DOWNTOWN CLEARWATER
p {~ s 5
pLD \(,
y,. 10 .at wV<;e5
Downtown Clearwater
October 16/ 2.000
Downtown Clearwater
Prepared for:
Cit~ of clearwater
Florioa
Prepared by:
SIEMON & LARSEN
Strategic Land Planning & Management
our own own
October 16, 2.000
DOWNTOWN
Clearwater
For many years, the City of
Clearwater has aspired to
revitalize Downtown
Clearwater and its immediate
environs. In 1995, the
Community Redevelopment
Agency prepared a Downtown
Redevelopment Plan for an
expansive area which
extended from Clearwater Bay
eastward to Frederica Avenue.
our downtown
DOWNTOWN
Clearwater
our downtown
According to that plan, there are five overarching goals for the revitalization of
the Downtown:
I.
People Goal
To redevelop Downtown Clearwater into a successful "people place"
that attracts, retains, and inspires those of all ages and incomes to use
and enjoy the community town center.
II.
Mobilit,y Goal
To redevelop Downtown Clearwater with an efficient, high quality,
multi-modal movement system with supportive and visually positive
terminal and transition facilities for all modes.
III.
Activit,y Goal
To redevelop Downtown Clearwater to provide a broad and diverse
set of activity centers that accommodate, stimulate and reinforce
residing, working, visiting and purchasing in a greater waterfront
town setting.
IV.
Amenit,y Goal
To redevelop Downtown Clearwater to create and enhance a small
town center "quality of life" that attracts and sustains a diversity of
visual and use elements for cultural, entertainment, recreation and
environmental experiences
v.
Opportunit,y Goal
To redevelop Downtown Clearwater to attract and continue a process
of value creation action that invests time, dollars, resources and
creativity to enhance the value, tax base, image and quality of life for
Clearwater.
DOWNTOWN
Clearwater
In other words, the City of Clearwater desires to revitalize and
redevelop Downtown Clearwater as a desirable and attractive place
for people to live, work, shop, recreate and be entertained. The Plan
identified a series of strategic actions including infrastructure
improvements, changes to the City's land development
regulations, a commercial management program and 16 individual
projects including a Harbor Bluff project (restructure and expand
Coachman Park, develop a waterfront marina, remove parking
from waterfront, relocate library and expand Harborview Center),
two private development initiatives (Osceola Hotel and the so-
called super block), a city square project, town lake projects and a
series of eastern gateway projects.
Downtown Clearwater: Our Downtown is a preliminary design for
the implementation of the City's Downtown Development Plan.
Downtown Clearwater: Our Downtown is grounded in the belief
that the first step in revitalization is to create a sense of revival and
direction. The existing momentum in the Downtown is a deterrent
for new public investment, although the strategic location of the
Downtown continues to attract investment interest, but not action.
Downtown Clearwater: Our Downtown focuses on public actions
necessary to reposition the Downtown and to create a positive
investment climate. Downtown Clearwater: Our Downtown does
not try to be all things to all people and interests, and instead
identifies specific actions which, if implemented, will create a
reason for people to want to live, work and visit in Downtown
Clearwater.
2
our downtown
I DOWNTOWN
C earwater
Tab e ot Contents
. Introduction
1. A generalized land use district diagram
2. A torm and tunction plan tor public streets and ways
:, A main street program tor Cleveland Street
+. A catalytic redevelopment program tor the clearwater .5lu.f+
5. Urban design and land use standards
6. Implementation element
our downtown
I
n ro uc Jon
Downtown Clearwater: Our Downtown is a
preliminary implementation design for the
revitalization and redevelopment of the core
downtown ofthe City of Clearwater.
lDO\JVNTOVV"J
C earwater
Clearwater: Our Downtown enVISIOns a downtown where
residents ofthe City live, work, shop, eat and/or are entertained and
where tourists and other visitors go for dining, entertainment and
specialty shopping.
Downtown
Clearwater
our downtown
IDOWNTOWN
C earwater
Downtown Clearwater: Our Downtown contemplates a downtown
that is uniquely Clearwater in its character and reflects the
traditions and values ofthe City.
~~,
· - m i-if j
':' "n n 5!
ii tI II EI .u
LJ n ~ n 'it
U, t 11 II H
--~ _.-!~v>,- ". :J:;..:-.
2
our downtown
IDOWNTOVVN
C earwater
Downtown
Community
Redevelopment
Area
.,LO
~ 7
~~ ~
W 4 cD
...I ~u.1
~__.o J ~
l,,___,~
..
J-
t:
our downtown
0--
The primary purpose of Downtown Clearwater: Our Downtown is intended to
establish a certain but flexible framework for public and private investment in
Downtown Clearwater.
Downtown Clearwater: Our Downtown is comprised of several elements:
1. a generalized land use district diagram
2. a torm and tunction plan tor public streets and wa~s
). a main street program tor Cleveland Street
4. a catal~tic redevelopment program tor the clearwater BluFF
5. urban design and land use standards
6. implementation element
Although the City of Clearwater has previously designated a relatively large area as
a community redevelopment area, Downtown Clearwater: Our Downtown focuses
on a core downtown area which is located to the west of Myrtle between Drew and
Court. The area to the east of Myrtle, between Cleveland and Court Street, is in dire
need of revitalization, but is more suburban than urban in character and is more
accurately described as an in-town or near-downtown neighborhood. The area to
the west of Myrtle, however, has a true urban character and represents the City's
primary opportunity for "urban" redevelopment. Downtown Clearwater: Our
0,
"0, ---,
DREW ST
w
~
<{
...I
o
W
()
en
o
W L..--- 0 ---,
~ "
z ~ ~LAURAST ~o Lo Wo
~ ; CLEVELAND ST ~ ~
0:: w wOo::
~ 0 ~" PARK ST 0 ::l
J: ~ ~ j ~ rOl ~
r- t:) ...I PIERCE ST w I Ch-
0:: I- W . :ii
~ C~URfST it.1 L._
L ~o CHESTNUT ST oJ
I-. 0 .--,.- 0 .",...-- 0
L....: :..J
NOT TO SCALE
0~01
<(
,.r!
u.
~
)
CIDOWNTOtWN
earwa er
in the area to the east of Myrtle. The City has already embarked on an infrastructure
improvement program for the overall community redevelopment area and those
improvements, coupled with the City's active implementation of Downtown
Clearwater: Our Downtown in the core redevelopment area, will create market
opportunities which will transform the area to the east of Myrtle over time.
Generalized Existing Land Use District
The existing pattern of land use in the core downtown area dictates the
Core Downtown
Focus Area
~!
\
#:!~
:~
,~
...
4
our downtown
an
se
The existing pattern of land use in the
core downtown area dictates the general
pattern of future land uses.
IDOWNTOWN
C earwater
1
Generalized Existing Land Use Districts
Functionally, the area is divisible into four distinct districts:
.........~~ Main Street Retail
Cleveland Street is and should remain the City's functional "main
street. "
Institutional and Ottice
The area between the Cleveland Street Corridor and Court Street is
already established as an institutional district with existing and
planned governmental, cultural and religious buildings.
clearwater Blutt
The land to the west of Osceola (between Drew Street and Pierce
Street) is a unique area which is currently an underutilized resource
of citywide importance, but which has substantial potential to be
expanded with public uses.
II Mixed Use Retail
The balance of the land area to the north of the Cleveland Corridor,
between the Corridor and Drew Street, is an area which is
appropriate for a mix of uses in the style of "new urbanism."
-:"---
The land use district designations are not intended to
be prescriptive, but to identify in a strategic sense,
the desired overall character of particular parts of the
core downtown. For example, the Institutional and
Office District, while it is composed predominantly
of institutional and office uses, currently contains a
number of non-institutional uses which are
beneficial and desirable attributes of an institutional
and office district. In this context, Downtown
Clearwater: Our Downtown promotes the continued
vitality of the institutional and office uses in the
district but also encourages the development of
commercial retail and restaurant uses in the
Institutional and Office District to promote more
---- street level activity and evening and night time uses.
r---'
our downtown .
(DOWNTOWN
C earwater
Existing Institutional
Uses
*
Main Street Retail _.
Cleveland Street =="
Institutional!
Office
Clearwater Bluff
Pine lias Trail __
Mixed Use
Retail
Generalized Existing
Land Use Districts
...~' ...
"j' ,"- . "!
~ . '. ,...- 'C .
2
arm
I
The functional framework for the downtown is the traffic
circulation system --not just in terms of mobility, but also in regard
to community character. The public ways in downtown Clearwater
are the downtown's addresses; and addresses are the framework for
community character. To a great degree, the form and function of
the streets and adjacent sidewalks define the character of a
downtown.
IDOVVNTOVVN
C earwater
2
Form and Function Plan
tor Public Streets and Wa!Js
Historically, Cleveland Street was the City's "main street" even though it was
functionally a dead-end street. In the 1920s, the Street was extended by causeway to
Clearwater Beach. As late as the 1950s, Cleveland Street was still the retail center of
the City as well as the "road to the beach."
(
~\
\~,
In the 60s, 70s and 80s, the center of retail gravity shifted to rapidly growing suburban areas - subdivisions
and strip shopping centers. As a result, the retail function of Downtown Clearwater declined. At the same
time, increased demand for traffic capacity to and from the Beach lead to the creation of a "beach by pass"
(Court and Chestnut one way pairs). Nevertheless, the character of Cleveland Street as a place has continued
to be subordinated to the capacity of Cleveland Street as a high volume traffic way.
Cleveland Street in downtown Clearwater is now on the threshold of "going back to the future." When the
new, fixed span bridge is constructed, Cleveland Street will once again terminates on or near the Clearwater
Bluff. In addition, Drew Street will be terminated at Osceola and vehicles traveling east west on Drew will be
intercepted at Myrtle and guided southward to the Court/Chestnut pair. As a result, traffic to and from
Clearwater Beach will have no choice but to by-pass "downtown" Clearwater. The plan for the new bridge
does include a formal entranceway to the downtown from the new bridge along the alignment of Pierce
Street. These changes will make downtown Clearwater a literal as well as figurative dead-end. In response,
Downtown Clearwater: Our Downtown recommends that the City act to transform downtown into a
destination in contrast to a way point on the way to the Beach.
our downtown
IDOWNTOWN
C earwater
'~.'
~,
i
. ... 1
_ JOe
.
Main Street Retail _:
Cleveland Street
Major Streets -r
Minor Streets
Pinellas Trail !!l 1:1
Existing
Hierarchy of Roads
2
our downtown
I DOWNTOWN
C earwater
~
,,',<," A_
our downtown
Downtown Clearwater: Our Downtown contemplates that if
Cleveland Street is to be a successful "main street" in the future, the
street itself and land uses along the street will have to become
"destination uses" instead of passive land uses dependent on
passerby traffic. To this end, it is important that Cleveland Street be
renovated into a "great" place - a place where residents and tourists
alike want to be. In addition, it is essential that Cleveland Street be
physically and psychologically linked to the Court/Chestnut pair
with signage, landscaping and other improvements.
In order to establish a physical and psychological link between Cleveland
Street and the Court/Chestnut pair, Downtown Clearwater: Our Downtown
recommends that the character of Myrtle Street be improved as a distinctive
boulevard between Chestnut and Drew. Downtown Clearwater: Our
Downtown also recommends that, if at all possible, Ft. Harrison should be
reconfigured as a two lane local, downtown road with generous sidewalks
between Court and Drew. In order to transform Ft. Harrison into a north-south
local street, it is necessary that the Alternate 19 designation be shifted to Myrtle
which in turn requires that the connection between Fort Harrison and Myrtle to
the south of the downtown be constructed. The functional hierarchy of the
vehicular circulation element of Downtown Clearwater: Our Downtown is
shown in the adjacent map.
,.
..
,/
/
/
/
)
DOWNTOWN
Clearwater
~I
..,
Causeway/PierceStreet Main Street Retail _ .
Realignment - I. Cleveland Street
M~rtle Street
MaJ"or Streets -:
Four Lane ouleveard
Fort Harrison Avenue
Two Lane Local Road Minor Streets !!!'i.'J .!l
~
mD....
~~ .
W.
, .'
J,;;,.
Pine lias Trail
Proposed Functional
Hierarchy of Roads
4
our downtown
I
ree
aJn
The transformation of Cleveland Street into a
"main street" requires the reconfiguration of the
street itself, adjacent sidewalks and building
appearance and function. In its existing
condition, Cleveland Street is a three lane road
which is devoted almost exclusively to
accommodating through traffic and turning
movements.
DOWNTOWN
Clearwater
Proposed
Rev italization
Improvements
(Illustrative Block)
Main Street Program for cleveland Street
Downtown Clearwater: Our Downtown provides two components for the Cleveland
Street Program: a renovation program for the street and a specific program for
Station Square Park. The renovation of Cleveland Street itself is proposed as a two
lane street with landscaped medians in the center of each block, centered between
relatively short left hand turn lanes. Ideally, the medians will be planted with large
oak trees with a trunk diameter of in excess of 10 inches at planting which would
constitute a substantial scenic landmark and provide extensive shade along
Cleveland. In the event that the cost of utility relocation is prohibitive, the medians
should be landscaped in a distinctive character which will give Cleveland Street a
readily identifiable character.
SOUTHERN
MAGNOLIA TREES
STORE
AWNINGS
our downtown
DOWNTOWN
Clearwater
w
~
W
...J
I-
0::
>-
"1)
~
~
tt\
~
CROSSWALKS
I
J
2
our downtown
I DOWNTOWN
C earwater
r............". -..
. ~
. ,<.....
<.," ..~
-~.....
" . .~.
#: "j~\. ,
I.
"'-;:::,....
Before
cleveland Street
After
our downtown
)
IDO\NNTO\JVN
C earwater
BICYCLE
RACKS
TREE
PLANTING
Section at
Sidewalk
~
~.~ I
r.:'l
Streetscape/
Street Furniture Elements
(Enlarged Partial Plan)
J~
t:Jl
__ ______1:
STREET
LIGHTING
CAFE TABLES
AND CHAIRS
+
our downtown
IDOV\fi\lTOWN
C earwater
As a general design principle, parallel parking will be maintained on both sides of the
street, though it is appropriate to replace up to thirty percent (30%) of the parallel
parking with sidewalk extensions to allow for sidewalk cafe seating in conjunction
with an adjacent restaurant. Pedestrian cross walks, constructed of decorative pavers
will be constructed at each corner and at the center of each block - providing safe and
convenient pedestrian crossing and in addition naturally "calming" the traffic on
Cleveland Street.
our downtown
The sidewalks along both sides of Cleveland Street
will be substantially renovated starting with the
removal of the existing fixed planterslbenches. The
existing oaks will be removed and palm trees -
sabal, washingtonian or date trees will be installed
at regular intervals along both sides of the street.
Uniform street lighting will also be installed at
regular intervals along the street from Myrtle to the
western terminus of Cleveland. Finally, a uniform
pattern of paving materials will be installed. The
functional character of the sidewalks will be
regularized along the length of the street, with the
pedestrian way immediately adjacent to the facades
of the buildings covered by awnings or arcades.
5
DOWNTOWN
Clearwater
Downtown Clearwater: Our Downtown contemplates that the detailed character of
the sidewalk will vary according to the adjacent land uses. For example, a retail shop
might have bicycle racks or benches in front while a delicatessen might have
outdoor cafe seating. Use of street furniture which is de-mountable would allow for
future changes in tenancies.
"
<'''0-
- ,
..............""'Iii:_.
1::l - -
_ ::. r
~
6
our downtown
IDOVVNTOVVr--J
C earwater
Downtown Clearwater: Our Downtown recommends that the City take steps to
make downtown Clearwater "a place to be" with frequent, regular events. And,
Downtown Clearwater: Our Downtown recommends that the events be initiated as
soon as possible as one means of anticipating and mitigating the closing of the old
bridge. City-sponsored events in the downtown are very successful in bringing
people downtown on an occasional basis. Unfortunately the frequency of those
events is such that they provide precious little support for restaurant, entertainment
and specialty retail uses. What the City needs is an event schedule that makes
downtown Clearwater a "regular" option for the community at large. A significant
factor in the renaissance in downtown West Palm Beach was a weekly street party
that eventually attracted many thousands of persons to Clematis Street every week.
Clearwater could easily implement a comparable event each week in downtown
Clearwater, ideally as a "Night on Main Street" with street vendors and music.
Unfortunately, the state road status of Cleveland Street makes it practically
impossible to hold such an event on Cleveland Street prior to the completion ofthe
new bridge. Worse still there are few alternatives. Such an event could be staged on
Drew Street along the Bayfront, however, that would do little for the downtown
restaurant, entertainment and specialty retail establishments in the downtown. In
the near term, Station Square Park, which is currently used for monthly CRA
sponsored events, is the most suitable location for a weekly event.
our downtown
7
(DOWNTOWN
C earwater
In addition to the improvement of the public realm, the proposal for Clearwater
Street in Downtown Clearwater: Our Downtown includes an incentive program to
attract restaurant and specialty retail uses to the Street. The primary focus of the
incentive program is to attract restaurant and retail uses to Cleveland Street which
would be open until at least 9:00PM on a regular basis. Incentives could include
outright cash subsidies, low interest financing, off-street parking, event sponsorship
and guarantees. For example, the intersection of Cleveland and Garden is
completely lacking in any sense of urban energy or excitement. Downtown
Clearwater: Our Downtown recommends that the City do whatever it can to
promote the use of the first floor of the buildings located on the northeast and
southeast comers of the intersection for destination restaurant/entertainment uses. If
direct subsidies or guarantees are necessary, then the City, through the CRA, should
give serious consideration to making such subsidies or guarantees available.
Downtown Clearwater: Our Downtown recognizes that the City and the CRA must
invest in the downtown if the City wishes to see the downtown revitalized.
8
our downtown
I DOWNTOWN
C earwater
;1 ;.D~
~ ~j
l.
.....-
o ""'-".
;, ~
<(\}
i'~'
t;::~
-~~.~~,~*.'..
The CRA, for example, could pledge whatever tax increment might be
generated by a particular property in the future to reimburse the property
owner for investment in a qualifying redevelopment initiative. If a property
owner were willing to renovate the first floor of one ofthe two office buildings
at the Cleveland/Garden intersection, for example, the CRA could pledge all
tax increment generated in the future from that property to reimbursement.
Assuming the owner of a building with an assessed value of$6.5 million were
willing to invest $1.5 million in converting the ground level into a significant
restaurant/entertainment use, the tax increment generated by that investment
would translate into a future tax increment with a net present value of
approximately $350,000, taking into account the invested capital and future
inflation (at 5% per annum). While the reimbursement would depend upon the
success of the investment and appreciation or inflation translating into
additional assessed value over time, the reimbursement represents slightly less
than a 25% subsidy.
Station
Square
Park
............=..-
.-,
~..:~
_.....~..:~~. -..
.~
,.
_ ""':r
our downtown
Office Building, Southwest Corner of Cleveland Street and Garden Avenue
9
I DOWNTOVVN
C earwater
Downtown Clearwater: Our Downtown recommends that the City pursue a
public/private partnership for the redevelopment of the parking lot to the east of
Station Square Park as soon as possible. The recommendation is grounded in several
factors. First, the land is already owned by the City and its current use as a surface
parking lot is an underutilization of the land. As an owner, the City has the ability to
make the land available on very favorable lease terms as an incentive to attract a
developer/redeveloper to invest in Downtown Clearwater. Second, the parking lot
fronts on Cleveland interrupting the definition of the street as a place. Third, the
inclusion of a parking structure allows the City to use revenue bonds to finance
community redevelopment. Fourth, additional parking spaces will enhance the
viability of east Cleveland Street as a specialty retail area. Finally, the City needs to
take some dramatic action to send a message to existing and future property owners
and tenants that the City is serious about implementing Downtown Clearwater: Our
Downtown.
Ideally, the redevelopment would involve a public parking garage with retail frontage along Cleveland
Street and Station Square Park and urban residential units on upper floors of a building "wrap" around the
parking garage. The City should take great care to ensure that the uses which will be established in the retail
elements of the project are compatible and synergistic with the existing uses in the immediate vicinity.
Special consideration should be given to playing off the unique character of the Saltwater Fly Fisherman by
promoting other recreation, outfitter type retailers in the Downtown. Although Downtown Clearwater: Our
Downtown recommends that the City go forward with the Station Square project and anticipates that such a
project is economically feasible, there are significant market obstacles to overcome. The most important of
those obstacles is the absence of a critical mass of residential and commercial activity. As a result,
Downtown Clearwater: Our Downtown foresees that the City and the CRA will have to subsidize the
project by contributing the existing parking lot to the undertaking and providing financing for required
public improvements and the parking garage.
~...'t.~. .......__...~_N_. --.
...t!:' .......:..
, ~l " -~ . .
"t ~.. ".
_: ~~IF'~~- .
';'.:
~I
-,: .... .
~.
..--
.--
._'....... ',"
........--....---..
:oJ
r~_
~
.. 'J ~ J-L
10
our downtown
,
,
Although the demographics supporting downtown Clearwater are
relatively strong. The negative economic trajectory and momentum
of the downtown during the last twenty years have created significant
market obstacles to private investment.
DOVVNTOVVN
clearwater
+
Downtown
Clearwater (1930)
at Cleveland Street
and Garden Avenue,
Looking West
our downtown
Catal~tic prcject
The City's decision to construct a new Memorial Causeway Bridge and make the
downtown's main street a "dead-end" only compounds the negative market forces
that suppress the downtown's potential. Experience from around the country makes
it clear that the pragmatic incremental approach to downtown redevelopment is
rarely able to overcome the ever shifting economic forces that control public and
private investment. In contrast, one or more "catalytic projects" - projects which re-
position the downtown and reverse the trajectory of decline - are at the core of most
successful redevelopment initiatives.
Successful catalytic projects come in all shapes and forms - public, private and
public and private; nevertheless they have certain common elements. Most
importantly, they involve a critical mass of public and/or private investment that
makes a visible change in conditions and represents an investment that creates at
least a perception of permanence. Equally important, they are distinctive as opposed
to a copy of a project that worked somewhere else. The regrettable experience with
festival marketplaces makes it clear that what works in Boston may not work in
Lexington, Kentucky, Jacksonville, Florida or Norfolk, Virginia. In most cases,
catalytic projects involve transformations which are remarkable, almost too good to
be true - the worst to the best - and are impossible not to notice: an obsolete harbor
converted into a waterfront entertainment complex, a failed mall replaced with a
mixed use urban village or a drainage ditch turned into a vibrant waterfront.
p./".-
.;
. .
..
"
-
- -- - - - -- - ~- -. -- -----
.. ,...,-
2
IDOWNTO\NN
C earwater
Mizner Park
Boca Raton, Florida
Worth Avenue
Palm Beach, Florida
our downtown
IDOVVNTOVVN
C earwater
our downtown
As downtown Clearwater's economic fortunes have slowly but steadily declined
during the last twenty years, the need for a catalytic project has been well-
recognized. Indeed, the Clearwater "Bluff' has been identified over and over again
as the potential site for a redevelopment project which would be the salvation of the
downtown; and for good reason. Clearwater Bluff is the most remarkable "urban"
landscape in the State of Florida and exceptional by any standard.
Unfortunately, the Bluff is also the most abused urban landscape in the State. In
1999, the City Commission issued a request for developers qualifications for a
catalytic downtown redevelopment project for an area which extended from Fort
Harrison to the Bayfront. The City selected a joint venture of highly-regarded
developers who proposed a major catalytic project which included more than 1,000
residential units, the conversion of the Harborview Center into a downtown
multiplex cinema, the redevelopment of the Calvary Baptist Church as a downtown
hotel and the redevelopment of the Bayfront into a world class urban park. The
citizens of the City, however, rejected the project at a referendum which was
required because the developer's development proposal included the long term lease
of public lands.
Downtown Clearwater: Our Downtown accepts the decision of the referendum and
assumes that the only viable alternative to the public/private catalytic project which
was rejected is a catalytic undertaking by the City itself. Downtown Clearwater: Our
Downtown recommends that the City commit to the transformation of the land to the
west of Osceola into a great, public urban waterfront. The City has already
committed to the construction of a new library in the southwest comer of the
intersection of Drew and Osceola. It is vital that the new library be a part of a
dynamic urban waterfront or much of the City's investment in the new library will be
lost. In addition to the new library, Downtown Clearwater: Our Downtown
recommends that all of the surface parking to the west of Osceola be relocated to
parking garages at the top ofthe Bluff on the existing City Hall site or be relocated to
a new parking garage in the block surrounded by Cleveland, Fort Harrison, Drew
and Osceola.
)
IDOWNTOWN
C earwater
j ~: ...~
The Clearwater "Bluff'
+
our downtown
DOWNTOWN
Clearwater
NEW
LIBRARY
BAYFRONT
PROMENADE
NEW
AMPHITHEATER
OSCEOLA
PARK
OPEN GRASS
PARK
STEPS
Bayfrant Park
Illustrative Concept
our downtown
In place of the eXIstmg 18 acres of asphalt, Downtown
Clearwater: Our Downtown recommends that the City create
an active urban, waterfront park with a major outdoor
entertainment venue which would serve as an anchor for a
revitalized downtown which is a regional restaurant,
entertainment and specialty retail destination.
Downtown Clearwater: Our Downtown recommends that the
Bayfront Park be divided into three distinct areas: 1) a new
amphitheater suitable for frequent outdoor performances; 2) an
open grass park with a central place for a major fountain; and 3)
a botanical garden to the south. The new and improved
amphitheater is proposed to be located in the northwest comer
5
of the park near the existing docks. Drew Street to the west of Osceola would be
limited to local traffic - private properties on the north and the Bayfront Park on the
south. At the south end, the existing parking north of the Pierce 100 building would
be maintained and would be accessed by the Pierce 100 access road. Cleveland
Street would be closed at Osceola and the right of way between Osceola and the
bottom of the Bluff would be improved with a series of steps. Downtown
Clearwater: Our Downtown contemplates the development of a stylized park with
promenades that give the park definition and a sense of place. Access would be a
series of steps from the top of the Bluff and vehicular access points on the north and
the south. The proposed park features a 25 foot wide "Bayfront Promenade"
extending from what is currently the western end of Drew to a point just south of the
existing alignment of Cleveland Street.
The general form of the park is reminiscent of a formal urban garden with distinct
areas outlined by 20 foot wide walkways. The walkways create a sense of form and
place as well as convenient access and help to create a human-scale place.
Downtown Clearwater: Our Downtown contemplates that one or more of the green
areas outlined by the walkways may be improved as a formal garden at some point in
the future. Downtown Clearwater: Our Downtown proposes that the land area
between Harborview and the new library be developed into Osceola Park as an
"urban plaza" to serve as an address for Harborview, the library and the privately
held land to the east of Osceola. Osceola Park would be connected to the Bayfront
Park by a pair of20 foot wide steps leading from the top of the Bluff to the bottom.
The sidewalks connecting to the steps are a part of the walkways which define the
Bayfront Park.
Downtown Clearwater: Our Downtown estimates that the cost of the proposed
Bayfront Park will be $5.3 to $6.2 million, assuming that construction commences
within the next 18 months. The following chart sets out the components of this
estimate.
Bayfront Park
PAVERS $1,389,000 $2,315,000
GRASS 2,221,283 2,221,283
OSCEOLA PLACE W /FOUNTAIN 1,017,283 1,017,283
TREES 165,000 165,000
LIFT STATION 500,000 500,000
DEMOLITION 720,000 720,000
TOTAL $5,292,495.50 $6,218.495.50
6
IDOWNTOWN
C earwater
our downtown
DOWNTOWN
Clearwater
I
I
I
est n
Ut e tnes
Downtown Clearwater: Our Downtown envisions an urban form and
function for the core downtown - pedestrian friendly streets and
comfortable places of social, cultural and economic interaction. In many
ways the form of the core Downtown is already established. However,
revitalization of existing improvements and the redevelopment of the public
realm, primarily public streets and sidewalks, create a significant
opportunity to improve both the appearance and function of the Downtown.
our downtown
DOWNTOWN
Clearwater
our downtown
DESIGN STANDARDS
A key element of the plan is to create good - if not great - streets in the Downtown.
While the architecture of individual buildings contributes to urban form and
function, the character of an urban place is primarily defined by the form and
function of public places - which in Clearwater (as it is in most downtowns), are
public streets, sidewalks and parks.
The most important criterion for a great street is that the "street" must be a place that
is hospitable to people; a place where people feel safe from the elements and crime.
While the travel lanes of the street may be given over to automobiles, the overall
character of the street must be as a place where pedestrians feel comfortable. In
subtropical climates shelter from sun and rain are an essential of a great street.
Great streets are also "addresses" that provide character and context as an urban
amenity to adjacent private buildings. In most cases, the address quality of a street is
defined by its character - primarily street and landscaping. However, it is not enough
that a street be attractive, it is also necessary that it be functional in terms of
accessibility and utility.
The essence of an urban place is a sense of concentrated and diverse activity, and
streets and sidewalks are the primary venue of urban interaction. Sidewalks should
be wide enough to allow people to stop and talk or to sit at a cafe table without
interfering with other pedestrians. Traffic on streets should be physically and
psychologically separated from pedestrian zones, or should be designed and used in
a way so that vehicles naturally yield to the pedestrian. In other words, good urban
streets are places where there is an effective balance between the transportation
function and the "place" function of the street.
Great streets have a quality of memorability -
a distinctive character which persists over time.
Street DeFinition
One element that all great streets share is a sense of definition. In other words, the
boundaries of the street are well-established by buildings or trees, and those
buildings or trees relate to the street in a manner that generates a sense of scale. From
the perspective of a pedestrian, a well-defined street helps to produce a sense of
security and place.
Five primary elements contribute to the physical definition of the street: (1) wide,
well-designed sidewalks; (2) buildings set close to the street; (3) proper landscaping
and street trees; (4) public spaces designed with special consideration for the urban
environment; and (5) endpoints that provide focus to the street.
Sidewalks
Properly designed sidewalks create an edge along the street through such features as
distinctive pavers, street furniture, and landscaping such as street trees. Generally,
sidewalks should occupy all of the horizontal space between the street and adjacent
buildings. In a downtown environment, sidewalks should be at least fifteen feet
(15') wide to accommodate two-way and side-by-side pedestrian traffic, street
furniture, and urban landscaping.
The importance of good sidewalks goes beyond defining the street. Sidewalks are
the area where the public realm meets the private, and where automobile-scale
transitions to human-scale. Sidewalks should be designed such that pedestrians feel
safe from vehicular traffic, crime, and the elements, and should provide
aesthetically pleasing details.
'~... .
~
2
lDO\NNTOWN
C earwater
our downtown
I DOVVNTOVVN
C earwater
our downtown
White concrete sidewalks lack character and detail and do not serve the goal of
creating a pedestrian-friendly, aesthetically pleasing environment. Therefore,
sidewalks should be constructed with pavers or multi-colored distressed or patterned
concrete in areas wherever possible, especially where buildings are closely spaced.
Build-to Lines
A well-defined street is characterized by closely spaced buildings that are set
adjacent to the sidewalk and scaled proportionately to the width of the street.
Accordingly, ifthe existing right-of-way can accommodate a fifteen foot (15') wide
sidewalk area, no front setback is required. However, if there is insufficient public
space for such a sidewalk, buildings should be set back to the extent necessary to
provide the sidewalk.
Wide gaps between buildings compromise the street's definition and act as
psychological barriers to pedestrian traffic. As such, no side setbacks are
recommended, and buildings should be as closely spaced as local fire codes permit.
Landscaping & Street Trees
Landscaping and street trees contribute to definition in several ways. First, where a
structure is set back further than those that surround it, landscaping and street trees
can be used to provide a sense of visual continuity along the street between the
buildings. Second, the use of different landscaping themes in different areas helps to
create a distinct sense of place and to define the edges of each area. Third,
landscaping can be used to provide a "soft edge" along the street, buffering the
vehicular lanes from the pedestrian areas, while allowing drivers to see through to
the buildings.
)
Along main streets within the downtown - Cleveland Street, Myrtle Avenue, East
Avenue, Fort Harrison Avenue, and Court and Chestnut Streets - columnar palm
trees with "clear grey" of not less than eight feet (8') should be planted in the
sidewalks, at a spacing of thirty-five feet (35') on centers. Appropriate palm trees
include sabal palms (sabal palmetto), washington palms (washingtonia robusta),
medjool palms (phoenix dactylifera 'medjool '), and canary island date palms
(phoenix canariensis). These readily available trees provide a sense of boundary
and place while preserving visual transparency along the street.
Tropical flowering trees, such as the crepe myrtle, are also a particularly desirable
addition to the urban landscape. Not only do they contribute landmark signals of the
season, they provide much needed shade during summer months. These trees
should be planted in the sidewalks along side streets at a distance of no more than
thirty-five feet (35') feet on center. Flowering trees should be planted in such a way
that leaf and flower clutter does not require daily clean-up. For sidewalk
applications, trees should be selected that remain attractive when pruned to heights
below twenty-five feet (25').
Open Spaces
Downtown open spaces should reflect the urban character of the area. Plazas and
hardscaped areas should be designed to tie into the sidewalk system, and should not
create large gaps between buildings that are visible from the street. Such gaps
generally compromise the definition of the street and act as a psychological barrier
to pedestrian traffic.
4
lDOWNTOWN
C earwater
our downtown
DOVVNTOWN
clearwater
our downtown
Endpoints
Street definition is not merely a function of what is along the sides of the road. It is
also important - especially for a retail street! - to create boundaries on the road itself.
Downtown Clearwater: Our Downtown recommends that upon completion of the
new causeway to Clearwater Beach, Cleveland Street be terminated in a pedestrian-
oriented plaza at Osceola Avenue.
At the other end of the Cleveland Street retail corridor, the intersection of Cleveland
Street and Myrtle Avenue, Downtown Clearwater: Our Downtown recommends
that the City transform the intersection into a landmark that creates a sense of place
and defines the entry into the retail corridor. The intersection should be redesigned
to reflect aesthetic as well as functional values. It should include:
1. comer treatments with street furniture and palm trees of varying sizes;
2. a multi-colored paver pattern within the intersection;
3. well-defined crosswalks;
4. new traffic signals and street lights that include banner standards; and
5. buried utility lines.
At right is the existing
condition of the intersection
of Cleveland St. and Myrtle
Ave, facing West. Below is
the same intersection after
implementation of the
proposed modifications.
I The scale ofa retail street should be such that a pedestrian will not be overwhelmed by the perception of being
forced to walk a great distance to explore the area. By contrast, pedestrians along other types of streets are
typically attracted to specific buildings, making endpoints psychologically less important.
5
Another element that all great streets share is a sense of character. Character
involves the human-scale aspects of street design, including architecture, materials,
colors, building facades and entryways, street furniture, lighting, and signage. Each
of these elements makes an important contribution to the overall sense of place.
Architecture
No particular architectural style is recommended for Downtown Clearwater. Still,
building design is an important consideration, and should be employed in such a way
as to enhance the community character. Thus, "daring" and "cutting-edge" building
designs should generally be avoided in favor of more traditional architectural styles.
New and existing buildings should complement each other in terms of scale and
mass, add interest to the streetscape, and promote a pedestrian-friendly environment.
Materials & Color
Building rehabilitations and
modifications should be performed in
such a way as to restore or enhance the
structure's historic character.
Materials should be chosen to match or
complement existing building
elements. New construction should
utilize materials that complement
adjacent structures and produce a
sense of human-scale. Glass-curtain
walls and metal fabricated buildings
should remain prohibited.
Light, cool colors (such as off-whites
and pastels) should be used for the
main bodies of buildings. Trims
should be accented with a
complementary color or a slightly
darker or lighter tone of the main color.
Window frames and architectural
details may be painted a third color,
which should be a slightly darker or
lighter tone of the main color. Dark
colors, stark contrasts, and "electric"
or "day-glo" colors should usually be
avoided. Bright colors may be used on
awnings, but should be avoided on
structures. Clearwater's regulatory
framework currently incorporates
these principles.
character at Streets
New buildings should have a traditional style and
should complement existing structures in terms of
scale and mass.
-----, ','
=8 jI'J'
~!i !It,"
"=.'~,.
B.--.
"Cutting-edge" designs should be avoided
6
IDOWNTOWN
C earwater
our downtown
IDOWNTOVVN
C earwater
Street-level Facades & Entryways
Though no particular architectural style is recommended, the traditional storefront
designs along Cleveland Street should be maintained and enhanced at the street-
level. These storefront designs are characterized by defined entryways (typically
recessed), large display windows, and awnings.
Transparent building facades2 are essential to a pedestrian-friendly environment.
Transparency creates a sense of security and adds interesting detail to the
streetscape. Throughout the downtown (including Cleveland Street), at least sixty
percent (60%) of each street-level facade should be transparent, meaning that
windows or doors allow pedestrians to see into:
1. the building, or
2. landscaped or hardscaped courtyard or plazas (where street level facades are
set off from the sidewalk at least fifteen feet (15') by a landscaped or
hardscaped courtyard or plaza).
Signs, window coverings, and other opaque materials may
cover no more than 10% of the area of any street-level
window in a nonresidential building that fronts on a public
right-of-way. At street level, opaque, mirrored, reflective,
and darkly tinted glass should be prohibited. These
materials create a hostile pedestrian environment not only
because they are opaque, but also because they reflect heat
and glare onto the sidewalk.
Building entryways should be clearly marked and
aesthetically inviting. Recessed entryways should be
No more than 10% of any street-level encouraged, as they help both to define the entry way and
nonresidential window should be opaque.
to create additional surface area for display windows. To
add to the definition and detail, variations in sidewalk
paver patterns are encouraged at building entries. Awnings should also be used to
mark entryways. .
Street Furniture
Street furniture, including benches (or
clusters of chairs) and trash receptacles,
should be liberally provided in the
downtown, especially along Cleveland
Street, at intervals no greater than thirty
linear feet (30') of sidewalk. Street
furniture should be constructed of low-
maintenance, aesthetically appealing
materials, and should be painted to
complement adjacent buildings. Where
2 For the purposes ofthis section, a "building facade" is that portion of a building that abuts the right-of-way, from
ground level to a height of twelve feet (12').
our downtown
7
IDOVVNTOWN
C earwater
used, above ground planters should be constructed at
appropriate heights and with appropriate surfaces to allow
additional seating opportunities.
Bicycle racks should be provided to promote alternative
modes of transportation. Bicycle rack systems should be
simple and aesthetically appealing, and should be painted
to complement adjacent buildings. The placement of street
furniture and bicycle racks should not interrupt pedestrian
traffic on the sidewalk. Areas where street furniture and
bicycle racks are located may be marked by changes in the
pattern of sidewalk pavers.
Bicycle racks should have a simple design and
should not interfere with pedestrian traffic.
Street Lighting
Existing street lighting in downtown
Clearwater is inconsistent, with a variety of poles and fixtures
employed to meet various lighting needs. Clearwater's historic
lighting, still present in some areas, is a plain single-globe
fixture set atop a cast-iron pole.
To enhance the character of the streets, all existing street lights
should be replaced with consistent, functional, and attractive
poles and fixtures. The new lights should adequately light
vehicular traffic lanes while simultaneously creating intimate
spaces along the sidewalks. They should reflect an historic
style and include interesting design elements such as multiple
globes, unique globe shapes, ornamentation, and banner
standards.
Signage
Signage is an important contributor to the overall character of
a place. Generally, signage should be creative, unique,
simple, discrete, and respectful of the design of the supporting
or adjacent building. Flashing lights, internally illuminated
plastic signs, roof signs, large projecting signs, and signs that
are otherwise scaled disproportionately to their supporting
structure should be avoided. Signs should be located in a
manner that does not obscure architectural details.
Awnings may also be used as signs. When used for this
purpose, letters should be sewn or screened onto the valance of
an awning in a professional manner as part of the overall
awning design. At the sidewalk level, blade signs, banners
and sandwich boards should not be discouraged. However,
signs placed on the sidewalk should not obstruct pedestrian
traffic, building entryways, or architectural details.
8
our downtown
DOWNTOWN
Clearwater
our downtown
Climate-Responsiveness
In Florida's subtropical climate, either
rain or hot sun discourages pedestrian
traffic for approximately half of the
year. Clearwater averages ninety (90)
days of thundershowers per year,
mostly in the late afternoons from June
through September. In August, the
average day is 82 degrees and humid.
Wind direction in Clearwater is fairly
evenly distributed, and average wind
speeds from every direction hover
around 10m.p.h.
To encourage year-round pedestrian
traffic, outdoor areas must be designed
to protect pedestrians from the
elements. Street trees, awnings, and
recessed building entries should be An arcade over the sidewalk adds architectural
coordinated to provide shelter at close style andprotects pedestriansfrom the elements.
intervals. At least sixty percent (60%)
of street furniture should be located in
shaded areas (including areas under
deciduous trees). Sidewalks, street furniture, and planters should employ materials
and colors that minimize heat absorption.
J:,~-"< ;. :.~
.11'Illllil'l!!
~l't'lUh
;;0;'
TRADITIONAL LAND USE STANDARDS
Traditional land use controls, such as limits on density, height, scale, mass, setbacks,
stepbacks, lot coverage, and parking play a more limited role within the
recommended design-oriented regulatory framework. Here, the emphasis is on
performance standards rather than application of mathematical formulae. Unlike
other areas within the City, high density development in the downtown is not
problematic, and should be permitted if it satisfies design standards and is supported
by the marketplace.
Densit~
Clearwater's current land development regulations place no direct restrictions on
density in the downtown area. Downtown Clearwater: Our Downtown supports a
design-based regulatory framework and recommends that no direct restrictions be
imposed upon downtown densities.
9
Height
Current land development regulations allow a maximum height of one hundred feet
(100') after a Level Two review process. Downtown Clearwater: Our Downtown
recommends the eliminating specific height restrictions within the downtown.
Scale & Mass
Even without density and height restrictions, buildings can be designed so that their
scale and mass promotes a pedestrian-friendly environment. Given the street widths
and predominate building heights in the downtown area, a height of forty-two feet
(42') - three stories - is the maximum uninterrupted building height that is in scale
with the desired environment. Above forty-two feet (42'), areas of buildings adjacent
to public rights-of-way should be stepped back one foot for every two feet in
additional height, so that the additional building mass will not be visible at street level.
78+ ft. view
distance reduces
perception of
building mass
Area of
diminished
perception of
building mass
1 ft. stepback
per 2 ft. height
._....m............,_.............................._.....
[.....................................................................-..........1
, I
I.
11
~
ji
-' i .-
:' II
/ ./1,
~{
I: /
l:
.J:,...",
/ij" fJ
~
c()
1:'-
. .,
!
~.
1..--1'..
~
~
~
"" .:~I
j 15 ft.;.....
'.
".
;
b?:::,
IfJ
50ft.
Street
80ft.
Setbacks
As mentioned in the previous section entitled "Build-to Lines," buildings should be
constructed to a line fifteen feet from the edge of the street. Front setbacks should be
required only when necessary to maintain this build-to line. There should be no
minimum side setbacks, and buildings should be spaced as closely as possible,
consistent with fire code regulations. Rear setbacks should also be set according to
fire code.
10
IDOWNTOWN
C earwater
our downtown
DOVVNTOVVN
clearwater
our downtown
Lot Coverage & Floor Area Ratio
There are currently no restrictions on lot coverage or floor area ratio in the
downtown area. Downtown Clearwater: Our Downtown supports a design-based
regulatory framework and recommends that no direct restrictions be placed upon lot
coverage and floor area ratios downtown. The scale and mass restrictions previously
described are sufficient to maintain a pedestrian-friendly environment.
Parking
Downtown Clearwater: Our Downtown anticipates that downtown Clearwater's
primary parking needs will be satisfied by four (4) municipal parking garages,
located at:
1. the block bounded by Laura Street, North Osceola Avenue, Drew Street, and
North Fort Harrison Avenue;
2. the block bounded by Cleveland Street, East Avenue, Laura Street, and
North Garden Avenue (Station Square);
3. the block bounded by South Fort Harrison Avenue, Pierce Street, South
Garden Avenue, and Park Street; and
4. the Northwest Comer of Pierce Street and South Osceola Avenue (City Hall);
and by small surface parking areas in improved alleyways. A limited number of
parallel parking spaces will also be available along Cleveland Street.
~k/'W
~A~,,;
~
.- .
,
Locations of proposed parking garages.
11
IDOWNTOVVN
C earwater
Parking Garages
Parking garages should be designed so
that their function is not readily apparent,
except at points of ingress and egress.
These points should be clearly marked to
avoid confusion and minimize vehicular-
pedestrian conflicts. Attractive signage
and changes to the texture of the road
(such as pavers) are recommended.
Parking garages should be "wrapped"
with retail or residential uses along edges
that face public streets (except alleys).
Pedestrian entryways and exits, including
staircases and elevated linkages to
buildings, should be designed to incorporate interesting architectural details,
foliage, attractive signage, and adequate lighting, and should provide adequate air
circulation. Long, sterile passageways are to be avoided.
Townhome-style residential wrap along garage.
Alley Parking
Where space permits, alleys may be improved for surface parking. While all alleys
should be kept clean, alleys that are improved for parking should be specially
maintained as pedestrian-friendly places. Specifically, buildings with rear
entrances on these alleyways should maintain a double-facade - one on the main
street and one on the alley. The rear facade does not have to be as ornate as the front,
but should be attractive and incorporate some of the same elements, including
awnings, planters, and display windows (or design elements that resemble
windows). Trash areas should be hidden in enclosures.
Details such as pavers are not required in alleyways, but pavement should be sealed
and in good repair. Parking spaces should be arranged in a manner that facilitates
pedestrian access to building entrances and minimizes vehicular-pedestrian conflicts.
Features such as awnings and raised banding make these rear entrances more pedestrian friendly.
12
our downtown
I
m emen a Ion
Make no little plans. They have no magic to stir
men's blood and probably themselves will not be
realized. Make big plans; aim high in hope and
work ....
Daniel H Burnham
It doesn't do any good to sit up and take notice if
you keep sitting.
Author Unknown
IDO\NNTOWN
C earwater
Implementation
Anyone can make a plan - the City of Clearwater has made many of them. A plan
without implementation, however, not only has no magic, it has no value. Downtown
Clearwater: Our Downtown is a preliminary design for the implementation of
Downtown redevelopment goals which have been in place for more than 20 years.
As such, it represents a series of specific, practical items which the City can do to
realize its goal to remake downtown Clearwater into an attractive, desirable focal
point for the City as a whole.
Realization of the City's redevelopment objectives will not be without difficult
choices and financial burdens. The City has exhausted - through the passage of time
and the recent redevelopment project referendum - the "free lunch" option for
downtown redevelopment. Put simply, existing conditions in downtown Clearwater
are sufficiently inert to overcome the relative strong demographics of the regional
market. If the City wishes to realize its redevelopment objectives, Downtown
Clearwater: Our Downtown concludes that the City must take the lead in reversing
the trajectory of the downtown. In other words, the City must invest, as soon as
practicable, the money necessary to: 1) transform Cleveland Street to the west of
Myrtle into an attractive and desirable place; 2) save the bay front from its current
condition and redevelop the bay front and bluff as a great waterfront urban park; and
3) stimulate private reinvestment by "casting the first stone" - a
public/private venture to redevelop Station Square Park and the
.. parking lot immediately to the east of the Park. There are other
initiatives which are proposed by Downtown Clearwater: Our
Downtown, however, they can be implemented over time once
the downward trajectory of the downtown is reversed.
our downtown
Priorit~ Strategies
Cleveland Street
Address - what the real estate industry calls "location, location,
location" -- is the sine qua non of real estate investment and
value. The public realm in downtown Clearwater is not a good
address, not in terms of the demographics of the market, but in
terms of the physical realm which serves as the locus for real
property in the Downtown. To be plain about it, the public realm
in downtown Clearwater, except the bay front, is not an
attractive place where people want to be unless they are in a car
on their way to the Beach. Successful places are framed by an
attractive and desirable public realm - streets, sidewalks, plazas
and parks - which serve as the good address for private
investment.
IDOWNTOWN
C earwater
The existing condition on Cleveland Street leaves much to be desired. Literally every element of the
Cleveland streetscape falls short of the mark in one way or another. The road way is designed and used to
accommodate cars which want to get to the other side of the Downtown as fast as possible. Rather than
forcing the driver to experience the downtown as a "place," the road is designed to get the driver through the
downtown as fast as possible. Sidewalks are inconsistent in width, character, elevation, composition and
condition. The existing street trees are the wrong kind of trees for the sides of the street because the oak tree
canopy will inevitably grow into the facade of the buildings fronting on Cleveland. The spacing and style of
street lights vary, magnifying a sense of disrepair and decline.
Downtown Clearwater: Our Downtown proposes the regularization of the streetscape along Cleveland from
Myrtle to Osceola as an immediate priority for several reasons. First, the failure of the downtown
redevelopment referendum has undermined the confidence of property owners and tenants in regard to the
future of the downtown. Second, the new bridge and the closure of Cleveland hang like the sword of
Damocles over the downtown; and in the absence of physical evidence of the City's commitment to its
revitalization, it is unlikely that the private sector will be willing to reinvest in the downtown. Third,
economic conditions could change in the future and if the future of the downtown is not more certain that it is
today, that uncertainty could adversely affect property owner/investor expectations in the face of decline in
the economy.
The City's Department of Public Works has estimated that the cost of the proposed streetscaping
program (described in Chapter 3) is approximately $5.5 million. Downtown Clearwater: Our Downtown
estimates the cost at approximately $3.5 million. The principal difference between the two estimates relates
to the cost of relocating utilities in the proposed medians.
At least 50% of the cost of these
improvements can be justified to
be included as a special
assessment.
ITEM QUANTITY COST / UNIT COST
SITE WORK (SQ FT) 47,010 $5.00 $235,050.00
PAVERS (SQ F1) 47,010 $12.50 $587,625.00
STREET TREFS (EA) 125 $5,000.00 $625,000.00
STREET FURNITURE (EA) 120 $1,567.00 $188,000.00
LIGHT FIXTURES (EA) 125 $3,800.00 $475,000.00
PLANTERS (EA) 150 $565.00 $84,750.00
MEDIANS (SQ FT) 5,000 $17.50 $87,500.00
OAK TREES (EA) 10 $10,000 $150,000.00
SUBTOTAL $2,432,925.00
PROFESSIONAL FEES $364,939.00
SUBTOTAL $2,797 ,864.00
CONTINGENCY $419,680.00
SUBTOTAL $3,217,543.00
PROFIT 10VERHEAD $321,754.00
TOTAL $3,539,298.00
2
our downtown
DOWNTOWN
Clearwater
Clearwater Place
The transformation of the bluff and bay front from
asphalt to a great waterfront park is critical to
achieving the City's downtown redevelopment
objectives. The transformation involves four
elements: 1) relocation of the surface parking for
Harborview and the library to the east of Osceola and
to the City Hall property; 2) creation of great
waterfront green space with defmition and a sense of
place comprised of Osceola Place and a bay front
park; 3) development of an enhanced outdoor
performance venue to serve as a regular entertainment
"anchor" for downtown Clearwater; and 4) the
renovation of the Harborview Center to improve the
aesthetics of the building, connect the retail
component to Cleveland Street and to reorient the
uses in the western end of the building to take
advantage of the over water views and to provide bay
front park-serving uses.
Relocation of Parking
West of Osceola, the downtown Clearwater bluff and
bay front is the most remarkable urban landscape in
the State of Florida and on one of the most remarkable
in the nation. Of the almost 30 acres ofland between Drew and Pierce to the west of
Osceola, more than 75% of the land area is covered with asphalt and buildings -
more than 16.5 acres of surface parking lots. The relocation of the surface parking
which is currently located on the bluff and bay front is one of the most important and
challenging aspects of the reclamation of the downtown's most important asset.
There are currently 680 spaces located on the bluff and bay front, not including the
60 spaces which are located adjacent to Pierce Street on the south, spaces which are
rarely if ever used. These spaces serve Harborview Center and the main city library.
In order to meet the off-street parking needs of the Harborview Center and the new
main city library, the spaces must be relocated to the east of Osceola in the block
surrounded by Cleveland, Osceola, Drew and Ft. Harrison. The difficulty is that the
land in that block is currently improved and is extremely expensive. The cost of
acquisition, demolition and construction very likely exceeds the amount that could
be supported by parking revenue bonds given projected useage of the Harborview
Center and the new library. Downtown Clearwater: Our Downtown estimates that
each parking space would have to earn in excess of$6.25 per day in order to serve the
debt that would be required to construct a 940 space garage (680 spaces to replace the
parking on the bluff and bay front and 280 to replace the surface spaces displaced by
the new parking garage); assuming that: 1) the land which is currently used as
surface parking could be acquired for $30 per square foot; 2) the cost of demolition
and site preparation is $5 per square foot; 3) the construction cost per space is
our downtown
)
IDO\JVNTOWN
C earwater
$11,500; 4) weekday occupancy rates of at least 65%; 5) annual operation,
maintenance and capital replacement costs of$500 per space; and 6) 140% coverage
for 25 year, 6.5% tax free revenue bonds.
The optimal method of relocating the surface parking on the bay front and bluff
would be for the City to enter into a joint public private partnership for the
redevelopment of the so-called "super block." The concept is relatively
straightforward - the City and a developer would acquire all or most of the super
block. The developer would construct a large parking garage "wrapped" with retail
and residential uses. The garage would include 700 parking spaces for the City plus
the number of spaces the private component ofthe project would require. In this way
the cost of acquisition and demolition would be shared by public parking, private
development and private parking, thereby reducing the public cost to a level which is
supportable by anticipated parking revenues. Equally important, the joint public
private partnership would introduce additional retail and residential activity into the
downtown.
Osceola Place and Bay Front Park
Downtown Clearwater: Our Downtown proposes the creation of a waterfront park
(described in Chapter 4) which would serve as a local, citywide and regional
attraction. The water front park includes a proposal to create "Osceola Place" along
Osceola Street between Harborview and the new library. Osceola Place would be a
hardscape plaza with street furniture, urban landscaping and a signature fountain. To
the west of Osceola Place would be the bay front park with a bay front promenade,
the greens or commons, a botanical garden and a fully rigged amphitheater with no
fixed seating. Downtown Clearwater: Our Downtown estimates the cost of the
improvements for Osceola Place and the bay front park at $6.8 to $7.7 million,
depending on the quality of the paver material. It is not contemplated that the park
will generate any meaningful revenue and therefore must be funded by some
external source of funds. There are several grants-in-aid programs at the state and
national level; however, it is doubtful that any significant amount can be generated
through those programs. Downtown Clearwater: Our Downtown recommends that
the City propose an ad valorem property tax bond
issue to fund the bay front park. Assuming a $ 5
billion tax base, the millage required to support 25
year bonds would be .129 mils assuming a 6.5%
tax free rate. That translates into a tax burden of
$1.07 per month or 3 Yz cents per day for the
owner of a house with an assessed valuation of
$100,000 after homestead exemption. No one
likes an increase in taxes; nevertheless it is
incomprehensible that the citizens of the City of
Clearwater would not support such a modest levy
to transform the bluff and bay front from a land
stewardship embarrassment to a great waterfront
place.
4
our downtown
DOWNTOWN
Clearwater
Enhanced Outdoor Performance Venue
The key to the success of any place like a downtown is the
extent to which some aspect of the place is a greater-than-
local destination. For example, an enclosed mall depends
on its "anchors," usually department stores, to attract
patrons who visit inline stores while they are in the mall.
In recent years, entertainment-based destinations have
been used as anchors to revitalize many downtowns.
Mizner Park in Boca Raton and City Place in West Palm
Beach both rely on cinema anchors to generate traffic to a
location which has been abandoned by the market. For
downtown Clearwater, the prospects for a private
entertainment anchor are slim in the aftermath of the
recent defeat of the downtown redevelopment project
referendum. In its place, Downtown Clearwater: Our Downtown places increased emphasis on the
replacement of the existing bandshell with a full size, amphitheater production stage suitable for regular use
for presentation of road productions. Currently, there is no market -dominate outdoor performance facility in
the Tampa Bay region and downtown Clearwater has a unique opportunity to capture that position in the
regional market place while at the same time transforming its bluff and bay front from a place of asphalt into
a memorable and desirable waterfront park. Downtown Clearwater: Our Downtown recommends that the
new amphitheater stage be located in the far northwest comer of the bluff and bay front. This location
minimizes the impact of the amphitheater building on the over water vistas from the top of the bluff, takes
advantage of the natural contours of the land and takes advantage of the Drew Street right of way for access.
The cost of a quality amphitheater with necessary production facilities is estimated at $3.S million. A key to
the success of the amphitheater as an "anchor" is directly related to the frequency of performances and the
more equipped the amphitheater, the more easily the amphitheater will be host to a wide range of
performances. The cost of the amphitheater is problematic. While the amphitheater can serve as a
commercial production stage, the likely revenues from such operations is unlikely to cover operation and
maintenance and debt service. Downtown Clearwater: Our Downtown recommends that the City of
Clearwater finance the amphitheater with a grant from Pinellas County or with general revenue bond
proceeds. The subject of a regionally significant outdoor performance facility has been discussed by the City
and County off and on for several years and the County's provision of funding would serve multiple
purposes - promoting the revitalization of the downtown and providing the citizens of Pine lIas County and
the region with a superb outdoor performance facility. If County assistance is not available, the City could
finance the amphitheater with general obligation debt. Assuming that the City pursues a general obligation
bond issue for the bay front park, the inclusion of the amphitheater would increase the required millage rate
by 6 hundredths of a mil, or an additional SO cents a month or 1 Y2 cents per day for the owner of a home with
an assessed value of$l 00,000 after homestead exemption.
Harborview Center
The problems with Harborview Center are a lot like the love rose - "let me count the ways." Functionally,
Harborview is not an effecti ve anchor because most visitors travel to and from the Center by car - they go to
the Center by car and get in their car to leave, by passing merchants in the downtown. Aesthetically,
Harborview Center is a disaster. Seen across the bay from the Beach or from the Memorial Causeway,
our downtown
5
DOWNTOWN
Clearwater
Harborview (except when it is favorably lighted at
night) is simply unattractive - banal and un-
contextual. From Cleveland Street, the
Harborview building is a cheerless barrier that
isolates and strangles any sense of human place or
interaction. The Osceola frontage is lifeless and
foreboding. Put plainly, the Harborview building
breaks every rule for creating community of place
and it is essential that the building be renovated or
replaced. At a minimum, the retail use of the
building must be connected - visually and
physically - to Cleveland Street. In other words, the
retail facade ofthe building must be renovated to create a direct connection between
retail activity and Cleveland and Osceola Streets. At the other end, Harborview
should be reformed to take advantage of the spectacular over water views to the
west. Upper floor space on the west side of the building should be renovated with
windows so that the views are an amenity to meeting space, restaurants and other use
of community value and benefit. On the ground level, Harborview should be
converted into a bay front park serving facility with food and equipment services
which support park users.
Downtown Clearwater: Our Downtown doubts the long term utility of the existing
Harborview building and recommends that the City carefully evaluate the
alternative of replacing the facility with a new building which is more carefully
tailored to the City's specific programming needs. Downtown Clearwater: Our
Downtown anticipates that a conventional demand analysis will show that the City's
actual civic meeting space needs could be served by a building which is a fraction of
the size of Harborview. Downtown Clearwater: Our Downtown recognizes the
City's limited financial resources and accepts that the public is unlikely to support
substantial additional investment in the existing building. In this vein, Downtown
Clearwater: Our Downtown recommends that the City think seriously about simply
demolishing the existing building and replacing it with a 25,000 square foot of
community meeting space with concession space to provide food and equipment
service to users of the bay front park.
Secondar~ Priorit~ Pr~ects
Downtown Clearwater: Our Downtown contemplates that these priority initiatives
will reverse the trajectory of Downtown Clearwater and create a positive climate for
additional public and private investment. Secondary priority projects include the
functional and aesthetic improvements to Myrtle and Fort Harrison and the other
recommended programs described in Chapter 2. These projects should be
implemented in due course as a part of the city's long term capital improvements
program.
6
our downtown