVEY OF APPRAISERS
IMPACT OF ADULT BOOKSTORES ON COMMERCIAL PROPERTY AT THREE BLOCKS
f
3
" m-20-j
il-ioi
Decrease
No Dec re as
41k
In response to * question asking appraisers to rate the Impact
of • number of different commercial uses at the same location on
residential properties within one block, the majority felt that
a medical office or a branch library would have a favorable im-
pact while a welfare office or drug rehabilitation center would
have an undesireable impact. The majority felt that a store-front
church, pool hall, neighborhood tavern, record store, Ice cream
parlor or a video-game parlor would not have much of an Impact
and were about equally split as to whether the effect of a disco
would be neutral or negative.
MSA SURVEY OF APPRAISERS
Impact On Residential Properties
Land Use Value
Higher
Store- front church
Pool hall
Welfare office
Neighborhood tavern
Record store
Medical office
Drug rehab center
Ice cream parlor
Video-game parlor
Disco
Branch library
Much
4*
It
It
«•
6*
201
-
1*1
1*
-
24*
Some
24*
12*
13*
17*
29*
37*
6*
29*
'7*
13*
37*
Same
52*
48*
41*
52*
54*
39*
39*
52*
51*
44*
34*
Lower
Some
20*
33*
37*
25*
10*
4*
40*
5*
28*
33*
5*
Much
1*
6*
7*
6*
-
•i
15*
- •
3*
10*
1*
45
In response to the question about their evaluation of the impact *
of adult bookstores generally on surrounding property values, 21)
of those expressing an opinion felt that there would be little or
no impact with such a use. They principally based this opinion on
their experience as appraisers (20?) and the observation that such
uses usually located in areas that had already deteriorated (261).
of the survey felt that there Is a substantial -to moderate
impact. Their opinions were based on professional appraisal ex-
perience (18$), and the observations that: given current mores,
an adult bookstore would discourage home buyers and customers
the use precipitated decline and discouraged improvement (I1$);and,
it would attract "undesirables" to the neighborhood
The nature of this impact on property was contingent on a number
of factors in the minds of 32$ of the respondents. 13$ felt that
it depended on local attitudes and the adequacy of legal controls
on their operation. Exterior factors such as signage and building
facade quality were seen by 16$ as the determinant. 30$ felt
the impact would be directly related to the values (both monitary
and human) prevalent in the neighborhood. And 20$ felt that the
answer depended on whether or not the business was likely to at-
tract other such businesses.
46
EFFECT OF ADULT BOOKESTORES ON PROPERTY VALUE
MSA SURVEY OF APPRAISERS
Effect
Little
Substantial
Contingent BEST
20
II • I •i »«• i a.«_!.*•.* l _»«•«.« i •.• i i.<
EFFECT OF ADULT BOOKSTORES ON PROPERTY VALUE
MSA SURVEY OF APPRAISERS
-+
LITTLE OR NO EFFECT
. t*•»
.(--
<«.»»- •*«
Ml Ml I*
•*•*- _••*••!.—•**
irr—T- ••.! ' »
. •• ••
• ••
t
M.»•.1
• •«• ••
•••
ss-4
**••«
*W.f
. ••••*.«
*.•. *.*
. «.••>••••ar
-WJ
— .I..
0 - Mo reason g!v«n.
1 • Appraisal «xp«r-
t«nc«.
2 * Ar«a In dccHn«.
3 • Ar«a in d«ctin«.
4 - Not an in tens*
5 • Only on* dots
not matter.
6 • Commercial buffer.
7 - Market adjusts
quickly.
8 - Tolerated by
current mores.
9 - Other.
SUBSTANTIAL OR MODERATE EFFECT
EFFECT OF ADULT BOOKSTORES ON PROPERTY VALUE
MSA SURVEY OF APPRAISERS
l.t I. «.. I •,*«.» I *.* I •>•••• I •>• t
0 - Ho reason given.
1 • Appraisal exper-
ience.
2 - Prevailing attitudes
are negative.
3 • Unharmonlous use.
k - Precipitates de-
cline.
5 • Creates a bad
image.
6 - Attracts undesir-
ables.
7 " Bad Influence on
the young.
8 • Attracts slmllar
uses.
9 • Other.
COrrillGENT EFFECT
EFFECT OF ADULT BOOKSTORES ON PROPERTY VALUE
HSA SURVEY OF APPRAISERS
1 • No reason given.
2 • Not enough Inforaa-
tton.
3 • Local attitudes
and controls.
A • Nature of existing
coMwrclal uses.
5 - Volume/type of
customer.
6 » Oecore/management.
7 " Oecore/management.
8 - Type of nleghborhood
values.
9 - If attracts si mllar
uses.
COPY
SUMMARY OF FINDINGS
The great majority of appraisers (75%) who responded to the national
survey of certified real estate appraisers felt that an adult book-
store located within one block would have a negative effect on the
value of both residential (80$) and commercial (72%) properties. 50%
of these respondents foresaw an immediate depreciation in excess of
At a distance of three blocks, the great majority of respondents (71%)
felt that the impact was negligible on both residential (64%) and
commercial (77%) properties. Even so, it would appear that this
residual effect of such a use was greater for residential than for
commercial premises.
In answer to a survey question regarding the impact of an adult book-
store on property values generally, 50% felt that there would be a
substantial- to-moderate negative impact, 30% saw little of no im-
pact, and 20% saw the effect as being dependent on factors such as
the predominant values (property and social) existing in the neigh-
borhood, the development standards Imposed on the use, and the abil-
ity of an existing commercial node to buffer the Impact from other
uses.
The results of the 20% national sample and the 100% survey of Metro-
politan Statistical Areas were virtually identical. The one signi-
ficant variation that did occur was in the response to the question
asked as to the effect of adult bookstores on property values gener-
ally. Respondents in the MSA survey placed more emphasis (32% versus
20%) on conditional factors at the site.
51
FOOTNOTES
1. Metropolitan Statistical Areas (MSAs) surveyed at 1001 were
chosen on the basis of having a one to two million population
at the time of the 1980 U. S. Census. They were: Phoenix,
Arizona; Sacramento, San 01 ego and San Jose, California;
Denver/Boulder, Colorado; Hartford, Connecticut; Fort Lauder-
dale, Miami and Tampa, Florida; Indianapolis, Indiana; New
Orleans, Louisiana; Kansas City, Missouri; Newark, New Jersey;
Buffalo, New York; Cincinnati, Cleveland and Columbus, Ohio;
Portland, Oregon; San Antonio, Texas; Seattle, Washington; and
Milwaukee, Wisconsin. Although slightly outside the population
parameters for this selection, Louisville, Kentucky and Atlanta,
Georgia were also Included.
2. Regional designations used were those .employed by the U. S. Bureau
of the Census for the 1980 Census. The data were processed and
crosstabulations performed using the Statistical Package for
the Social Sciences.
3. The discrepency between the number of survey responses and the
number of responses to the question in this and subsequent tab-
les is the result of some respondents having omitted answers to
questions 6 and 7 of the survey.
52
f'
APPENDIX I
Area Haps
NOTE
For the purpose of this study,
the maps included in this Ap-
pendix categorize existing land
uses within the Study and Con-
trol Areas as having a Resi-
dential or a District Commer-
cial Character.
All dwelling district, neighbor-
hood-related commercial and spe-
cial use zoning classifications
are designated as being of "Res-
idential Character".
More intense commercial uses,
industrial uses and district-
related special uses are consi-
dered to have a "District Com-
mercial Character".
ADULT ENTERTAINMENT BUSINESS STUDY
STUDY AREA LAND USE
3155. 3201 East 10th St.
Residential Character
District Commarciat
Character
Adult Entertainment Site
l-l
ADULT ENTERTAINMENT BUSINESS STUDY
f
m
I' »' Ji ftll '.I
in-» I I mi
STUDY AREA LAND USE
6429-31 East 38th St.
Residential Character
WES
)NTOOMERY
PARKDistrict Commercial
Charactar
Adult Entertainment Sit*
l-ll
ADULT ENTERTAINMENT 3US1HESS STUDY
r
WA SHINGTON
HIGH SCHOOL
•—-
FMC
CHAIN DIVISION
STUDY AREA LAND USE
2101 Wast Washington St.
Residential Character
Y/SSA District Commercial
Character
O Aduh Entartainmant Sits
i-ni
ADULT ENTERTAINMENT BUSINESS STUDY
STUDY AREA LAND USE
3535 West 16th St.
Residential Character
District Commercial
Character
Adult Entertainment Site
cnr
I- !V
<VDULT ENTERTAINMENT BUSINESS STUDY
f
-,
* II .-* !! ^ II
STUDY AREA LAND USE
6116-6122 East Washington St.
Residential Character
District Commercial
Character
Adult Entertainment Site
i- v
ADULT ENTERTAINMENT BUSINESS STUDY
<x^1 :7^FrFl•r 'u r~~T< i i i__j » i
STUDY AREA LAND USE
4441-4475 North Keystone Ave
Residential Character
District CommercialCharacter
Adult Entertainment Site
..VI
r
,-.OULT ENTERTAINMENT BUSINESS STUDY
H>(00.uiO
CONTROL AREA LAND USE
2500 East 10th St.
Residential Character
District Commercial
Character
Control Area Centroid
£
E
».;»*E
Jo.
UB.
£tXl
t*
I
tt
I-VII
ADULT ENTERTAINMENT BUSINESS STUDY
CONTROL AREA LAND USE
2300 Wast 10th St.
Residential Character
YSS/A District Commercial
Character
Control Area Cantroid
I-VMI
r ADULT ENTERTAINMENT BUSINESS STUDY
F=23fc:=--33lc2~3J
ELLENBERCER PARK
CONTROL AREA LAND USE
Washington St.
Residential Charactar
District Commarcial
Character
Control Araa Cantroid
ADULT ENTERTAINMENT BUSINESS STUDY
WASHINGTON
SCHOOL
r
CONTROL AREA LAND USE
26OO West Washington St.
Residential Character
District Commercial
Character
Control Area Centroid
1-i ii i
FMC
CHAIN DIVISION
ni
i
U1Otoo
AOULT ENTERTAINMENT BUSINESS STUDY
j
! I.I.I I-H
CONTROL AREA LAND USE
750 North Shadaland Ava.
R««td«nti«l Character
YSSSl District Commercial
Charactar
Control Araa Cantrokl
I-XI
ADULT ENTERTAINMENT BUS I MESS STUDY
CONTROL AREA LAND USE
5200 North Keystone Ave.
r
Residential Character
District Commercial
Character
Control Area Centroid
I-XII
APPENDIX It
Appraiser Survey
CITY OF
WHJJAM H. HUONUT. W
MAYOR
OAVIO E. CAflLEY DEPARTMENT Of METROPOUTAN DEVELOPMENT
January 20, 1984
Dear WAI Member:
The City of Indianapolis, Indiana Is currently in the process of
preparing a new local ordinance that will regulate the location
of adult entertainment businesses In relation to residential
neighborhoods in our community.
In an effort to provide a basis for the proposed legislation
that is equitable and legally defensible, I would like to ask
your help in establishing a "best professional opinion" on the
matter. As a real estate professional, the opionions you share
with us on the enclosed survey forms would be very valuable to
us in the development of • positive legislative approach to this
difficult local issue.
Thank you very much for your assistance.
Sincere)
cc. L. Carroll
i i«o CIT v-COUNT v euiLoma • INDIAN APOLIS. IMOI AHA ••*•* • <si»i t»«-«i«i
INDIANA UNIVERSITY
Division of Research
SCHOOL OF BUSINESS
Blonmington/lndianapolis
10th and Fee Lane
Blnomington. Indiana 47406
(812) 337-5507 r
TO: Professional Real Estate Appraisera
FROM: Indiana University, School of Buainess, Dlvision of Research
Please help us in this brief national survey. The information provided will
help clarify an inportant question. Read the following information about a
hypothetical neighborhood and respond to • fev questions in tents of your
professional experience and judgment.
A middle income residential neighborhood borders a main street that contains
various commercial activities serving th* neighborhood. There la a building
that vaa recently vacated by a hardware store and will open shortly as an
adult bookstore. There are no other adult bookstores or similar activities In
the area. There is no other vacant commercial space presently available in
the neighborhood.
Please indicate your answers to questions 1 through 4 la the blanks provided,
using the scale A through C.
SCALEt A Decrease 20X or more
B Decrease more than 10X but leas than 20X
C Decrease from 0 to 10X
D No change in value
£ Increase from 0 to 10Z
P Increase more than 10X but leas than 20X
6 Increase 20X or more
1) How would you expect the average values of the RESIDENTIAL
property within one block of the bookstore to be affected?
2) How would you expect the average value* of the COMMERCIAL
property within one block of the adult bookstore to be affected? _____
3) How would you expect the average values of RESIDENTIAL property
located three blocks from the bookstore to be affected?
A) How would you expect the average values of the COMMERCIAL property
three blocks from the adult bookstore to be affected?
- over -
ll-il
5) Suppose the available coeaercial building is used for soaething other than
sn adult bookstore. For each of the following potential uses, would the
average value of residential property vithin one block of the new business
be...
A Buch higher
B soaewhat higher than if an
C about the same adult bookstore
D somewhat lower occupied the site.
E such lower
In the space provided, write the appropriate letter for each potential use.
Store-front church Drug rehabilitation center
Pool hall Ic« creaa parlor
Welfare office Video-gaae parlor
neighborhood tavern Disco
Record store Branch library
Kedlcal office
6) In general, to what degree do you feel adult bookstores affect property
values?
7) Why do you fetl this my?
8) Where do you practice?
City State_
Your nase
(If you prefer not to give your name, please check here )
Thank you for your cooperation. Please return this questionnaire la the
postage paid envelope provided for your convenience.
78ii- in
APPENDIX III
Land Us« Control of
Adult Entertainment
APPENDIX III
LAND USE CONTROL OF AOULT ENTERTAINMENT
LEGAL BASIS
Zoning has traditionally been defined as a process by which a
municipality legally controls the use which may be made of pro-
perty and the physical configuration of development upon tracts
of land within its jurisdiction. This is accomplished by means
of zoning ordinances which are locally adopted to divide the land
into different districts permitting only certain uses within
each district for the protection of public safety, welfare,
health and morality.'
Zoning regulations not only regulate the use to which buildings
or property may be put within designated districts, but also the
purpose or object of the use beyond the mere conditions or cir-
cumstances of the use.^
In a 1920 landmark decision, the New York Court of Appeals up- .
held New York City's comprehensive zoning legislation,* and re-
affirmed this legislation as a proper exercise of the city's
police powers..
In 1926, the practice of comprehensive zoning received substan-
tial support when the United States Department of Commerce pro-
mulgated the Standard State Zoning Enabling Act. This Act be-
came the model for most of the early zoning enabling legisla-
tion in the country.
While the courts have reaffirmed that municipalities are proper-
ly exercising their police powers through zoning regulation, it
is generally held that they have no inherent power to zone ex-
cept (as is the case with the police power Itself) as such power
is delegated to them by the state legislature through statutory
enactment. The right of state legislatures to delegate compre-
hensive zoning power to municipalities, on the other hand, is
uniformly recognized by the courts.*
Because municipalities In the state had to be enabled to exercise
zoning powers within their jurisdictions, the Indiana State
Legislature, by means of enabling legislation, delegated this
power to local units of government.5
Control of the use of private land Inevitably raised a number of
constitutional questions. In the landmark 1926 case of Euclid
v. Ambler Realty Co.? the United States Supreme Court upheld the
city of Euclid, Ohio's municipal zoning ordinance which had been
claimed to involve an unconstitutional deprivation of property
by deciding that comprehensive zoning ordinances are a proper
exercise of the police power and do not constitute an unconstitution-
al deprivation of property. This position was reaffirmed by the
Supreme Court of the United States in 1927.?
Thus, the general legality of zoning is established beyond doubt.
Subsequent decisions by this court8 established that such ordin-
ances, however, could be unconstitutional when applied to a par-
ticular property. This established the basis for the system under
which the City of Indianapolis currently operates where each var-
iance or rezoning request is decided on Its own merits.
THE PUBLIC WELFARE
The police power authorizes a government to adopt and enforce all
laws necessary to protect and further the public health, safety,
morals and general welfare of Its citizens.9
Limitations on the exercise of zoning power are essentially the
same as those restricting the police power under the 0. S. Consti-
tution, i.e., they must be reasonable and guarantee due process
and equal protection. It may not be exercised tn an unreasonable,
oppressive, arbitrary or discriminatory way. Zoning laws, then,
must have a real, substantive relation to the legitimate govern-
mental objective of the protection and furtherance of the public
health, safety, morals and general welfare of citizens.
The public welfare, In these contexts, means the stabilization
of property values, promotion of desirable horn* surroundings, and
happiness,'0 and embraces the orderliness of community growth,
land value and aesthetic objectives11 and is reasonably design-
ed to further the advancement of a community as a social, econom-
ic and political unity.'*
CONTROL OF ADULT ENTERTAINMENT13
Reacting to the increased availability of pornography in the United
States and attendant pressures at the community level for its con-
trol, a number of municipal governments have addressed the pro-
liferation of adult entertainment businesses through, among var-
ious methods, land use controls. The validity of such an approach
was upheld In 1976 jo the landmark decision Young v. American
Hini Theatres, Inc.'* In which the Court upheld a Detroit zoning
ordinance which prohibited more than two adult movie theaters or
other sexually-orientated enterprises from locating within 1000
feet of one another or certain other designated businesses. Against
ft
r
/
attacks grounded in the First and Fourteenth Amendments to the
Constitution of the United States, the Court sustained the ordin-
ance on the dual bases that:
1. The ordinance was a reasonable response to demonstrat-
ed adverse land-use and property value effects asso-
ciated with sexually-oriented enterprises; and
2. the ordinance silenced no message or expression but
merely placed geographic restrictions upon where such
expression could occur.
While an exhaustive analysis of the Young decision Is beyond the
scope of this discussion, the following generalized principles
may be gleaned from the plurality, concurring and dissenting
opinions of the Justices. First, hostility to constitutionally
protected speech is an impermissible motive. The more apparent
and rational the relationship of the adult use restrictions to
recognized zoning objectives, such as the preservation of neigh-
borhoods and the grouping of compatible uses, the greater the
likelihood that the restrictions will be upheld.
Second, even a properly motivated ordinance will be invalidated
if it unduly burdens first amendment rights. For example, an
ordinance imposing locational restrictions that are so severe
as to result in an inability to accommodate-the present or anti-
cipated number of adult businesses in a municipality will cer-
tainly be struck down. The Young court repeatedly moored Its de-
cision upholding the Detroit ordinance upon the finding that
numerous sites complying with the zoning requirements were a-
vaitable to adult businesses and that the market for sexually-
explicit fare, viewed as an entity, was therefore "essentially
unrestrained".
Third, ordinances which are so vague In wording and definitions
that a non-pornographic entrepreneur is unclear whether he falls
within its proscriptions may be violatlve of due process. A
vague ordinance may operate to hinder free speech through use of
language so uncertain or generalized as to allow the inclusion of
protected speech within its prohibitions or leave an individual or
law enforcement officers with no specific guidance as to the
nature of the acts subject to punishment.
Finally, an ordinance which authorizes the exercise of broad
discretionary power by administrative officials to determine
which adult business will be allowed to operate, especially if
the exercise of such discretion is not grounded on objective,
ascertainable criteria, will probably be disapproved as contrary
to the precept that, in the First Amendment area, "government may
regulate only with narrow specificity".
Ill-Ill
Any community, then, which would employ its zoning power to regulate
adult uses within its jurisdiction must be particularly concerned
that the adoptive ordinance be demonstrably motivated by and found-
ed on sound land use principles, it allow reasonable accommodation
for such uses within its jurisdiction, and that it clearly define
both the nature and regulations of the use in order to avoid, to
the extent possible, the need for subjective interpretation of each
proposed use.
The Young decision has encouraged a great amount of experimentation
on the part of municipalities in an effort to prevent deterioration
of their commercial districts and adverse impact upon adjacent areas,
The effectiveness of these Innovations will be determined by time
and the legal tests to which they will be subject as this business
segment establishes itself.
For the time being, however, this decision encourages an approach
in which localities have tended to control the siting of adult en-
tertainment businesses on the basis of land use.
m-iv
FOOTNOTES
1. Cf Smith v. CoH! son. 119 Cap App 180, 6 P2d (1931); Oevaney v.
Sd. of Zoning AooeaTs . 132 Coon. 537, 45 Ad2 828 (1946) : Toulouse
v. Bd. of Zoning Adjustment. I**? Me 387, 8? Ad2 670 (1952).
2. Cf American Sign Co. V. Fowler. 276 SW2d 651 (Ky'1955).
3. Cf Lincoln Trust Co. v. Will tarns Bldq. Corp.. 229 MY 313, 128
NE 209 (1920).
4. Jonas v. Fleming Town Bd. & Zoning Bd. of Appeals, 51 Ad2d 473,
382 NYS 2d 39* (4th Dep't 1976).
5. I.C. 36-7-4.
6. Euclid v. Ambler Realty Co.. 272 U.S. 365, 47 S Ct 114. 71 L Ed
303 (1926). :
7. Cf 2ahn v. Bd. of Pub. Works, 274 U.S. 325. 47 S Ct 574, 71 L
Ed 1074 (1927); and GarieFV. Fox. 274 U.S. 603, 47 S. Ct. 675,
71 L Ed 1228 (1927).
8. Cf Sup. Ct. In Nectow v. Cairto ridge (U.S. 183, 48 S. Ct. 447.
72 L Ed 842
9. Cf Scrutton y. County of Sacramento, 275, Cal App 2nd, 79 Cal
Rptr 872 U969J; Troiario v. Toning Comm'n of Town of No. Bran-
ford. 155 Conn 265, 231 A2d 536 (1967); and. Trust Co of Chicago
^TTity of Chicago. 408 1 1 1 91 , 96 NE 2nd 499 (1951).
10. Cf State v. Bessent. 27 Wise. 2d 537, 135 HW 2d 317 (1965).
11. Ibid., and J.D. Construction Co. v. Bd. of Adj.. 119 NJ Super 140,
290 A2d ~
12. Ibid., and Fischer v. Bedminster Twp.. 11 NJ 194, 93 A2d 378 (1952)
13. For a more complete discussion of this subject, see Mathew
Bender. Book V, Chapter HI, Sections 11.01,11.02 and 11.03.
14. Cf 421 US 50. 96 S Ct 2440, 49 L Ed 2d 310, reh denied 97 S Ct
191 (1976), rev'd 518 F2d 1014 (6th Clr 1975).
nr-v
FOOTNOTES
1. Cf Smith v. Collison. 119 Cap App ISO, 6 P2d (1931); Devaney v.
Bd. of Zoning Appeals. 132 Conn. 537, *5 Ad2 828 (19*6) : Toulouse
v. Bd. of Zoning Adjustment. 14? Me 38?, 8? Ad2 670 (1952).
2. Cf American Sion Co. V. Fowler. 276 SW2d 651 (Ky 1955)-
3. Cf Lincoln Trust Co. v. Williams flldo. Corp.. 229 NY 313, 128
NE 209 (1920).
4. Jonas v. Fleming Town Bd. t Zoning Bd. of Appeals, 51 Ad2d 473,
382 NYS 2d 39* <*th Dep't 1976).
5. I.C. 36-7-4.
6. Euclid v. Ambler Realty Co., 272 U.S. 365, *7 S Ct 114, 71 L Ed
303 (1926).:
7. Cf Zahn v. Bd. of Pub. Works, 27* U.S. 325, *7 S Ct 57*. 71 L
Ed 107* (1927); and GarTelTv. Fox. 27* U.S. 603, *7 S. Ct. 675,
71 L Ed 1228 (1927).
8. Cf Sup. Ct. In Neetow v. Cambridge (U.S. 183, *8 S. Ct. **7,
72 L Ed 842 (192HTI
9. Cf Scrutton v. County of Sacramento, 275, Cal App 2nd, 79 Cal
"9 _
ford, 155 Conn 265. 231 A2d 536 (1967); and. Trust Co of Chicago
_ ty
Rptr 872 (1969J; Troiano v. Zoning Comm'n of Town of Mo. Bran-
ford, 155 Conn 265. 231 A2d 536 (1967); and. Trust Co"
TTTity of Chicago. *08 111 91, 96 ME 2nd *99 (1951).
10.Cf State v. Sessent. 27 WUc. 2d 537, 135 M¥ 2d 317 (1965).
11.Ibid., and J.D. Construction Co. v. Bd. of Adj.. 119 NJ Super 140.
290 A2d 452 (1972).
12.Ibid., and Fischer v. Bedmlnster Twp.. II NJ 19*. 93 A2d 378 (1952)
13.For a more complete discussion of this subject, see Hathew
Bender. Book V, Chapter III, Sections 11.01,11.02 and 11.03.
1*.Cf *21 US 50, 96 S Ct 2**0, *9 L Ed 2d 310, reh denied 97 S Ct
191 (1976), rev'd 518 F2d 101* (6th Clr 1975).
nr-v
01-
D^RTMENT: oF^cir^p^AKjNiMGg
I
L±i
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m
LJ
IN-THE CITY Of IOSAHBEIES
DEPARTMENT OF CITY PLANNING
CITY OF LOS ANGELES
JUNE 1977
BPfJBP I^IBawn i~~™*"r _-, my
C0i*^
CITY PLAN CASE NO. 26475
Council File No. 74-^52.!-S.3
STUDY OF THE EFFECTS OF THE CONCENTRATION OF ADULT
ENTERTAINMENT ESTABLISHMENTS IN THE CITY OF LOS ANGELES
Prepared for-:
Planning Committee of
the Los Angeles City Council
Prepared by:
Los Angeles City Planning Department
June, 1977
TABLE OF CONTENTS
Summary and Recommendations ..... . . . . ^ ......... 1
I. Findings. . ........................ 4
II. Purpose and Scope ................... ' • • ^
III. Methods Currently Used to Regulate Adult Entertainment
•Businesses ........................ 9
A. Approaches to the Regulation of Adult Entertainment
by Land Use Regulation ................ 9
1. Boston Approach ................... 9
2. Detroit Approach .................. 10
3. Variations Adopted by Other Cities ......... 10
B. Alternate or Supplementary Forms of Regulation
Currently Available Under State and Municipal Law ... 14
1. Red Light Abatement Procedure ........... 14
2. Police Permit Requirements ............. 15
C. Other Regulations of Adult Entertainment
in Los Angeles .................... 18
IV. Methodology and Analysis ................. 20
A. Changes in Assessed Valuation Between 1970-1976 .... 22
1. Study and Control Areas .............. 22
2. Conclusion ..................... 25
B. Public Meetings . ." .................. 27-
C. Questionnaires ................. ". . . 32
1. Description of Survey .............. 32
2. Results of Survey .... ............ 33
D. U.S. Census and Related Data ............. 44
1. Description of Hollywood using
:'Cluster Analysis'! .............. ' . . . 44
TABLE OF CONTENTS (cont'd)
2. Description of Studio City and North Hollywood
using Census Data ...... ' ..........
V. Polios Department Study of Hollywood ............ 51
TABLES
I. No. of Ordinances Regulating Adult Entertainment
Uses ......................... 11
II. Ordin-ances Regulating Adult Entertainment Uses by
Dispersal ............... ........ 13a
ill. • City Council Files Relating to Adult Entertainment . . . 19a
IV. 1970-76 Changes in Assessed Valuation ......... 24a
V. Studio City, North Hollywood and City of Los
Angsles Comparison of Census Data ........... 48
"I. Reported Crimes and Arrests 1969-75 - Hollywood
and City of Los Angeles ................ 53
EXHIBITS
Ex.hibit A - Generalized Location of Adult Entertainment.
Sites in Hollywood and Central City, by
Census Tract .............. . ..... 22a
Exhibit 8 - Generalized Location of Adult Entertainment
Sites in Studio City and North Hollywood, by
Census Tract .................... 22b
AP. VOICES
A. Assessment Data - 1970 and 1976
8. Form - General Questionnaire
C. Form - Appraiser Questionnaire
0. Response and Summary of Privately-Distributed Questionnaire
(not a portion of study)
£- Oata from U.S. Census - 1960 and 1970
:.>.::.•..,-..:.:-. '- HMARY AND RECOMMENDATIONS
' * '
-•'."• iA. "Types of Ordinances to Control "Adult Entertainment" Uses
" Two methods of regulating adult entertainment business via land
use regulations have developed in the United States. They are:
1) the concentration of such uses in a single area of the city
as in Boston; and 2} the dispersal of such uses, as in the City
of Detroit. The Detroit ordinance has been challenged and
upheld by the U.S. Supreme Court (','oung vs. American
- Mini-Theaters. 96 S. Ct. 771, 1976).
8. Effect of "Adult Entertainment" Businesses on the Community
There has been some indication that the concentration of "adult
entertainment" uses results in increased crime and greater
police enforcement problems. In the City of Los Angeles, the
Los Angeles Police Department has found a link between the
concentration of such businesses and increased crime in the
Hollywood community. (The major portion of a Police Department
report on this subject is herein contained.) While several
major cities have adopted ordinances similar to the Detroit
• ordinance, no other major city has, to our knowledge, adopted a
." '\ Boston-type ordinance.
Testimony received at two public meetings on this subject has
revealed that there is serious public concern over the
proliferation of adult entertainment businesses-particularly in
the Ho 1lywood.area. Citizens have testified of being afraid to
walk the streets; that some businesses have left -the area or
have modified their hours of operation; and that they are
fearful of children being confronted by unsavory individuals or
of being exposed to sexually explicit material. A
representative of an adult theater chain testified in support of
the manner in which this business was run and in support of the
type of clientele which attend the theaters. The Planning
Department staff is of the opinion that the degree of
deleterious effects of adult entertainment businesses depend
largely on the particular type of business and on how any such
business is operated. . :
**.•":,..*•• , 1
A mail survey questionnaire conducted by the Planning Department
has tended to emphasize general public concern, over the
proliferation of sex-oriented businesses and has indicated
further, that appraisers, realtors and representatives of
lending institutions are generally of the opinion that
concentration of adult entertainment businesses . exerts a
negative economic impact on both business and residential
properties. They feel that th'e degree of negative impact
depends upon the degree of concentration and on the specific
'of adult entertainment business.
-a-
:~: • Tlve 1970-76 change in the assessed value of residential and
, -r"'" commercial properties containing concentrations of adult enter-
I "•:'.'"'• tainment businesses was compared with other areas without such
' concentrations, and with the City as a whole. On the basis of
this comparison, it cannot be concluded that properties ;
' '• containing concentrations of adult entertainment businesses have /
' directly influenced the assessed valuations of such properties. -
« Data and analysis based on the U.S. Census of 1970 and certain1 ' trend data from, th'e censuses of 1960 .and 1970 as 'applied to
areas of , the City containing concentrations of add It
entertainment businesses are included in the body of- the report
and in the Appendix. . .
- *'„"'"".
C. Scope of the Ordinances Enacted by Other Jurisdictions
' The scope of "adult entertainment" ordinances encompases a
variety of adult activities. For example, the Los Angeles Study
has considered "adult entertainment" establishments to include
adult bookstores, arid theaters, massage parlors, nude modeling
studios, adult motels, arcades, and certain .similar businesses.
Marty other ordinances studied, however, are less broad in their
. " coverage. The Detroit ordinance, for instance does not regulate
massage parlors or adult motels, hor does It provide for the
closing of any such businesses by amortization, which' would be
necessitated by the retroactive application of such an
ordinance. Table I on page 11 indicates the ordinances reveiwed
and the major categories of uses they regulate.
Effect of Ordinances Enacted by Other Jurisdictions: The U.S.
Supreme Court in Young vs. American Mini-Tneate~rspointed out,
"as one of the base's for up no 1 d i n g the Detroit ordinance, that
the regulation did not lim'it the number of "adult entertainment"
businesses. Our study has indicated that the practical effect
of literal adoption of "Detroit" language without modification
in the City of Los Angeles would be to limit the 'potential
locations for such businesses rather severely. Due to the
predominance of commercial zoning in "strips" along major and
secondary streets, an ordinance preventing "adult entertainment"
business from locating within 500 feet of residentially zoned
property would, in effecl, limit such businesses to those areas
of the City where there is commercial zoning of greater than 500
feet in depth. Areas with such commercial frontage would
include downtown Los Angeles , a small part of Hollywood,
Westwood, and Century City. A few industrial areas would also
afford a. separation of this distance from residential
properties. The limitation of 1,000 feet between establishments
(as provided in the Detroit ordinance) would likely "be
inappropriate in the City of Los Angeles inasmuch as commercial
zoning is located in a strip pattern along most of the City's
approximate 1,400 miles of major and secondary highways. (It is
estimated that approximately 400 miles of such "strip"commerci-al zoning exists 1n the City.)
- *&<'•:-.'J^:-^-
' " " -2-fti-fef-^^./ .1: ;;^--. -:; -.-'-•
^ ;^:^rv ;,-->=•.-' .-..*,- •'.. . '•: ' '.:' . "-^^•.;;:^>if;.;?;;-: '-.; ' •-•.'^Y: - - _ '
; . - •..-.
'0. Recommendations ; .... .
-'• : I. If the City Council should find it advisable in light of
:': ; the findings of this report to recommend the preparation of
',....' an ordinance to control adult entertainment businesses,
•-.;:.'.-.' such an ordinance should be of a dispersal type rather than
,:•. . a concentration type. (To build a planning policy basis
"--^V . '; for such regulation, the Council may also wish the Planning
:--".."'' Department to consider the development, of appropriate
"c:~^;''^V policies for incorporation within the Citywide Plan.)
2. If a dispersal type ordinance is recommended by the City
' Council, the Planning Oepartn>ent is of the opinion that
>..--.. such an orcfvna-nce should be designed for specific
;.-„ • application in the City of Los Angeles, rather than the
;--r:
: direct adoption of the Detroit model. If such a dispersal
:"-..:."'.'•' type ordinance is recommended for enactment locally, it
.;.-/••" '. should consider:
a. distance requirements between adult entertainment
- establishments. The Planning Department recommends
that a separation between establishments greater than
.,'-; 1,000 feet is necessary and desirable.
-:-^X;->?;VV
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^^'•— *•*,**'; -..•;•/•• .-\-"*
tJ . distance requirements separating adult entertainment
, establishments from churches, schools, parks, and the
'c. ••';. like. The Planning Department suggests that a
separation of at least 500 feet is 'necessary. A
.__••-• similar distance separating adult entertainment uses
: ". from single-family residential deve lopment- shou Id also
^ be considered. :
c. the possibility of enacting additional provisions to
regulate signs and similar forms of advertising should
.-'.._... also be considered.
If the City Council should find it advisable to recommend
all of the types of "adult entertainment" businesses
included in this study, it should consider whether all such
uses should be in the same class and subject to the same
regul at ions . - '"..'•..-
Should the City Council recommend the preparation of a
zoning ordinance to regulate adult entertainment
businesses, other sections of the Municipal Code relating
to the subject, including police permit requ irements,
should also be amended in order to be consistent with the
zoning regulations and to facilitate the administration andenforcement of such .regulations .
&&;'-• ••:-• ;. • ^.: '•„-•-*$zj£l&^:.:^t:'-: '!:-:•':.;-3-
>.
i ; ,5..
expanding the list of orohibitoH Pre-at1on- consider
include additional adult enierL^\ ln Said zone toing, entertainment uses as herein
6."• - ^j-jiat jn r no rn,-,,. !,«.,•__ . * „ . .
: ::..•:- "^?'1i^iii:«;^•l.n%lu;f^KnK^'^y'^?««rlr'""".l^e.l'u'1•
y-'v '"'' '"""""I 2oninSe
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Code ™'«ti»9 to
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• "•*> ' '""'?-": '**'"' ' ::- •' •-. ..." . .' • '' ;%'-.
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-.. :_v^-:', ":_; . _ -3a-
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I.
' . '"' • . FINDINGS
1. A Boston-type ordinance (concentration) to control adult
[ entertainment businesses would not be acceptable nor desirable
I in the City of Los Angeles.
i 2. In the avent legislation is enacted in the City of Los Angeles
I there is adequate basis for a Detroit-type ordinance
(dispersion) w/fich requires a distance of 1000 faet between
, ' establishments and 500 feet from residential zones.
; -- Existing locational patterns of adult entertainment
businesses (in Hollywood, Studio City, North Hollywood) actually
j. represent a concentration rather than a dispersion of
' establishments. (Such patterns ara contrary to the Detroit
concept and are due3 in fact, to the City's strip commercial
'' zoning pattern.)
3. If dispersion is desired in Los Angeles, an ordinance should be
designed specifically for the City. (0irect application of the
Detroit ordinance would not be desirable or appropriate in Los
Angeles and would, in part, tend to result in a concentration of
such bus inesses.)
4. Statistics provided by the Los Angoles Police Department (LAPD)
indicate a proportionally larger increase in certain crimes in
Hollywood from 1965-75.; as compared with the City of Los Angeles
as a whole. (Hollywood has the largest concentration of adult
entertainment businesses in the City.)
3. Statistics provided by the LAPD indicate that there has been a
large increase in adult entertainment enterprises since 1959,
particularly in Hollywood. From December 1375 to December 1976,
however, there has been a decrease in such establishments.
./>. Testimony obtained at two public meetings on the Adult
Entertainment study conducted on April 27 and 28, 1977 indicated
that:
Many persons, including the elderly, are afraid to walk the
streets in Hollywood.
Concern was expressed that children are being exposed to
sexually explicit materials and unsavory persons.
Some businesses no longer remain open in the evenings and
others have left the area allegedly directly or indirectly
due to the establishment of adult entertainment businesses.
In Hollywood^ some churches drive the elderly to • services
and others provide private guards in their parking lots.
Nearly all persons opposed the concentration of adult
entertainment activities.
7. Responses to que« ;onnaires of the City Pla ing Department nave
;, .indicated that:
•;';.':f: -" Appraisers, realtors., lenders, etc. beliave that the
••"." concentration of adult entertainment establishments has had
,' / • adverse economic effects on both businesses and residential
property in respect to markat value, rental value and
rentabi*! ity/saleabi 1 ity; that the adverse economic affects
diminish with distance but that the effects extend even
beyond a 1000-foot radius; and that the effects are related
to the degree of concentration and to the specific type of
adult anterta.inment business.
"' "- Businessmen, residents, etc. believe that the concentra-
tion of adult entertainment establishments has adverse
effects on both the quality of life, and on business and
property values. Among the adverse business affects cited
are: difficulty in retaining and attracting customers to
non- "adult entertainment" businesses; difficulty in
.' recruiting employees; and difficulty in renting office space
and keeping desirable tenants. Among the adverse effects on
the quality of life cited are increased crime: the effects
'..'_ •-"".' on children; neighborhood appearance, litter and graffiti.
8. A review of the percentage changes in the assessed value of
commercial and residential property between 1970 and 1975 for
the study araas containing concentrations of adult entertain-
ment businesses have indicated that:
';•'.-_ .- The three study areas in Ho 1 1 ywood containing such
;. -.•__. businesses have increased less than the Hollywood Community,
i.-X .'• anc* Isss than the City as a whole. Two of the .three study
'\v '.:•-..' areas in Hollywood have increased less than tivair
.—• . corresponding "control areas"; however, one such study area
;'.'.-. ..-.• increased by a greater amount than its corresponding control
\>.•";:":"'•"'... a"ea. •/...•..
• : - The study area in Studio City has increased by a greater
• . percentage than its corresponding "control area". by a
'•; ; slightly lower percentage than the Sherman Oaks-Studio City
./'-..;-.. Community; and by a considerably greater percentage than the
J\vv_ entire city. ....
:"'.;";. - The study area in North Ho 11 ywood has increased by a
;•['-. considerably lower percentage than its corresponding control
•~'\ area, the North Hollywood Community, and the City as a whole.
-/:.:.•'«•/- ~ ' °n the basis of the foregoing it cannot be concluded that
.;"-• ;; " adult antertainment businesses have diractly influenced
"-'.. changes in the assessed value of commerc i a) arTd residential
. : -. properties in the areas analyzed.
£f~s~* • • * - -• , _.
9. There are various existing laws and regulations (other than
_;;. zon ing) - ava i 1 ab le to effect proper regulation of adult
entertainment businesses.
\ '' >
10. There is a high degree of turnover in individual adult
entertainment businesses as evidenced on pagy 51 (Much of this
change ic probably due to Police enforcement.)
11. The Los Angeles City Council, both on its own initiative arid at
the urging of numerous citizens groups, has proposed a variety
of approaches to limiting the possibly deleterious effects ou
"adult er.tsrtaindent" business on neighborhoods.>
12. At least 10 cities have adopted ordinances similar to che
Detroit dispersal ordinance. Several oth^r cities' have enacted
other corns of regulations.
13. The Detroit ordinance does not regulate massage parlors. Of. (-.he
cities with regulations, three have included massage parlors
within tha purview of their zoning ordinance.
t
14. None of the cities surveyed call out or regulate adult n-.ot-als H..;
a part of their "adult entertainnent" ordinance.
15. The Detroit Ordinance is prospective in its application and
therefore does not include an amortization provision, i.e.
provide for a time period for the removal of exiatiag
businesses. Although other such ordinances have included such
provisions, none had been validated by the courts at the tiir.a of
this study.
T VV.r •:-..»". i|.T'
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-PAPER BACKS
•MARITAL AIDS PAPER BACKS
MARITAL AIDS
II.
PURPOSE AND SCOPE
On January i 7 1377 <-u ,
Department, wit.i (I'' "2.L°S ""geles
comprehensivr stJSy L rf ?" °f "'E™:;;??.-».r^-sra.*
"nni;^-ff^-?=» PUP\rti
XKZT ?s £?•" »?1T:.%'?;«
bookstores; X-rlted t " W°Uld
par lors
City Council instructed this
her City agencies, to conduct a
whether the concentration of
lishments has a blighting or
es . and/or neighborhoods. The
general term utilized by the
to businesses which primarily
ing sex or in providing certain
nclude the foTinw'--- adult
n'n-
-hanstc.); and
Angel e
businesses pro
there has
lf ^at i on
been
of increasina rsuch c9 co?cern in Los
should be
for
notsd ^
"^'thf J n« *dd^1on
i »
to the ofabsencet -
not
g
In
state
C i ty
are
t is
t u d i e d
1 or
^S?'!^£a'i:rr9 ^^^<!™^ «. CHy councu
concentration cau^K,-\stab!fsh"'e"t^ where thf"1"1'"5 «Sether
X" *™n po?ed to L oub^' ^ det^ioration when^ thi"'51 ^^'..i't.*::.B
Jj r r<-th-v^-r ;?' ".•-•?.ti.°jt.?«^tf!; ?n;;°?;;tr?h:-%', •-"-ob-">" ft f5•-.v-u.uui CO
for before it
Hnt-Vi
the adipuon
question the
they have
bookst
th
°fthe 5Ptrum3
is the
rourges
the
certain pa-t
regardinq
9overnm2nt? s int
City waiting
°f society?"
who
e"tartai""'ent
" SUbJ2Ct
Se so]d V
-7-
In completing this study, the Planning Department has made every
effort to ensure a fair and unbiased analysis of "adult entertain-
ment." The staff has been instructed to objectively review
information of a factual nature; and, although the personal feelings
of organized groups and the public at large were forcefully
expressed at the two public meetings and in - the study
questionnaires, the staff has maintained independence from such
strong emotions in evaluating the data gathered.
As noted above, the staff has specifically been given the charge to
determine whether the concentration of "adult entertainment"
establishments has any blighting' or degrading effect on the
neighborhoods in which they reside. We did not consider the
specific nature or content of the materials or services rendered,
advertised or promised, for this would have constituted a
censor-like role for the Department which was neither desired nor
requested by the Council.
This study has focused on the Hollywood community as well as
portions of Studio City and North Hollywood as those areas of Los
Angeles having the greatest concentration of "adult entertainment"
establishments. In order to assess the effect of the concentration
of "adult entertainment" establishments in those areas, the staff
has analyzed such factors as changes in assessed property values,
and reviewed various crime statistics as well as other demographic
and related data as available from the U.S. Census. In addition,
the Department has reviewed various established approaches to the
regulation of "adult entertainment" business, including legislation
already enacted by other jurisdictions, and earlier efforts of the
City of Los Angeles to regulate such businesses.
8y means of two public meetings on the subject conducted by
representatives of the City Planning Commission, and through the use
of a mail survey questionnaire, the Department has also attempted to
provide additional documentation relative to the actual or perceived
impact of adult entertainment businesses on the community. Current
information on crime statistics has been provided in a separate
report prepared by the Los Angeles Police Department, major portions
of which are herein included.
' ' III.
METHODS CURRENTLY USED TO REGULATE "ADULT ENTERTAINMENT" BUSINESSES
A. APPROACHES TO THE REGULATION OF ADULT ENTERTAINMENT BY LAND USE
REGULATION
Two primary methods of regulating "adult entertainment"
businesses via land use regulations have developed in tha United
States:' the concentration approach, as evidenced by the "Combat
Zone" in Boston., and the dispersal approach, initially developed
by Detroit.
1. Boston Approach
In Boston the "Combat Zone" was officially established by
designation of an overlay Adult Entertainment District in
November of 1974. The purpose of the overlay district was
to create an area in which additional special uses would be
permitted in designated Ccmmarcial Zones which were not
permitted in these zones on a citywida basis.
The "Combat Zone" had existed unofficially for many years
in Boston, as the area in question contained a majority of
the "adult entertainment" facilities in the City. The
ordinance was adopted in response to concern over the
spreading of such uses to neighborhoods whare they were
deemed to be inappropriate. Other considerations included
facilitating the policing of such activities 'and allowing
those persons who do not care to be subjected to such
businesses to avoid them.
Under the Boston ordinance, adult bookstores and
"commercial entertainment businesses" are considered
conditional or forbidden uses except in the Business
Entertainment District. Existing "adult entertainment"
businesses are permitted ' to continue as non-conforming
usas, but, if 'discontinued for a period of two years.- may
not be re-establ is.hed. Establishment of uses in areas of
the city other than the "Combat Zone" requires a public
hearing before the Zoning Board of Appeals.
The effectiveness and appropriateness of the Boston
approach is a subject of controversy. There has been some
indication that it has resulted in- an increase in crime
within the district and that there is an increased vacancy
rate in the surrounding office buildings. Due to
complaints of serious criminal incidents, law enforcement
activities have been increased and a number of liquor
licenses in the araa have been revoked. Since the "Combat
Zone" and most of the surrounding area ars part' of various
redevelopment projects., however., the change in character of
the area cannot be attributed solely to the existence of
"adult entertainment" businesses.
f
In Los Angele , the Police Department hs investigated the
effect of "adult entertainment" businesses in Hollywood and
found a link between the clustering of thcso establishments
and an increase in crime. (See Section V- pages 51 to
55). For this reason, and due to the enforcement problems
created by such concentrations, the Police Department is
not in favor of a concentration approach in the City of Los
Angeles. Public testimony at hearings and through Planning
Department questionnaires iias indicated an overwhelming
public disapproval of this approach for the City of Los
Angeles.
2. Detroit Approach
The City of Detroit has developed a contrasting approach to
the control of "adult entertainment" businesses. The
Detroit Ordinance attempts to dispersja adult bookstores and
theaters by providing that such uses cannot; without
special permission, be located within 1000 feet of any
other "regulated uses" or within 500 feet of a
residentially zoned area.
This ordinance was an amendment to an existing anti-skid
row ordinance which attempted to prevent further
neighborhood deterioration by dispersing cabarets, motels,
pawnshops, billiard halls, taxi dance halls and similar
establishments rather than allowing them to concentrate.
The ordinance was immediately challenged and eventually was
upheld by the United States Supreme Court, (Young vs
American Mini Theaters 96 Supreme Ct. 771, 1976.)
In response to our request, data supplied by the City of
Detroit Police Department indicates that the combination of
the dispersal ordinance and a related ordinance prohibiting
the promotion of pornography have been an effective tool in
controlling adult businesses. To date, 18 adult bookstores
and 6 adult theaters have been closed. There are 51 such
businesses still in operation in Detroit and 38 pending
court cases for various ordinance violations.
3. Variations Adopted by Other Cities
The success of the Detroit ordinance has spurred attempts
by a number of other cities to adopt similar ordinances.
The uses controlled and the types of controls established
by these ordinances are summarized in Tables I and II,
infra.
While the current study of the effect of "adult
entertainment" businesses on neighborhoods in Los Angeles
has encompassed all forms of "adult entertainment", the
ordinances reviewed and the Detroit Ordinance "specifically,
are less encompassing in scope. Table I. on the following
page, lists and reviews a number of ordinances; which
regulate various specified adult uses.
-10-
TABLE I
Number of Zoning Ordinances Regulating Specified
Adult Entertainment Uses
(11 Ordinances Reviewed-! not adopted)
No. of Cities
USE t Regul at ing*
Adult Theaters 11
Adult Bookstores 9
Mi ni-theaters and coin operated facilities' 5
Massage Parlors (includes "physical culture
estab1ishments)
Modeling Studios/Body Painting 2
Pool/Billi ard Hal Is 2
Topless Entertainment ' 2
Newsracks 1
Adult Motels 0
< * (Numbers have incorporatad-where appropriate-uses entitled
[ "physical culture establishments" and "businesses to which
persons under 18 could not be"admitted".)
The Detroit dispersal ordinance does not regulate massage
parlors, nor does it require any existing business to close
by amortization. Many of the more recent ordinances
include amortization provisions and several of these are
currently in varying stages of litigation.
Perhaps the most comprehensive ordinance proposed to date
(although not adopted) is that of New York City. The
proposed ordinance creates five classes of controlled uses,
one of which is entitled "physical culture establishments"
and is defined as a general class including any
establishment which offers massage or other physical
contact by members of the opposite sex. The ordinance
would also apply to clubs where the primary activity of
such club constitutes one of the five defined classes of
adult uses .
The ordinance also provides for a special permit exempting
individual adult uses from amortization requirements when
the Board of Standards and Appeals makes findings regarding:
1. The effect on adjacent property;
2. Distance to nearest residential district;
3. The concentration that may remain and its effect on
the surrounding neighborhood;
4. That retention of the business will not interfere with
any program of neighborhood preservation or renewal; or
5. In the case of an adult bookstore or motion picture
theater, the Board finds that the harm created by the
use is outweighed by its benefits.
Locally, the cities of Bellflower and Norwalk have enacted
ordinances requiring adult bookstores and theaters to
obtain a conditional use permit. As a part of their study,
the City of Bellflower surveyed over 90 cities in Southern
California to determine how other cities were controlling
adult bookstores. Of the cities which responded to the
Bellflower survey,'12 require a conditional use permit for
new bookstores. The conditions for obtaining such a permit
generally include dispersal and distance requirements based
upon the Detroit model. Bellflowar also includes parking
requirements and the screening of windows to prevent a view
of the interior; it prohibits the use of loudspeakers or
sound epuipment which can be heard from public or
semi-public areas .
Other cities impose such controls as design review,
prohibition of obscene material on signs and required
identification of the business as "adult". Such controls
are a possible alternative or addition to regulation of
adult uses by location.
-12-
Exterior controls affect the aspects of adult businesses
which are most offensive to some citizens. The basis for
such controls stems from the recognition of privacy as a
constitutional right and fhe right to bo "left alone" as a
part of that right. " (See Paris Adult Theatre I
v Slayton, 93 S.Ct. 2628 1973.)
Table II, following, provides a comparison and description
of ordinances from various cities which are regulating
"adult entertainment" businesses by dispersal.
The theory that there should be no first amendment bar to sign
controls is discussed by Charles Rembar, in "Obscenity--Forget
It", Atlantic Monthly, May 1977, pgs. 37-41.
-13-
ORDINANCES RBGULATlr/G -ADULT ENTERTAINMENT
USES BY DISPERSAL
DISTANCE
DISTANCE FROM
/ FROM CHURCHES CONCEN- AMORTI- APPEALS OTHER
CITY
Seattle
Denver
Dallas
leveland
:troit
USES CONTROLLED
Adult theaters
Entertainment to
which persons
under 18 could
not be lawfully
admitted
Adult shows or
theaters
Adult bookstores,
adult movies and
mini-motion picture
theaters, pool or
billiard halls
Adult bookstores,
adult motion
picture theater,
mini-motion picture
theaters, cabarets,
hotels, motels,
pawnshops, pool or
billiard halls,
public lodging
houses, secondhand
stores, shoeshine
parlors, taxi-dance
halla
RESIDENTIAL
. 500'
1000'
500'
I
SCHOOLS
1000'
TRATION
1/1000'
2/1000 '
ZATION
yes-90
days
PRO'CEDURE
>
**
Waiver by
petition of
51% of per-
sons owning/
residing or
doing busi-
ness within
500'
CONTROLS
Allow only in
DM, CM, & CMT
Zones; termi-
nate such uses
in all other
zones
Ordinance pro-
hibiting promo
tion of pornog
raphy
DIofANCE
DISTANCE FROM
. FROM CHURCHES CONCEN-
CITY
New York
(not
adopted)
Oaklandii
Kansas
City
Santa
Barbara
ellflower
USES CONTROLLED
Adult bookstores,
motion picture
.theaters, "topless"
entertainment facil-
ities, coin-operated
entertainment facil-
ities, physical cul-
ture establishments
Adult bookstores,
adult movies, peep
shows, massage
parlors
Adult bookstores and
motion picture
theaters, bath houses,
massage shops, model-
ing studios, artists-
body painting studios
Adult newsracks, book-
stores, motion picture
theaters
Adult bookstores, '
theaters or mini-
theaters, massage
parlors
Modal studios
RESIDENTIAL
500'
1000'
10001
1000'
'
(SCHOOLS
1000'
.
1000'
U from
parks or
recreation
facilities)
1000' (&
from parks
or play-
grounds)
500'
TRATION
2-3/
1000 '
1/1000'
1/500'
1/1 000'
AMORTI-
ZATION
1 year
closest
to R-
zone
first
to go
1-3
yrs. if
no use
permit
*%«M
APPEALS
PROCEDURE
Special
permit
exception
must make
findings
Waiver, if
petition of
51% of per-
sons resid-
ing or own-
ing property
within 1000'
of proposed
use
•
;
BE&i
COPY
OTHER
CONTROLS
.Sign regulat
.Applies to c
.Adult use al<
a primary us<
All require C.
permit
Confined to ove
lay C-X zone
within C-2, 3,
Public displz
defined materia
prohibited
By C.U. all bui
ing openings,
entries, window
covered or
screened to pre
vent view into
the interior
No loud speaker
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< 8. ALTERNATE OR SUPPLEMENTARY FORMS OF REGULATION CURRENTLY
' ' AVAILABLE UNDER STATE AND MUNICIPAL LAW
1, Red Light Abatement Procedure
' Red light abatement is a mechanism authorized by state law
which allows local government to control criminal sexual
! behavior by controlling the places in which such behavior
; occurs.
Sec. 11225 of the California Penal Code generally provides
.' that every building or place used for iliaga-J gambling,
lewdness, assignation, or prostitution, or where such acts
occur, is a nu i s ance which shall be enjoined, abated. and
; prevented"!There are three basic steps involved in the: City's application of the Red Light Abatement Procedures:
f (a) A complaint is filed by the City Attorney based upon
the declarations of police officers of instances of
prostitution taking place on the premises.
(b) The City attempts to obtain a preliminary injunction
to shut down the business until completion of the
scheduled trial. If the City succeeds. the premises
may only be re-opened as a legitimate business until
the time of the trial.
(c) At the trial, the burden is on the City to prove that
prohibited acts occurred on the premises. The remedy
may be closure of the premises for all purposes for
one year, placing the building in the custody of the
court, or an order preventing the use of the premises
for prostitution forever.
Complaints may be filed by citizens, and Sec. 11228 of the
Code provides that in Red Light Abatement Actions "evidence
of the general reputation of a place is admissible for the
purpose of proving the existence of a nuisance".
This method has been used successfully by the City to abate
adult entertainment- establishments in Hollywood along
Western Avenue. Although Red Light Abatement is directed
at regulating sites, a Red Light Abatement conviction can
affect the ability of an owner or operator to obtain a
permit for a similar business at another site (see permit
requirements supra). Due to the requirement of a court
proceeding, however, this method of control is both time
consuming and expensive.
14-
! ' "' " 2. P o 1 i c e P e rroi t Requ 1 r ernents
Section 103 of the Los Angeles Municipal Code provides for
tha regulation and centre! of a variety cf businesses by: permits issued fay the Board of . Police Commissioners.
Permittees are subject to such additional requirements as
may be imposed by Jaw or by the rules and regulations of
i the Board.i
Those businesses for which the City of Los Angeles requires
a police permit and which may also be oriented towards
; adult entertainment include:
- Arcades (Sec. 103.101)
- Bath and Massage (103.205)
i - Cafe Entertainment and Shows (103.102)
- Dancing Academies, Clubs, Halls (103.105, 106,
106.1)
- Motion Picture Shows (103.108)
i
In some cases, the specific regulations applied to c
business, if enforced, preclude adult entertainment
activities as a part of, the operation of the business,
with revocation of the operating permit an available remedy
for violation of the regulation.
The most detailed regulations are applied to cafe
entertainment (Sec. 103.102 LAMC) and are summarized as
fo1 lows:
a. Businesses Subject to the Regulations
Operation of cafe entertainment or show for profit,
and the operation of public places where food or
beverages are sold or given away and cafe
entertainment, shews, still cr motion pictures are
furnished, al-lowed or shown. The regulation does not
apply to bands or orchestras providing music for
dancing.
b. Cafe Entertainment Defined
"Every form of live entertainment, music solo band or
orchestra, act, play, burlesque show, revue,
pantomime, scene, song or dance act". The presence of
any waitress, hostess, female attendant or female
patron or guest attired in a costume of 'clothing that
exposes to public view any portion of either breast at
or below the areola is included with the purview of
the ordinance.
-15-
Summary of Activities Prohibited
Allowing any person for compensation or not, or while
acting as an entertainer or participating in any live
act or demonstration to:
(1"} ...Expose his or her genitals, pubic hair, buttocks
or "any por-t-io_n of the female breast at or below
the
(2) Wear, use, or employ, or permit, procure, counsel
or assist another person to wear uso or employ,
any device, costume or covering which gives the
appearance of or simulates the genitals, pubic
hair, natal cleft, perineum or any portion of the
female breast at or below the arepla.
Tne above provisions do not apply, to a theatrical
performance in a theater, concert hall or similar
establishment which is primarily devoted to theatrical
performances.
The permit may also be revoked for conviction of the
permittee, his employee, agent or any person
associated with permittee as partner, director,
officer, stockholder, associate or manager of:
(1) An offense involving the presentation, exhibition
or performance of an obscene production, motion
picture or pi ay;
(2) An offense involving lewd conduct;
(3) An offense involving use of force and violence
upon the person or another;
(4) An offense involving misconduct with children;
(5) An offense involving maintenance of a nuisance in
connection^ with the same or similar business
operat ion;" or, if the permittee has allowed or,
permitted acts of sexual misconduct to be
committed within the licensed premise.
Massage businesses have traditionally been regulated
by licensing. The latest changes in the massage
regulation became effective in November of 1976. The
application for a permit now requires:
(1J deti. Had information regarding the applicant;
~ (2) nans, address of the owner and lessor of the
pr.. perty upon or in which the business is to be
coi ducted, and a copy of the lease or rental
igioement;
-16-
(3} requirement of ?. public hearing prior to issuance
of a permit for the operation of a message
business.
Operating requirements for massage businesses include:
~ a permit for each massage technician;
- regulation of the hours of operation;
- posted list of avaijahle services and
c cost;
- s. record of each treatment, the name and
address of the patron, name of erapJoyee
and typ-3 of treatment administered.
So-csiled "private" clubs or "consenting acuit clubs"
which have ostensibJy been formed as an aJtarnative to
massage parlors had until recently been regulated via
the requirement of a social club permit. In Juna
1S77, however, the ordinance establishing such
requirement was declared unconstitutional, by a Los
Angeles Muncipal Court due to unreasonable
restrictions on the freedom of association. To date,
it is unknown whether the City will appeal the ruling
or amend the ordinance.
-17-
C. OTHER REGULATION OF AOULT ENTERTAINMENT BUSINESSES IN LOS ANGELES
Regulation of adult entertainment businesses has a long history
in Los Angeles. In 1915 the "prevalence of sex evils arising
out of massage parlors" caused the City Council then to enact
Section 27.03 (L.A.M.C.) as "a safeguard agajnst the deterio-
ration of the social life of the community." The ordinance
provided.:
"(a) It shall be unlawful for any person to administer,
for hire or reward, to any person of the opposite sex, any
massage, any alcohol rub or similar treatment, any
fomentation, any bath or electric cr magnetic treatment,
nor shall any person cause or permit in or about his place
or business or in connection with his business, any agent,
employee, or servant or any other person under his control
or supervision, to administer any such treatment tc any
person of the opposite sex." .
This provision remained in the Code, in one form or another,
until a similar Los Angeles County ordinance was declared
invalid in 1972 due to the preemption of the criminal aspects of
sexual activity by the State. • •
In reaching its conclusion, the court referred to the discussion
of the Los Angeles City ordinance in In Re Maki. This 1943 case
upheld the constitutional validity of the- ordinance, and,'
according to the court, established the primary purpose of such
ordinance as the limiting of criminal sexual activity.
The late 1960's and early 1970's brought a proliferation of nude
bars and sexual scam joints in the Los Angeles area. In 1969,
the Cafe Entertainment regulations (Section 103.102 Los Angeles
Business Code) was modified to include strict controls on nudity
(see discussion infra).
A variety of Council motions were made to control other types of
"adult entertainment" such as arcades, massage parlors, and
newsracks. Many of these were Initiated due to substantial
citizen complaints, and some resulted in final ordinances. (See
Table III pages 19a to 19'd.)
2 -?-" Re Maki 56 CA 2d. 635, 1943.
o
Section 27.-03.1 Los Angeles Municipal Code, 1938
Lancaster v Municipal Court 6 C 3d 305, 1972.
-18-
Beginning in 1974, several Council motions v/er^ mad* g^narei:y
calling for an investigation and preparation of an ordinance
regulating adult theaters and bookstores. The advice cf the
City Attorney was sought, and at ths suggestion of that Office,
Action was delayed pending the Supreme Court decision regarding
the Dat'.-oit Ordinance. That decision was handed dcwn in June of
1S7-S. On July 13, 1S76., a Council motion was introduced by
Councilman Wilkinson requesting a study of concentrations of
adult entertainment similar to that cf Detroit.
Table III provides a generalized summary of the major Cc:ir.ci:
files and actions relating to adult entertainment.
While not part of this study, a recently enacted ordin-inr. r
controlling on-site sale of alcoholic beverages should ',}•=.
recognized as an attempt to control another aciult-type usj.
Effective March i, 1977, the Los Angales Muncipdt Code •.'?.:
amended to require a conditional use permit for the on-sit5 -ifaz
of alcoholic beverages. (Council File No. 70-200. City PI-in
Case No. 22878). Although aimed at the regulation ov
anti-social activities in all establishments serving alcoholic
beverages, the subject ordinance would., of course, also have a
"spillover" effect with regard to those businesses, which have
aoult entertainment as well as alcoholic beverages.
Generally, the ordinance would, in all cases., require issuanc."
of a conditional use permit for any business selling alcoholic
beverages for on-site consumption, rather then the previous
practice of permitting them as a metter of right in certain
zones. The advantage of the new procedure is that as a
prerequisite of approval of an individual application; there
must be a public hearing to determine whether the proposed use
will have a detrimental effect upon nearby properties and the
neighborhood in which it is being proposed. In the long run:the ordinance may provo to be an effective device to- regulate
uses (dispensing alcoholic bevsr^.g^s} which tend to have a
deteriorating effect on an area^ some of which nMys coinci-
dentally, elso be adult entertainment businesses.
TABLE III .
CITY COUNCIL FILES RELATING TO ADULT ENTERTAINMENT
DATE FILE NO.SPONSORS RECOMMENDATION DISPOSITION
3/23/70 North Hollywood
Chamber of
Commerce
That topless and bottomless bars
and pornographic film and literature
be confined to the M-3 zone.
Disapproved by the Planning
Commission.
3/71 C.F. 72-374 Councilman
Snyder
Effort to control bath or massage
parlors by'modifying the definition
of "physical therapy" in state law.
And, City support for legislation
that would make Physical Therapists/
Chiropractors responsible for
activities in their offices and
prohibit treatment by unlicensed
assistants unless the license
holder is in the room.
Introduction of Afi 823
modifying the definition oi
physical therapy - Died in
Committee November 1972.
Recommend modification of Board of
Chiropractors Rules and Regulations.
State Board of Chiropractif
Examiners adopted "Board
Rule 316" which makes
chiropractors responsible
for the conduct of employe*
in their place of practice,
and specifically prohibits
sexual acts or erotic
behavior involving patient?
patrons or customers.
- 19-a -
TABLE 1. ^ (cont'd.)
DATE.FILE NO.SPONSORS RECOMMENDATION DISPOSITION
2/74 C.F. 72-374
'S-l
S-2
Stevenson and
Wilkinson
Study of the need and feasibility of
regulating hours of operation, mini-
mum requirement for practitioners. -
and health and safety conditions in
massage parlors.
1/9/75 Board of Police
Commissioners approved ordi-
nance and adopted agreement
with County to provide
inspection of massage parlors
- 19-b -
TABLE III tcont'd.)
DATE FILE NO.SPONSOR RECOMMENDATION DISPOSITION
10/18/74 C.F. 74-4521 Snyder, Robert
Stevenson,
Ferraro
Provide by Ordinance that permits may
not be granted to operate motion
picture theaters which show "adult"
films or bookstores which sell printed
material which may not be sold to
minors at locations which are within
1,500 feet of the nearest school,
playground or church.
Police and Fire and Civil
Defense Committee referred
prepared ordinance to
Planning Committee.
1/21/75 C.F. 74-1969 Police permit requirement for arcades
becomes effective. Regulates 5 or
more coin or slug operated machines.
Revocation for non-compliance with
health, zoning, fire requirements,
obscenity convictions. Regulates
hours of operation.
Regulation subsequently
found unconstitutional by
the Appellate Department
of Superior Court, L.A.
County.
/27/76 City Planning
Commission
Planning Department report to City
Planning Commission, ah their request,
regarding proposed regulation of
massage parlors and adult bookstores
in Los Angeles.
No action taken.
/9/76 C.F. 73-374
S-1A
Council adopts ordinance requiring
permits to operate a massage busi-
ness, act as a massage technician*
and gives a massage for compensation
effective 4/17/76.
Ordinance now in effect.
'23/76 C.F.-74-4521
S-2
Wilkinson and
Stevenson
Require public hearings prior to open-
Ing of an adult bookstore which has
for sale sexually explicit material;
limit the hours of operation.
Referred to Police, Fire
and Civil Defense.
- 19-c -
TABLE II. (cont'd.)
DATE FILE NO.SPONSOR RECOMMENDATION DISPOSITION
6/25/76 C.F. 74-4521 Wilkinson/ Gibson,
Howe11, Braude,
Russell/ Hachs,
Stevenson/ Bernard!,
Farrell, Lorenzen
Request City Attorney to draft
an ordinance following Young va.
American Mini Theaters guide-
lines.
Referred to Police/ Fire
and Civil Defense Commit
tees.
6/28/76 C.F. 74-4521 Stevenson, Wacha Preparation of zoning ordinance
to prohibit sexual scam joints/
adult bookstores and theaters,
nude live entertainment within
500' from a private dwelling,
church/ school, public building/
park or recreation center, of
within 1000' of each other, to
be retroactive, priority to the
oldest establishments.
Referred to Police, Fire
and Civil Defense Commit
teas.
7/13/76 C.F. 74-4521 Wilkinson Instruct the City Planning
Department to prepare a report
to the City Council regarding
the extent of any possible
degradation of neighborhoods
in LOB Angeles due to concen-
tration of adult entertainment
establishments.
Consolidation of above
cases.^ After approval t
full Council assigned to
Planning Department with
the cooperation of other
involved agencies.
3/15/77 C.F. 74-1969 Police, Fire and Civil Defense
Committee recommendation to
amend Sections 103.101, 103.101,
1 of the Municipal Code - (A
revised ordinance to regulate
arcades).
Adopted by full Council.
i/5/77 C.F. 77-860
S-49
File not available
for review.
Support state legislation pro-
viding specific penalties for
use of minors for pornography.
/11/77 C.F. 77-1997 File not. available
for review.
Regarding prostitution enforce-
ment laws.
- 19-d -
IV.
METHODOLOGY AND ANALYSIS
Methodology
In complying with the City Council's instructions, the Department
has utilized various available data sources, including property
assessment data, U. S. Census data, and obtained other information
germane to the subject in an effort to determine; on an ampir ica 1
bas is, the effects (if any) of adult entertainment facilities on
surrounding business and other properties. The Department also
reviewed sales data of commercial and residential property in areas
containing concentrations of adult entertainment businesses and in
"control areas" containing no such concentrations. The staff also
attempted to secure information on the sales volume of commmercial
properties, but was unable to obtain this information. '
It should be emphasized that, in conducting this study., every effort
was made by the Department to preclude the introduction of subjec-
tive judgment or other bias, except where the opinions of other
individuals or groups were specifically solicited.* It was the
Department's intent to base any conclusions entirely on relevant
data and other factual information which became available during the
course of conducting the study.
The procedure employed by the Department
involved the following areas of emphasis:
in conducting this study
1.A measure of the change from 1970-76 in assessed "market
value" of land and improvements for the property occupied
by and within an appropriate radius of five known
"clusters" (nodes) of "adult entertainment" businesses. An
identical measure of four "control areas" without
concentrat ions of adult entertainment businesses was also
made to determine if a significant difference in the rate
of change in assessment values occurred in such areas
between 1970 and 1S76. Comparisons were also made with the
entire community in which the concentration nodes were
located.
2.An analysis of responses received from a mail
questionnaire conducted by the Planning Department;
survey
Expert opinions were requested from realtors, realty boards,
appraisers and lenders through letters and questionnaires. The
Department also sent letters to local members of the American
Sociological Association requesting their assistance in this
study. . Their replies were limited in number and not significant
in terms of this study.
-20-
3. Review of available data from the U.S. censuses of !£50 and
1970, including the results of a "cluster analysis" and
description of Hollywood based on such analysis prepared by
the City's Community Analysis Bureau;
4. An analysis of verbal and written testimony obtained at two
public meetings on this subject conducted on April 27 and
28, 1977 by representatives of the City P-anning Commission;
5. A review of various approaches to the regulation of "adult
entertainment" businesses, including legislation enacted by
other jurisdictions;
6. An analysis of alternate forms of control,, including
existing Municipal Code provisions relative to this general
subject;
7. A discussion of earlier efforts of the City to control
adult entertainment in Los Angeles; and
8. A presentation of the Los Angeles City Police Department's
report dealing with crime statistics and their relation to
"adult entertainment" businesses in Hollywood.
9. The actual "last sales price" of commercial and residential
properties in areas containing concentrations of "adult
entertainment11 businesses were compared with the assessed
values of property in such areas. The results v/cre than
compared with "control areas" containing no concentration
of such businesses. (It was found that tfxa actual sales
prices tended to parallel assessed values and that in other
cases the comparison was inconclusive. No further
discussion of this aspect of the study is contained herein.)
10. In an attempt to determine any possible effects of "adult
entertainment establishments" on business sales volume, the
Department reviewed sales data from a Oun and Bradstrect
computer tape file for the years 1970 and 1576. However,
this source of date could not be used since it did not
contain directly comparable information for the two years
indicated. (A substantial change in the number of member
.firms listsd apparently occurred after .1970.) In addition,
the Department requested sales information from the City
Clerk's Business License File. The City Clerk advised that
the generation of the information requested would require
J.OO man-days of work: consequently their information could
not be obtained within the time constraints for completion
of the study.
-21-
Items 5, 6, and 7, above, are~the subject of Section III of this
report, entitled "Methods Currently Used to Regulate Adult
Entertainment Business", The Police Department's report is
discussed herein as Section V. The Planning Department's analysis
of topics 1 through 4 is described in detail, below.
A. CHANGES IN ASSESSED VALUATION BETWEEN 1970-76 IN FIVE SEPARATE
AREAS CONTAINING HIGH CONCENTRATIONS OF ADULT ENTERTAINMENT
BUSINESSES
In order t& determine if there has been a significant change in
assessed property values which may have been influenced by the
proliferation of "adult entertainment" businesses, the
Department has calculated the change in the assessed value of
land and improvements for properties occupied by, and located
within, a 1,000 to 1,300 foot radius of known concentrations of
adult entertainment businesses. Five such areas were selected
for analysis, as described below. The year 1970 was selected as
the base period because of the availability of data for that
year, and since that point in time corresponds approximately
with the beginning of the proliferation of adult entertainment
businesses in Los Angeles. The percentage change in the
assessed "market" value of land and improvements for commercial
and residential properties was calculated for the 1970 base year
and for 1976.
'Similar calculations covering the same time period were also
prepared for "control areas" (containing no concentration of
adult entertainment businesses) but which were similar, in terms
of zoning and land use, or which were located in geographical
proximity to the study area nodes. Four such control areas were
selected.
1. Study end Control Areas
On the basis of field invesigations and other available
data, the Department determined that there are five
different areas within the City suitable for analysis, each
containing a relatively high concentration of adult
entertainment establishments. As shown in Exhibits "A" and
"8" on the following pages, three 'of these concentrations
(or "nodes" of activity) are located in Hollywood; one is
in Studio City; and one is in North Hollywood. In each
case, the focal point of the area .selected for analysis was
the intersection of two major streets, with the adult
entertainment businesses located along the commercially
zoned frontage of one or both of the streets forming the
intersection. In four of the five areas selected,
resi'dent ial ly zoned and developed properties are situated
not farther than one-half block from the commercially-zoned
f_rontage. (One node in Hollywood is entirely surrounded by
commercial properties.)
-22-
exMIU|T_A
I.^PykLENIERTAINMENT STUDYl
Cfhi'Ji TRACTS
CENTRAL'citYl
oooKsnes/AHCAoe
'THBATcflSI
:ADULT MOTELS'
- 22-n
I'MASSACC PARUORS
BOOKSTORCS/AH CADIS
ITMeATSRS . •
IADULT MOTELS
<2h
,000 2,000 rr.
T ft A TIO M
Although Main Street in downtown Los Angeles contains a
relatively high concentration of sex-oriented businesses
(primarily theaters, arcades and bookstores)/ this area was
not selected for analysis since no residential properties
are located in proximity thereto. In addition, Main Street
has traditionally contained burlesque theaters, arcades,
bars and similar types of establishments, and there has
been no significant change in this generalized pattern of
land use during the past ten years.
In the Hollywood area, the fecal points of 'concentration
are at the following three intersections: Santa Monica
Boulevard and Western Avenue (containing 12 such
businesses); Hollywood Boulevard and Western Avenue (9 such
businesses); and Solmna Avenue and Cahauenga Boulevard
(containing 7 such businesses). In Studio City, the focal
point is east of the ma.in intersection of Tujunga Avenue
and Vineland Avenue (at Eureka Drive) which contains six
adult entertainment businesses; and in North Hollywood the
focus of concentration is at Lankershira Boulevard and
Vineland Avenue (containing 4 such businesses)
In the Hollywood area, property within an approximate
1,000-foot radius of the above named intesoctions was
included for purposes of analysis. In Studio City it was
appropriate to include those properties situated within an
approximate 1,500 foot radius of the intersection of Eureka
Drive; in North Hollywood, property within an approximate
1,500 foot radius of the intersection of Lankershira
Boulevard and Vineland Avenue was selected for analysis.
-23-
As also shown in Exhibit "A", three separate "control
areas" were established in Hollywood, each originating at
the intersection of two major streets and also encompassing
all property within an approximate 1,000-foot radius of the
street intersection. Control areas were established at:
Santa Monica Boulevard and Vermont Avenue; Hollywood
Boulevard and Highland Avenue; and Hollywood Boulevard and
Gower Street. In the San Fernando Valley, Exhibit "-8"
indicates o*ne control area, centered at the intersection of
Lankershira Boulevard and Whipple Street, and encompassing
property within a radius of approximately 1,500 feet of
that intesection, relates to the two nodes of concentration
in Studio City and North Hollywood. None of the control
areas has adult entertainment businesses within its
boundaries, with the exception of the area surrounding the
intersection of Hollywood Boulevard and Gower Street which
contains one such business.
Table IV, indicates tho percentage change in assessed land
and improvement value from July 1970 to July 1976 for the
commercial and residential property encompassed by the
applicable radius surrounding each of the five nodes of
concentration, together with their corresponding control
areas. For purposes of comparison, the same data is shown
for the entire City and for the Community within which the
study areas are located. Since concentrations of adult
entertainment businesses could have a particular effect on
the value of other business properties in an area, a
separate tabulation is also shown for only commercial 1 y
zoned land within each study and control area. {Tab le fV-A.j
As indicated in Table IV, the 1970-76 percentage change in
total assessed "market" valuation of commercially and
residentially zoned property (land plus improvements)
i n c r e a s e d in all three areas in Hollywood containing
concentrations of adult entertainment businesses. However,
there was some variance in the magnitude of the increase.
Changes in the three study area nodes were 2.79, 8.71, and
3.41 percent; compared with increases in the three
corresponding contro'l area of 12.53, 1.94, and 5.09
percent, respectively.
The study area node located at Santa Monica Boulevard and
Western Avenue increased by 2.79 percent, compared with a
substantially greater increase of 12.53 percent in the
"control area" associated with that node. Total assessed
value within the study area surrounding the intersection of
Selma Avenue and Cahuenga Boulevard increased by 3.41
percent while the associated control area increased by the
slightly greater amcunt of 5.09 percent. In direct
contrast to this pattern, however, the Hollywood and
Western node registered an 8.71 percent increase, while its
corresponding control area increased by only 1.94 percent.
-24-
IV
1970-76 Changes in Assessed Valuation of Commercial and Residential Land and Improvements
for Five Areas Containing Concentration of Adult Entertainment Businesses, as Compared
With "Control" Areas, Surrounding Community, and City of Loa Angdles.
Property Within Approximate 1/000 to
1,800 Foot Radius of Intersection of
Streets Shown:
No. of Entertainment
"Sites"
1969-70 June 1977
Percentage Change in Assessed
Valuation 1970-76
Land Improvements Total
1
Santa Monica Boulevard and Western
Avenue (Hollywood)
Santa Monica Boulevard and Vermont
Avenue (Hollywood Control Area)
Hollywood Boulevard and Western
Avenue (Hollywood)
Hollywood Boulevard and Highland
Avenue (Hollywood Control Area)
Selma Avenue and Cahuenga
Boulevard (Hollywood)
Hollywood Boulevard and Gower
Street (Hollywood Control Area)
Hollywood Community
City of Los Angeles
Tujunga Avenue and Ventura
Boulevard (Studio City)
Lankershim Boulevard and Vineland
6
N.A.
6
N.A.
4
N.A.
N.A.
N.A.
'1
2
12
0
9
0
7
1
31
N.A.
6
4
-0.22
-4.84
3.51
' 19.32
21.12
17.76
21.20
35.08
67.11
15.88
5.81
32.66
13.21
-7.83
-12.54
-8.61
32.72
38.92
63.10
9.65
2.79
12.53
8.71
1.94
3.41
5.09
27.00
37.15
64.93
12.61Avenue (North Hollywood)
- 24-a -
TABLE IV (cont'd.)
Property Within Approximate 1,000 to
1,800 Foot Radius of Intersection of
Streets Shown;
Lankershim Boulevard and Whippla
Street (Valley Control Area)
Sherman Oaks-Studio City
Community
North Hollywood Community
City'of Los Angeles
No. of Entertainment
"Sites"
1969-70 June 1977
N.A.
N.A.
N.A.
N.A.
10
5
212
Percentage Change in Assessed
Valuation 1970-76
Land Improvements Total
62.28
69.25
28.59
35.08
27.66
60.44
33.15
38.92
42.76
64.33
31.07
37.15
- 24-b -
TABLE IV-A
1970-76 Changes in Assessed Valuation of Commercially Zoned Land and Improvements for
Five Areas Containing Concentration of Adult Entertainment Businesses as Compared With
Commercially Zoned Land in "Control Areas", Surrounding Community, and City of Los Angeles.
Property Within Approximate 1,000 to
1,800 Foot'Radius of Intersection of
Streets Shown:
No. of Entertainment
"Sites"
1969-70 June 1977
Percentage Change in Assessed
Valuation 1970-76
Land Improvements Total
Santa Monica Boulevard and Western
Avenue (Hollywood)
Santa Monica Boulevard and Vermont
Avenue (Hollywood Control Area)
Hollywood Boulevard and Western
Avenue (Hollywood)
Hollywood Boulevard and Highland
Avenue (Hollywood Control Area)
Selma Avenue and Cahuenga
Boulevard (Hollywood)
Hollywood Boulevard and Gower
Street (Hollywood Control Area)
Hollywood Community
City of Los Angeles
Tujunga Avenue and Ventura
Boulevard (Studio City)
Lankershim Boulevard and Vlneland
Avenue (North Hollywood)
6
N.A.
6
N.A.
'
4
N.A.
N.A.
N.A.
1
2
12
0
9
0
7
0
31
212
6
4
-0.
-12.
-2.
25.
21.
17.
13.
12.
19.
-0.
47
53
52
01
93
07
43
27
24
76
8.
4.
-0.
-11.
-18.
-17.
-1.
. 13.
25.
3.
53
13
45
19
79
22
51
52
63
91
3
-6
-1
4
0
1
6
12
21
1
.4
.30
.77
.06
.54
.09
.70
.93
.9
.92
- 24-c -
Property Within Approximate 1,000 to
1,800 Foot Radius of Intersection of
Streats Shown:
Lankerahim Boulevard and Whipple
Street (Valley Control Area)
TABLE IV-A (cont'd.)
No. of Entertainment
"Sites"
1969-70 June 1977
Percentage Change in Assessed
Valuation 1970-76
Land Improvements Total
N.A.0 02.20 -6.35 27.16
Studio City Community
North Hollywood Community
City of Los Angeles
N.A.
N.A.
N.A.
10
5
212
30.95
2.74
12.27
13.01
7.56
13.52
22.02
5.21
12.93
Sources/Notes _- Table'sIV and IV-A»
Actual assessment data from which percentage changes in Tables IV and IV-A were derived ia
shown in Appendix A. Assessment data was obtained from the City's Land Use Planning and
Management System (LUPAMS) computer file. Data is as of July 1 for years shown. "Entertainment
Site" means adult theatre, arcade, masaaga parlor, nuda dnnoing •»t«bli«hmant or aimilar uaa.
Mumbar of "antartainmenb aitaa" for 1969-70 was obtalnad from L. A. Police Department; for June
1977 from L. A. Police Department and L. A. City Planning Department. N.A. means not available.
Property included within areas described is shown in Exhibits A and B.
- 24-d -
The percentage increase in assessed values within the t.Mree
study areas.. as wall as the control areas, was considerably
less in each case than percentage gains registered by the
Hollywood Community or the City as a whole.
In the case of the study area nodes located in the Sen
Fernando Valley, the pattern appears to ba somewhat more
spurious. The study area node containing adult
entertainment businesses located in Studio City (centered
east of the intersection of Tujunga Avenue and Ventura
Boulevard) increased by 64.93 percent — the largest increase
of any of the areas analyzed. In direct contrast, the
"adult entertainment node" located at Lankershim Boulevard
and Vinaland Avenue increased by only 12,61 percent. The
one "control area" associated with these two Sin Fernando
Valley nodes increased by 42.76 percent -- a substantially
greater gain than the North Hollywood node; but 22 percent
less than the Studio' City node. (Whether the sharp
percentage increase shown for the Studio City node was the
direct result of a recent reassessment cannot be readily
determined. )
The increase in assessed value within the Studio City study
area wes virtually the same as that of the entire Sherman
Oaks-Studio City Community but almost twice the percentage
gain for commercial and residential properties in the
entire City. The' North Hollywood study area increased by a
considerably lower percentage than the North Hollywood
Community and the City as a whole.
With regard to commercial properties considered separately,
Table IV-A revea Is that the percentage change in assessed
values of land and improvements combined was generally
lower in all study areas than in their corresponding
control areas. One notable exception, however, is the
Santa Monica Boulevard and Western Avenue node which
increased by 3.4 percent, while its corresponding control
area (Santa Monica and Vermont) decreased by 6.38 percent.
In Hollywood the change in assessed values of all study and
control areas was lass than in the entire Hollywood
Community. In the San" Fernando Valley the two study areas
both increased less than the entire communities within
which they are situated.
Conclusion - Changes in Assessed Valuation
On the basis of the foregoing there would seem to be some
basis to conclude that the assessed valuation of property
within the study areas containing concentrations of adult
entertainment businesses have general ly tended to increase
to lesser degree than si mi lar _____ ere as without such
c o nc a ivt rations. Htwesww^^'fTt^^WS"'"'?1'? S'f'f "H"""^ frMwv^~ **»*<:.*.
w <*OiJfcd»a*ft»**i» ..... Mj-HM-i'^'Hresyflfatnyfrgjr^^ f h 4
si, ne s ses.
-25-
-26-
I 8. PUBLIC MEETINGS
Two public meetings were conducted by representatives of the
' City Planning Commission in order to receive citizen input
i regarding the effects, if any, of concentrations of "adult
entertainment" establishments on nearby properties and
surrounding neighborhoods. Notice of the hearings was published
in local newspapers; aired on radio, mailed to owners of
commercial and multiple residential property within 500 ft.
radius of the study areas and also to persons who had previously
responded to the Department's questionnaire.
The first meeting was held in Hollywood on April 27, 1977 at Le
Conte Junior High School. The second meeting was conducted in
• Northridge on April 28, 1977 at Northridge Junior High School.
Both meetings were conducted by Planning Commission President
i Suzette Neiman and Planning Commissioner Daniel Garcia, with
j Deputy City Attorney Chris Funk also in attendance.,
Questionnaires were available at the meetings for the
convenience of those wishing to submit their comments in writing.
Attendance was approximately 200 persons at the Hollywood
meeting and 300 persons at the Northridge meeting. A combined
total of 60 persons addressed the Commission. The following is
a summary of the comments received by the Commission. (Tape
recordings of the hearings are available for review • under City
Plan Case Number 26475, in the Planning Commission Office, Room
561-K, Los Angeles, City Hall, telephone (2.13) 485-5071.)
The most prevalent type of comment at the Hollywood meeting was
an expression of fear of walking in areas where "adult
entertainment" and related business are concentrated. This
concern was expressed both by parents, reluctant to allow their
children to be exposed to offensive signs and wares, and by
women and elderly persons who feared walking in the areas either
in the day or evening, because of the incidence of crime in the
I.- area. Specific instances of solicitation and other crimes were:- recited. Some proprietors testified that they fait their
businesses have suffered, due to fear on the part of their
I customers. Other common statements concerned:
Physical or economic deterioration of the area resulting
from the influx of adult businesses.
An increase in street crime.
Offensive signs and displays.
A need to use existing enforcement tools; such as "red
light abatement" to control "adult entertainment"
businesses.
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Representatives of La Cienega art gallery proprietors
expressed concern over the recent establishment of an adult
theater in the area and its incompatibility with gallery
use.
A representative of the "Pussycat Theaters" organization
informed the Commission that a survey taken by the theater
operators indicated that the majority of patrons were middle
class, that most were registered voters, and that many were
married and had college educations. It was stated that a large
number of the patrons were found to reside within a few miles
of their theaters. The representative of this theater chafn
expressed concern at the "lumping" of all adult entertainment
businesses into one classification. He felt that in terms of
aesthetics, clientele, and effect upon the neighborhood, the
theaters were not in the same classification as some other
types of adult businesses. (The Commission requested the
written documentation of the survey; however, it has not been
rece i ved to date. )
Several speakers at the Northridge meeting expressed concern
that the City even felt it needed to request their opinion on
such a subject. They felt that their displeasure over the
distribution and display of pornographic materials should be
obvious. Citizens also indicated how they had been responsible
for the closing of certain establishments in the San Fernando
Valley by picketing and other means. Some speakers indicated
that they were disturbed by the availability and display of
obscene material in drug stores and supermarkets.
The following is a summary listing of specific relevant
comments from the two meetings:
Hollywood Meeting (April 27, 1977)
It was alleged that organized crime is in the sex service
business and that this is a $64 million local business.
Hollywood and particularly Hollywood Boulevard was once a
cultural center; now there is a different class of people.
This is a degeneration of Hollywood and Hollywood Soulevard.
In Hollywood, due to fear for safety, people walk'around in
groups, not alone or as couples.
Zoning is not the ultimate response to obscenity: there are
public nuisance laws, red light abatement statutes, etc.
There was concern about the effects on children; parents in
Hollywood indicated that they did not allow their children
to walk unescorted: there are too many muggings and attacks.
There are problems brought on by the changing population of
the area: street fights, acts of mischief and minor
property damages have resulted.
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A local minister indicated concern for the elderly, and
that children from 4 to 7 years eld cannot ride their bikas
without being accosted; he also indicated there had bean 23
arrests for prostitution near a local elementary school; he
further stated that residents have to go to other areas to
shop.
A representative of a local synagogue stated that the
elderly were afraid to walk to religious services and that
car pooling had bean established.
A representative of the Hollywood Businessmen's Association
advised that 50 percent of the sex crimes reported (in the
City) were in the Hollywood area; that since the Police
have closed some sex establishments crime has dropped; that
adult entertainment businesses have contributed to a
deteriorating condition in Hollywood; that there is a 100
percent turnover in school attendance; that the business
license ordinance should be modified to • require an
environmental impact report and proper sign controls for
new establishments and that notice should be given to
persons within one-half mile; he also reiterated that
traditional businesses were leaving the area.
It was indicated that property values had gone down; Vine
and Selma was valued at S12.50 per sq. ft. years ago, but
recently it was worth only $8.50 per sq. ft.
Northridge Meeting (April 28, 1977)
A representative of the North Hollywood Chamber of Commerce
ind-icated that adult entertainment businesses were an
economic.and social blight; that the Police Commission was
no help; that they had proposed the M3 Zone for these uses;
that we need more police and should make greater use of red
light abatement; that the Alcoholic Beverage Control
Department should do more.
Claims were made that the Pussycat Theater in North
Hollywood was a dangerous environment to women and
children; that in the recent past 2 teenage girls had been
accosted and a woman had been attacked and had to j.ump from
a car.
A beauty shop owner near a Pussycat Theater indicated she
no longer stayed open in the evening because her customers
were afraid.
Adult entertainment businesses should be required to rent
space in "Class A" buildings.
Various persons objected to newsracks, obscene material,
problems of congestion and ingress and egress.
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The Miller vs. California court case was discussed: it was
contended that this case established that "a community can
set its own standards".
Questions were posed as to whether economic and financial
impact should be facts needed to develop an ordinance to
control adult entertainment.
Claims were made that adult entertainment business bring
crimes and violence to the area.
A speaker stated that both the Boston and the Detroit
ordinances are unacceptable. "You cannot control
pornography by zoning", and opposition to the zoning
approach to obscenity was expressed.
"California is the pornographic capital of the world."
People are offended by pornographic material in department
stores, drug stores, supermarkets, etc. The recent Los
Angeles County newsrack ordinance was discussed.
One person posed the question "why don't we have an
Environmental Impact Report for pornographic businesses?"
Church representatives and a teacher at the Christian
School were concerned about their members and children
being exposed to pornographic advertising displayed at the
Lankershim Theater and Pussycat Theater. They are afraid
to let their children out on the streets.
It was stated that "we should use civil, public nuisance
and red light abatement to control adult entertainment
businesses."
Conclus ion
In summary, the overwhelming majority of speakers felt that the
concentration of "adult entertainment" businesses in their
neighborhood was detrimental, either physically by creating
blight or economically by decreasing patronage of traditional
businesses; or socially by attracting crime. As a result of
increased crime, nearby residents have become fearful- and have
been forced to constrain their customary living habits in the
commun i ty.
Although the testimony obtained at the public hearings would
from a subjective point of view, substantiate the conclusion
that "adult entertainment" businesses have a deleterious effect
on the surrounding community, the staff is of the opinion that
legitimate questions may have been posed by the Pussycat
Theater- representative regarding a single classification for
all "adult entertainment" uses. There would appear to be some
basis to support the contention that certain types of such uses
are more "objectionable" than others, and that negative effects
of a particular type of business might be minimized, depending
on how the business is operated and advertised.
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C. SURVEY QUESTIONNAIRE CONDUCTED BY DEPARTMENT OF CITY PLANNING
I -• Description of Survey
In order to determine additional factual data relating to
the subject, and to seek the comments and opinions of
I property owners, businessmen, realtors, real estate boards,
' real estate appraisers; representatives of banks-. Chambers
of Commerce., and others, the Department conducted a mail
j survey. Two questionnaires were developed. One w<is
| designed primarily for businessmen and residential property
owners and is hereinafter referred to as the General
; Questionnaire. The second was designed for realtors, real
I estate appraisers and lenders and is hereinafter referred
to as the Appraiser Questionnaire. A copy of tha two
questionnaires is contained in the Appendix. The completed
questionnaires, together with other letters relative -to
this subject- are on file in Room 510, Los Angeles City
Hall .
I The General Questionnaire was mailed to all property owners
(of other than property in single-family use) within a
500-foot radius of each of the five study areas. The
questionnaire was also distributed to various community
groups (including local and area Chambers of Commerce) and
at the public meeting 1n Hollywood and in Northridge.
The Appraiser Questionnaire was mailed to all members of
the American Institute of Real Estate Appraisers having a
i Los Angeles City address and to members of the California
! Association of Realtors whose office is located in the
vicinity of the study areas.
I Each of" the two questionnaires contained spaces for a
respondent to check answers to a series of questions
relating to the overall effect (if any) of adult
[.-.; • entertainment establishments on nearby properties. It
i should be emphasized that the Department intentionally
structured the "objective response" portion of the
j questionnaires so as* to reduce "bias" and to solicit the
' maximum range of responses to any -specific question. For
example, a respondent could check "positive", "negative" or
"no effect" In response to the question... "What overall
effect do you fael that adult entertainment establish-
ments have on a neighborhood?"
In addition to the direct response portion of the
questionnaire, information of a more subjective nature was
also solicited. For example, after each question.. space
was provided for a respondent to list any comments or
examples which might -pertain to a specific question. The
beginning of each questionnaire also invitad the respondent
to write comments in the space provided or on a sap,?.rat2
sheet.
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.Betw-een-february 10 and April 30, 19770 a total of approxi-
mately 4»000 questionnai re-s were mailed (with return
en-ve-1-opes provided) or otherwise distributed to
businessmen. real -estate appraisers. re-:.ltcrs;reprasentatrives of banks and savings and loan institutions,
the owners of multiple-unit residential property. and
others. Of th is -ntunber, 694 quest ionnatres were completed
and returned to the
rate- o-f return) .
Department (an overall 17.4 percent
c : t a d.
S t u d to
private
mailing
In~ addition., the Department recei-ved 1.97 non-so
completed questionnaires from property owners in
City. These questionnaires were distributed in a
ma i 1 i ng .by"a'privcte individual. The subject
included a repl.ica of the Department's appraiser
questionnaire., together'with written material alleging City
intent to create an adult entertainnrent Z'one in Studio City
.(copy fncluded as Appendix' 0-2). According to the subject
individual's testimony at the public hearing on April 27,
1977, 11.000 replica questionnaires were" mailed. Due to
the prejudicial nature of the mailing,, these questionnaires
are not included in the study. However,
tabulate the. subject responses and the
summary are included in-'Appendix 0-3.
responding to the above mailing were sent a
'•Department; correcting the misi nf ormat i.an (copy included in
Appendix D-l).
2. Resu-Hs of Survey Questionnaires
A tabulation of the responses to the specific questions
solicited in the objective portion in each of the two types
of questionnaries is presented below. A summary of the
comments follows:
GENERAL QUESTIONNAIRE
- RESPONSES'-
the staff did
tabulation and
All persons
memo from the
Total no. of.responses •
Totalno~.of questionnaires
581 = 16% return
Quest ion
What overall affect do you feel
that adult entertainment establishments
have had on a neighborhood:
Pos i t i ve
Effect on the business condition
(salas & profits) in the area: 43(7.4%)
Effect on -homes (value & appearance)
in the aroa immediately adjacent to
adult entertainment businesses: 37(5.9%)
Negative
452(84.7%)
No effect
36(6.23)
472(81.2%) 26(4.5%)
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Effect on homes (value &
appearance) in the area
located 500 feet or more
from adult entertainment
businesses?
2.t Do you believe the
establishment of adult
entertainment facili-
ties in the vicinity
of your business has
had any of the
following effects?
(Please check al 1
those effects which
you feel have
occurred.)
Positive
35(6.0%)
Negat iye
446(76.8%)
Me effect
19(3.3%)
26 (4.5%) no effect
206 (35.5%)lower rents
275 (47.3*)vacant
businesses
288 (49.6%) tenants
moving out
224 (38.6%) complaints
from customers
3 ( - ) less crime
305 (52.5%) decreased
property values
13 (2.2%) increased
property values
370 (63.7%) more crime
1_ ( - ) improved
neighborhood
appearance
16 (2.8%) lower
taxes
98 (16.9%) higher
taxes
489 (84.2%) decreased
.business activity
(1.4%) increased
bus iness
416 (71.6%}deteriOrated 312 (53.7%) more
neighborhood litter
appearance
8 (1.4%) other (please specify)
3. (Not applicable for tally.)
4. Have you seriously considered
moving your business elsewhere
because of nearby concentrations
of adult entertainment businesses?
167 (28.7%) Yes 165 (28.4%) No
5. Would you consider expanding in
your current location?
83 (14.3%) Yes 177 (30.5%) No
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What types of adult 410 (70 6*1 ^,,ifentertainment — (/0'6^ *du't JL79 (30.8%) nude or
establishments are bookstores topless dancing
there in your area 31D (si A*\
(Please check — (53'4%) mas^e 389 (67.0%) adult
Appropriate boxes.) parlors theatres
190 (32.7%) peep shows 240 (41.3%) adult
motels
trim your businessadult •
other sex shops
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Responses to the foregoing questions reveal that adult entertainment
businesses are perceived by the majority of respondents as exerting
a negative impact on surrounding businesses . and residential
properties.
Whether or not such negative impacts have Actual ly occurred., or only
perceived to have occurred, cannot be readily determined,
empirically, on the basis of this survay. However, in terms of the
attitudes of the respondents toward sucn businesses, the conclusion
must be drawn that the overall effect on surrounding properties is
considered to be negative.
Among the adverse effects of adult entertainment establishments
cited by businessmen are:
Difficulty in renting office space
Difficulty in keeping desirable tenants
Difficulty in recruiting employees
Limits hours of operation (evening hours)
Deters patronage from women and families; general reduced
patronage
Of those businessmen indicating that they have not seriously
considered moving because of nearby concentrations of adult
entertainment business, the most frequent response was that they had
been in the area a great many yaars, and to establish elsewhere
would be too risky and/or that their investment was too great to
move. A few respondents indicated that it is the adult
entertainment businesses that should move, not they.
The few businessmen commenting that they would not consider
expanding in their current location indicated that their business
did not warrant expansion.'
Several businessmen indicated that their businesses are relatively
unaffected by nearly adu1t entertainment establishments. Among the
businesses cited are a- commercial art studio; a building trades
contractor; a mail order business; a telephone answering service and
a wholesaler.
Among the few positive effects cited by businessmen is the increase
in business for certain non-adult entertainment businesses such as
tourist-serving businesses (e.g. car rental agencies). "The bad
effect it might have is cancelled out by the business it does
attract; x-rated theaters attract tourists."
Many respondents commented on . the crimes associated with adult
entertainment e~stdb 1 ishments: prostitution, dope, theft, robbery,
etc. A high percentage of respondents report they do not feel safe
in such areas.
A high percentage of respondents commented on their concern for the
effects of adult entertainment environment on the morals and safety
of children.
A high percentage of respondents commented on the aesthetics of
adult entertainment establishments: garish, slaazy; shabby,
blighted, tasteless, etc. Also, many commented on the increased
incidence of litter and graffiti.
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APi-nAISER QUESTIONNAIRE
- RESPONSE^ -
i
'Total no. of responses =
Total no. of questionnair-e.s
81 20% return
Question
' 4
What--effect _d.oes the concentration
of adult entertainment esta-bl ishment-s
have on the market value of business
property (land, structures, fixtures,
etc.) located in the vicinity of such
establishments?
What effect does the concentration
of adult entertainment establishments'
have on the rental value of business
property located in the vicinity of
such establishments?
What effect does the concentration of
adult entertainment establishments
have on the rentabil i ty/saleabi1ity
of business property located in the
vicinity (length of time required to
rent or sell property; rate of lessee/
buyer turnover; conditions of sale or
lease, etc.)?
What effect does the concentration of
adult entertainment establishments
have on the annual income of businesses
located in the vicinity of such
establishments?
Have any business owners or proprietors
considered relocatfng or not expanding
their businesses because of the nearby
concentration of adult ente'rta-i-nment
establishments?
In recent ye-ars, has' the commercial
vitality (sales, profits, etc.) of any
area in the City of Los Angeles been
affected in any way by the nearby
concentration of adult entertainment
establishments?
Response
increase in value 1 ( - )
decrease in value 71 (87.7%)
no effect 5 (6.2%)
increase in value 1 ( - )
decrease in value 55 (67.9%)
no effect- - 4_(4..9%)
increase in rentability/
saleability : 3 (3.7%)
'decrease in rentafcn 1ity/
saleabil.ity 48 (59.3%)
no- effect'3-(3.7%)
increased income 2 (2.5%)
decreased income 59 (72-8%)
no effect 7_(8.6%)
yes. 23 (28.4%)
no 4_ (4.9%t
not known 28 (34.6XT
yes 45 (55.6%y
no- 29 (35.8%T
not known - -
7. What effect does the concentration of
adult entertainment establishments
have on the market value of private
Less
500
More
8.
residences located within the following
distances from such establishments?
Increase Decrease
than 500 feet 2 (3.8%) 48 (90.6%)
- 1000 feet 2 (3.6%) 51 (91.1%)
than 1000' feet 1 (3%) 29 (87.9%)
What effect does the concentration
of adult entertainment establishments
have on the rental value of residential
income property located within the
fallowing distances from such
establ ishments?
Increase Decrease
Less, than 500:feet 2 (3.4%) 51 "(87. 9%)
500
More
9.
Less
500
More
10.
- 1000 feet 1 (2.6%) 33 (86.8%)
than 1000 feet 1 (2.8%) 27 (75%)
What effect does the concentration of
adult entertainment establishments
have on the rentabili ty/saleabi 1 i ty of
residential property located within the
following distances from such establish-
ments?
Increase 'Decrease . x
than 500 feet 1 (2.5%) 37 (92. .5%)
- 1000 feet 1 (2.6%.) . 35 (89.7%)
than 1000 feet 1 (2.8%) 28 (77.8%)
In regard to the questions setforth above, p
effects which you believe the concen
entertainment business has on each of the fol
Property values of surrounding:
No effect
3 (5.7%)
3 (5.4%)
3 (9.1%)
No effect
5 (8.6%)
4 (10.5%)
8 (22.2%)
No effect
2 (5%)
3 (7.7%)
7 (19.1%)
lease descri
trat ion of
1 owi ng :
Total
53
56
33
Total
58
3ff
35
Total
40
39
36
be the
adult
Decrease Unknown No effect Increase
Commercial property 45 (56.8%) 32 (39.5%) 1 2 (2.5%)
Residential property 42 (51.9*) 33.(46.9%) - 1
General 16 (19.8%) 65 (30.2%)
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Rental values of surrounding:
Decrease No response No effect Increase
Commercial property 39 (48.1%) 42 (51.9%)
Residential property 37 (45.7%) 44 (54.3*)
General 12 (14.82) 69 (85,2%)
Vacancies
Number 1 56 (69.1%) 1 23 (28.4%)
Length 1 72 (88.9%) 2 (2.5%) 5 (7.4%)
Rate of tenant turnover - 49 (60.5%) 1 31 (38.3%)
Annual business income 24(29.6%) 53 (65.4%) 2 (2.5%) 2 (2.5%)
Complaints from
customers and
residents due to
concentration Yes 24(29.6%) 57 (70.4%)
Neighborhood appearance 24(29.5%) 3 (3.7%)
Crime 11 - 48 (59.3%)
Litter 1 1 44 (54.3%)
Other (please specify)
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GENERAL QUESTIONNAIRE
- REALTOR RESPONSES -
Total no. of responses = 32
NOTE:Due to distribution, certain realtors received the General
Questionnaire rather than the Appraiser Questionnaire. For
analysis purposes, the subject responses were tabulated
separately and analyzed together with the responses to the
Appraiser Questionnaire.
Question
1. What overall effect do you feel
that adult entertainment
establishments have had on a
neighborhood:
Positive
Effect on the business condition
(sales & profits) in the area:
Effect on homes (value & appearance)
in the area immediately adjacent to
adult entertainment businesses:
Effect on homes (value & appearance)
in the area located 500 feet or more
from adult entertainment businesses:
Negat i ve
31 (97%)
31 (97%)
29 (91%)
No effect
Do you be!ieve the
establishment of adult
entertainment facilities
in the vicinity of your
business has had any
of the
following effects?
(Please check all
those effects which
you feel have occurred.)
1 (31.3%) no effect
23 (71.9%) lower rents
25 (70%) vacant
bus inesses
25 (70%) tenants
mov ing out
29 (91%) decreased
property
values
increased
property values
3 (9.4%) lower taxes
25 (70%) complaints 7 (21.9%)higher taxes
from customers
0 less crime 23 (91%) decreased
business act i vi ty
26 (81.3%)more crime 0 increased business
-42-
I .
3
4
30 (94%) deteriorated
ne i ghborhood
appearance
27 (84%) more litter
Other (please specify)
(Not applicable for tally.)
Have you seriously considered
moving your business elsewhere
because of nearby concentrations
of adult entertainment businesses?
10 (31.3%) Yes 15 (46.9%) Ho
Would you consider expanding in your
curren-t location?
10 (31.3*) Yes
What types of adult
entertainment estab-
lishments are there
in your area?
(Please check
appropri ate boxes .)
12 (37.5%) No
27 (84.4%) adult
bookstores
17 (53.1%) massage
parlors
15 (46.9%) peep shows
13 (40.6%) nude or
topless dancing
24 (75%) adult
theatres
15 (46.9%) adult
mote 1 s
12 (37.5%) bars with X-rated
entertainment
How far from your business
is the nearest adult entertainment
establi shment?
(Not tabulated due to limited
response.)
0. U.S. CENSUS AND RELATED DATA
1. Cluster Analysis "Used by Community Analysis Bureau to Describe
Various Parts of the City"
The last U.S. Decennial Censu:; was conducted on April I,
1970. With the proliferation of adult entertainment
business it would seem appropriate to fncludo as background
information a description of the socio-economic and
physical characteristics of the areas under study, as
revealed by census data. Such c description • ney provide
insight as to the underlying factors contr ibut i ncj to the
concentration of sex-oriented business in the are^s undar
study.
An excellent available source providing such a description
is a 1S74 report prepared by the City's Community Analysis
Bureau (CAB) concerning the""State of the City".* In this
document, the CAB has utilized a statistical technique
known as "cluster analysis11 to identify specific areas
within the City which .have common characteristiesv as
revealed by census data. In conducting this study, tha CAB
made use of 66 census date items (or variables) which were
selected from the entire spectrum of socio-economic and
physically descriptive data- items available for all census
tracts in the City.
The U.S. Census Bureau reports data on numerous
geographical levels, the "census tract" being the smallest
geographical area for which data is maintained and reported
on a regular basis. There are 750 such census tract areas-
in the City, each containing a population of slightly fewer
than 4,000 persons, on the average. The five study area
nodes and four control areas under study herein are
contained within portions of 25 census tracts.
The particular variables' which most accurately describe s.
particular census tract were used by the Community Analysis
Bureau in such a manner as to combine those areas which
have the most similar characteristics. As a result of this
procedure, thirty .cluster groups were established
throughout the Ci-ty, each such cluster consisting of one or
more census tracts, each census tract within a particular
cluster being more similar to other parts of that' cluster
than to any other geographical section of the City.
The State of the City - A Cluster Analysis of Los Angeles - City
of Los Angeles Community Analysis Bureau,June1974.~
Description of-Hoi lywood Area " •
The three study areas in Hollywood containing
concentrations of adult entertainment businesses are
incl'uded within portions of 11 census tracts. Their three
associated "control areas" are partially contained within
nine census tracts. These 20 tracts are all included
within-a- larger area identified in the CAB's report as
"Cluster 15", entitled "The Apartment Dwellers", consisting
of 34 tracts. A .description of this area, as quoted from
the previously cited CAB report, is set forth below.. The
fact that this description is based on data which is now
seven years old may not be disadvantageous, for the
purposes of this study, inasmuch as adult entertrai-rrment
businesses began tc flourish in the 3.962-70 period.
" Cluster 15 is a lower income, predominately- old
apartment area located west of the Civic Center..."
"The cluster represents a total population of 174-,000,
46% male and 54% female. The median aga is 40. The
area is mostly White, but dees have an above average
ethnic mix--lS% Spanish-American, 3% Japanese, 2%
Chinese, 3% Black. It is a cluster of workers a-nd
senior citizens. One in five residents is over 65.
Female participation in the labor force is the highe-st
of the 30 clusters. The population under 18 is
small. Many of the families are headed by women..":"""
"...Close to seven out of ten labor active resfdeuts
are white collar employed. Most - completed high school
and 15% completed college. At $8,700, median family
income is below the average for the City. This- -lower
income does not translate into an abnormally high
poverty distribution.-. One in ten families and a
smaller proportion of unrelated individuals are
welfare recipients..."
"...Residents of the cluster are'centrally located to
both the Downtown and its cotnmerc i a 1-f inane i al strip
extension, Wils'hire Boulevard. Many public transit
routes service the area. Close to 40% of the"
households have no automobile. The presence -of two or
more cars is not common. .Of .the older apartment
complexes many have no garage facilities..."
-45-
"...Old apartments comprise 42* of the multiple
units. One of the heaviest concentrations occurs s?.st
of Western Avenue and north of Olympic Boulevard.
These are high density, closely packed, racUngul ar
shaped, stucco units which line the streets
approaching Vlilshire Boulevard. South cf Olympic
Boulevard, the pattern remains one cf multiple family
units, but these are generally interspersed with homes
or ara the end product of converted two and three
story frame houses. Hollywood is similar, but is has
several single family residential areas end apartment
encroachment appears to have more of an impact..."
"...Most of the cluster's 102,700 dwellings ara renter
occupied, including a majority of the homes. Median
rent averages $108, but 17% of the multiple dwellings
are available for less than $80..."
"...Single family residences are a small proportion of
the total housing stock and like the area's
apartments, many predate World War II. Few cf the
essentially single family residential neighborhoods
have the kind of zoning protection which requires that
new construction be single units. Replacement housing
has tended to be large apartments. Homes averaged
$26,000 in median value, which is more a factor of the
land than the improvements. Much of the land west of
Western Avenue adjoins the more expensive Hancock Park
area..."
"...Cluster 15 has one of the highest population
densities in the City, 19,080 persons per square mile,
not exceptional for an apartment area. It also has
the highest cluster average of elementary school
transiency rates--46% for incoming students and 34%
for students leaving. This mobility of the residents
did not seem to affect the median sixth grade reading
score. It was above the City average. The cluster
has 8 park sites within its boundary and is also
served by the more regional recreation areas of Echo
Park, MacArthur Park and Griffith Park all of which
are within access..."
"...The incidence of burglary per 100 improved parcels
is high, a partial reflection of the large number of
dwelling units per land parcel. One of the more
disturbing aspects of the cluster is the suicide
rate. Outside of Downtown, only three of the clusters
had higher rates ..."
-46.-
2. Use of 1970 Census Data to Describe Studio City and North
Hoi lywc'cd Area's " "
There are four census tracts which comprise the Studio City
study area; two such tracts in North Hollywood; and three
ce-nsus tracts representing the "control area" for the San
Fernando Valley. (One of the "control area" tracts also
forms part of the Studio City study area.)
The CAB's cluster analysis reveals that these light
different census tracts are all quite dissimilar, inasmuch
as the seven tracts are contained within six different
"clusters". A detailed description of each of these six
clusters would not be practical for purposes of this
Study. However, a summary of certain key variables
attpibptabi? to ttve two study areas in Studio City and
north Hollywood, and tfi§ one corresponding control area
might be instryetive, and is therefore presented .in Table V
• following. For purposes of comparison, the data is also
shown for the City, as a whole-
-47-
TABLE V
Comparison of 24 Variables from 1970 Census
Describing Studio City and North Hollywood Modes
and Corresponding Control Area
VARIABLES
Population
AREAS AND VALUES
Studic City North Hollywood Control
(Tujunga 4 (Lankershim &
Ventura) Vineland)
Population per sq. mile 5,742
2 Persons 0-17 18.4
% Persons 65+ 10.6
% White (non-Spanish) 92.0
% Black 0
% Spanish-American 6.5
% Families w/female head 10.6
Education
% High School
dropouts, 25 & older 22.1
% 25+ who have finished
4+ years college 22.0
Economics
pproximate median
family income $15,672
% White collar
employed 80.4
£ unemployed 7.8
% families in poverty 3.7
X families receiving H
welfare 4.3
% 1-unit structures 50.6
Approximate median value,
owner occupied units $39,141
Approximate median
monthly rent, renter
occupied units $ 135
i of owner occupied,
1 unit, structures
built before 1940 24.1
% of renter occupied,
2+ unit structures
built before 1940 10.9
(Lankershim
5, Vlhipple)
Entire
City
8,265
18.
17.3
85.3
0
13.7
16.4
38.6
10.2
S 9,471
60.6
6.1
10.0
7.6
48.9
$25,335
$ 123
52.4
13.9
5,893
16.7
15.2
90.7
0
7.7
16.4
25.3
18.3
$12,575
$35,530
129
52.2
21.8
.6,041
30.2
10.1
60.3
17.2
18.4
16.2
38.1
13.S
$10,535
77.3
9.1
6.6
4.7
34.2
57.4
7.0
9.9
9.9
51.7
$26,700
107
28.5
30.7
-48-
TABLE V (ccnt'd)
Comparison of 24 Variables from 1970 Census
Describing Studio City and N.orth Hollywood Modes
and Corresponding Control Area
VARIABLES AREAS- AND VALUES
Studio City North Hollywood Control
(Tujunga i (Lankershim & (Lankershim Entire
Crime Rates Ventura) Vineland) & Mhipple) City
Assaults per
100 population .465 .374 ~ .478 .857
Robberies per
100 population .172 .267 .170 .^-\
Burglary per 100
improved parcels 13.86 10.94 13.5 14.96
Total Arrests per
100 population 4.23 4.26 4.10 8.26
Narcotic Arrests per 100
population aged 14-44 2.66 1.39 1.60 2.04
On the basis of the foregoing 1970 Census data, it is
possible to develop a general description of the two study
area modes containing adult entertainment businesses in the
Valley. As indicated above, such a description must
necessarily be based on data applying to entire census
tracts, even through the study areas may encompass only
portions of tracts. •
Residents of the Studio City study area node in 1970 were
predominantly an upper middle income group, with a
relatively high percentage of college graduates. High
school dropouts were considerably below the citywide norm.
Eight out of ten employed persons were in "white collar"
jobs. The percentage of families receiving welfare or in
poverty status was considerably below the citywide
percentage. The unemployment rate was slightly higher than
that of the entire city.
The median value 'of owner occupied homes in the Studio City
area was more than $12,400 higher than the City median.
About one-half of the housing units were one-unit
structures. Apartment rental rates were also higher than
the city as a whole. The percentage of one-unit, owner
occupied housing units built before 1940 (24.1 percent)
approached the citywide median of 28.5 percent.
With regard to crime statistics (as of 1970), robberies per
100 population in the Studio City area were below the rate
for the city as a whole (.172 and .454, respectively),
although the number of burglaries per 100 improved parcels
(13.86) was close to the citywide rate of 14.96. Total
arrests per 100 population (4.23) were about one-half of
the 8.26 rats which prevailed citywide.
..-49-
The North Hollywood study area contrasts rather sharply
with the above described STudio City area. In North
Hollywood, median family income was 59,471 in 1970--1ower
than the citywide median of $10,535-~and considerably lower
than the $15,672 median income of residents in tha Studio
City study area. Sixty-one percent of employed persons
were in "white cellar" jobs in North Hollywood, compared
with 80 percent in Studio City and 57 percent in the entire
city. The percentage of families in a poverty status in
North Hollywood was considerably higher than in Studio City
(10.0 percent end 3.7 percent, respectively). The percent
of families in North Hollywood receiving welfare was higher
than in Studio City, but lower than in the entire city.
Unemployment rates, however, were lower in North Hollywod
than in Studio City and the entire City.
Housing values were considerably lower in North Hollywood
than in Studio City, and slightly lower than average values
throughout the entire city. Median montly rents were lower
in North Hollywood than in Studio City but higher than in
all of Los Angeles. Of all owner-occupied one-unit
structures, 52.4 percent were built prior to 1S40 in the
North Hollywood study area, compared with only 28.5 percent
in the entire city. Single-family homes in North" Hollywood
are older than in Studio City.
As revealed in Table V, 1970 crimes rates for the seven
variables tabulated were lower in North Hollywood than in
the city as a whole. Except for "robberies per 100
population" and "total arrests per 100 population" all
other rates in North Hollywood were lower than in the
Studio City study area.
Tabulation of U.S^ Census Trends from 1960 to 1970
Time series (trend) data can often be of value in
identifying underlying socio-economic or physical
characteristics which may have contributed to the change in
an area. During the course of this study, the staff
prepared a tabulation of the 1960-70 change in selected
socio-economic variables as reported in the U.S. Census,
covering the five study areas, the four "control" areas,
and the City as e. whole. This was done in 'order to
determine if changes in the study area nodes were
significantly different than the "control areas", or from
citywide norms.
A tabulation of this data is contained in Appendix E. A
review of this data revealed that the 1S60-70 trends in the
variables selected (relating to population, economics and
housing) were not significantly different fcr the study
areas than for the "control areas". In general, numerical
cr percantage changes in the data were also similar tocitywide trends and no firm conclusions of particular
relevance tc the study could be developed.
-50-
V.
POLICE DEPARTMENT STUDY OF HOLLYWOOD
This section of the report considers the number and percentages of
adult entertainment businesses in the City, changes in these
businesses since 1975, and more specifically, crime rates in the
Hollywood area as compared to crime rates, citywide.
The following information was compiled by the Los Angeles Police
Department and shows the incidence of certain adult entertainment
establishments as of two different time periods— November of 1S75
and December 31, 1976. The statistics show a decrease in massage
parlors, bookstores, arcades and theaters and a slight rise in adult
motels- This was during the same period of time that there was
stepped-up surveillance and deployment of officers in areas where
concentrations of adult entertainment establishments existed. (The
Hollywood community is within the West Bureau.)
This information and that which follows involving the incidence of
crime in the Hollywood area provides what mey be a positive
correlation between crime and the presence of adult entertainment
facilities.
Percent
TYPE OF ACTIVITY Nov. 1975 Dec. 1976 cf Change
Adult Motels T738+2%
Massage Parlors 147 80
Bookstores/Arcades 57 45
Theaters 47 44
TOTAL 288 207
DECEMBER 31, 1976
LOS ANGELES CITY POLICE DEPARTMENT
BUREAU OF ACTIVITY AND PERCENTAGE
CENTS
TYPE OF ACTIVITY
Adult Motels
Massage Parlors
Books tores/Arcades
Theaters
TOTAL
..-51-
CENTRAL
BUREAU
5(13%)
6 (7%)
6(20%)
7(16%)
27(23%)
SOUTH
BUREAU
23(60%)
4 (5%)
1 (2%)
1- (2%)
29(14%)
WEST '
BUREAU
5(13%)
42(53%)
24(53%)
28(64%)
99(48%)
VALLEY
BUREAU
5(13%)
28(35%)
11(24%)
8(18%)
52(25%)
Tha informaticn in this section is an extract from a report to the
Planning Department on "The Impact of Sox Oriented Businesses on the
Police Problems in the City cf Lcs Angeles*", prope.r-ad by the Los
Angeles City Pclice Department. The City Council in instructing the
Planning Department to conduct the Adult Entertainment study has
also instructed other City agencies tc cooperate with and contribute
as necessary to the report process. In accordance with such
instructions, the. Police Department conducted an analysis of the
relationship between the concentration cf adult entertainment
establishments and criminal activity in the Hollywood area as
compared to the citywide crime rates for the period beginning 1969
and ending 1975. This period of comparison covers the years during
which adult entertainment establishments appeared and proliferated
in the Hollywood area.
Part I crimes ara those criminal acts which most severely effect
their victims; they include homicide, rape, aggravated assault,
robbery, burglary, larceny, and vehicle theft. During the period
1969 through 1975, reported incidents of Part I crimes in
Hollywood Area increased 7.6 percent while the City showed a
percent increase. Thus, Hollywood's Part I crimes increased
nearly twice the rate of the City's increase. In coufcrmance tc
overall trend, every Part I crime committed against a person,
against property, increased at a higher rate in Hollywood Area
of
the
4.2
at
the
no t
than
in the citywide total. Street robberies and 484 Purse Snatches,
wherein the victim was directly accosted by their assailant,
increased by 93.7 percent and 51.4 percent, respectively; the
citywi'de increase wes 25.6 percent and 36.8 percent.
Suspects arrested for Part I criminal acts in Hollywood Area
increased 16.2 percent whMe the City dropped by 5.3 percent. This
reveals that Hollywood Area was 21.5 percent over the City's total
in the apprehension of serious criminals during the seven yearperiod.
Equally alarming as the increase in Part I arrests, is
in Part II arrests (described on Table VI, pages 53-54)
Area as opposed to the rest cf the City, Hollywood
this category by 45.5 percent while the City rose but 3
Prostitution
greater than
the increase
in Hcllywood
increased in
4 percent.
arrests in Hollywood Area increased at a rate 15 times
. .. the city average. While the City showed a 24.5 percent
hike, Hollywood bounded to a 372.3 percent increasearrests.in prost i tut i en
Similarly, pandering arrests in Hollywood Area
percent, 3-1/2 times the city increase cf T33.3p. 54.)
increased
percent.
by
(See
475 .0
note
*The ccnfpTete report
Department is available
Plan Case No. 21475 in
prepared by the Lcs Angeles
for review in the official files
the Los Angeles Ci ty PI a
C i ty Police
under City
nning Department.
-52-
Table VI
1S6S THROUGH 1975 SURVEY PERIOD
REPORTED CRIMES AND ARRESTS
I Offensei
Homicide
Rape
Agrav. Assault
Rcbbery
Burglary
Larceny
Auto Theft
TOTAL
St. Robberies
484 Purse Snatches
Hollywood Areji
1975 < Change
Part I Offenses
Homicide
Rape
Agrav. Assault
Robbery
Burglary
Larceny
Auto Theft
' TOTAL
*Part II Offenses
TOTAL
;. j « •*
19
214
605
905
5695
7852
2621
17911
381
185
Hn
1969.
21
67
239
368
864
546
31S
2424
Ho
i 1969
37
199
886
1591
5551
8396
2508
19268
738
280
1 1 ywood
1975
26
47
348
285
514
1371
226
2817
1 1 ywood
1975
+ 94.7
-7 .0
+ 46.5
+ 75.8
2 ^.5
f f\+6.9
O r*.5
+7.6
+ 93.7
+ 51-4
ARRESTS
Area.
X Change
+23.8
-29.9
+ 45.6
-22.6
-40.5
+151.1
-29.2
+ 16.2
Area
% Change
10660 15503 +45.4
1969
377
2115
14798
11909
65546
89862
32149
216756
5321
1951
C i tywid.e
1975
574
1794
14994
14557
5948S
93478
30861
225857
6584
2668
% Change
+52.3
-15.2
+ 1.3
+ 23.2
+ 6.0
+ 4.0
-4.0
+4.2
+ 25.6
+ 35.8
1969
475
858
6250
4855
7823
6877
4820
31958
1959
17S233
Ci tyvn'de
1975 % Change
573
552
3163
5132
6032
11706
3121
30279
+ 20.6
-35.7
-43.4
+ 5.7
-22.9
+ 70.2
-5.3
-5.3
Ci tywi de
^975 % Change
185417 +3.4
*(Part II arrests include:
faiting, embezzlement and
narcotics, liquor laws,
mi sdemeancrs.)
Prostitution Arrests
Hollywood Area
C1tywide
ether assau
fraud, stol
gambling,
1969
433
2864
Us, forgery and counter-
en property, prostitut Ton,
and other miscellaneous
1975
2045
3564
j. Change
+372.3
+ 24.5
. -53-
Table VI (cont'd)
1975
"n
% Change
3D J
8
42
46
S8
+475.0
+133.3
Pandering Arrests
Hoilywood Area
Citywide
NOTE: (The prostitution arrestsr.5rrtU"«ii,r?:'.lp/.5.jTji.-.....«. tl]^a-^u^r^Us^^T-1,,^.)
i tution
Hollywood
pandering
Hollywood Area
Patrol
Investigators
TOTAL
C i tywi de
DEPLOYMENT
1969 1975 % Change
197
45
242
5194
255
61
316
7506
+ 29.4
+ 35.6
+ 30.6
+ 21.1
ADULT ENTERTAINMENT ESTABLISHMENTS
HOLLYWOOD AREA
1969 through 1975
1969
1 H^rd-core motel
2 Bookstores
7 Theaters
1 Massage parlcr/scam joint
11 Locations (Total)
1975
3 Hard-core motels
18 Bookstores
29 Theaters38 Massage parlor/scam joints
88 Locations (Total)
-54-
HOLLYWOOD AREA
484 PURSE SNATCHES.
250
Ul*.I
200
175
150
100
o'<63 '70 '71 '72
1700
1600
1500
HOO
1300
1200
1100
1000
ALL ROBBERIES
600
'74 '75
'7)'72 '73
T .
'74
STREET ROBBERIESooo
' "»K Af DO
TAA|<JU
650
oLKJ
550
DOQ
^DO
A f\f\
oaO
JOO
^—
f
/
/
A
/
/
i
,
\\\
,
/
/
/
'75
U6
100
90
00
70
60
50
40
30
20
10
0G
9 '70 '71 '72 '73 '74 '7,
ADULT ENTERTAINMENT ESTABLISHMENTS
^^
^^
^ — -
^^"
•*^
/
/
/
-- jf
^
9 '70 '71 '72 '73 . '74 ' '7!
During the period included in this report, the Citywide deployment
of police personnel rose by 21.2 percent. However, with the surge
of crime in the Hollywood Area, deployment there increased by 30.6
percent, 9.4 percent higher than the rest of the City. Included in
this figure is a 29.4 percent hike in uniformed officers end 35.6
percent rise in investigators to ccpe with the criminal elements.
This survey reflects a seven-yeer span during which time the Adult
Entertainment Establishment in the Hollywood Area proliferated from
a mere 11 establishments to an astonishing, number of 88 such
locations. The overall deleterious effect to the entire community
is evident in the statistics provided. The overwhelming increase in
prostitution, robberies, assaults, thefts, and the proportionate
growth in polica personnel deployed throughout Hollywood, are all
representative of blighting results that the clustering of Adult
Entertainment Establishments has on the entire community. These
adverse social effects not only infect the environs immediately
adjacent to the parlors but creates a malignant atmosphere in which
crime spreads to epidemic proportions.
The remaining sections of the Police Department report are letters
and signature petitions from concerned businessmen, clergy,
merchants, citizens and police officers and are in , the file and
available for inspection upon request. The following paragraph
summarizes this section cf the Police Department report.
The police officer reports can be summarized as follows: all
officers felt the sex-oriented businesses either contributed to or
were directly responsible for the crime problems in the Hollywood
area. The officers felt the sex shops were an open invitation to
undesirables and thereby directly caused the deterioration of
neighborhoods. Also, it was suggested that these businesses
purposely cluster in order to establish a "strength in numbers" type
effect, once they establish a foothold in a neighborhood they drive
the legitimate businesses out.
The letters from the businessmen, clubs, churches and concerned
citizens were all in support of police efforts to close adult
entertainment facilities. The letters all expressed the feeling
that the sex shops attracted homosexuals, perverts, prostitutes and
other undesirables and directly contributed to the decline of the
Hollywood area.
-55-
HOLLYWOOD AREA
+ 475.0%
8
PANDERING
ARRESTS
+ 372.3%
433
PROSTITUTION
ARRESTS
II
+700.0%
88
i&iiiT
ADULT
ENTERTAINMENT
ESTABLISHMENTS
HOLLYWOOD AREA VS. CITY OF UA.
RATE OF INCREASE 1969-1975
u\
UlI
03
ilil HOLLYWOOD AREA
f~l CITY OF L.A.
45.4
PART I CRIMES
-5.3%
PARTI ARRESTS PARTH ARRESTS
Los Angeles City Planning Department
Calvin S. Hamilton, Director
Frank P. Lombard!, Executive Officer
Glenn F. Blossom, City Planning Officer
Citywide Planning and Development Division
Glenn 0. Johnson, Division Head
Code Studies Section
Jack C. Sedwick, Senior City Planner
Robert Janovici, City Planner
Charles S. Rozzelle, City Planner
Marcia Scully, Planning Assistant, Project Coordinator
Evelyn Garfinkle, City Planning Associate
Fred Hand, City Planning Associate
Ronald Lewis, City Planning Associate (former project staff member)
Charles Zeman, City Planning Associate
Staff Support
Donald S. Jacobs, Data Analysis
Fred Ige, Planning Assistant
Joyce Odell, Cartographer
Gilbert Castro, Cartographer
Barbara Reilly, Typist
Corrine Gluck, Typist
Mary Volz, Typist
Mewland Watanabe, Typist
Jeanne Crain, Typist
Audrey Jones, Typist
Mason Oooley, Photographer
- - *TJ" •',-"*_'"""'>•"j - ,' •*— ^ '- '. -* .". • .
" " "' "' '
APPENDICES.
-X *• •"" • ---, . - .. —
APPENDIX A
(Sheet 1)
Changes In Aaaecaed "Market" Value of Deuidential and Commercial Property 1970-76> Areas of
Concentration of Adult Entertainment BuainesaeB) Corresponding Control Area*, and City of
Log Angeles
Areas of Concentration
("Hodea'J and Control Areas 1970
Land
1976
Aaeeaaed "Harket" Values
Improvements
1970 1976
Total
1970 1976
Santa Monica ( Heatern
Control Area - Santa Monica
and Vermont
12,955,100 12,926,800 12,945,620 13,697,£20 25,900,900 26,624,420
11,549,300 10,990,500 9,971,400 13,227,900 21,520,700 24,218,400
Hollywood t
Control' Area
Highland
Nee tern
- Hollywood t
Belma fc Cahuenga
Control Area
Cower
- Hollywood L
17
t
31
2B
14
,618,700
,956,500
,720,280
,502,880
18,237,710
26,197,880
34,785,000
17,078,900
20,361,040
39,051,920
31,852,740
13,411,880
23,015
35,992
27,656
12.256
,660
,140
,660
,520
37,979,
61,008,
60,573,
27,914,
740
420
020
760
41,289
62,190
62,641
29,335
,370
,020
,740
,420
Tujunga I Ventura (Studio City) ' 7,115,460 11,890,900
LankerBuim t Vineland
(tlorth Hollywood)
Control Area - Lankerahln &
Hhlpple
13,789,200 15,979,300
8,493,260 13,852,600
15,287,340 16,763,160
15,608,720 25,743,700
29,076,540 32,742,460
11,168,200 18,169,000 14,744,280 18,823,200 25,912,480 36,992,200
City of L.A.
Land
8,303,456,720 11,216,558,900
Improvements
9,692,014,680 • 13,464,660,940
Total
17,995,471,400 24,681,219,84
e,TY OF LOS ANGELAS
CALIFORNIA DEPARTMENT OPCTTY M-ANMINa _ DEPARTMENT Of
COMMIMIOM Jt'fSTjv CITY PLANNING
jft>'i*B!^5§9V SSI CITY HALLsuz£EoN.:rM nBBf <n uos *NGCL"-CAUF-900ti
F««O «. CASe I !g"i^"-3"*^g 14 •.« *CalfibAll7 j CALVIN S. HAMILTONOlMCCTOA
OANIIL P. GARCIA >&&==—f^ FRANK F LOMBAROIL£STtS B. KJNO ^0*001^^ ,„«,«»« o»»icrii
UEONAHO LEVY
TOMBRAOLEY
RAYMOND I. NOMMAN MAYOR
»IO<CT»«Y
APPENDIX B
narch 14, 1977
REQUEST FOR YOCJR ASSISTANCE IN OBTAINING INFORMATION REGARDING
"ADULT ENTERTAINMENT ESTABLISHMENTS"
The Los Angeles City Council has recently requested the Department
of City Planning, in cooperation with the Police Department and
other City agencies, to conduct a study concerning "adult
entertainment" businesses.
Because of your particular knowledge of the businesses in the
vicinity of your adress, we are requesting that you answer the
questions on the attached questionnaire. These questions relate to
the effect of adult entertainment establishments on other businesses
and neighborhoods in the surrounding area. The results of the
questionnaire will be of great value to us in conducting this study.
Please return your completed questionnaire in the stamped envelope
provided before April 1, 1977.
If you have any questions about the study or wish to discuss this
matter with Planning Department staff members, please call 485-3508.
We greatly appreciate your cooperation in assisting us in this
survey.
Original signed by Calvin S. Hamilton ,
CALVIN S. HAMILTON
Director of Planning
CSH:CSR:cd -
0417B/0029A
B-;
AN EQUAL EMPLOYMENT OPPORTUNITY—AFFIRMATIVE ACTION EMPLOYER
ADULT ENTERTAINMENT QUESTIONNAIRE
Los Angeles City Planning Department
Hay 9, 1977
Please answer the seven questions below by checking the appropriate
spaces. Feel free to write comments in the space provided or on a
separate sheet.
For the purposes of this study, an adult entertainment establishment
includes businesses such as: adult bookstores; nude or topless
dancing establishments; massage parlors; adult theatres showing
X-rated movies; "peep shows"; so-called adult motels, and bars
with X-rated entertainment.
1. What overall effect do you feel that adult entertainment
establishments have on a neighborhood:
Effect on the businesses condition (sales & profits) in the area:
positive negative no effect
Comments/Examples:
Effect on homes (value & appearance) in the area immediately
adjacent to adult entertainment businesses:
positive ' negative no effect
Effect on homes (values & appearance) in the area located 500
feet or more from adult entertainment businesses:
positive negative no effect
Comments/Examples:
(OVER)
13-1
2. Do you feel the establishment of adult entertainment facilities
in the vicinity of your business has had any of the following
effects? (Please check all those effects which you feel have
occurred.)
no effect decreased property values
lower rents increased property values
vacant businesses lower taxes
tenants moving out higher taxes
complaints from customers decreased business activity
less crime increased business
more crime more litter
improved neighborhood appearance
deteriorated neighborhood appearance
other (please specify) .
Please list specific examples relating to any box checked,
immediately above.
3. What are the hours of operation of your business?
4. Have you seriously considered moving your business elsewhere
because of nearby concentrations of adult entertainment
businesses?
yes no
Why?
5. Would you consider expanding in your current location?
yes no? if not., why?
3-2 -
6. What types of adult entertainment establishments are thece in
your area? (Please check all appropriate boxes.)
adult bookstores nude or topless dancing
massage parlors adult theatres
peep shows adult motels
bars with X-rated entertainment
How far from your business is the nearest adult entertainment
establishment?
Thank you for your cooperation. Please return this questionnaire to:
City of Los Angeles
Department of City Planning
200 North Spring Street
Room 513, City Hall
Los Angeles, CA 90012
Name
(Business)
Address
E-3 -
.cmr
COMM1MIOM
SUZETTt NtlMAM
CALIFORNIA
FWCO C. CA9C
OANIll. J-. GAflCIA
UE3TEK •. K1N<3
UCONAAO LXVY
RAYMONO I. NORMAN
*«CJICTA«IT
TOM BRADLEY
MAYOR
OF
CITY PLANNING
SBI CITY HAUL
LOS ANGSLX3. CAUF. SOOIZ
CALVIN S. HAMILTONoinccran
FNANX P. UQMOAHQI
ucicunvi
APPEHDUX G
March 14. 1977
REOUSST FCE YCTJP,
' ''AJSUL'
ASSIST AJ'CS IN CBTAJNEIG
Tie Los Angsies City Ccuncil has recently requested the Department of
City Planning, in cooperation with the Peace Department and other City
agencies, to conduct a study concerning "adult entertainment" businesses,
Because of your particular knowledge of the businesses in the vicinity of
your address, we are . requesting that you answer the questions on the
attached questionnaire. These questions relate to the effect of adult enter-
tainment establishments on ether businesses and neighborhoods in the
surrounding area. The results of the questionnaire will be of great value
tc us in conducting this study.
Please return, your completed questionnaire in the stamped envelope
provided before April I, 197?..
If you have any questions abcut the study or wish to discuss this matter with
Planning Department staff members, please call 4G5-3SO£.
v7e greatly appreciate your cooperation in assisting us in this survey.
CALVIN S.- HAMII/TCN
Director of Planning
CSH:CSR':lnic
-C-
EQUAL. EMPLOYMENT OPPORTUNITY—AFFIRMATIVE ACTION SMPUQYEW
. • Loa Angeles City Planning Department
" ; March 1H, 1977
,: Please give your opinion regarding questions set forth below by checking
' the appropriate spaces and providing comments In the space provided or on
& separate sheet.
For the purposes of this study, "adult entertainment establishments" In-
clude businesses such as: adult bookstores, nude or topless dancing estab-
lishments; massage parlors; adult theatres showing X-rated movies; "peep
shows"; so-called adult motels and bars with X-rated entertainment.
EFFECT OK STJRROONDIKG SCTSIifESSES - _
1. What effect does the concentration of adult entertainment establish-
ments have on the naricet value of business property (land, structures,
fixtures, etc.) located in the vicinity of such establishments?
Increase in value decrease in value no effect
••i
Comments/examples: (Please cite specific examples, Including avail-
able data.) - - - —
2. What effect does the concentration .of adult entertainment establish-
ments have on the rental value of* business property located in_ the
vicinity of such establishments? . : . .""'..
~" Increase in value decrease in value ' no effect-j .
Comments/examples: (Please cite specific examples, including avail-
able data.)
3. What effect does the concentration of adult entertainment establish-
ments have on the rentability/saleabillty of business property located
in the vicinity (length of time required to rent or sell property;
rate of lessee/buyer turnover; types of businesses of prospective
lessees/buyers; conditions of sale or lease, etc.)?
increase in rentability/saleabillty
decrease in Bentability/saleability
no effect '
Comments/examples: (Please cite specific examples, including available
data.)
• C-l
Wnat effect does the concentration of adult entertair.se nt establish-
ments have on the annual income of businesses located in the vicinity
of such establishments?
increased Income decreased Income no effect
Commenta/ejcamples: (Please cite specific examples, Including available
data.)
Have any business owners or proprietors considered relocating or not
expanding their businesses because of the nearby concentration of
adult entertainment establishments?
•
Tea Ho Not Scnown
If yea, please indicate the specific reason, if known.
In recent years, has the commercial vitality (sales, profits, etc.)
of any area in the City of Los Angeles been affected in any way by the
nearby concentration of adult entertainment establishments?
Tea Ho Hot known
If yea, which- areas?
Comments/examples: (Please cite effects and provide available data.)
C-2
-3-
EPFECT OH SUHROUTfDIMG RESIDENTIAL PROPERTIES.
7. What effect does the concentration of adult entertainment establish-
ments have on the market value of private residences located within
the fallowing distances from such establishments?
Increase Decrease No Effect
Less than 500 feet ________ _ ;_
: ' 500 - 1000 feet ' .
More than 1000 feet - ___
• ^"^^^
•Comments/examples: (Please cite specific examples, including avallablj(data.}
What effect does the concentration of adult entertainment establish-
fflents have on the rantal value of residential income property located
within the following distances from such establishments?
Increase Decrease Mo Effecti t *
Less than 500 feet " .
500 - 1000 feet •
. More than 1000 feet _. - ^__
Comments/examples: (Please cite specific examples, Including available
data.)
9. What effect does the concentration of adult entertainment establish-
ments have an the rsntabllity/saleablllty of residential property
located within the following distances from such establishments?
Increase Decrease No Effect
Less than 500 feet '__
500 - 1000 feet .
*»> " ,
More than 1000 feet . •
Comments/examples: (Please cite specific examples, including available
data.) . •
OVERALL
10. In regard to the questions set forth above, please describe the
. effects which you believe the concentration of adult entertainment
businesses has on each of the following:
Property values of surrounding:
Conanercial property _ ; _
Residential property _ _
Rental values of surrounding:
Commercial property
. Residential property
Vacancies
Number
Length
Rate of tenant turnover
Annual business Income
Complaints from customers and residents
due to concentration
Neighborhood appearance
Crime
Litter
Other (please specify
T3iank you for your cooperation. Please return this questionnaire to:
City of Los Angeles
Department of City Planning
200 North Spring Street
Room 516, City Hall
• Los Angeles, CA 90012
«
Name
Organization
Address
Do you wish to be notified of the public hearing on this matter?
Tea No r»-4
APPENDIX D-I
May 3, 1977
Concerned! Menbers of tiia Public
A.DULT SNCSZTAII-TMKOT STUDY
We v/.ish to thank you for your interest in the above matter.
Recently, residents of the Studio City arsa have received arroneous
information regarding the activities of this Department. Specif i-
caliy, thsy have besn informed that it is our intent to create an
"adult entertainment zone" en Ventura Boulevard. This information
is not ccrract.
In Jar.uary of this year, the L-cs Angeles City Co-.Tr.cil instructed
the Planning Dapc.rtr.ent to conduct 3. study to do.ter.Mine whether
so-called "adult entertainment c e.-st-^blishinonts, '.vhere they exist
in concentration, tend to hav*» a deteriorating or blighting
effect on adjacent propci.'tiss cine! areas. Since that tims, the
partment staff has been evaluating data from the public and
al agencies to c.ete:rmir.s whether evidff^cc of such affects
Within the next two months, the analysis of the information
gathered will be presented to the Los ringeies City Council which
vill rcake a decision ac to whether adoption of regulations is
appropriate.
We regret that you were sent alarming erroneous information; if
ycu hava ary further questions, please call ray staff at 485-3508
or <185-33Ga. j
{Original signed by) <
CALVIH S. KAfULTON !
Director of Planning ?
CSH:RJ:nw
APPENDIX D-3
PRIVATELY DISTRIBUTED QUESTIONNAIRE
(Note: Not a portion of Planning Department Study)
- RESPONSES -
Total no. of responses 197
q u e s t ion
1. What effect does the concentration
of adult entertainment establishments
have on the market value of business
property (land, structures, fixtures,
etc.) located in the vicinity of such
establishments?
2. What effect does the concentration
of adult entertainment establishments
have on the rental value of business
property located in the vicinity of
such establishments?
3. What effect does the concentration of
adult entertainment establishments
have on the rentabrlity/saleability
of business property located in the
vicinity (length of time required to
rent or sell property; rate of lessees/
buyer turnover; conditions of sale or
lease, etc.)?
of
Response
increase in value 2
decrease in value 178 (90.4%)
no effect 2
r
increase in value 2
decrease in value 169 (85.8%)
no effect 3
increase in rentability/
saleabi1i ty 2
decrease in rentability/
saleability 161 (81.7%)
no effect 3
increased income 2•. What effect does the concentration
adult entertainment establishments
have on the annual income of businesses decreased income
located in the vicinity.of such
estab1ishments?
Have any business owners or proprietors
considered relocating or not expanding
their businesses because of the nearby
concentration of adult entertainment
establishments?
In recent years, has the commercial
vitality (sales, profits, etc.) of any
area in the City of Los Angeles been
affected in any way by the nearby
concentration of adult entertainment
establishments?
no effect
yes 71
no
not known
yes 100
no 57
not known
(36.9%)
" (4-9%)
96 (48.7%)
(50.8%)
(28.9%)
(35.8%)
0-3-1
7. What effect does the concentration of
adult entertainment establ i shrr.snts
have on the market value of private
residences located within the following
distances from such establishments?
Increase
Less than 500 feet
500 - 1000 feet
More than 1000 feet
Decrease
148 (100*)
145 (100%)
142 (95.9*)
8. What effect does the concentration
of adult entertainment establishments
have or, the rental value of residential
income property iccaced within the
following distances from such
establi shments?
Increase
Less than 500 feet
500 - 1000 feet
More than 1000 feet
Decrease
143 (99.3%)
138 (98.6*)
133 (9SX)
9. What effect does the concentration of
adult entertainment establishments
have on the rentabi1ity/sa1eabi1 i^y of
residential property located within the
following distances from such establish-
ments?
Increase
Less than 500 feet
500 - 1000 feet
More than 1000 feet
10. (Not tabulated)
Decrease
147 (100*)
141 (99.3X)
14l" (97.2*)
No effect Total
148
145
148
Mo effect
1
2 (1-4*)
7 (50%)
Total
144
140
140
No effect Total
147
142"
145
In summary, the respondents felt that the subject businesses have a
decidedly adverse impact on surrounding businesses and residential
properties and the large majority believe that the adverse effect
extends beyond the 1000-foot radius.
0-3-2
Comments indicate concern for:
1. personal safety, e.g. assaults
2. moral effect on children
3. safety of property, e.g. vandalism, robbery, etc,
4. neighborhood appearance. Adult entertainment establishments
were described variously as tawdry, tacky, garish, seedy, messy,
neglected, untidy, blighted, unkempt.
5. litter, e.g. cans, bottles, newpapers, etc., strewn about public
and private property, especially heavy after Saturday night.
6. spillover parking into residential areas. On-site parking' is
often inadequate. Customers seeking anonymity park at a
distance away from any given establishment, on residential
streets.
7. graffiti on public and private property.
0-3-3
APPENDIX E
SANTA MONICA BOULEVARD & WESTERN AVENUE
NODE
POPULATION
Total PopulationBlack
Percentage
Spanish
Percentage
Median Age
Persons 0-17
Percentage
Persons 65 +
Percentage
No. of Husband &
Wife Families
Nc. of Unrelated
Individuals
Average Household Size
HOUSING
Total Units
Si ngles
Percentage
Multiples
Percentage
Built Pre-1939
Al 1 Occupied UnitsOwner
Percentage
Renter
Percentage
ECONOMICS
Med i an Fami1y
Median School
Corap1eted
Median Value 0
Occupied in
Median Rent in
Total Employed
Unemployed
Percentage"
CITYWIOE
1960
18,484
38
0.2
540
3.7
42.1
2,190
11.8
2,437
13.1
1970
19,033
340
1.8
3,833
20.1
38.0
3,126
16.4
3,334
17.5
1960
2,479,015
334,916
13.5
260,399
10.5
33.2
756,640
30.5
253,993
10.2
1970
2,811,801
503,606
17.9
518,791
18.5
30.6
849,246
30.2
283,395
10.1
3,153
3,833
1.95
3,380
6,190
1.90
545,109
329,977
2.77
553,564
421,701
2.68
9,859
2,938
30.0
6,921
70.0
7,039
9,226
1,330
14.0
7,896
86.0
10,667
1,919
18.0
8,748
82.0
5,736
9,962
1,078
11.0
8,986
89.0
935,507
559,745
59.0
375,762
40.0
481,797
875,010 '
404,652
50.0
471,358
43.0
1,074,173
560,378
52.0
510,261
47.4
328,988
1,024,835
419,801
39.0
607,573
56.4
Income
Years
wner
$
$
5,699
12.1
16,450
• 77
9,370
900
916
7,713
12.3
25,825
105
9,113
912
10.0
6.896
12.1
17,300
78
126,276
6,914
5.5
10,535
12.4
26,700
114
1,150,796
86,802
7.5
£-1
LANKERSHIM BOULEVARD & WHIPPLE
(Valley Control Area)
STREET
NODE
POPULATION 1960 1970
Total Population 5,497 5,897
Slack 9 2
Percentage 0.0 .1
Spanish 100 439
Percentage 1.8 7.4
Median Age 42.1 41.6
Persons 0-17 1,106 1,091
Percentage 20.1 18.5
Persons 65+ 729 1,076
Percentage 13.3 18.2
No. of Husband &
Wife Families 1,371 1,301
No. of Unrelated
Individuals 841 1,337
Average Household Size 2.36 2.11
CITYWIDE
1960
2,479,015
334,916
13.5
260,399
10.5
33.2
756,640
30.5
253,993
10.2
545,109
329,977
2.77
1970
2,811,801
503,606
17.9
518,791
18.5
30.6
849,246
30.2
283,395
10.1
553,564
421,701
2.68
HOUSING
Total Units
Singles
Percentage
Multiples
Percentage
Built Pre-1939
All Occupied Units
Owner
Percentage
Renter
Percentage
2,520
1,289
51.2
1,231
48.8
898
2,328
1,076
46.2
1,252
53.8
2,865
1,082
37.8
1,783
62.2
813
2,790
989
35.4
1,801
64.6
935,507
559,745
59.0
375,762
40.0
481,797
876,010
404,652
50.0
471,358
43.0
1,074,173
560,378
52.0
510,261
47.4
328,988
1,024,835
419,801
39.0
607,573
56.4
ECONOMICS•~^™™" — - . ^
Median Family Income 8,086 13,154
Median School Years
Completed 12.6 12.6
Median Value Owner
Occupied in S 22,350 37,700
Median Rent in 5 92 136
Total Employed 2,574 2,736
Unemployed 177 280
Percentage 6.9 10.2
6,896
12.1
17,300
78
126,276
6,914
5.5
10,535
12.4
26,700
114
1,150,796
86,802
7.5
E-2
HOLLYWOOD & WESTERN
NODE
POPULATION 1960 1970
Total Population 6,860 8,438
Black 3 72
Percentage - -1
Spanish 183 509
Percentage 2.6 10.7
Median Age 43.9 41.3
Persons 0-17 576 803
Percentage 8.3 9.4
Persons 65+ 1,158 1,644
Percentage 16.8 IS.4
No. of Husband &
Wife Families 1,306 1,408
No. of Unrelated
Individuals 2,805 3,602
Average Household Size 1.76 1.62
CITYWIOE
I960
2,475,015
334,916
13.5
260,399
10.5
33.2
756,640
30.5
253,993
10.2
545,109
329,977
2.77
1S70
2,811,801
503,606
17.9
518.791
18.5
30.5
849,246
30.2
283,395
10.1
553,564
421,701
2.58
HOUSING
Total Units
Singles
Percentage
Multiples
Percentage
Built Pre-1939
Al1 Occupied Uni ts
Owner
Percentage
Renter
Percentage
6,773
764
11.3
5,818
85. S
3,731
5,996
394
S.6
5,602
93.4
8,044
702
8.7
7,559
94.0
3,037
7,506
420
5.6
7,137
94.4
935,507
559,745
59.0
375,752
40.0
481,7S7
876,010
404,652
50.0
471,358
43.0
1,074,173
560,378
52.0
510,261
47 .4
328,988
1,024,835
419,801
39.0
607,573
56.4
ECONOMICS
Median Family Income 6,429 8,537
Median School Years
Completed 12.5 12.6
Median Value Owner
Occupied in S 22,200 37,333
Median Rent in S 92 123
Total Employed 6,535 6,745
Unemployed 431 575
Percentage 7.4 8.5
5,896
12.1
17,300
78
126,276
6,914
5.5
10,535
12.4
26,700
114
1,150,796
86,802
7.5
£-3
SANTA MONICA BOULEVARD & VERMONT AVENUE
NOPE CITYWIDE
POPULATION
Total Population
Black
Percentage
Spanish
Percentage
Median Age
Persons 0-17
Percentage
Persons 55+
Percentage
No. of Husband &
Wife Families
No. of Unrelated
Individuals
Average Household Size
I960
16,855
510
3.0
889
5.2
38.8
2,482
14.7
2,830
16.8
3,343
4,881
2.04
1970
15,736
1,287
8.2
3,936
25.0
34. H
2,751
17.5
2,432
15.5
2,720
4,818
2.01
1S60
2,479,015
334,£16
13.5
250,3S9
10-.5
33.2
756,640
30.5
253,993
10.2
545,109
329,977
2.77
1970
2,811,801
503,606
17.9
518,791
18.5
30.6
849,246
30.2
283,395
10.1
553,554
421,701
2.68
HOUSING
Total Units
Singles
Percentage
Multiples
Percentage
Built Pre-1939
All Occupied Units
Owner
Percentage
Renter
Percentage
8,866
2,655
30.0
5,531
62.4
6,589
8,274
1,404
17.0
6,870
83.0
7,982
1,913
24.0
5,081
76.2
4,093
7,636
896
11.7
6,748
88.4
535,507
555,745
59.0-
375,762
40.0
481,797
876,010
404,652
50.0
471,358
43.0
1,074,173
' 560,378
52.0
510,261
47.4
328,988
1,024,835
419,801
3S.O
607,573
56.4
ECONOMICS
Median Family Income
Median School Years
Completed
Median Value Owner
Occupied in S
Median Rant in $
Total Employed
Unemployed
Percentage
5,901
12.2
15,975
76
9,073
595
6.6
8,142
12.5
24,100
103
6,528
465
7.1
6,896
12.1
17,300
78
126,276
6,914
5.5
10,535
12.4
26,700
114
1,150,756
86,802
7.5
£-4
SANTA MONICA BOULEVARD & VERMONT AVENUE
NODE CITYWIOE
POPULATION
Total Population
Slack
Percentage
Span ish
Percentage
Median Age
Persons 0-17
Percentage
Persons 55+
Percentage
No. of Husband &
Wife Families
No. of Unrelated
Individuals
Average Household Size
I960
3,343
4,881
2.04
1970
2,720
4,818
2.01
I960
545,109
329,977
2.77
1970
.6,855
510
• 3.0
869
5.2
38.8
2,482
14.7
2,830
16.8
15,736
1,287
8.2
3,936
25.0
34.2
2,751
17.5
2,432
15.5
2,479,015
334, Si6
13.5
250, 3S9
10.5
33.2
756,540
30.5
253,593
10.2
2,811,801
503,606
i 7 . S
518,791
18. 5
30.6
84S.24S
30. 2
283. 3S5
10.1
553,554
421,701
2.68
HOUSING
Total Units
Singles
Percentage
Multiples
Percentage
Built Pre-1939
All Occupied Units
Owner
Percentage
Renter
Percentage
ECONOMICS
Median Family
Median School
Completed
Median Value
Occupied in
Median Rant in
Total Employed
Unemp!oyed
Percentage
8,866
2,655
30.0
5,531
62.4
6,589
8,274
1,404
17.0
6,870
83.0
7,982
1,913
24.0
5,081
76.2
4,093
7,636
896
11.7
6,748
88.4
Income
Years
LJ f\ O V*W 1 1 tr i
$
$
5,*901
12.2
15,975
76
9,073
595
6.6
8,142
12.5
24,100
103
6,528
465
7.1
935,507
559,745
59.0
375,762
40.0
481,797
875,010
404,652
50.0
471,358
43.0
1,074,173
560,378
52.0
510,261
47.4
328,988
1,024,835-
419,801
39.0
607,573
56.4
6,896
12.1 "
17,300
78
126,276
6,914
5.5
10.-535
12.4
26,700
114
1,150,796
86,802
7.5
E-4
SELMA AVENUE CAHUENGA BOULEVARD
NODE CITYWIOE
POPULATION
Total Population
Black
Percentage
Spanish
Percentage
Median Age
Persons 0-17
Percentage
Persons 65+
Percentage
No. of Husband &
Wife Fami1ies
No. of Unrelated
Individuals
Average Household
I960
Size
2,406
6,531
1.68
1S70
1,876
5,951
1.60
1S50
545,109
329,977
2.77
.970
14,886
43
.3
840
5.6
43.3
1,309
8.8
2,896
19.5
.13,827
342
2.5
i,822
13.2
39.8
1,248
9.0
2,712
19.6
2,479,015
334,916
13.5
250,339
10.5
33.2
755,540
30.5
253,983
10.2
2,811,801
£03,606
17.9
518,751
18.5
30.6
845,245
30.2
283,395
10.1
553,564
421,701
2.68
HOUSING
Total Units
Singles
Percentage
Multiples
Percentage
Built Pre-1939
Al 1 Occupied Units
Owner
Percentage
Renter
Percentage
10,022
1,714
17.1
8,1.10
80.9
7,197
8,958
812
9.1
8,164
Sl.l
9,580
1,140
11.8
8,533
88.2
5,161
8,65.8
583
7.9
7,965
92.1
935,507
559,745
59.0
375,762
40.0
481,797
876,010
404,652
50.0
471,358
43.0
1,074,173
560,378
52.0
510,261
47.4
328,988
1,024,835
4H,801
39.0
607,573
56.4
ECONOMICS
Median Family income 5,"53S 7,584
Median School Years
Completed 12,2 12.5
Median Value Owner
Occupied in S 20,125 30,925
Median Rent in $ 80 111
Total Employed 8,112 6,990
Unemployed 998 943
Percentage 12.3 13.5
6,896
12.1
17,300
78
126,276
6,914
5.5
10,535
12.4
26,700
114
1,150,796
86,802
7.5
E-5
TUJUNGA BOULEVARD & VENTURA BOULEVARD
NODE CITYWIOE
POPULATION I960
Total Population
Black
Percentage
Spanish
Percentage
Median Age
Persons 0-17
Percentage
Persons 55+
Percentage
No. of Husband 4
Wife Families 4,526
No. of Unrelated
Individuals 3,100
Average Household Size 2.36
1970
2,654
2,832
2.17
1960
545,109
329,977
2.77
1S70
1 7,544
50
.3
398
2.3
39.6
3,538
20.7
1,368
7.8
11,595
44
.4
758
6.5
38.7
2,137
18.4
1,232
10.6
2,479,015
334,916
,13.5
260.399
10.5
33.2'
755,640
30.5
253,993
10.2
2,811,801
503,506
17.9
518,791
18.5
30.6
849.246
30.2
283,395
10.1
553,564
421,701
2.58
HOUSIMG
Total Units
Singles
Percentage
Multiples
Percentage
Built Pre-1939
All Occupied Units
Owner
Percentage
Renter
Percentage
8,110
4,520
55.7
3.590
44.3
2,058
7,548
3,904
51.4
3,644
48.3
5,529
2,716
49.1
2.813
50.9
1,009
5,367
2,463
45.9
2,904
54.1
935,507
559,745
5S.O
375,762
40.0
481.797
876,010
404,652
50.0
471,358
43.0
i,074,173
550,378
52.0
510,261
47.4
328,988
1,024,835
419,801
39.0
507,573
56.4
ECONOMICS
Median Family Income 9,9"56 15,672
Median School Years
Completed 12.6 12.9
Median Value Owner
Occupied in $ 23,700 39,650
Median Rent in $ 98 142
Total Employed 8,800 5,965
Unemployed 584 504
Percentage 6.7 8.4
6,896
12.1
17,300
78
126,276
6,914
5.5
10,535
12.4
26,700
114
1,150,796
86,802
7.5
E-6
HOLLYWOOD BOULEVARD AND HIGHLAND AVENUE
NODE CITYWIOE
POPULATION I960 1970 I960 1970
Total Population 11,438' 12,016 2,479,015 2,811,801
Black 38 325 334,916 503,606
Percentage .3 2.7 13.5 17.9
Spanish 357 1,509 260,399 518,791
Percentage 3.1 12.6 10.5 18.5
Median Age 44.5 41.0 33.2 30.6
Persons 0-17 832 970 756,640 849,246
Percentage 7.3 8.1 30.5 30.2
Persons 65+ .2,281 2,379 253,992 283,395
Percentage 19.9 19.8 10.2 10.1
No. of Husband &
Wife Families 1,718 1,606 545,109 553,554
No. of Unrelated
Individuals 5,768 6,408 329,977 421,701
Average Household Size 1-57 1.56 2.77 2.68
HOUSING
Total Units
Singles
Percentage
Mu11 iples
Percentage
Built Pre-1939
Al 1 Occupied Units
Owner
Percentage
Renter
Percentage
8,261
1,169
14.2
7,067
85.5
5,768
7,32-2
559
7.6
6,781
92.4
8,835
858
9.7
7,958
90.1
4,344
7,756
559
7.2
7,197
92.8
935,507
559,745
59.0
375,762
40.0
481,797
876,010 -
404,652
50.0
471,358
43.0
1,074,173
560,378
52.0
510,261
47.4
328,988
1,024,835
419,801
39.0
607,573
56.4
ECONOMICS
Median Family Income 5,792 7,510
Median School Years
Completed 12.3 12.6
Median Value Owner
Occupied in $ 23,000 33,300
Median Rent in $ 85 117
Total Employed 6,469 6,177
Unemployed 861 878
Percentage 1-3.3 14.2
6,896
12.1
17,300
78
126,276
6,914
5.5
10,535
12.4
26,700
114
1,150,796
86,802
7.5
E-7
HOLLYWOOD BOULEVARD AND GOWER STREET
NODE CITYWIOE
POPULATION
Total Population
Black
Percentage
Spani sh
Percentage
Median Age
Persons 0-17
Percentage
Parsons 65+
Percentage
No. of Husband &
Wife Fami1ies
No. of Unrelated
Individuals
Average Household Size
HOUSING
Total Units
Singles
Percentage
MultipIes
Percentage
Built Pre-1939
All Occupied-Units
Owner
Percentage
Renter
Percentage
ECONOMICS
Median Family Income
Median School Years
Completed
Median Value Owner
Occupied in $
Median Rent in $
Total Employed
'Unemployed
Percentage
.I960
7,067
9
.1
292
4.1
45.2
567
8.0
1,445
20.4
1,316
2,707
1.74
4,334
669
15.4
•3,463
84.6
2,778
3,924
345
8.8
3,579
91.2
6,102
12.4
21,750
84
3,885
380
9.8
1970
2,342
53
2.3
311
13.3
37.3
111
9.7
325
13.5
336
1,155
1.64
1,571
226
14.4
1,365
85.6
726
1,446
93
6.4
1,353
93.6
8,515
12.4
27,600
112
1,430
148
10.3
1950
2.479,015
334,916
13.5
260,399
10.5
33.2
756,640
30.5
253,993
10.2
545,109
329,977
2.77
935,507
559,745
59.0
375,762
40.0
481,797
876,010
404,652
50.0
471,358
43.0
6,896
12.1
17,300
78
126,276
6,914
5.5
1970
2',811,801
503,506
17.9
518.791
.18.5
30.6
849,246
30.2
233,395
10.1
553,564
421,701
2.68
1,074,173
560,378
52,0
510,261
47.4
328,988
1,024,835
419,801
39.0
607,573
56.4
10,535
12.4
25,700
114
1,150,796
8G.802
7.5
E-8
LANKERSHIM BOULEVARD & VINLANO AVENUE
NODE CITYWIDE
POPULATION
Total Population
Black
Percentage
Spanish
Percentage
Median Age
Persons 0-17
Percentage-
Persons 65+
Percentage
No. of Husband &
Wife Families
No. of Unrelated
Individuals
Average Household Size
I960
7,600
1
0
263
3.5
41.9
1,551
20.4
1,268
16.7
1,833
1,325
2.35
1970
9,344
0
0
146
1.6
38.7
1,697
18.2
1,674
17.9
1,963
2,521
1.70
I960
2,479,015
334,916
13.5
260,399
10.5
33.2
756,640
30.5
253,993
10.2t
545,109
329,S77
2.77
1970
2,811,801
503,606
17.9
518,791
18.5
30.6
849,246
30.2
283,395
10.1
553,564
421,701
2.68
HOUSING
Total Units
Singles .
Percentage
Multiples
Percentage
Built Pre-1939
All Occupied Units
Owner
Percentage
Renter
Percentage
ECONOMICS
Median Family
Median School
Completed
Median Value 0
Occupied in
Median Rent in
Total Employed
Unemp1oyed
Percentage
3,558
1,705
47.9
1,853
52.1
1,501
2,711
1,213
44.7
2,098
55.3
4,897
1,359
27.8
3,538
72.2
1,369
4,677
1,143
24.4
3,534
75.6
Income
Years
\*i no**wn c r$s
6,690
11.9
17,800
86
3,483
267
7.7
9,471
12.4
25,450
118
4,452
291
6.5
935,507
559,745
59.0
375,762
40.0
481,797
876,010
404,652
50.0
471,358
43.0
6,896
12.1
17,300
78
126,276
6,914
5.5
1,074,173
560,378
52.0
510,261
47.4
328,988
1,024,835
419,801
39.0
607,573
56.4
10,535
12.4
26,700
114
1,150,796
86,802
7.5
E-9